MARIBYRNONG PLANNING SCHEME AMENDMENT C31 PANEL REPORT August 2004 MARIBYRNONG PLANNING SCHEME AMENDMENT C31 PANEL REPORT ELIZABETH JACKA, CHAIR BOYCE PIZZEY, MEMBER JULIA LAMBORN, MEMBER August 2004 Page i TABLE OF CONTENTS 1. SUMMARY.................................................................................................................1 2. THE PANEL PROCESS ............................................................................................3 2.1 THE PANEL ...........................................................................................................................................3 2.2 HEARINGS, DIRECTIONS AND INSPECTIONS ..................................................................................3 2.3 SUBMISSIONS ......................................................................................................................................5 3. WHAT IS PROPOSED?.............................................................................................7 3.1 THE AMENDMENT................................................................................................................................7 3.1.1 HERITAGE AREAS ...................................................................................................................9 3.1.2 INDIVIDUAL SITES .................................................................................................................11 3.1.3 CHANGES TO EXISTING SCHEDULE...................................................................................12 3.1.4 CHANGES TO THE MSS........................................................................................................12 3.1.5 CULTURAL HERITAGE POLICY ............................................................................................13 4. ISSUES....................................................................................................................14 4.1 NATURE OF SUBMISSIONS ..............................................................................................................14 4.1.1 THE COUNCIL’S SUBMISSION .............................................................................................14 4.1.2 SUBMISSIONS RELATING TO INDUSTRIAL SITES.............................................................18 4.1.3 SUBMISSIONS RELATING TO HERITAGE AREAS AND OTHER INDIVIDUAL SITES ......................................................................................................................................18 4.1.4 SUBMISSIONS IN SUPPORT OF THE OVERLAY.................................................................19 4.2 ISSUES IDENTIFIED BY THE PANEL ................................................................................................20 5. STRATEGIC CONTEXT ..........................................................................................21 5.1 STRATEGIC PLANNING FRAMEWORK ............................................................................................21 5.2 PLANNING AND ENVIRONMENT ACT 1987 .....................................................................................21 5.3 METROPOLITAN STRATEGY - MELBOURNE 2030 .........................................................................22 5.4 STATE PLANNING POLICY FRAMEWORK (SPPF) ..........................................................................23 5.5 LOCAL PLANNING POLICY FRAMEWORK (LPPF)...........................................................................24 5.6 MARIBYRNONG HOUSING STRATEGY 2000...................................................................................27 5.7 MARIBYRNONG HERITAGE REVIEW 2002 ......................................................................................27 5.8 THE HERITAGE PLAN 2002 ...............................................................................................................27 5.9 OTHER DOCUMENTS ........................................................................................................................28 5.9.1 VICTORIAN HERITAGE STRATEGY 2000-2005 ...................................................................28 5.9.2 DRAFT GUIDELINES FOR THE ASSESSMENT OF HERITAGE PLANNING APPLICATIONS 2000 .............................................................................................................29 5.9.3 PLANNING PRACTICE NOTE ON APPLYING THE HERITAGE OVERLAY .........................29 5.9.4 BURRA CHARTER..................................................................................................................30 5.9.5 DRAFT YARRAVILLE RIVERFRONT PORT AND INDUSTRIAL FRAMEWORK PLAN........30 6. USE OF AHC CRITERIA AT THE LOCAL LEVEL..................................................32 7. THE NEED FOR COMPARATIVE STUDIES OF INDUSTRIAL PROPERTIES ......36 8. THE NEED TO BALANCE HERITAGE OBJECTIVES AGAINST OTHER STRATEGIC PLANNING OBJECTIVES .................................................................38 9. MSS AND CULTURAL HERITAGE POLICY...........................................................42 9.1 MSS .....................................................................................................................................................42 9.2 CULTURAL HERITAGE POLICY.........................................................................................................46 9.2.1 GENERAL CULTURAL HERITAGE POLICY..........................................................................46 9.2.2 SUB-POLICIES RELATING TO HERITAGE AREAS..............................................................51 MARIBYRNONG PLANNING SCHEME, AMENDMENT C31 PANEL REPORT: AUGUST 2004 Page ii 10. INDUSTRIAL HERITAGE POLICY..........................................................................54 10.1 CONTAMINATED SITES, AND UNSAFE AND REDUNDANT BUILDINGS .......................................55 10.2 ‘CONSERVATION BY USE’.................................................................................................................55 10.3 EVOLVING INDUSTRIAL PROCESSES, AND THE IMPORTANCE OF THE EVOLUTIONARY PROCESS TO FUTURE HERITAGE SIGNIFICANCE...........................................56 10.4 DRAFT INDUSTRIAL HERITAGE POLICY .........................................................................................56 11. USE OF INCORPORATED PLANS.........................................................................57 11.1 INCORPORATED PLANS RELATING TO HERITAGE AREAS..........................................................57 11.2 INCORPORATED PLANS RELATING TO INDUSTRIAL SITES.........................................................59 12. INDUSTRIAL HERITAGE........................................................................................63 12.1 THE IMPORTANCE OF CONTINUITY OF USE TO THE HERITAGE SIGNIFICANCE OF SOME SITES .......................................................................................................................................63 12.2 EVOLVING INDUSTRIAL PROCESSES, AND THE IMPORTANCE OF THE EVOLUTIONARY PROCESS TO FUTURE HERITAGE SIGNIFICANCE...........................................64 12.3 THE NEED FOR CERTAINTY.............................................................................................................64 12.4 PROBLEMS ASSOCIATED WITH CONTAMINATED SITES, AND UNSAFE AND REDUNDANT BUILDINGS ..................................................................................................................65 13. YARRAVILLE INDUSTRIAL PRECINCT. ...............................................................66 14. CONSIDERATION OF SUBMISSIONS ...................................................................68 14.1 SUBMISSIONS RELATING TO HERITAGE AREAS...........................................................................68 14.1.1 HO2, BALLARAT/GEELONG ROAD RESIDENTIAL HERITAGE AREA, FOOTSCRAY (SUBMISSION 10) ...........................................................................................68 14.1.2 HO4 FOOTSCRAY RESIDENTIAL HERITAGE AREA, FOOTSCRAY (SUBMISSIONS 19 AND 23)...................................................................................................72 14.1.3 HO5 MUNITION WORKER’S HOUSING HERITAGE AREA, BRAYBROOK (SUBMISSIONS 16, 17, 20, 21, 22, 28, 29, 30, 31, 36, 56, 57, 58) ........................................74 14.1.4 HO8 QUEENSVILLE ESTATE HERITAGE AREA, KINGSVILLE (SUBMISSIONS 5, 6, 37, 42, 43) ...............................................................................................................................76 14.1.5 HO9 SEDDON RESIDENTIAL AND COMMERCIAL HERITAGE AREA, SEDDON/YARRAVILLE (SUBMISSIONS 3, 14, 24, 25, 27. 44. 50, 53).................................78 14.1.6 HO12 WAR SERVICE HOMES HERITAGE AREA, MARIBYRNONG (SUBMISSION 18) ...........................................................................................................................................80 14.1.7 HO15 YARRAVILLE RESIDENTIAL HERITAGE AREA, YARRAVILLE (SUBMISSIONS 32 AND 26)...................................................................................................81 14.2 SUBMISSIONS IN RELATION TO INDUSTRIAL SITES.....................................................................83 14.2.1 HO90, KINNEARS ROPEWORKS, BALLARAT ROAD, FOOTSCRAY (SUBMISSION 2) .............................................................................................................................................83 14.2.2 HO118, PEERLESS HOLDINGS, 19-21 EVANS STREET, BRAYBROOK (SUBMISSION 8).....................................................................................................................84