Amendment C93 Warrnambool Planning Scheme · 2016. 3. 30. · Warrnambool Planning Scheme Rewrite...

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Amendment C93

Warrnambool Planning Scheme Expert Evidence – Strategic Planning

Chris De Silva, Mesh

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1 Expert’s Statement 5

2 Introduction 8

2.1 Purpose 8

2.2 Structure of the evidence 8

2.3 Summary of Opinion 8

3 Evidence 10

3.1 Growth Area Planning – Response to Submissions 10

3.2 Summary of Opinion 19

3.3 Other submissions 20

3.4 Expert Declaration 21

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List of Figures

Figure 1 Strategic Framework Plan

Figure 2 Figure 6.1 of the Warrnambool Land Use Strategy

Figure 3 Figure 6.2 of the Warrnambool Land Use Strategy

Figure 4 Clause 21.05-4 North East Corridor Plan

Figure 5 Growth Area Planning Summary

Figure 6 Eastern Activity Centre Structure Plan

List of Attachments

Attachment 1 Table 5.1 of Warnambool Land Use Strategy

Attachment 2 December 2014 Land Supply

Attachment 3 Land Take Up (January 2015-December 2015)

Attachment 4 I.D Houshold Structure Projections

Attachment 5 Structure Plan Process

Attachment 6 Chris De Silva CV

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1 EXPERT’S STATEMENT

Name and Address of the expert

Chris De Silva, Director of Mesh Planning at Level 2, 6 Riverside Quay, Southbank, Victoria 3006.

The expert's qualifications and experience

I hold a Bachelor of Applied Science (Planning) from RMIT University and have approximately 27 years experience working as a strategic planner. The majority of this experience has been gained in growth areas in a combination of senior positions within Local Government and more recently in the private sector.

The expert’s area of expertise to make this report

I have lengthy experience in the public and private sectors in the field of strategic planning and development facilitation, with significant experience preparing, reviewing and implementing Strategic Plans, Structure Plans and Development Contributions Plans. I have been directly responsible for preparation and implementation of these plans while working for local government, and on behalf of local government, private developers and other agencies while working in the private sector.

I have appeared before numerous Panels and was appointed as a member of the Standard Development Contributions Advisory Committee (SDCAC), which was appointed by the former Minister for Planning.

Other significant contributors to the report

None - however some information to inform preparation of my report was provided by the Warrnambool City Council

The identity of any person who carried out tests or experiments upon which this report has relied and the qualifications of that person

NA

Facts, matters and all assumptions upon which this report proceeds

There are no other facts, matter or assumptions upon which this report relies other than those explicitly stated in the report.

Documents and other materials the expert has been instructed to consider or take into account in preparing his report, and the literature and other material used in making the report

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Overview familiarity with the following documents:

Eastern Activity Centre Structure Plan in 2004

Coastal/Hopkins River Structure Plan in 2008

North East Warrnambool Structure Plan in 2008

Dennington Neighbourhood Activity Centre Structure Plan in 2009

Warrnambool Industrial Land Use Review in 2010

North of the Merri Structure Plan and Development Contributions Plan in 2011

Dennington North Structure Plan and Development Contributions Plan in 2014

Dennington North Development Plan on 3 August 2015

North of the Merri Development Plan Stage 1 on 23 October 2012

Warrnambool Residential Land Supply Report in 2015

Draft Long Term Growth Area Background Report 2016

Eastern Activity Centre Structure Plan Review – current project on non statutory exhibition between 23 March and 20 April 2016

Environmental Sustainability Strategy 2008-2013

Warrnambool Coastal Management Plan 2013

Warrnambool Recreation Plan 2007-2017

Warrnambool Open Space Strategy 2014

Industrial Buffer Review Project 2014

Warrnambool Health and Wellbeing Plan 2013-2017

Warrnambool Sustainable Transport Strategy 2010-2020

Warrnambool City Wide Housing Strategy 2013

Moyne-Warrnambool Rural Housing Settlement Strategy 2010

Warrnambool City Centre Structure Plan 2012

Warrnambool Planning Scheme Rewrite Project Final Report January 2015

Land take up rates and planning permit activity

I.d consultants small area population forecasts for Warrnambool

A summary of the opinion or opinions of the expert

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A summary of my opinions is provided at Sections 2.3 and 3.2 of this report.

Any provisions or opinions that are not fully researched for any reasons

None

Questions falling outside the expert’s expertise and completeness of the report

I have not been instructed to answer any questions falling outside my area of expertise. The report is complete.

Instructions for scope of work

I did not participate in preparation of the Amendment however a number of submissions have raised issues regarding the Warrnambool growth areas framework. Maddocks lawyers have requested that I specifically review these submissions and prepare evidence in response.

Expert Declaration

I have made all the enquiries I believe are desirable and appropriate and confirm that no matters of significance, which I regard as relevant, have been withheld from the Panel.

Chr is De Silva

Direct o r

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2 INTRODUCTION

2.1 Purpose

Amendment C93 implements stage 1 of the Warrnambool Planning Scheme rewrite Project. More specifically the Amendment introduces a new Municipal Strategic Statement and makes other changes to local planning policy.

I did not participate in preparation of the Amendment however a number of submissions have raised issues regarding the Warrnambool growth areas framework. Maddocks lawyers have requested that I specifically review these submissions and prepare evidence in response.

2.2 Structure of the evidence

This evidence has been structured to respond to the submissions that raise growth area and related issues and to provide general and specific recommendations in relation to land located generally to the east of Aberline Road.

2.3 Summary of Opinion

It is my opinion that:

The Warrnambool Land Use Strategy 2004 (WLUS) identified a preferred development scenario;

The preferred development scenario placed emphasis on delivery of an initial 15 years of land supply;

There was always a distinction between the North East Corridor and land further to the east of Aberline Road;

The Strategic Framework Plan which appears at page 3 of 3 in clause 21.03-1 (in the current Planning Scheme) should be read in conjunction with figures 6.1 and 6.2 of the WLUS and the North East Corridor Outline Plan which appears on page 13 of 18 of clause 21.05 (of the current Planning Scheme);

Land to the east of Aberline Road has been consistently identified as a longer term growth area (post the initial 15 years land supply);

Council has embarked on a comprehensive strategic planning program since approval of the WLUS in 2004, an outcome of which has been an increase in land supply and competition;

Council has exceeded the initial 15 year land supply via approval of multiple structure plans but has appropriately adopted a proactive approach toward growth area planning and delivery;

Council currently has approximately 20-24 years of available land supply;

Taking into account available land supply there is no pressing need to deliver more land supply;

The Strategic Framework Plan could be changed without harming the overall strategy by amending the legend in relation to growth area H to read ‘Future Growth Corridor’ as opposed to ‘Long Term Growth Corridor’;

Based on all the work that Council has successfully completed for its growth areas, it is logical

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that the planning scheme should continue with the strategy of Structure Plan led process for the North East Corridor Extension Area as the last piece of the puzzle; and

This approach is consistent with the recommended approach that is set out in the Long Term Growth Area Background Report (LTGABR) March 2016.

There is no basis to initiate an isolated, site specific low density rezoning in the absence of a structure

There is no basis to initiate an isolated, site specific low density rezoning in the absence of a structure plan; and

Issues regarding density of development and connectivity etc are best dealt with via the structure plan process which, I note, may include assessment of the merit of a low density interface within the structure plan area.

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3 EVIDENCE

3.1 Growth Area Planning – Response to Submissions

A substantive issue that has been raised in submissions relates to the planning status of land generally located to the east of Aberline Road.

According to clause 21.03-2 (of the existing Planning Scheme), which specifically relates to the Warrnambool Land Use Strategy 2004, the land to the east of Aberline Road is identified as falling within an Interim Growth Boundary and with the following notation (see Figure 1):

Future Corridor

Extension

Short and medium term

integrated residential

development

Various submitters have objected to the proposal to include direct reference to this area within the proposed clause 21.01 as ‘Long Term Growth Corridor’.

Prior to addressing the proposed Amendment, it is important to explain the current operation of clause 21 of the Warrnambool Planning Scheme as it relates to the designated growth areas and to provide an overview of the status of growth area planning within the City.

As an outcome of the three year review of the then MSS in 2003, Council commissioned a comprehensive range of further strategic investigations which culminated in preparation of the Warrnambool Land Use Strategy (2004) (WLUS).

As set out in clause 21.03-2, the WLUS is described as ‘the successor to the City Plan and focused on the residential, industrial and commercial development needs of the City over the next 20 years.’

The key outcomes of the WLUS are shown on the Strategic Framework Plan which appears at page 3 of 3 in clause 21.03 (see Figure 1).

The Strategic Framework Plan indicates the general location of a series of residential, employment and mixed use and infill development opportunities including:

- Dennington North - Saleyards - Merri River North - Wangoom Road North - Residential - North East Corridor

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- Future Corridor Extension - Eastern Activity Precinct - Hopkins Point River and Coastal Environment - Coastal Environment - Inner Warrnambool - Warrnambool City Centre - Foreshore Area - Merrivale and South Warrnambool - Transit Orientation

Specifically with regard to the green-field growth opportunities, it is apparent that the designated growth areas collectively form a planned, orderly expansion of the outer limits of the City – a significant departure from the pattern of development which had been delivered over the course of the preceding 10 years which was far more piecemeal and disconnected in its form and location.

The WLUS notes the issues associated with this form of (historical) development:

Subdivisions are occurring in an ad hoc manner and are not of sufficient scale to permit a high degree of coordination in the treatment of streetscapes and features such as gateways, open space links, and community facilities. Further, there is a general preference for such developments to occur in undulating areas such as the Hopkins River area with attractive landscape views, leaving flat areas of residential zoned land undeveloped such as the outlying areas north east of Warrnambool. (WLUS pg 22)

In addition to identifying the limitations associated with un-planned, piecemeal development, the WLUS identified an acute shortage of available land supply which was estimated in 2004 at 3-4 years.

In response to these important strategic issues, and acknowledging the role of Warrnambool as a regional city, the WLUS identified a preferred development scenario which included a combination of green-field and infill development opportunities.

The executive summary of the WLUS summarises the preferred development scenario as follows:

To satisfy residential land supply requirements, estimated to be 1950 lots over the forthcoming 15 years, the following areas were identified for immediate residential development:

The north east corridor east of Mortlake Road, incorporating a drainage management feature, recreational corridor and community nodes;

The north Dennington area with linkages to the Merri River reserve;

environmentally responsive siting, design and landscaping; and

corridor and providing substantial open space areas with pedestrian

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and bicycle linkages.

In addition, the potential exists for further consolidation of established residential areas within the CAD and inner residential areas of west, east and south Warrnambool. This includes the redevelopment of brownfield sites such as the former Woollen Mills and Fletcher Jones sites.

Importantly, the WLUS also sought to address provision for employment growth in the preferred development scenario by recommending (as set out in the executive summary) that:

Future demand for industry is to be met by:

Allocating new industrial land at Allansford to accommodate future industrial enterprises;

Providing for new industrial developments in selected sites of west Warrnambool;

Retention of the existing livestock saleyards operation and providing for additional industrial and commercial enterprises within an industrial buffer area west of the saleyards; and

Providing for new industrial development in the vicinity of the Eastern

Activity precinct.

Land supply requirements for commercial activity will be met at the following

locations:

Within the CAD and Eastern Activity precincts, particularly for retailing

and offices;

Supplementary retailing within smaller centres such as Dennington and

Northpoint; and

Community, commercial and retail services at proposed nodes within the north-east corridor.

To assist in identifying the preferred development scenario, the available development options were subjected to analysis against a range of sustainability indicators - Table 5.1 at pages 43-46 of the WLUS (see Attachment 1).

The sustainability indicators included social, economical and environmental criteria and the assessment concludes with recommendations in relation to each of the options.

According to Table 5.1, specifically in relation to the North East corridor the recommendation was:

Selected areas to develop in the short term.

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To form part of 15 year land supply requirement.

Development Plan Overlay/Structure Plan.

It is very important to recognize however that the ‘North East Corridor’ refers specifically to land located to the west of Aberline Road (save for a small area of land to the east of Aberline Road to the north of Dales Road) as is shown on Figure 6.1 of the WLUS – the Warrnambool Land Use Strategy Plan – 20 year plan 2004 – 2024 (see Figure 2).

The Warrnambool Land Use Strategy Plan defines the land generally to the east of Aberline Road as:

Future Corridor Extension

Long Term extension area for north-east corridor

will require future Development Plan Overlay/Outline Development Plan

The plan which appears as Figure 6.2 of the WLUS provides further clarification of the Warrnambool Land Use Strategy Plan specifically in relation to the North East Corridor (see Figure 3).

The significance of the distinction between the land generally to the east and west of Aberline Road is that the recommendations contained within Table 5.1 of the WLUS identify the land which is to comprise the initial 15 year land supply requirement. This was identified as including:

North Merri

Mortlake Road

North East Corridor

Coast/Hopkins River area

Warrnambool CAD

Transit Oriented Development

North Dennington

Before moving on to explain the status of each of the growth areas and the operation of clauses 21.03-2 and 21.05-1, it is important to state that, in my opinion, and evidently on the face of the document, the WLUS has always maintained a distinction in status and timing between land generally to the west of Aberline Road which is defined as the North East Corridor, as opposed to land to the east of Aberline Road which is referred to as an extension to the North East Corridor.

Furthermore, this distinction is also carried through to the existing planning scheme. Clause 21.05-1 (of the existing planning scheme) on page 2 of 18 under the heading North East Corridor recognizes this distinction and describes the north east corridor as:

the area generally bounded by Aberline Road to the east, Mortlake Road (Hopkins Highway) to the west, Dales and Whites Roads to the south and land north of Wangoom Road to the north.

Clause 21.05-1 at page 5 of 18 then goes on to address residential land release timeframes and states: :

Residential Land Release Timeframes

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An immediate land supply for the forecast 15 year period has been nominated within the specified growth areas of the North-East Corridor, Dennington, the Hopkins Point River and Coastal environment and part of the North Merri River area. Development of the inner areas are also included as part of the 15 year land supply. As shown in the Land Use Strategy, land has been nominated for short to medium term residential development to satisfy the 15 year land supply requirement based on a land take up rate of 192.5 lots per year. The availability of this land for development will however, depend on the completion of considerable strategic work and statutory processes prior to release of land onto the market.

The Land Use Strategy includes a 5 year planning program to be enacted prior to the release of land for development, taking into account these preliminary planning processes. The key tasks of this program have been included as “further strategic work” in this MSS.

The staging of subdivisions within the growth areas should allow for the orderly extension of services, giving priority to areas that can utilise existing infrastructure and require lower levels of investment in new infrastructure. Once the designated growth areas have reached approximately 40% to 60% capacity, alternative areas nominated on the Land Use Strategy should be considered for development. These lots should become available for development when other areas reach 80% capacity. An annual audit of land development rates will be undertaken to monitor the rate of land sold and hence the need for additional land to be made available.

Clause 21.05-4 includes a section on further strategic work on page 11 of 18 which includes a specific action in relation to green-field areas which is:

In accordance with the recommendations of the Warrnambool Land Use Strategy, prepare structure plans, development contribution plans and introduce appropriate planning scheme amendments for the following areas

- North East Corridor - Hopkins Point River and Coastal Environment - Dennington

Clause 21.05-4 also includes at page 13 of 18 the North East Corridor Plan the following notation in relation to land to the east of Aberline Road (see Figure 4):

Available for residential development after the 15 year land supply is consumed

Clause 21.05-4 also includes a general action to:

Undertake an annual audit of land development rates to monitor the land take up rate and hence the need for additional land to be made available.

Again, while stating the obvious, it is important to note that the above provisions are from the existing MSS and are consistent with the WLUS.

Since the WLUS was completed in 2004, Council has initiated a very proactive and comprehensive growth area planning program which has resulted in the following (see Figure 5):

Approval of the Eastern Activity Centre Structure Plan in 2004

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Approval of the Coastal/Hopkins River Structure Plan in 2008

Approval of the North East Warrnambool Structure Plan in 2008

Approval of the Dennington Neighbourhood Activity Centre Structure Plan in 2009

Approval of the Warrnambool Industrial Land Use Review in 2010

Approval of the North of the Merri Structure Plan and Development Contributions Plan in 2011

Approval of the Dennington North Structure Plan and Development Contributions Plan in 2014

Adoption of the Dennington North Development Plan on 3 August 2015

Adoption of the North of the Merri Development Plan Stage 1 on 23 October 2012

Completion of the Warrnambool Residential Land Supply Report in 2015

Preparation of the Draft Long Term Growth Area Background Report 2016

Commencement of the Eastern Activity Centre Structure Plan Review – current project on non statutory exhibition between 23 March and 20 April 2016

In addition to these important growth area specific projects, the City has also completed a comprehensive range of related strategic initiatives including:

Environmental Sustainability Strategy 2008-2013

Warrnambool Coastal Management Plan 2013

Warrnambool Recreation Plan 2007-2017

Warrnambool Open Space Strategy 2014

Industrial Buffer Review Project 2014

Warrnambool Health and Wellbeing Plan 2013-2017

Warrnambool Sustainable Transport Strategy 2010-2020

Warrnambool City Wide Housing Strategy 2013

Moyne-Warrnambool Rural Housing Settlement Strategy 2010

Warrnambool City Centre Structure Plan 2012

Warrnambool Planning Scheme Rewrite Project Final Report January 2015

In my experience such a comprehensive and sustained commitment to growth area planning is unusual in its structure and rigour whether it be in a regional or metropolitan context.

Aside from the breadth and depth of projects that have been undertaken however, what is not immediately obvious is the extent to which Council has proactively intervened to:

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Increase land supply;

Increase diversity in choice (location and housing mix);

Improve the standard of urban design;

Improve development co-ordination;

Ensure that each growth area contributes toward important municipal initiatives such as establishment of linked open space systems; and

Establish affordable and equitable infrastructure funding schemes.

In recognition of land fragmentation issues and the desire to assist the development process, the level of intervention has extended beyond the structure planning process which is normally the responsibility of a planning authority into preparation of comprehensive Development Plans for Dennington North and North of the Merri.

These Development Plans were prepared with the involvement and co-operation of key land owners and are designed to facilitate the making of individual planning permits by developers with clarity and confidence.

In this context, the development facilitation role that Council has adopted extends well beyond a simplistic assessment of land supply and is reflective of a far more considered and sophisticated commitment to growth area planning and delivery.

In my opinion, the proactive approach that Council has adopted where the focus has been on getting the big picture right via the structure plan and development contributions plan process in advance of development and then actively working with developers to facilitate desired planning outcomes is a highly desirable approach.

This is in contrast to some other metropolitan and regional locations where land supply is being actively used as a negative planning tool to avoid or delay the strategic planning process the result of which is uncertainty and missed opportunities to achieve improved outcomes.

Notwithstanding my reservations about inappropriate emphasis on land supply in other locations, the following sections provide information in relation to the status of each of the Warrnambool growth areas. The status of the growth areas provides important context in which to assess submissions in relation to the land to the east of Aberline Road.

The Warrnambool Residential Land Supply Report 2015, estimated in 2015 that the City had a total residential land supply of approximately 6,321 lots which was comprised of:

4,930 zoned broad acre lots (78% of supply);

757 major infill lots and 12 (unzoned) future residential lots (12% of supply);

622 development ready minor infill lots (10% of supply).

This was estimated to equate to approximately 2.5 years supply of development ready minor infill lots and approximately 25.5 years supply of zoned residential land.

In preparation for the panel hearing up to date information was requested from Council in relation to take up rates.

The table attached (see Attachment 2) shows all categories of available land supply as of December 2014. The total of 6,220 lots is a slight decrease from the reported figure of 6,321 lots comprised of the following:


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757 major infill lots and 12 (unzoned) future residential lots (12% of supply);

561 minor infill lots (9% of supply).

In terms of the take up since December 2014, Council has undertaken a count between 1 January 2015 and 31 December 2015 (see Attachment 3). The table at attachment 3 shows a take up of 278 lots over a 12 month period where the available supply is reduced to:


621 major infill lots (10% of supply);

775 minor infill lots (13% of supply).

In terms of number of years of supply, i.d. prepared small area population forecasts for Warrnambool in September 2015.

The i.d. outputs include a 2016 estimate of 34,713 persons and a forecast of 46,762 persons by 2036 – an increase of 12,049 persons.

The projected increase of 12,049 persons equates to approximately 4,958 dwellings at an average occupancy of 2.43 persons per household (2.43 pph was selected based on i.d. household structure projections – see Attachment 4).

This projection to 2036 indicates that there is need for approximately 247 dwellings per annum at an average occupancy rate of 2.43 pph for the next 20 years.

This projected demand compares favourably on a 20 year average with the take up of 278 lots that was recorded between January 2015 and December 2015 noting that not all of the new dwellings would be occupied in the same period.

Applying an average demand of 247 dwellings per annum over a 20 year period, the City therefore currently has approximately 24 years land supply (assuming a mix of green field and infill supply and demand) or according to an accelerated take up of approximately 278 lots per annum the City has approximately 21 years land supply.

It is also noted that this land supply assessment excludes the potential yield that could be achieved in the Eastern Activity Centre Precinct.

According to the Eastern Activity Centre Structure Plan review project, which is currently on non-statutory exhibition (see Figure 6), the revised structure plan has a residential area with a net developable area of 41.0ha and a mixed use area with a net developable area of 7.0ha.

Putting the mixed use area aside (as there may be timing issues associated with this land as it is intended to provide for non-standard, higher density housing outcomes and mixed use development), the residential area which is divided into two precincts has a potential yield of approximately 430 lots (41ha X 0.7 = 28.7ha x 15lots/ha = 430 lots).

On this basis the residential area contained within the revised Eastern Activity Centre Structure Plan could add another 2 years of land supply (subject to rezoning).

According to this overview in relation to the status of each of the designated growth areas and the available land supply (and allowing for any significant difference of opinion regarding available land supply which takes into account land ownership and other constraints to supply), it is apparent that there is no pressing need to deliver additional land supply.

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This conclusion is supported by the ‘tests’ that are contained within clause 21.05-1 on page 5 of 18.

Returning to the operation of clause 21.03 and 21.05 and their relationship to the WLUS it is my opinion that:

The WLUS identified a preferred development scenario;



The Strategic Framework Plan which appears at page 3 of 3 in clause 21.03-1 should be read in conjunction with figures 6.1 and 6.2 of the WLUS and the North East Corridor Outline Plan which appears on page 13 of 18 of clause 21.05;


Council has embarked on a comprehensive strategic planning program since approval of the WLUS in 2004 an outcome of which has been an increase in land supply and competition;


Council currently has approximately 20-24 years of available land supply.

On this basis there is no pressing need to provide for additional land supply. However submitters have objected to the Strategic Framework Plan that is proposed to be included on page 6 of 6 in clause 21.01 which nominates the land generally to the east of Aberline Road as ‘Long Term Growth Corridor’ as opposed to the current Strategic Framework Plan which nominates the same land as ‘Future Corridor Extension Short and Medium Term integrated residential development’.

As I have set out above (in the fourth bullet point) it is my opinion that the designation in the Strategic Framework Plan (as exhibited on page 6 of 6 in clause 21.01) is consistent with the WLUS and the North East Corridor Outline Plan within the current planning scheme at clause 21.05 (page 13 of 18) which clearly designates the land as ‘Available for Residential Development after the 15 year land supply is consumed’.

Noting the lead times associated with the structure planning process and earlier comments regarding the potential impacts associated with over reliance on land supply assessments as a negative tool, it is considered that the Strategic Framework Plan could be changed without harming the overall strategy by amending the legend in relation to growth area H to read ‘Future Growth Corridor’ as opposed to ‘Long Term Growth Corridor’.

This recommendation is made on the proviso however that the emphasis continue to be on a Planning Authority led process of preparation of a Structure Plan and a Development Contributions Plan as has been undertaken for the other growth areas and which has been consistently recommended in the WLUS and the Planning Scheme rather than returning to an ad-hoc process of land rezoning.

Based on all the work that Council has successfully completed for its growth areas, it is logical that the planning scheme should continue with the strategy of Structure Plan led process for the North East

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Corridor Extension Area as the last piece of the puzzle.

This approach is consistent with the recommended approach that is set out in the Long Term Growth Area Background Report (LTGABR) March 2016.

The LTGABR was prepared by Council officers in response to on-going questions regarding Council’s intentions with regard to land located generally to the east of Aberline Road.

The LTGABR sets out a 4 stage process for preparation of a Structure Plan and a Precinct Infrastructure Plan for the land (see Attachment 5).

The introduction to the LTGABR states that:

Over the past 10 years, Council has been focused on planning for the City’s continued population growth. A recent audit of residential land supply confirmed that there is adequate zoned land to meet projected population growth until the year 2043 (approximately 28+ years land supply). This equates to an increase of over 25 years land supply within the past decade.

The Warrnambool City-Wide Housing Strategy 2013 identified that Council is now well positioned to commence planning the long term growth corridor in north-east Warrnambool without land supply pressures. (LTGABR page 1)

The LTGABR sets out a comprehensive response to Stage 1 of the intended process and includes a table with recommended next steps at pages 18 and 19.

In the circumstances, in my opinion the LTGABR establishes a robust basis for commencement of the structure plan process.

In this context I do not support the submission that was prepared by the TGM Group Pty Ltd which seeks to include 140 hectares of land immediately west of Horne Road bounded by Wangoom Road to the north and Boiling Down Road to the south in a LDRZ supported by a DPO, and to remove the requirement to prepare a structure plan amongst other matters in relation to policy regarding low density development.

In my opinion there is no basis to initiate an isolated, site specific rezoning in the absence of a structure plan.

Issues regarding density of development and connectivity etc are best dealt with via the structure plan process which, I note, may include assessment of the merit of a low density interface in this or other locations within the structure plan area.

Policy in relation to low density and rural living development in the context of a structure plan process should not be confused with protection of rural/agricultural land elsewhere within the municipality.

3.2 Summary of Opinion

It is my opinion that:

The Warrnambool Land Use Strategy 2004 (WLUS) identified a preferred development scenario;


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The Strategic Framework Plan which appears at page 3 of 3 in clause 21.03-1 (in the current Planning Scheme) should be read in conjunction with figures 6.1 and 6.2 of the WLUS and the North East Corridor Outline Plan which appears on page 13 of 18 of clause 21.05 (of the current Planning Scheme);


Council has embarked on a comprehensive strategic planning program since approval of the WLUS in 2004, an outcome of which has been an increase in land supply and competition;


Council currently has approximately 20-24 years of available land supply;

Taking into account available land supply there is no pressing need to deliver more land supply;

The Strategic Framework Plan could be changed without harming the overall strategy by amending the legend in relation to growth area H to read ‘Future Growth Corridor’ as opposed to ‘Long Term Growth Corridor’;

Based on all the work that Council has successfully completed for its growth areas, it is logical that the planning scheme should continue with the strategy of Structure Plan led process for the North East Corridor Extension Area as the last piece of the puzzle;

This approach is consistent with the recommended approach that is set out in the Long Term Growth Area Background Report (LTGABR) March 2016;

There is no basis to initiate an isolated, site specific low density rezoning in the absence of a structure plan; and

Issues regarding density of development and connectivity etc are best dealt with via the structure plan process which, I note, may include assessment of the merit of a low density interface within the structure plan area.

3.3 Other submissions

The Council report in relation to Amendment C93 includes a summary of submissions and a response to each of the submissions in Appendix B. The comments to follow focus only on selected major submissions.

Armada Funds Management

The submitter has raised 4 points the first of which has been agreed by Council.

The second and third points relate to the proposal to introduce the Eastern Activity Centre Framework Plan at page 8 of 23 in the exhibited version of clause 21.11 – the submitter is of the view that it is inappropriate to introduce the plan as the Eastern Activity Centre Structure Plan review is underway, the

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plan is in error and it is too detailed.

In response, it is acknowledged that the Eastern Activity Centre Structure Plan review is underway (currently subject of non-statutory exhibition) and that it would be ideal, as it is intended, if the Planning Scheme were amended to reflect the outcomes of that process once it is concluded.

Noting that the review process will not be concluded in the short term, there are three possible approaches that could be adopted:

1. Retain the exhibited plan but include direct reference on the plan to the status of the plan pending completion of the review process.

2. Replace the exhibited plan with the Warrnambool Eastern Activity Centre Precinct Structure Plan Concept (July 2004) as recommended by the Amendment C63 Panel.

3. Delete the plan pending completion of the review process.

Of the available options, option 2 is favoured as it would maintain the status quo pending completion of the review process.

The final point raises concern regarding the current zone boundary and has been addressed by Council.

Wannon Water

Wannon Water have raised four issues under the headings of Environment Risks, Natural Resource Management and Infrastructure.

The Council response has addressed these issues in turn with sufficient clarity however I would like to emphasise the significance of the request under the heading Environment Risk which requests a change to ‘Restrict residential subdivision and development within 500 metres of Wannon Water Reclamation Plant’.

Such a change to the Planning Scheme, without appropriate justification, has significant implications for privately owned land and will be addressed through the upcoming Industrial Buffers Review process and accordingly is not supported.

3.4 Expert Declaration

I have made all the enquiries I believe are desirable and appropriate and confirm that no matters of significance, which I regard as relevant, have been withheld from the Panel.

Chr is De Silva

Direct o r

Figure 1 Strategic Framework Plan

Figure 2 Figure 6.1 of Warrnambool Land Use Strategy

Figure 3 Figure 6.2 of Warrnambool Land Use Strategy

Figure 4 Clause 21.05-4 North East Corridor Plan

Figure 5 Growth Area Planning Summary

Figure 5 (cont'd) Growth Area Planning Summary

Figure 6 Eastern Activity Centre Structure Plan

Attachment 1

SGS Economics and Planning Pty Ltd

Warrnambool Land Use Strategy

PARSONS BRINCKERHOFF 2128122A 001 RPT 0002 D0 MO'D:ab M03567 Page 44

Options Social Economical Environmental Recommendation

north of the ridgeline (water, sewer and drainage).

Retail expansion and economic development opportunities.

Warrnambool Gateway.

Benefits from planned north-south road linking Dales Road and Raglan Parade.

along Princess Highway to Horne Road.

Residential development south of Dales Road.

Allansford

Residential area to be promoted in accordance with UDF

Promote industrial enterprises within Allansford.

Potential to reinforce the established community.

Opportunity to attract large scale business to Warrnambool

Good road and rail access for freight transport.

Environmental and amenity interface issues to be managed

Support gradual expansion of residential centred around existing nodes.

Expand existing industrial area for large scale industry

Coast / Hopkins River Area.

Coastal Environmental. Promote land use and development which results in net environmental benefit to coast, south east of Hopkins Point Road.

Environmental housing with substantial river edge reserve, north of Hopkins Point Road.

Desirable development opportunity in proximity to the coastline, river and CAD.

Potential to satisfy high end of the residential market.

Need for new sewerage and water supply infrastructure.

Traffic pressure Flaxman Street.

Opportunity to capitalise on coastal views and setting.

Significant developer interest.

Environmental sensitivities including the dune area and Hopkins River landscape.

Sloping land a development constraint .

Opportunity to create a foreshore reserve.

Proximity to CAD and opportunities for bicycle and pedestrian paths.

Include in immediate land – supply requirement north of Hopkins Point Road.

Retain low density residential area with environmental and landscape objectives south of Hopkins Point Road.

Establish a clear eastern boundary at the ridgeline on the south side of Hopkins Point Road.

Established East Warrnambool Redevelopment Promote quality redevelopment of units and townhouses.

Development opportunity at Fletcher Jones site to create a mixed use development.

Management of amenity issues associated with higher residential densities.

Unknown infrastructure limitations.

Opportunity to provide for compatible commercial developments.

Utilisation of existing land and infrastructure capabilities.

Enhancement of existing urban character.

Consolidation of existing development will reduce car dependency, urban sprawl and pressure on rural land.

Allow for the continued construction of units and townhouses, while protecting neighbourhood character.

Promoted some mixed use opportunities

Conduct neighbourhood character assessments

Warrnambool CAD. Promote higher density residential use in association with commercial use.

Increase activity in the public realm – community building opportunities.

Limited provision of public open space.


Reinforcement of commercial capacity in the city core.


Include in immediate land – supply requirement.






Management of amenity issues related to higher residential densities.

Utilisation of existing land and infrastructure capabilities


Established West Warrnambool Redevelopment. Promote quality redevelopment of units and town houses.

Encourages alternative modes of transport – reduces car dependence.

Management of amenity issues associated with higher residential densities.

Utilisation of existing land and infrastructure capabilities.


Opportunity to provide for compatible commercial developments.

Reinforcement of commercial capacity in the core.



Allow for the continued construction of units and townhouses, while protecting neighbourhood character.


South Warrnambool and Merrivale

Infill and redevelopment to include residential and mixed use.

Access to a wide range of environmental and recreational experiences.

Opportunities to further capture the tourism market through development that enhances the bay and lake areas.

Access to existing infrastructure services

Environmentally sensitive areas including foreshore, Merri River and wetlands.

Site responsive Infill and redevelopment to include residential and mixed use. Subject to investigation of brownfield sites and rural land pockets.

Transit Oriented Development. Promote unit and townhouse development along major arterial routes.

Reduction of car dependence and traffic congestion.

Reduced risk of road accidents

Promotion of a more physically active lifestyle

Maintaining a good standard of residential design with a high level of exposure to main roads.

Utilisation of existing land and infrastructure capabilities

Reduction in greenhouse gas emissions and pollution.


Include in ‘immediate’ land – supply requirement.

Dennington. Maintain./reinforce existing community structure.

Removed from community services and facilities of central Warrnambool.

Utilisation of available infrastructure capacity.


Limited residential development to be directed to Dennington.

North – Dennington

Land Use and Development to enhance the river environment.

Urban expansion could support new retail and community services within Dennington.

Access to Dennington oval and train station.

Distance from Warrnambool CAD.

New pump station required for sewage services north of Coghlans Road.

Land can be readily serviced (water & sewer).

Potential land subject to flooding.

Scenic landscape environment.

Improved river access.

Future development contained by river edge.

Need to manage interface issues

Include in ‘immediate’ land supply requirement.

Establish river reserve.

Establish 500 metre buffer zone between saleyards and residential land.





with industrial area to the east.

Saleyards Protect current enterprises. Provide appropriate edge treatment to allow for residential infill.

Protection of current enterprises from encroachment.

Interface issues with amenity of existing and proposed residential

Ensures the provision of additional serviced industrial land.

Opportunity to address waste water issues.

Include buffer area of 500 metres west of the saleyards.

Bushfield and Woodford

Maintain rural lifestyle setting.

Urban growth could facilitate introduction of new facilities eg. public transport and shops.

Contributes to housing and lifestyle choice in the market place

There are no water or sewerage services to support urban development.

Need to manage rural interface issues and protect the green belt.

Prepare urban design framework to set a framework for future development of the area and review the extent of the Rural Living Zone.

Attachment 2

Broadacre land until subdivided

Major infill 'brownfield land'

Minor infill - conventional lots awaiting building permit

Unzoned- yet to be residential Dec-14

Planning Area Broad acre Major infill Minor Infill

Future Residential (unzoned)

Total

1 Warrnambool Central 0 27 15 0 42

2 Warrnambool (West) 0 79 50 0 129

3 Warrnambool (North) 0 0 2 0 2

4 Warrnambool (Botanic) 0 0 32 0 32

5 Warrnambool (East/ Racecourse) 0 80 33 0 113

6 Warrnambool (South East/ Hopkins) 650 254 49 0 953

7 Warrnambool (South/Merrivale) 0 197 105 12 314

8 Warrnambool (North East) 690 120 172 0 982

9 Warrnambool (North Merri) 2300 0 50 0 2350

10 Dennington 1250 0 34 0 1284

11 Allansford 0 0 19 0 19

TOTAL 4890 757 561 12 6220

Percentage 78.62 12.17 9.02 0.19 99.81

Source: Warrnambool City Council March 2016

Attachment 3

1/1/15 to 31/12/2015

Planning Area Broad acre Major infill Minor Infill Future Residential

(unzoned) Total Change

in lot #

1 Warrnambool Central 0 0 19 0 19 -23

2 Warrnambool (West) 0 65 44 0 109 -20

3 Warrnambool (North) 0 0 2 0 2 0

4 Warrnambool (Botanic) 0 0 26 0 26 -6

5 Warrnambool (East/ Racecourse) 0 67 27 0 94 -19

6 Warrnambool (South East/ Hopkins) 600 249 41 0 890 -63

7 Warrnambool (South/Merrivale) 0 120 133 0 253 -61

8 Warrnambool (North East) 511 120 330 0 961 -21

9 Warrnambool (North Merri) 2219 0 69 0 2288 -62

10 Dennington 1216 0 47 0 1263 -21

11 Allansford 0 0 37 0 37 18

TOTAL 4546 621 775 0 5942 -278

Percentage 76.51 10.45 13.04 0 100

Source: Warrnambool City Council March 2016

Attachment 4

population forecast

Warrnambool City

Population and household forecasts 2011 to 2036

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Table of contents

Population, households and dwellings 2Components of population change 5Population and age structure 8Household types 11

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Attachment 5

LONG TERM GROWTH AREA BACKGROUND REPORT 2016 [2]

PURPOSE

The purpose of preparing a Structure Plan for Warrnambool’s long term growth corridor is to establish a land use planning and development framework that will be used by Council, the community, landowners and developers to guide future development within the corridor.

The Structure Plan will also establish a vision and overall layout for the growth corridor as well as objectives and guidelines required to guide changes in land use, open space, built form and the road network to achieve that vision.

This report provides an analysis of existing conditions and the relevant objectives contained in the planning policy framework and adopted Council policy affecting the growth corridor.

It is anticipated that the Structure Plan will be prepared in the four stages over a number of years. This report forms part of Stage 1 (Background and Planning Context). Figure 2 provides a guide on the steps in the preparation of the Structure Plan for Warrnambool’s long term growth area.

STAGE 1 - BACKGROUND AND PLANNING CONTEXT

Review of state and local planning policies, adopted strategies

and site analysis

STAGE 2 - TECHNICAL ASSESSMENTS

Undertake technical assessments (e.g. flora and fauna

assessments, heritage assessments, drainage analysis etc.)

STAGE 3 - FUTURE DEVELOPMENT OPTIONS

Identify future development options including extensive

landowners and stakeholder engagement

Establish a Vision for the Precinct

STAGE 4 - FINAL STRUCTURE PLAN & PRECINCT INFRASTRUCTURE

PLAN

Final draft Structure Plan and implementation strategy informed by

technical assessments and landowner engagement

Figure 2: Steps in the structure planning process (subject to detailed project brief)

Level 1,

6 Riverside Quay

Southbank VIC 3006

t. +61 3 9695 3025

f. +61 3 9695 3001

meshplanning.com.au

Attachment 6

SUMMARYChris De Silva has approximately 20 years experience as a planner, primarily in the specialized field of growth area planning.

Spending 18 years at the City of Whittlesea, occupying the positions of Manager Strategic Planning and Director Planning and Development Chris was broadly responsible for conceptualising and implementing the Whittlesea Growth Areas framework. This process involved in-house preparation of Precinct Structure Plans for each of the growth areas and formulation of integrated transport plans and development contributions plans for the City. The approach adopted by the City under Chris’s guidance culminated in a total of 11 State awards from the Planning Institute of Australia for Planning Excellence and visits from all other growth areas.

Chris is also highly skilled at presenting his work and opinions as an Expert Witness in Planning Panel and VCAT forums, and is sought after for provision of advice at various professional forums.

Chris’s creativity and passion for growth areas is well recognised as is his practical approach to development.

EDUCATIONBachelor of Applied Science (Planning), RMIT University

EMPLOYMENT2009 – Mesh, Director2008 – Villawood Properties, Strategic Development Director1991 – City of Whittlesea, Director of Planning and Development (and

formerly Manager Strategic Planning) 1990 – Wilson Sayer Core, Town Planner

KEY PROJECTSChris has been the mastermind behind the following key projects:

–Armstrong Creek West Precinct Structure Plan and DevelopmentContributions Plan, Geelong

–Wollert Precinct Structure Plan , Whittlesea

–Davies Hill, Woodend

–Strathfieldsaye East Development plan, Bendigo

–Schofields Indicative Layout Plan Urban Design Review, New South Wales

–Trillium Estate Masterplan, Hume

–Redstone Hill Masterplan and Town Centre, Sunbury

–Greenvale Central Precinct Structure Plan and Masterplan, Hume

–North of the Merri Local Structure Plan, Development Contributions Planand Development Plan, Warrnambool

–Crinigans Road Development Plan, Morwell

–Cross’ Road Development Plan, Traralgon

Chris De Silva Director

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September 2012 Prepared for Strathfieldsaye Holdings Pty Ltd

STRATHFIELDSAYE TOWNSHIP PLAN EAST PRECINCT Development Plan

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LOT 4 (60 ha)

LOT 5 (44 ha)

LOT 6 (35 ha)LOT 7 (9 ha)

LOT 8 (9 ha)

LOT 9 (14 ha)

HADFIELD ROAD

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Existing Woodland

Existing Wind Rows

Defensible Space Setback - BAL 12.5/69m (Buildings located within setback are subject to increased BAL)

Existing Dams

Low Points/Valleys

Potential Combined Building and Effluent Envelope

Indicative House Site (Final siting and house design subject to approval by responsible authority)

High Point

Merriang Road

Rural Standard Sealed Access Road

Indicative Driveway Alignment (Final alignment subject to approval by responsible authority)

Site Boundary

Proposed Lot (Minimum lot size 8 ha)

Setbacks to Lot Boundary (60m to Merriang Rd, 20m to Lot Boundaries)

Multipurpose Track (Recreational, land management and fire access link)

DRAWING KEY

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Existing Forest

Slope Greater than 20% (Buildings and dwellings to minimise encroachment into these areas)

0 500m100 200 300 WOLLERT Consortium PSP Vision26th September 2012

mesh pty ltd Level 1, 6 Riverside Quay Southbank, VIC 3006 t 9695 3025 f 9695 3001

Drawing Key

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Schools

Activity Centres

Local Activity Centres

Community Activity Centres

Existing Trees (including TPZ) for Possible Retention

Indicative Key Local Roads

Existing Trees (including TPZ) for Possible Removal

Local & District Active Open Space

Open Space Network including:Easements, Drainage, Conservation Reserves,and Passive Open Space

Arterial and Collector Road Network

Creeks and Waterway

Stony Knoll

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Indicative Street Trees - Collector Roads

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