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AMENDMENT C93
WARRNAMBOOL PLANNING
SCHEME
TOWN PLANNING EVIDENCE
PREPARED BY MR CHRIS MARSHALL
March, 2016
TGM Reference : 13594-01
TGM Group Geelong Melbourne | Ballarat
1/27-31 Myers Street (PO Box 1137)
Geelong Vic 3220
T 03 5202 4600
F 03 5202 4691
ABN 11 125 568 461
Amendment C93
Town Planning Evidence
Page 1 of 22
CONTENTS
1.0 INTRODUCTION ................................................................................................................................ 2
2.0 SUBJECT SITE AND SURROUNDS ........................................................................................................ 3
3.0 CURRENT ZONING............................................................................................................................. 5
4.0 BACKGROUND .................................................................................................................................. 6
4.1 Warrnambool Planning Scheme............................................................................................... 6
4.1.1 State Planning Policy Framework................................................................................. 6
4.1.2 Local Planning Policy Framework................................................................................. 7
4.1.3 Existing Controls ......................................................................................................... 8
4.2 Other Considerations .............................................................................................................. 9
4.2.1 Rural Residential Development – Planning Practice Note 37, June 2015 ........................ 9
4.2.2 Applying the Residential Zone – Planning Practice Note 78 June 2015......................... 10
5.0 ASSESSMENT .................................................................................................................................. 10
5.1 Proposed Amendment C93.................................................................................................... 10
5.2 Proposed Amendment C93 Review and Assessment............................................................... 15
5.2.1 Consideration of the Proposed Introduction of the Low Density Residential Zone........ 16
5.2.2 The Benefits of Introducing Low Density Residential Zone Land at this Location .......... 20
6.0 CONCLUSION.................................................................................................................................. 22
ATTACHMENTS
Attachment A – Qualifications and Experience
Amendment C93
Town Planning Evidence
Page 2 of 22
1.0 INTRODUCTION
1. My Name is Christopher Noel Marshall and I am Group Manager Town Planning for the TGM Group
Pty Ltd located at 1/27-31 Myers Street in Geelong. My qualifications and experience are detailed
in Appendix A of this report.
2. I have been requested by Kings Lawyers on behalf of Rodger Properties to provide town planning
evidence in regard to Planning Scheme Amendment C93.
3. Planning Scheme Amendment C93 implements Stage 1 of the Warrnambool Planning Scheme
Rewrite project which involves the preparation of a revised Local Planning Policy Framework
consistent with the themes and policies of the State Planning Policy Framework.
4. Of direct relevance to Rodger Properties are the proposed changes in Clause 21.01 Municipal
Profile, Council Vision and Strategic Directions, Clause 21.02-2 Urban Growth as these policies
discourage low-density residential subdivision and recommend the preparation of a structure plan
as the sole means to guide development of land designated as longterm growth east of Aberline
Road.
5. I have been requested to provide town planning evidence specifically in response to:
The proposed changes and additions of Amendment C93 relating to the use and
development of the Low Density Residential Zone.
The appropriateness of rezoning land on the eastern edge of urban settlement boundary of
Warrnambool to establish a low density residential zone buffer as a stand-alone rezoning
amendment.
The benefits of introducing Low Density Residential Zone land at this location.
6. In preparing this evidence I have inspected the site and reviewed the following reports
Warrnambool Planning Scheme
Planning Scheme Amendment C93
Rural Residential Development Planning Practice Note 37 June 2015
Applying the Residential Zones Planning Practice Note 78 June 2015
Warrnambool City Health and Wellbeing Plan 2013-17 July 2013
Amendment C93
Town Planning Evidence
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Warrnambool City-Wide Housing Strategy 2013
Warrnambool Planning Scheme Rewrite Project Final Report January 2015
Warrnambool Residential Land Supply Report 2015
Warrnambool Open Space Strategy 2014
7. A summary of my assessment in regard to this proposal is as follows:
The discouragement of the use of the Low Density Residential Zone as proposed by
Amendment C93 is inconsistent with the strategic direction to provide lot and housing
diversity, to manage urban–rural interfaces and the retention of the rural character of
Warrnambool.
The proposed introduction of the Low Density Residential Zone along the eastern edge of
the longterm growth corridor of Warrnambool as a stand along amendment will result in an
appropriate and orderly planning outcome.
The proposed introduction of a Low Density Residential subdivision on the eastern edge of
Warrnambool’s longterm growth corridor will provide significant benefits without detriment
to the longterm urban land supply.
8. I wish to record that I submitted a response to Amendment C93 on behalf of Roger Properties on
17 December 2015.
2.0 SUBJECT SITE AND SURROUNDS
9. The subject land is located within the Warrnambool urban settlement boundary and is
approximately 140 hectares in area. The land is described as gently sloping predominantly cleared
farming land which drains into Russells Creek that bisects the southern portion of the land. The
land has historically been used for grazing and cropping purposes and has no significant
environmental values other than Russells Creek which is described as a degraded waterway and
scattered trees located along the western boundary. The subject land is bounded by an
established road network consisting of Wangoom Road, Horne Road and Boiling Down Road.
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Town Planning Evidence
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Figure 1 – Aerial Photograph of Rezoning site
10. The subject land represents the eastern most extent of longterm growth corridor identified within
the Warrnambool urban settlement boundary of the Warrnambool Strategic Framework Plan.
Adjacent land further east is Farming Zone land and Industrial 3 Zone land. Farming Zone land is
also located to the north and south and land located directly west is undeveloped Farming Zone
land also within the longterm growth corridor.
11. Services are available to develop the subject land including reticulated sewerage and access is also
available via Wangoom, Horne and Boiling Down Roads. Horne Road and Wangoom Roads are
Category 2 Roads.
Figure 2 – Site Location
Subject Site
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Town Planning Evidence
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3.0 CURRENT ZONING
12. The subject sit is currently situated within the Farming Zone.
Figure 3 – Current Zone
Subject Site
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Town Planning Evidence
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4.0 BACKGROUND
4.1 WARRNAMBOOL PLANNING SCHEME
4.1.1 STATE PLANNING POLICY FRAMEWORK
13. The State Planning Policy Framework encompasses a broad range of policies that are relevant to
this amendment and consideration of the proposal to introduce Low Density Residential Zone
along the eastern boundary of Warrnambool including:
(Clause 11 Settlement)
To anticipate and respond to the needs of existing and future communities through provision
of zoned and serviced land for housing, employment, recreation and open space, commercial
and community facilities and infrastructure.
Planning is to prevent environmental problems created by siting incompatible land uses close
together.
Planning is to facilitate sustainable development that takes full advantage of existing
settlement patterns, and investment in transport and communication, water and sewerage
and social facilities.
(Clause 11.02-1 Supply of urban land)
To ensure a sufficient supply of land is available for residential, commercial, retail, industrial,
recreational, institutional and other community uses and plan to accommodate projected
population growth over at least a 15 year period and provide clear direction on locations
where growth should occur.
Restrict low-density rural residential development that would compromise future
development at higher densities.
(Clause 11.02-3 Structure Planning).
Ensure effective planning and management of the land use and development of an area
through the preparation of strategic plans, statutory plans, development and conservation
plans, development contribution plans and other relevant plans.
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To assist creation of a diverse and integrated network of public open space commensurate
with the needs of the community.
(Clause 11.05-1 Coastal settlement).
Support a network of diverse coastal settlements which provides for a broad range of housing
types, economic opportunities and services.
(Clause 11.09-6 Environmental assets).
Protect significant landscapes and provide vegetation corridors between high value
environmental assets.
(Clause 11.09-9 Integrated planning).
To ensure that the land and infrastructure needed to support growth is identified and
appropriately planned. Protect industrial activity from sensitive land uses.
(Clause 16 Housing).
Planning should provide for housing diversity, and ensure the efficient provision of supporting
infrastructure.
14. From my review of these policies the SPPF seeks to encourage the sustainable use and
development of urban land and development that facilitates housing diversity and environmental
benefits. It also promotes the effective planning and development of land via the preparation of a
variety of plans, encourages development in serviced areas and restricts low density development
that would compromise future higher density land supply.
4.1.2 LOCAL PLANNING POLICY FRAMEWORK
15. The Local Planning Policy Framework is subject to this amendment. My review of the proposed
changes to the LPPF as they relate to the Low Density Residential Zone are provided in this
evidence.
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4.1.3 EXISTING CONTROLS
16. The subject land is currently zoned Farming Zone under Clause 52.07 the purpose of the Farming
Zone is as follows:
To implement the State Planning Policy Framework and the Local Planning Policy Framework,
including the Municipal Strategic Statement and local planning policies.
To provide for the use of land for agriculture.
To encourage the retention of productive agricultural land.
To ensure that non-agricultural uses, including dwellings, do not adversely affect the use of
land for agriculture.
To encourage the retention of employment and population to support rural communities.
To encourage use and development of land based on comprehensive and sustainable land
management practices and infrastructure provision.
17. A permit is required to subdivide farming zone land under Clause 35.07-3 which requires that each
lot must be at least the area specified for the land in a schedule to this zone. If no area is specified,
each lot must be at least 40 hectares. The Schedule to the farming zone specifies a minimum
subdivision area of 15 hectares.
18. Under Clause 32.03 the purpose of the Low Density Residential Zone is as follows:
To implement the State Planning Policy Framework and the Local Planning Policy Framework,
including the Municipal Strategic Statement and local planning policies.
To provide for low-density residential development on lots which, in the absence of
reticulated sewerage, can treat and retain all wastewater
19. A permit is required to subdivide land within the Low Density Residential Zone under Clause 32.03-
3 which requires that each lot must be at least the area specified for the land in a schedule to this
zone. If no area is specified, each lot must be at least 0.4 hectares where reticulated sewerage is
not connected and 0.2 hectares with connection to reticulated sewerage.
20. Under Clause 33.03 the purpose of the Industrial 3 Zone is as follows:
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To implement the State Planning Policy Framework and the Local Planning Policy Framework,
including the Municipal Strategic Statement and local planning policies.
To provide for industries and associated uses in specific areas where special consideration of
the nature and impacts of industrial uses is required or to avoid inter-industry conflict.
To provide a buffer between the Industrial 1 Zone or Industrial 2 Zone and local communities,
which allows for industries and associated uses compatible with the nearby community.
To allow limited retail opportunities including convenience shops, small scale supermarkets
and associated shops in appropriate locations.
To ensure that uses do not affect the safety and amenity of adjacent, more sensitive land
uses.
4.2 OTHER CONSIDERATIONS
4.2.1 RURAL RESIDENTIAL DEVELOPMENT – PLANNING PRACTICE NOTE 37, JUNE 2015
21. This Practice Note provides a guide to the application of Low Density Residential Zone, Rural Living
Zone and Green Wedge Zone. The Practice note describes the Low Density Residential zone as a
‘residential zone’ however uses the term rural residential development as a catch all phrase. It
specifies a lot size of at least 0.4 hectares in areas where reticulated sewerage is not connected or
0.2 hectares for each lot connected to reticulated sewerage. A different lot size can be applied in
the schedule to the zone.
22. This Practice Note provides a suite of considerations when determining the appropriateness of
introducing these zones by including agricultural impacts, road access, servicing, environmental
and landscape impacts.
23. The Practice Note also highlights the importance of considering the broader strategic direction and
planning in the municipality, housing need, location characteristics and integration with existing
urban areas when determining the appropriateness of proposed rural residential development.
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4.2.2 APPLYING THE RESIDENTIAL ZONE – PLANNING PRACTICE NOTE 78 JUNE 2015
24. This Practice Note provides a guide regarding the purpose and application of the residential zones.
25. The Practice Note provides a table that indicates such things as the role of these zones, where
should these zones be used and (relevant to this submission) if a Structure Plan or Design
Framework required for the zone to be applied.
26. In regard to the Low Density Residential Zone the table identifies the role of this zone is to provide
low density housing. It identifies that this zone should be used on the fringe of urban areas and
townships where sewerage may not be available. The table also identifies that application of the
zone does not require a Structure Plan or Design Framework Plan.
5.0 ASSESSMENT
5.1 PROPOSED AMENDMENT C93
27. The Planning Scheme Amendment C93 implements Stage 1 of the Warrnambool Planning Scheme
Rewrite project which involves the preparation of a revised Local Planning Policy Framework
consistent with the themes and policies of the State Planning Policy Framework.
28. The amendment specifically proposes to:
Introduce a new Municipal Strategic Statement (MSS) by replacing existing Clauses 21.01 to
21.10 (inclusive) with new Clauses 21.01 to 21.11 (inclusive).
Deletes existing Clauses 22.01, 22.02-1 to 22.02-7, 22.02-9, 22.03-3 to 22.03-5, and 22.04
(inclusive) by translating policy into the MSS, where appropriate.
Replaces existing Clause 22.03-2 with new Clause 22.01
Replaces existing Clause 22.03-1 with new Clause 22.02
Replaces existing Clause 22.02-8 with new Clause 22.03
Updates the plan in the schedule to Clause 34.01 to reflect recent development
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Updates schedules 1 and 2 to Clause 37.01 to correct formatting
29. Clause 21.01-2 Key Issues summaries the key issues facing the city. Those issues relevant to this
report include as follows:
Population growth and associated needs for housing, infrastructure, community facilities,
employment and services – Given the region’s ageing population, more workers are required to
support the growth of existing and new industries. [Warrnambool City-Wide Housing Strategy]
Housing supply, choice and affordability – Over the next two decades, Warrnambool’s population is
projected to age and household sizes are expected to continue to get smaller. Dwelling sizes
however, are anticipated to increase. Careful planning is required to ensure future populations have
access to a diverse range of housing options. [Warrnambool City-Wide Housing Strategy]
Access to open space – open space is not evenly distributed throughout the City and some areas
have poor access to open space. Improved access to our waterways will continue to provide
important recreational opportunities. [Warrnambool Open Space Strategy]
Environmental values – The City supports an impressive range of environmental values. Further
urban development, the introduction of plants, and the introduction of animals have the potential
to impact on biodiversity. [New]
Protecting rural character and agricultural land – It is important that rural areas are protected to
ensure agricultural uses remain viable and to ensure the City’s unique rural character is protected
from urban development. [Moyne Warrnambool Rural Housing and Settlement Strategy]
30. Proposed Clause 21.01-4 Strategic Direction outlines the key elements in creating a sustainable city
and provides the strategic direction for housing, long term growth, environmental and landscape
values and. Other relevant directions include:
Housing
The development of greenfield growth areas also provide an opportunity to develop a variety of
dwelling types with varying development densities. The use of smaller lot sizes and housing close to
community services is particularly appropriate for the ageing and student populations.
[Warrnambool City-Wide Housing Strategy]
Long Term Growth Corridor
380 hectares of land on the eastern side of Aberline Road has been identified as a future long-term
growth area. This area is likely to contain a mix of uses, such as residential and industrial uses,
subject to detailed structure planning. [Warrnambool City-Wide Housing Strategy]
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Environment and Landscape Values
It is important that the impacts of urban and rural pressures are appropriately managed in coastal
areas, waterways and sensitive ecosystems. [New]
Rural Character and Agricultural Land
Agriculture is an important element of the regional economy with 16 percent of the work force
employed within the agriculture, fishing and forestry sector. [Clause 21.07-1]
Appropriate management of the urban-agricultural interface will be required to protect farming
operations and maintain a greenbelt around Warrnambool’s settlement boundary. [Clause 21.02]
31. Figure 1. Warrnambool Strategic Framework Plan identifies the subject land as part of Long Term
Growth Corridor or land east of Aberline Road.
Figure 4 – Strategic Framework Plan
32. Proposed Clause 21.0-2 Urban growth. Relevant sections of this Clause include:
Supply of Urban land
Estimates that there is around 25 years supply of zoned residential land across the municipality.
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Planning for growth areas
Recognises greenfield growth areas are identified in the Warrnambool Strategic Framework Plan.
Reinforces that greenfield growth will provide opportunities to create a variety of lot development
densities to facilitate the development of a variety of housing types.
Recommends structure planning of these areas and the application of appropriate development
controls will ensure that these areas are developed in a sustainable manner.
33. Clause 21.0-2 also includes a number of relevant objectives and strategies as follow:
Objective 1
To direct urban growth to identified growth areas in order to protect productive rural areas
and achieve a more compact sustainable urban area. [Clause 21.05-2]
Strategies
1.1 Ensure that development is located and consolidated within settlement boundaries.
[Warrnambool City-Wide Housing Strategy]
1.2 Support increased residential densities in greenfield growth areas within close proximity to
existing and/or planned transport corridors, activity centres and open space. [Warrnambool City-
Wide Housing Strategy]
1.3 Ensure new residential neighbourhoods provide a mix of housing suited to the needs of a diverse
range of household types.
Objective 2
To ensure that rural living and low density residential development are environmentally sustainable.
[Clause 21.05-2]
Strategies
2.1 Discourage rural living and low-density residential subdivision where it would prejudice long-
term residential development. [Clause 21.05-3]
2.2 Limit rural living development and low-density residential development to existing zoned land in
Bushfield, Woodford and Allansford. [New]
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Objective 3
To manage land use conflicts at the urban / rural interface and development pressures at the edge
of Warrnambool’s settlement boundary. [New]
Strategies
3.1 Ensure agricultural uses in urban / rural interface areas are protected from non-agricultural
uses. [New]
Implementation
The proposed implementation strategy recommends the application of the General Residential zone
to provide a diversity of housing types and the preparation of a structure plan to guide the longterm
development of land East of Aberline Road.
34. Clause 21.07-1 Housing also proposes a similar strategic direction as Clause 21.0-2 by the
promotion of housing and density and diversity for greenfield development site in Warrnambool.
35. Clause 21.10-3 Development infrastructure, Water Supply, sewerage and drainage identifies that:
The settlements of Bushfield and Woodford are not connected to reticulated sewerage services. The
Moyne Warrnambool Rural Housing and Settlement Strategy (2010) recognises that soil within
Bushfield and Woodford have limited capacity to carry much further growth in septic services.
Drainage impediments in Allansford will have an impact on development
Objective
To reduce environment degradation associated with stormwater run-off and effluent disposal.
[New]
Strategies
1.4 Defer growth within Bushfield and Woodford pending resolution of sewerage and effluent
management options. [Moyne Warrnambool Rural Housing Settlement Strategy]
1.5 Ensure further growth within the Allansford township considers the availability of stormwater
drainage infrastructure. [Moyne Warrnambool Rural Housing Settlement Strategy]
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Further strategic work
Undertake a sewerage and effluent management strategy for Bushfield and Woodford, examining
options and making recommendations regarding the most effective and cost beneficial way to
enable growth to occur without environmental degradation. [Moyne Warrnambool Rural Housing
Settlement Strategy]
5.2 PROPOSED AMENDMENT C93 REVIEW AND ASSESSMENT
36. In this section I provide a review and assessment of the proposed planning provisions of
Amendment C93.
37. I consider that Amendment C93 is generally consistent with broad planning policy to facilitate the
development of a variety of lot densities and housing types to meet varying housing needs of the
Warrnambool community which is consistent with Clause 11 and 16 of the SPPF.
38. This direction in my view is appropriate as it will meet the demand for the development of larger
dwellings and the potential need to support student living and the elderly who may seek to
downsize as identified in Clause 21.01-2.
39. However in my view the proposed implementation of this direction is limited by the sole
application of the General Residential Zone.
40. The use of all available residential zones would provide considerable flexibility to facilitate a broad
range of housing types consistent with this policy direction and avoids the application of additional
planning provisions and restrictions to achieve housing diversity via the sole application of the
General Residential Zone.
41. I believe that this issue is particularly relevant in addressing urban-rural and urban-industrial
interfaces where the application of the Low Density Residential Zone would be appropriate.
42. The application of the Low Density Residential Zone provides the flexibility to establish a low
density soft landscaped transition along the urban-agricultural interface consistent with Clause
21.02. This will also assist in maintaining the rural character of Warrnambool and is consistent with
Applying the Residential Zone – Planning Practice Note 78, June 2015 which recommends its use
along the urban-rural fringe.
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43. I note that in proposed Clause 21.02-2 the use of the Low Density Residential Zone is discouraged
where it would prejudice long-term residential development. In my opinion this clause is
inconsistent with Clause 11.02-1, Supply of Urban Land, which seeks to restrict or limit the use of
this zone rather than discourage, which I believe deters or prevents the use of this zone.
44. Also in my view the discouragement of the use of the Low Density Residential Zone is difficult to
justify in this context as I understand that there is approximately 25 years land supply of zoned
general residential land. In addition there is a further 20 years plus land that can be provided in
the greenfield growth areas (Warrnambool City-Wide Housing Strategy).
45. I understand that if inappropriately located the Low Density Residential Zone can impede the
orderly progressive planning and development of conventional residential land. However in my
view this is not an issue if located along the urban fringe of Warrnambool at the urban-rural and
urban-industrial interface where it would provide considerable benefits and is an appropriate
application of this zone.
46. Clause 21.0-2 also seeks to ensure that rural living and low density residential development are
environmentally sustainable which accords with Rural Residential Development – Planning Practice
Note 37, June 2015. I also note that Clause 21.05-3 seeks to limit Low Density Residential
development to land at Bushfield, Woodford and Allansford. However this Clause also raises issues
regarding the capacity of soils at Bushfield and Woodford to carry additional septic systems and
recommends deferment of further growth pending the resolution of sewerage and effluent
management.
47. Also the availability of stormwater infrastructure to facilitate low density residential growth is
raised as a potential issue at Allansford.
48. Thus in my opinion there is considerable doubt whether these locations can facilitate future
environmentally sustainable growth in accordance with Clause 21.02-2.
5.2.1 CONSIDERATION OF THE PROPOSED INTRODUCTION OF THE LOW DENSITY RESIDENTIAL ZONE
49. In this Section I consider whether the Low Density Residential Zone can be introduced outside of a
broader structure plan process.
50. In determining whether this would be appropriate I believe the key issues for consideration are:
• Are there any current policies that specifically inhibit stand alone rezoning applications?
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• Would the low density rezoning, subdivision and development of this land impede the future
development of surrounding land?
• Would the low density rezoning, subdivision and development limit opportunities to provide
community and recreational facilities should they be required?
• Would the low density rezoning, subdivision and development of the eastern boundary of
Warrnambool create an undesirable residential outcome?
• Why rezone this land now?
Are there any current policies that specifically inhibit stand alone rezoning applications?
51. Clause 11.02-3, Structure Planning, seeks to ensure effective planning and management of the land
use and development of an area through the preparation of strategic plans, statutory plans,
development and conservation plans, development contribution plans and other relevant plans.
52. This clause promotes the use of a suite of plan types that can be used to ensure the effective
planning and management of land and is not limited to the use of structure plans.
53. Stand-alone rezoning could involve the use of an Outline Development Plan or Development Plan
with a schedule to guide the future development of the land. It could also take the form of a
combined zoning and subdivision application with agreed restrictions on title to guide the overall
development, seek open space and development contributions, if applicable.
54. Applying the Residential Zone – Planning Practice Note 78, June 2015 identifies that the application
of this zone does not require a Structure Plan or Design Framework Plan.
55. In my opinion I consider there to be a number of planning options to support a stand-alone
rezoning applications to deliver appropriate and timely planning and development outcomes.
Would the low density rezoning, subdivision and development of this land impede the future
development of surrounding land?
56. Another key issue to consider is the potential impact of a stand-alone rezoning and subdivision on
the orderly planning and development of the adjoining vacant land in an integrated matter.
57. The concept plan submitted to Council, see below at Figure 5, shows an overall integrated road
network covering the subject land and land to the west. It illustrates connectivity in terms of
vehicle and pedestrian access. It also illustrates the establishment of the creek reserve as a
contiguous linked open space feature and provides locations where open space reserves may be
located.
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58. The concept plan also includes integration features along the eastern boundary adjoining Horne
Road and adjacent to the business park, including a landscape reserve along the Horne Road
interface, lots with internal access points only and a limited number of road connections to Horne
and Wangoom Roads. I believe that the concept plan would benefit with the addition of a broader
reserve or link along the western boundary to provide a biodiversity corridor connected to the
Russells Creek Reserve in accordance with the Warrnambool Open Space Strategy, 2015, page 34.
59. I am satisfied that this type of stand-alone plan demonstrates that orderly development and
integration of adjoining land can be achieved without detriment to long term development
potential.
Figure 5 – Concept Overall Development Plan
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Would the low density rezoning, subdivision and development limit opportunities to provide
community and recreational facilities should they be required?
60. In my opinion I do not believe that the rezoning and subdivision of the subject land will impair the
future requirement and siting of community and commercial facilities needed to service the
broader urban growth area.
61. These facilities are usually sited centrally to provide easy access to all residents thus it is not ideal
to site these facilities on the eastern edge of the settlement boundary. Also I note that the
commercial facilities of the Gateway Plaza and the commercial and community facilities of central
Warrnambool are only a short distance away and can service this area.
Would the low density rezoning, subdivision and development of the eastern boundary of
Warrnambool create an undesirable residential outcome?
62. In my opinion I do not believe that the future residents of this land will be anyway disadvantaged
by residing in this location prior to the development of urban land adjoining to the west. The land
can be appropriately serviced, has good access to the road network, and is only a very short
distance from all the amenities of the Gateway Plaza and Central Warrnambool.
63. Also the proposed subdivision concept includes open space reserves, including a reserve
surrounding Russells Creeks, to provide both positive environmental and recreational
opportunities.
64. Also importantly low density residential subdivisions generally provide a higher residential amenity
as compared to conventional residential development due to the ample lot sizes, larger areas for
private open space, generous setbacks and landscaping. Thus these subdivisions are less reliant on
public features and reserves to contribute the subdivisions attraction and amenity for residents.
Why rezone this land now?
65. As previously discussed, Council has indicated that there is currently approximately 25 years of
zoned residential land supply, therefore is it appropriate to consider the need for an out-of-
sequence rezoning? Given there is over 25 years of residential land supply, Council is unlikely to
commence a structure plan process for many years. Thus, in the absence of any other strategic
planning work, the land will remain in its current form.
66. Rodgers Properties, who I understand to be one of the largest land development groups in this
region, has approached Council to rezone this land as they believe that there is significant market
demand for serviced low density residential land close to Warrnambool.
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67. Whilst the development of this land will be considered in a future structure plan, given there is no
imperative to commence this process, a stand-alone rezoning would be an appropriate initiative to
meet existing market demands.
68. I am also of the opinion the rezoning of this land now to the Low Density Residential Zone would
provide considerable benefits including:
• The establishment of a high amenity low density boundary along the eastern entrance to
Warrnambool.
• The provision of a defined boundary to provide clear land use direction to guide future land
use expectations which provides a greater degree of certainty for future investors and
developers particularly in the adjacent business park.
• The establishment of a biodiversity/open space corridor along Russells Creek and along the
western boundary of the subject land.
• Early establishment and management of the urban-rural and urban-industrial interface.
• The provision of serviced high amenity lots to meet the current demands given there a
significant environmental issues regarding other candidate areas for low density residential
development.
5.2.2 THE BENEFITS OF INTRODUCING LOW DENSITY RESIDENTIAL ZONE LAND AT THIS LOCATION
69. The proposed rezoning site is located on the eastern boundary of the long term growth corridor
boundary, adjacent to the Gateway Business Park and rural land to the east.
70. In my view the establishment of low density residential development along the eastern boundary
of the Warrnambool settlement boundary is an appropriate location to apply this zone in order to
create a low density soft transitional buffer adjacent to the Gateway Business Park and farming
land to the east.
71. The application of this zone along this boundary accords with the Practice Note Applying the
Residential Zone – Planning Practice Note 78, June 2015 which recommends the introduction of
this zone on the fringe of urban areas. This is particularly important as this land is located at the
interface with industrial and farming zone land.
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72. This will enable the establishment of a low density landscaped character in keeping with the rural
values of Warrnambool and thus provide an attractive eastern entrance to Warrnambool and the
adjacent Business Park.
73. It will also provide a managed interface to reduce the impacts of residential development on
industrial use to the east. This has been a significant issue involving industrial development and
residential impacts on the West Warrnambool Industrial Precinct that threaten to jeopardise major
industrial investment in Warrnambool.
74. Thus the early application of this zone along this location will prevent the potential future intrusion
of higher density residential zones near the Business Park.
75. In my opinion the introduction of low density residential land at the location will also have
considerable environmental benefits. The subject land is currently predominantly cleared farming
land with no discernable environmental attributes. This includes Russells Creek which is a
degraded waterway.
76. In the event that this land was rezoned and subdivided it would be appropriate for Russells Creek
and its immediate surrounds to be reinstated as a landscaped open space reserve that will function
both as an opportunity for passive recreation and to establish native habitat to encourage the
reintroduction of native fauna.
77. Low density residential development particularly if connected to reticulated sewerage, is likely to
have less impact on the water quantity and quality entering the Russells Creek catchment as
compared to higher density residential development.
78. In addition, I anticipate that the establishment of low density residential land itself will improve the
environmental outcomes of this land by the planting of trees and shrubs that can form habitat for
native animals, particularly native birds.
79. The introduction of the Low Density Residential Zone at this location will enable the development
of a serviced low density subdivision within close distance to the community and commercial
facilities of Warrnambool.
80. The creation of low density lots will meet market demand for larger lots to facilitate the
development of larger dwellings and sheds and considerable areas of private open space which is
not available in a conventional residential setting.
81. This type of subdivision is likely to attract a variety of residents including large families and those
people who wish to reside in a semi-rural setting without impacting on the farming zone. This
includes retired farmers who cannot reside on small lots within the farming zone and who find
retirement in a conventional residential setting as undesirable.
Amendment C93
Town Planning Evidence
Page 22 of 22
82. This type of zone also assists Council to preserve the integrity of the Farming Zone by providing an
appropriate zone for those residents who propose to reside in a more rural type area.
6.0 CONCLUSION
83. In conclusion, I consider Amendment C93 as it relates to the provision of encouraging diverse
housing and lot density opportunities, to be flawed as it relies solely on the General Residential
Zone to achieve this aim.
84. I consider that the discouragement of the Low Density Residential Zone is not warranted as it can
facilitate the establishment of a variety of lot sizes, provide positive environmental outcomes and
importantly assist with the maintenance of Warrnambool’s rural character. Also given that there is
over 40 years land supply of urban land, I do not believe that the rezoning of land on this boundary
will have detrimental impact on future long-term supply.
85. I contend that the establishment of the Low Density Residential Zone along the eastern boundary
of the long term growth corridor of Warrnambool is an ideal location to apply this zone to establish
a soft low destiny buffer adjacent to the Gateway Business Park and rural land. The establishment
of this zone will ultimately prevent the intrusion of higher density developments in the future along
this sensitive interface and provide an attractive landscaped gateway to eastern Warrnambool.
86. I am also satisfied that a stand-alone rezoning of the subject land can be undertaken without
detriment to the long-term develop ability of surrounding land and without the need for a
structure plan.
……………………………………………………………..
Chris MarshallGroup Manager – Town Planning
TGM Group Pty Ltd
ATTACHMENT A
Qualifications and Experience
STATEMENT OF QUALIFICATIONS AND EXPERTISE
Name and Address
Chris Marshall
TGM Group Pty Ltd
Level 1, 27 – 31 Myers Street
Geelong VIC 3220
Qualifications
Bachelor of Education (Environmental Science)
Member – VPELA
Areas of Expertise
I have practiced in the fields of strategic and statutory planning since 1990.
My experience includes working as a Senior Planning Officer for the State Government for fourteen (14)
years which involved the consideration of statutory and strategic planning applications as well as public
land planning and coastal land use planning and development applications.
Other relevant experience includes Manager of Planning for the Colac Otway Shire for three (3) years
which involved managing and resolving a complex array of statutory planning applications and planning
scheme amendments in the Colac Otway Shire.
Over the past nine (9) years I have also managed the Strategic and Statutory Planning Department for
TGM Group Pty Ltd, in Geelong where I have undertaken a broad range of strategic and statutory
planning projects mostly involving land subdivision and development.
Investigations and Research
In preparing this evidence I have inspected the site and reviewed the following reports
Warrnambool Planning Scheme
Planning Scheme Amendment C93
Rural Residential Development Planning Practice Note 37 June 2015
Applying the Residential Zones Planning Practice Note 78 June 2015
Warrnambool City Health and Wellbeing Plan 2013-17 July 2013
Warrnambool City-Wide Housing Strategy 2013
Warrnambool Planning Scheme Rewrite Project Final Report January 2015
Warrnambool Residential Land Supply Report 2015
Warrnambool Open Space Strategy 2014
Instructions
I have been requested to provide town planning evidence specifically in response to:
The proposed changes and additions of Amendment C93 relating to the use and development of
the Low Density Residential Zone.
The appropriateness of rezoning land on the eastern edge of urban settlement boundary of
Warrnambool to establish a low density residential zone buffer as a stand-alone rezoning
amendment.
The benefits of introducing Low Density Residential Zone land at this location.
Declaration
I have made all the inquiries that I believe are desirable and appropriate and that no matters of
significance which I regard as relevant have to my knowledge been withheld from the Panel.
Recommended