8NS08AF-201609231544032.3 Land Budget
3.3 Road Access 3.4 Public Transport
4. OPEN SPACE
_.:, 6. ACTIVITY CENTRES
6.1 Commercial Facilities
7. URBAN DESIGN
7.1 Urban Design Themes 7.2 Subdivision Design 7.3 Activity Centres
7.4 Major Roads 7.5 Open Space 7.6 Heritage Buildings and Sites 7.7
SECY Easements 7.8 Archaelogical Sites
8. EMPLOYMENT
.. , 9 STAGING
PAGE
3
4
4
4
5
9
9
9
LIST OF FIGURES
Main Road Frontage Treatments
Main Open Space Network
Options for Heritage Buildings in Subdivision Design Screening of
SECY Transmission Lines Staging Plan
LOCAL STRUCTURE PLAN
LIST OF TABLES
APPENDICES
1
2.
3.
Council Policy for Community Activity Centres .. Heritage Buildings
and Sites Infrastructure Funding Policy
2
PAGE
12
13
14
16
20
26
30
31
35
38
6
7
8
10
39
45
47
1. INTRODUCTION
The Plenty Valley Strategic Plan identifies South Morang as one of
two major urban components of the Plenty Valley Growth Area (the
other is the Mernda area to the north).
In 1989 and 1990 a number of major Planning Scheme Amendments
rezoned this area to facilitate extensive urban development and
protect areas of environmental significance.
In line with current strategic planning principles development of
this area must be generally in accordance with a Local Structure
Plan which has been incorporated into the Planning Scheme.
This document along with an accompanying plan comprise the Local
Structure Plan.
·- . ..,.. . . . ;- ..
The final step will involve approval of a planning permit for
subdivision. At this stage, develope1 s will be required to refine
the Local Structure Plan to a micro-planning level, addressing
matters such as local street design, lot sizes and layout, open
space boundaries etc. In addition, for the smaller holdings,
developers will be required to demonstrate how the proposed
subdivision will integrate with future development on surrounding
land.
3
2. THE PLAN
A reduced copy of the Local Structure Plan is located at the end of
this report. (Refer Figure JO).
2.1 Goals
The vision for the area is that the Plan promotes the development
of a cohesive urban community, reflecting the sense of containment
provided by the surrounding hills, and fostering a sense of place
with a unique character and identity.
To this end, the goals of the Plan are to.-
• Balance social, economic, environmental and community
interests.
• Facilitate the creation of an interesting and diverse urban
environment.
•
•
Accommodate future development at a rate related to demand and the
ability to service the area .
Facilitate the creation of a sense of community identity and
provide opportunities for the phy.,inl and social fulfilment of
future residents.
Provide a flexible structure that can readily adapt to changes in
people's lifestyle and aspirations.
• Ensure that development ts energy efficient m terms of
subdivision/housing design and transportation.
• Provide a framework for the co-ordinated and timely provision of
infrastructure.
• Provide a structure which allmvs equitable accessibility of all
residents to public facilities, services and open space.
4
In summary, the Local Structure Plan provides for:-
2.3
• A modified grid main road network, utilising existing road
reservations where possible.
• Residential areas to accommodate an ultimate population of
approximately
20,000 - 25,000 people, utilising a range of residential densities
and lot sizes.
• The development of two distinct precincts - a larger western
precinct and a smaller eastern precinct divided by Plenty Road
.
• An employment area comprising 40 hectares.
• Significant parts of the surrounding Quarry Hills area being
utilised as district
passive open space.
• Seven neighbourhood parks to both accommodate the major
recreational facilities
and preserve existing trees.
Existing watercourses and SECY easements providing linkages between
the main open space areas.
An hierarchy of activity centres incorporating retail, education
and community facilities and services serving a range of catchment
areas
Land Budget
The Plan area has a gross land area of approximately 810 hectares
Some 700 hectares
are available for development after deductions are made for areas
already developed or
which are not serviceable, existing major roads, and reservations
for railway and water supply purposes.
Table I provides the land budget for the Plan area. The net
residential figure is derived from the developable land figure
deducting roads, open space and activity centres shown on the Plan,
secondary school sites and sites for other facilities servmg
catchments beyond the local neighbourhood.
As the Plan area is essentially divided into two precincts (viz an
eastern and a western
precinct) which do not easily relate to each other because of their
separation by Plenty Road, Tables 2 and 3 provide a land budget
breakdown for each precinct.
5
TABLE 1 - LAND BUDGET FOR LSP AREA
(AREAS ARE EXPRESSED IN llECT ARES)
GROSS AREA
Undevelopable !and
DEVELOPABLE AREA
Main Roads
TABLE 2 - LAND BUDGET FOR WESTERN
PRECINCT
GROSS AREA
Undevelopable land
DEVELOPABLE AREA . .
Main Roads
TABLE 3 - LAND BUDGET FOR EASTERN
PRECINCT
GROSS AREA . . ....
Soutl1 Morang Local Structure Plan
The Local Structure Plan shows the main road network for the Plan
area. The road hierarchy is essentially three tier, based on the
"Victorian Code for Residential Development (Subdivisions and
Single Dwellings), April 1992" (Vic Code).
The network consists of:-
• Arterial Roads which typically form the main grid of traffic
routes, are connective and form long continuous routes.
• Sub-Arterial Roads which provide a finer grain of traffic routes
within the area. They have more frequent access connection to lower
level roads and typically form the bas;s for a local bus
route.
• Collector Roads which collect traffic from the access streets. A
reasonable level of residential amenity and safety is to be
maintained by restricting traffic volumes and vehicle speeds.
The arterial grid is spaced at about 1.6 kilometres with the other
traffic routes at about 800 metres. The grid layout ensures that
most residential areas are within 400 metres of a public transport
route.
The skeleton or structure of the main road network has largely
emerged as a result of fine-tuning the Plenty Valley Strategic Plan
and Transport Strategy and utilising the existing roads to achieve
a uniform grid design.
Figure I shows the main road network for the Plan area, while
Figure 2 indicates anticipated traftic volumes.
3.2 Road Design Standards
Table 4 below sets out the design standards for main roads. It
should be noted that the local street design is dealt with in Vic
Code and shall be designed generally in accordance with that Code.
Figure 3 provides the road cross-sections
9
. I
TABLE 4 - DESIGN STANDARDS FOR 1\ilAIN ROADS
CATEGORY TRAFFIC VOLUME (VPD)
North South 2 5000 - I 1000
COLLECTOR ROADS {2}
Collector 2 4500 - 6000
37.6(1)
37
22
22
22
21.1
21.6
18
I. Includes a 15111 wide median for a future public transport
corridor.
2. PaYcmcnl \\idlh includes ,He.is for indented parking.
]. Pa,·cmcnt is divided b- a pipclr:ick which is no! included in
the resernlion \\idth.
10
South Morang Local Structure Plan
High speed and volumes as characterised by the arterial and
sub-arterial roads have been shown to have a greater propensity for
accidents relating to parked vehicles and access from abutting
properties.
To avoid this, no on-pavement parking or abutting vehicular access
will be permitted on these roads. Figure 4 provides examples of the
types of frontage treatments which will be permitted. In essence
these include: contiguous service roads; parallel access places;
and rear lanes. It should be noted that abutting access will be
permitted on collector roads.
This list of treatments are not meant to be exhaustive, and should
other treatments emerge which achieve the same objectives they will
be considered.
3.4 Public Transport
Bus services are likely to be the only form of public transport
available to the area for many years.
In the long term it is proposed that light and heavy rail systems
be provided and
developed to serve the area. At this stage no estimate can be made
as to when these services might be provided. Nevertheless, the Plan
makes provision for a light rail reserve within The Boulevard
reservation and the retention of the heavy rail reserve.
Provided residential development occurs in a reasonably compact
fashion, a viable bus service can be provided along the main road
network. The road network has been specifically designed so that
not less than 90% of all dwellings are within 400 metres of a bus
route. The encouragement of higher density housing along these
routes would further facilitate this accessibility.
The location and design of bus stops and road design to accommodate
buses etc , will be carried out in accordance with the "Guidelines
for Accommodating Buses in Established and Future Urban Areas"
produced by the Public Transport Corporation.
As a general guide, it is suggested that bus stops should be placed
approximately 300 metres apart and light rail stops approximately
500 - 600 metres apart.
1 l
A._._IA-L a.,o""t)
Co \....L E,.c... ct. ft,.o A.
S OUT'H t-,.,1oUN '1
LO CM.- S'T"-..UCIT'vft.E, PL
NO A8'JTT INC, C.C...E..4-
SOUTM t,i\oUNt,
--
c.o u. f..C-n> r.. n, t:. - ,... wrr A:15'14 ""<-£-U (M
t-'-U-"4'1r)
18.o
11.,
58 s-.e
C.OU.1"0 It. -rf P& - C PIPE. wmt " s
E, 0
/,NP 81GYC.L<..
- - ... -----------
. '
;
South Morang Local Structure Plan
The Local Structure Plan identifies the follo\ving levels of public
open space.
• Regional parks • Neighbourhood parks • Local parks, and • Linear
parks
(Refer Figure 5)
An assessment of the neighbourhood, local and linear open space
proposed in the Plan, indicates that a total land area of 87
hectares will be required. It is important to note that
approximately 200 hectares (or 28 per cent) of the developable area
bas previously been subdivided and contributed open space. These
previous contributions
. . average at around 8% of the subdivided
land holdings. The Subdivision Act prevents Council from requiring
any additional open spa::e contribution for further development of
this land. Therefore, where possible, an attempt has been made to
integrate existing reserves into the proposed open space network.
Where this is not possible, it is intended that the reserves will
be sold, and the proceeds used to compensate land owners who are
providing land in excess of the open space 1equirement.
For that land where an open space contribution has not previously
been made, open space shall be provided at a rate of 8% of the land
being subdivided with a maxi_1_l)l!m of 3% encumbered land. The
Council may consent to less than 5% of unencumbered land provided
any deficiency is compensated by double the amount of encumbered
land. For a staged development, overall arrangements can be made
with respect to the provision of public open space rather than on
an individual development basis and requiring compliance with the 8
per cent requirement within each stage of development.
The provision and location of open space shall generally be in
accordance with the Local Structure Plan and Vic Code. In instances
where less than 8% of land is required, the Council may require a
cash contribution equivalent to the value of the land which is the
subject of the reduced requirement multiplied by a factor of 1. 5
to enable equivalent land to be purchased elsewhere
It should be noted that there are instances where by previous
negotiations between Council and the land owner, a contribution in
excess of the prescribed 8°10 will be made.
4.2 Regional Parks
The Regional Park system comprises as follows:-
• The Plenty Gorge Park. This is integral to the regional open
space network, but 1s outside the Plan area.
17
South Morang Local Structure Plan
• The Quarry Hills Park which essentially follows the ridge
circling the Plan area
providing a passive open space link from the proposed South Morang
Regional Activity Centre to the Plenty Gorge Park. The Plan
identifies Conservation A zoned land within the South Morang
Pastoral holding comprising approximately 55 hectares which is
being provided for the Park. It is intended that the
additional land required for this Park will be acquired either by
negotiation or on the open market.
4.3 Neighbourhood Parks
The Neighbourhood Parks are essentially proposed to cater for the
broader active and passive recreational needs of the whole
community.
These parks provide the focus for the linear open space system
.
Seven neighbourhood parks have been nominated to accommodate the
projected active
recreational facilities required to serve a population of around
24,000 people. The criteria applied to estimate facility
requirements is based on the following guidelines from the Scenic
Spectrums Pty. Ltd. submission to the Panel (March 1994).
Neigl,bour/rood Facilities - facilities servicing an entire
neighbourhood of 5,000 to 8,000 population. Neighbourhood
facilities would normally serve residents within I kilometre (
15-20 minutes walking time or within 5 minutes driving time).
Development of significant Active Open Space facilities of a
greater size and quality than Local Facilities would usually be
provided in conjunction with or adjacent to Neighbourhood Schools
and other Neighbourhood Community Facilities. These facilities
would usually be located along a public transport route and
pedestrian/bicycle track where possible.
Guideline.5 for Neigl,bourl,ood Facilities:-
• I Football Cricket Oval and associated facilities (3 0 ha) • I
Soccer Field and associated facilities ( l. 5 ha) • I Indoor
Basketball Court and associated facilities (0 20 ha) • I Outdoor
Basketball Court and associated facilities (0 20 ha) • I Indoor
Netball Court and associated facilities (0 20 ha) • l Outdoor
Netball Court and associated facilities (0 20 ha) • 4 Outdoor
Tennis Courts and associated facilities (0 40 ha) • I Neighbourhood
level Playground and associated facilities (0 30 ha) • I
Neighbourhood Community Centre and associated facilities (0.25
ha)
(It should be noted that above guidelines are based on a population
catchment of 5,000
to 8,000 people).
South Morang Local Structure Plan
In addition to the nominated neighbourhood parks. it may be
possible that arrangements can be made for public usage of the open
space areas and facilities normally provided in association with
the primary and secondary schools.
Although the total amount of neighbourhood open space required
should not vary from that nominated on the Plan, the exact
boundaries of each park and the types of facilities provided will
be determined at the Subdivision Stage and in response to changing
community needs.
4.4 Local Parks
The local parks will generally be provided on the basis of a 400
metres radius of homes. Each park will generally have an area of
0.5 hectares a·nd be located away from busy roads but still easily
accessible to its catchment population.
The location and boundaries of the local parks will be determined
at the time of subdivision.
The local parks will generally cater for passive and informal
at..ive recreation (i.e. playground equipment), and should wherever
possible include existing trees.
4.5 Linear Parks
A net work of pedestrian/cycle paths will be provided using linear
open space links. These links proviJe access between the main open
space areas and activity centres. Linkages will also be provided to
the regional parks.
The linear parks generally follow watercourses, maJor
hilltops/ridgelines, the SECY easements and Melbourne Water pipe
tracks.
In designing the main roads attention will be given to providing
safe pedestrian/cycle crossings where the liner parks are required
to traverse these roads.
19
!.&V' M.,.,,.
SOUTM t--10'-AN',
5. HOUSING AND POPULATION
The Whittlesea Planning Scheme prescribes the following planning
policy that:-
• Subdivisions provide a diversity of lot sizes, a convenient and
safe road network, appropriate pedestrian and cycle paths and
sufficient usable public open space.
• Engineering design and construction standards allow the use of
the most cost effective techniques in meeting functional
needs
• House siting standards allow for efficient use of the lot and
promote flexibility in controlling building setbacks and bulk,
daylighting, private open space and carparking.
• Maximum use be made :-: the Victorian Code for Residential
Development - Subdivision and Single Dwellings, April, 1992
The major factors influencing this policy are:-
• The demand for a wider choice in housing types, including compact
housing on smaller conventional lots.
• The demand for provision of more affordable housing.
• Changes in population levels and demographic structure, including
trends toward smaller households.
• The need to restrain costs associated with the provision of
infrastructure in newly developing urban areas
By virtue of Clause 24 of the Planning Scheme, Vic Code applies to
the Plan area. The Code is not specific with reference to achieving
minimum residential densities but relies on broad objectives
encouraging a mix of lot sizes and inclusion of smaller residential
lots and integrated medium density housing in areas close to
services, public transport and public open space, or with a good
view.
It is now accepted in "fringe areas" that to achieve a reasonable
degree of residential diversity as expoused in Vic Code, a gross
residential density of 15 dwellings per hectare is required.
21 ...
South Morang Local Structure Plan
Therefore, for the purposes of estimating a lot yield and notional
population for the Plan
area, it has been assumed that the average gross residential
density is 15 dwellings per hectare and the average household size
is 3.2 people.
Using these assumptions and the net residential land area derived
from the land budget, South Morang should be able to accommodate
approximately 7600 households with a total population of
approximately 24,000 people.
It must be stressed that these figures are approximations based on
current estimations and parameters. Factors which may influence the
figures could include:-
• changing fashions in urban development and densities over the 20
year development time horizon of the area;
• variations and refinements to lot yield with the preparation of
Subdivision Plans;
• the fragmented land ownership may result in some smaller
developable parcels being withheld from development;
As a general uideline, it will be expected that the Plan area
achieve an average gross residential density of 15 dwellings per
hectare. It is stressed that this is a gross figure
which includes such things as local open space, primary school
sites, and other local facilities. Therefore, in reality the actual
number of dwellings which will be contained on a hectare of land
may be lower.
It will be expected that to reach the average density figure,
higher densities will be required around the focal nodes, such as
the activity centres and along the major roads
which will carry the main public transport routes, i.e. The
Boulevard. The achievement of higher densities in these areas may
be assisted by the designation of larger lots which are capable of
future development. These larger lots could remain in parcels of
sufficient size to be suited to higher density development at a
future time when the community has matured to a point of demanding
these more diverse housing forms.
In the interim planning phase these sites must be designated
now.
5.2 Rural Residential Areas
A number of areas on the periphery of the Plan area have been
identified as being suitable for rural residential development. The
function of these areas is to soften the urban/rural
interface, particular in the steeper areas where the provision of
full urban services would be economically unviable.
The rural residential areas will generally be subdivided into lots
of between 0.4 hectare
and 2 hectares dependent on the visual sensitivity of the area, as
well a other defined site constraints.
Subdivision Plans while providing the normal details on access
roads and lot boundaries, will also need to nominate suitable
development envelopes to ensure views to the ridgeline are
protected.
22
South Morang Local Structure Plan
Development between the 170 and 185 AHO contours may be considered
provided it does not detract from the visual and environmental
integrity of the low hills. It should be noted, however, that each
proposal will be considered individually on their merits and
require an additional amendment to the Planning Scheme.
6. ACTIVITY CENTRES
An hierarchy of activity centres has been identified for the South
Morang area. comprising local and neighbourhood centres
The function of the activity centres is to concentrate and
integrate retail, health, educational and community facilities into
distinct areas. This has a two-fold effect of providing a social
focal point for the community, and reducing the reliance on the
private car - as the activity centres are
reasonably central to many residences and located on public
transport routes and pedestrian/cycle paths.
One neighbourhood and two local activity centres are proposed for
the Plan area.
6.1 Commercial Facilities
It should be noted that just south of the Plan area is an area
designated for the South Morang Regional Activity Centre It is
intended that in future this area will accommodate a major shopping
centre in the order of 50,000 - 70,000m2.
The major focus for retailing and commercial activities within the
Plan area will be centrally located neighbourhood centre abutting
The Boulevard. This centre will comprise up to I 0,0001112 of
retail floor space catering for a wide range of convenience and
comparison shopping needs. In addition, provision will also be made
for an adjoining employment area, where uses such as light industry
and peripheral sates will be permitted.
The retail/commercial component of this centre will require about 3
hectares of land, while the employment area will require about 2
hectares The centre is likely to develop in stages as appropriate
population thresholds are achieved.
Two local commercial centres are proposed - one comprising a retail
floor area of up to 45001112 located in the south-east of the
western precinct and a smaller one in the north-west comprising a
retail floor area of I 500m2 Together with a small employment
component the centres are expected to require a land area of about
2 5 hectares and I 5 hectares respectively The centres are
basically provided to cater for the convenience shopping needs at a
local level
23
South Morang Local Structure Plan
The provision of community facilities has been determined by
Council's "Policy for Community Activity Centres
(location/features/timing)" adopted in May I 990. The policy makes
provision for three different types of centres related to the
population catchment which they serve. (Refer Appendix I).
The Plan proposes 2 multi-purpose community centres. The larger of
these centres (Type 2) will be located in the main central activity
centre and be designed to serve the needs of the western precinct.
The land area required is about
0.3 hectares. A smaller facility (Type I) is proposed in the
south-east activity centre requiring a land area of 0.2
hectare.
The eastern precinct is to be served by a Type 2 Centre which ts
proposed on the abutting "Riverside" residential estate to the
south.
Types of facilities provided in each centre will vary, but could
include a Pre-School, Maternal and Child Health, Senior Citizens,
Meeting Rooms etc. It is not possible to
indicate exactly what mix of facilities will be provided in each
centre at this stage,
without a precise indication on the types of people who will be
living in the area. It
should be noted, however, that the centres will be designed with
maximum flexibility, so as to be able to respond to the needs of
the initial population and the changing needs of people over
time.
6.3 Schools
Advice from the Department of Education indicates that two primary
schools will be required within the western precinct. These will be
located as part of the two larger activity centres. A site area of
about 3. 5 hectares will be required for each school.
The eastern precinct will be serviced by a primary school earmarked
to be built on the "Riverside" Estate at the corner of Gorge Road
and Riverside Drive.
A post-primary school has also be designated in the main acti,·ity
centre to serve the Plan area. The school will occupy a site of
about 7 hectares
24
South Morang Local Structure Plan
The development of South Morang from essentially a greenfields site
to an intensive urban area, provides the opportunity to create a
strong and imaginative design to give the area a sense of identity
and character. A main feature of this design will be the use of
significant natural features as a foundation for distinctive urban
development.
A principal objective of the Local Structure Plan therefore is to
ensure that the area is not perceived merely as an extension of the
existing fringe suburbs, but instead is a distinctive and unique
area in it's own right.
The area contains many natural and man-made features which are
worthy of protection. The following key positive features should be
conserved and enhanced in future development plans:-
• The historic town centre compnsmg the facilities around Old
Plenty Road namely, the oval, school, church, houses and the
railway reservation.
• The basalt escarpment which rings the historic town centre .. ,
..
• The heritage sites as listed in Appendix 2.
• The important views : across the Redgum plains west of Plenty
Road; across the Plenty Gorge Park; from the south towards the
ranges in the north east; and from the south towards the hills
which separate South Morang from Mernda and Whittlesea.
• The maximum amount of mature and young Red gums in a viable
environment.
From these key positive features, four main themes emerge as
appropriate governing ideas for new development. They are:-
I) The historic town centre as the generator of the sense of
character and identity for the place.
2) Rural or open space separating between South Morang and
adjoining suburbs to the south and north.
3) Enhancement of the historic linear service reservations. (ie
Melbourne Water
Pipe Tracks and Railway Reservation).
25
South Morang Local Structure Plan
4) Retention of the dominant ri\"lr Redgums 011 the plains as the
key landscape feature
7.2 Subdivision Design
The design of subdivisions shall general!> be in accordance with
the "Victorian Code for
Residential Development - Subdivision and Single !)\, ellings (
April 1992)"
For guidance relating to the development of the old town centre
area it is recommended that the "City of Whittlesca - Town::.hip
Character Study (October 1993 )" be consulted
Any application to subdivide land into multi-lots shall be
accompanied by a plan showing the location of all river Redgums
(accurately plotted) with a trunk diameter of 200mm at
a height of Im above ground level The location of roads and lot
boundaries shall be designed to place these trees either in open
space, in nature strips or at the front or rear
---------- --------
.............._ ------
:
------------------
SOVTH MOU!N'1
L. o c.. 4-<- 1 T" a.u Cl1"vtt. E. P \...M.I
;:,c.vt.t.. b EB
At&,..oTMT + \E>
1'£.,(iN,Jt.6,p
SOUTM MOUN',
7.3 Activity Centres
These centres provide a focus for the community at a local or
neighbourhood level and are typically based on a supermarket and
supporting shops, generally in conjunction with schools, open space
and community centres.
The centres should be outward looking, facing onto a main road and
the adjoining residential areas. They should also be easily
accessible to pedestrians, cyclists and bus services.
Planting around the activity centres particularly at their entrance
should be in appropriate exotic species to easily define and
identify the centres from the surrounding areas.
7.4 Major Roads
The Plan provides the framework for the main road network. Although
a number of new roads are proposed, the netwo1 K uses existing
roads where possible.
In design terms, although the roads will serve an urban function
carrying large volumes of traffic, the existing roads can, with
careful design and planting, retain some of their existing rural
character. . ,. ·· · · · ·
Given the rural-type appearance of the existing roads, it is
proposed that tree planting along the main roads be largely in
native species, indigenous to the area.
The use of these trees planted in a formal or informal manner
depending on the topographical characteristics of the road, will
contrast with exotic species used around the activity
centres.
7.5 Open Space
The main open space areas should reinforce the natural features of
the area and in particular the Plenty River Valley and basalt
plains. Inherent in this is the retention of existing Redgums in an
open grassland. Open space should be designed as a network of
linked spaces which have this common theme.
Generally, only native species to the Plenty Valley shall be
planted in open space areas. This will place an emphasis on
grasslands and Redgums rather than shrubs.
Where open space adjoins a residential area, the park boundaries
and/or connecting linear open space shall be bordered by roads,
avoiding the unattractive "back fence" appearance.
29
South Morani; Local Structure Plan
The proposed Plenty Gorge Park adjoins extensive urban development
in the eastern
precinct Due to the environmental significance of the park. it is
imponant that any development adjacent to the park boundary be
sensitively designed.
In preparing development plans for land adjacent to the park,
developers will be required
to consult with appropriate oOicers from 1elbourne Parks and
Waterways and address issues such as -
7.6
• the provision u,· a predator fence along the Park boundary •
appropriate buffers and firebreaks • the height of buildings and
external materials/finishes • appropriate drainage measures to
control run-off into the park • appropriate plant species near the
park boundary
Heritage Buildings and Sites
Any subdivision should be designed to allow identified heritage.
buildings and sites to be retained with an adequate area of land
For example, where large gardens exist these can
be incorporated into a local park and the farm buildings allowed to
abut the park 111 a visual manner
Heritage buildings should retain their street orientation wherever
possible
existing farm buildings (perhaps incorporating windrows) are
integrated subdivision, a battle-axe lot shape approach may
be·a·ppMpri"are·-(Figure 7)
!.')( I S"f'IN4 WI MO It.ON
o...a H.LOTMe,..n- DM,.'(
. - PIN -
Soulh Morang Local Structure Plan
A number of the SECY easements containing high tension transmission
lines traverse the Plan area In addition. the Terminal Station
adjoins the southern boundary
These facilities are visually intrusive. hov,ever. land within the
casement can be put to useful purposes. in1.:uJing as linear open
space, as part of a rear yard or paddock for adjoining lots. or as
carparking associated with a particular use
In designing development in proximity to these easements. attempts
shall be made where possible to incorporate landscape buffers
adJt1-:e11t to the easement to help screen the pylons from view The
planting used should be generally river Redgums. intermixed with
endemic wattles and thick understorey species as appropriate (
Figure 8)
Part of the Plan area is encumbered by a high voltage power
transmission line easement The power Imes within this easement
create a field of electromagnetic radiation over the land
Scientific research at the time of preparation of the Local
Structure Plan (November 1994) has not establisheci that magnetic
fields on land in proximity to high voltage power transmission
lines initiate or promote health risks such as cancer or any other
harmful effects on humans However, it has not been scientifically
established that such fields are not harmful to health Persons
concerned with this issue should conduct their own enquiries
SOVT t,.J\oUN',
31 L. O C, M.,.. S 'T"L\J ClfVILE. , LMI
EB ;:: • C.vU.. J - ' J-,. 1U44.
South Morang Local Structure Plan
7.8 Archaeological Sites
A report for the City of Whittle.;ea titled "The Aboriginal
Heritage of the Mernda Area, Quarry Hill, Granite Hill and the
Middle Darebin Creek - September l 994" has identified a number of
sites of archaeological significance in the northern section of the
Plan area (which was included in the study).
As the Plan area has not been fully surveyed it will be necessary
that any proposal for
multi-lot subdivision be accompanied by an archaeological survey
prepared by an appropriately qualified practitioner.
It should be noted that it is an offence under the "Aboriginal and
Torres Strait Islander
Heritage Protection Act 1987" to wilfully disturb or destroy any
site.
32
South Morang Local Structure Plan
An important function of the Local Structure Plan is to identify
land for commercial and employment uses which will attract
investment and ultimately provide employment opportunities for
future residents.
Unfortunately, this objective is problematic. The "Plenty Valley
Employment Strategy"
makes the point that merely setting land aside for these uses does
not guarantee that development will occur. In addition, it would
appear that locational choice is almost totally market
driven.
From the experience with development in other areas, it can be
expected that with the right conditions, approximately 20% of
residents in South Morang could ultimately find employment in the
region.
Some of these employment opportunities could be provided by
development of the South Morang Regional Activity Centre and the
employment zones nominated in the Plan area including the south of
the area. In addition, significant employment opportunities can be
expected in the construction and associated industries over the
development time-frame of the area.
33
9. Staging
•
•
•
has the potential to engender a unique character and identify, to
help develop a strong sense of community. reduces the prospect of
isolation . is in a variety of ownerships to avoid establishment of
supply monopolies which could effect housing choice and
affordability.
The Local Structure Plan encourages the staged develo!)ment of the
area along the lines of the staging sequence proposed in Figure 9.
It is considered that this essentially incremental growth provides
the best opportunity to meet the above objectives, in particular
the timely provision of infrastructure and services
It would appear that the most logical first stage of development
would be on two development fronts, immediately north of the Civic
Centre and the "Riverside" Estate. The main reason for this is the
proximity of existing trunk services to these areas.
While the preferred growth pattern is incremental to existing
development, it is acknowledged that there may be reasons why this
land may not be made available for early development. These reasons
could range from the fragmented ownership pattern, withholding of
land by some owners, marketability issues etc.
The Plan is sufficiently flexible to accommodate development which
does not accord with the preferred staging sequence. Given the
problems however with fragmented growth, any such development will
be required to satisfy the following criteria:
• all utility and engineering services provided at the developer's
cost. • the provision of a basic range of community facilities as
required by Council at the
developer's cost. • main roads required to provide access to the
development constructed or upgraded
to a standard required by Council and Vic Roads at the developer's
cost.
The above infrastructure and facilities will be no more than is
required to service the particular development being undertaken at
that time.
34
South Morang Local Structure Plan
The Local Structure Plan has broadly identified the range of
infrastructure and facilities required to serve the planned
development of South Morang.
Apart from infrastructure which has traditionally been funded by
developers, such as minor roads and utility services, developers in
the Plan area will also be required to contribute towards the
provision of other infrastructure items, such as major roads,
community activity centres, and basic improvements to open space.
Council's obligations towards the provision of infrastructure,
financed from it's general rate base, will include the: major
improvements to open space (i.e. development of sporting fields and
construction of pavilions); provision of community services; and
the recurrent costs of maintenance and upgrading.
111 line with the "Guidelines for Development Contributions -
October 1991" prepared by the State Government, Council has
prepared the "South Morang Local Structure Plan lnfrastructu1e
Funding Policy - December, 1995" for the area which established the
nexus between the need and type of infrastructure proposed, and the
development.
The Policy is a publicly available document and should be consulted
by developers wishing to determine the assumptions behind the
infrastructure levy; infrastructure items being levied and
costings; mechanisms to achieve infrastructure delivery; and
financial management principles.
A separate infrastructure levy has been struck for the eastern and
western precincts given their inherent differences The levy for the
eastern precinct has been calculated at $6,060 per hectare. The
levy for the western precinct has been calculated at the rate of
$42,934 per hectare for the National Mutual area of the precinct,
and $42,566 for th remainder of the precinct. The option to pay the
levy on a per hectare basis has been provided essentially as an
encouragement for higher densities and due to problems in trying to
accurately predict ultimate lot yield.
The levy will be collected by Council at the time of subdivision (
or stages thereof).
It should be noted that developers will have the option of either
paying the levy or carrying out the works "in-kind" (or a
combination of the two). As an example, the provision of land or
construction of buildings and works by a developer in accordance
with the Infrastructure Funding Policy can be offset against the
levy payable. In addition, a developer will receive a credit for
the provision of infrastructure which benefits other
landowners.
It should also be noted, that South Morang Pastoral Pty Ltd are
exempted from further development contributions on the basis of a
previous Section I 73 Agreement which requires $500,000 (indexed)
to be paid to Council for infrastructure/facilities at the time of
development of their land.
36 ...
11. MONITORING AND REVIEW
Following commencement of development in South Morang, Council will
establish a
system of periodic monitoring and review in order to gauge whether
the principles of the Plan are still relevant.
This monitoring will probably be in the form of a resident survey
every 12 months in order to determine the characteristics of the
community and their perceptions of the area.
Should major chages to the Plan be required, these will be
implemented with community consultation.
37
APPENDIX 1 - POLICY FOR COMJ\tlUNITY ACTIVITY CENTRES
. . .. . - ... -··--,· ...... , " .... , ... ·- . ...... •" .
(LOCATION/FEATURESffIMING)
(LOCA TION/FEATURESffIMING)
This policy is designed for growing areas, although elements of it
may be relevant when providing a facility in an established
area.
The general location of a community activity centre should be shown
in any Development Plan.
Council will take a development levy for each residential lot
created by subdivision. (This includes subdivision of existing unit
sites and the like). This will be used to purchase land and build
the facility (and the levy is based on the anticipated cost of land
and building). Where a facility is located outside a given
residential catchment, but still serves that catchment, the
development levy will be based on a partial contribution (generally
pro-rata).
Council will negotiate with subdividers to obtain the identified
land (when provided with essential services) at no cost on the
basis that the developer is credited with the value of the land
when calculating the development levy.
The Development Levy for community activity centres will be imposed
on all residential subdivisions of land zoned Reserved Living B, ·
or that located in the Plenty Valley development area. This
excludes the area generally to the south of the transmission lines
at South Morang (l-lowever a levy may still be imposed for reserve
development and half-cost fencing in these cases). The principle
behind this is that such levies should only be made where they can
be applied fairly, i.e. in relatively broad areas, e.g. where the
community facility will not serve a significant area already
development/permitted. Accordingly, the levy will not be imposed
for "in-fill" subdivision. An exception to this is where the
development area is so large that it justifies a facility in its
own right.
41
TABLE I
Council will endeavour to pro\·ide cenain facilities \vhen the
development of the residential catchment has reached a cena1n
stage
The numbt:r of community activity centres will depend on the size
of the catchment
Size of Catchment Number of Stage in development of catchment
(Residential lots) Community when each Centre is to be provided
(2)
(1) Activity Centres Needed First Second Third
Centre Ce11tre Centre
8 - 9,000 3 1/4 112 3/4
Notes:
l. These ranges are deliberately "loose" This is to cater for
different circumstances For example at the higher end of the range
(or between ranges) it may be appropriate to have a "higher order"
centre ( e g type 3) Or the converse may be the case. This depends
on the nature of the population and on proximity to other
facilities.
2. This depends on the type of facility to be established (See
Table 2 for description). e.g. a type 3 facility may have to wait a
longer period before being provided
(alternatively, it may be designed so that the core can be built
earlier and added to at a later time)
3 For catchments of less than 2.000 lots there may be
just1t.1cat1on for a one-off facility This depends on proximity to
other tacil1ties
42
POLICY FOR COJ\11\IUNITY ACTIVITY CENTRES
Table 2
Community Activity Centres
Staff Office Shared kitchen and toilet facilities Yes Yes -
Maternal & Child Health Service Yes - -
Waiting/Changing Room Interview ·· -
Room Consultation Room for haring Yes - (Yes (plus sick tests,
visiting health & welfare bay) Lounge-type meeting room for Yes
- -
possible activities, ineetin. Hall-type meetin area suitable for -
Yes -
playgroups, arts/crafts, meetings of up to 100 people Community
Hall with stage, up to -
·:..r-· . .. - Yes 200 people Commercial type kitchen - - Yes
Senior Citizens club lounge style - - Yes meetins/activities Youth
club - small hall -
- Yes Central toilets and showers - - Yes Reading room for branch
library and - - Yes study
·1 Access for disabled persons Yes Yes Yes Incorporate
... for Yes opportunities - -
cultural facilities Carparking Yes (I) ves (2) Yes (2) Appurtenant
outdoor recreation Small Small Large area Size of site
(approximately) ( 3) 2,000n/ 2.500m2 ) 6,00om· Location-on Main
Road - - Yes Location-on Collector Road (or Yes Yes r Yes Trunk
Collector)(S) Location-on Access Street ( S) (6) \0) (7)
Location-on Access Place ( S) (7) (7) (7)
43
Location-major linear links Location-on pedestrian/cycle routes
Location-on public transport route Location-adjacent to school
Location-adjacent to local shop Location-adjacent to shopping
centre Location-adjacent to district (8) Location-adjacent to large
park Location-adjacent to small park Retain/close to existing
vegetation
I Minimum of 15 carspaces
park
local
local
native
Yes Yes Yes Yes Yes Yes
. . Yes Yes Yes .
Yes Yes Yes
2. Based on O 3 spaces per person capacity in hall i\tay be reduced
if sited in conjunction with carparking for other facility, e g
large PO S feature.
3. Larger areas may be needed for sites close to residences (i.e.
to increase buffers). 4. Only where access is safe and convenient.
Must have alternative pedestrian access
(e.g. a liner link). 5. For definition of road categories, see the
Australian Model Code for Residential
Development. 6. Not desirable. 7. Only if this forms a minor
pedestrian access Vehicular access should be from a
Collector (or Trunk Collector or Main Road) 8. For definitions of
parks see open space guidelines
44
45
HERITAGE ITEJ\IS
The following heritage items have been identified in the Whittlesea
Heri!lge Study 1991 and are recommended for Planning Scheme
Protection
SOUTH MORANG
DESCRIPTION GRADING
"Magpie Farmhouse", Plenty Road Demolished 1993 c
House, outbuildings and orchard Plenty Road (west side) Demolished
c
March 1991
Morang South Primary School No 1975, Old Plenty Road A
Le Page farm buildings, Plenty Gorge, MW Park c
House, 788 Plenty Road. (east side) c
Cottage, Williamsons Road . .
Uniting Church, Old Plenty Road c
House, 27 Old Plenty Road, (west side) B
Railway Station and Station house. off Williamsons Road c
Gordons Cottage/Dynons Craft Cottage, Plenty Road Demolished
c
1992/93
Red gums, Plenty Road ( west side) c
Residence, stonewall and outbuildings, Gordons Road (north side)
B
46
BASIS OF THIS REPORT
This report has been prepared by the City of Whittlesea following
consideration
of the Panel Report on Amendment L82 to the Whittlesea Planning
Scheme.
It is based on a report prepared by Spiller Gibbins Swan Pty ltd
entit1d:
"South Morang local Structure Plan, Infrastructure funding
Policy"
January, 1995, . . . - .... .....,, -- , .. .,., . . ' ..
with National Mutual/Silverton"
TABLE OF CONTENTS
4. PLANNING UNITS
6. THE WESTERN PRECINCT
6.1 EXISTING OEVELOPMF T
6.3 AGREEMENT BETWEEN THE PLANNING AUTHORITY AND NATIONAL MUTUAL
(SILVERTON) HOLDINGS 9
6.4 EXISTING INFRASTRUCTURE
6.6 CASH-FLOW CONSIDERATIONS
8. ASSESSMENT
FIGURE 4:
BRING THE FUND TO $ZERO IN YEAR 12
9
10
10
12
12
15
15
16
16
16
17
17
22
23
City o( Whittlcsca
The objectives of planning in Victoria [S4( 1 )(e) Planning and
Environment Act! include the co·ordination of public utilities and
other facilities for the benefit of the community. Planning schemes
can provide for requirements for the prov:sion
of public utility services to land [S6(2Hfll.
The land in question is delineated in Figure 1.
Figure 1: South Morang Local Structure P Ian Area
(Rel:280WPS02 I Page 1 "'
Infrastructure Funding Scheme
City of Whiffle sea
The predominant zone in the LSP area is Reserved living 8, a
purpose of which is to designate land generally suitable for urban
development including the provision of community facilities and
physical infrastructure.
The purpose of this policy is to provide a sound fiscal plan which
when integrated with the physical plan for the area ensures that
the overall objectives of orderly and proper planning are
met.
The basis of sound fiscal planning are the principles of efficiency
and equity which have been developed by the Administrative Appeals
Tribunal into four tests. These tests are intended to be applied
when conditions are proposed on permits pursuant to Section 62(2Xh)
of the Planning and Environment Act.
The AAT tests are documented in Eddie Barron Constructions Pty Ltd
V Shire of Pakenham 1990 (6AAITR8). The tests are:
Need:
Equity:
Accountability:
Nexus:
(Raf :280WPS021
The need created by the development and the measures to satisfy the
need must be adequately identified. In the Barron case rigour in
analysis was stressed, the concept of basic liveability was adopted
and exclusion' of backlogs was made a requirement. Non compliance
with any requirements renders any proposal a tax for which there is
no power.
The payment or levy must be a fair and reasonable apportionment of
the cost of implementing the need satisfaction measures. In the
Barron case it was established that the shortcomings to be aoided
are a disproportionate cost falling on the applicant in terms of
benefits derived coupled with a lack of evidence of proportionate
contribution by other benefiting landowners or by
authorities.
The responsible authority should implement procedures to ensure
that the money collected cannot be used for any purpose other than
that for which it was levied and which clearly show how, when and
where the money collected is spent. In the Barron case specific
requirements are set out.
There must be a reasonable nexus between the development and the
need satisfaction measures. In the Barron case the concept of a
planning unit was introduced.
"Community facilities are those for which the community which w,11
be
constituted by the wider planning unit will generate a need. Thus,
where a
particular subdivision or development will form part of that
community as part of
a cumulative development process so should that subdivision or
development
contribute part of the cost of providing those facilities. Thus the
condition must
fairly and reasonably relate to the total development of which the
specific
development in question is a part. The sorts of questions which may
be asked in testing this proposition are:
Will the community benefit collectively from the
infrastructure?
Will the community suffer costs if the infrastructure is not
provided?
To what extent will the capacity to use facilities, throughout
the
community be reciprocalr (p. 30).
Page2
South Morang - Local Structure Plan Infrastructure Funding
Scheme
City of Whi«lesea
Sound fiscal planning for infrastructure requires, amongst other
things, that the infrastructure provided:
meets real community needs;
is funded on an efficient and equitable basis; and
is financed on an efficient and equitable basis.
In these criteria the concept of funding means paying for an item
of infrastructure and financing means spreading the
cost over time, ie. through borrowings.
Thus there must be full integration between the physical plan and
the fiscal plan because many of the above criteria
have spatial imperatives.
The sources of funds to be taken into account include:
general rates;
user charges.
Note that borrowings are not included as a source of funds as these
are a method of fina icing - not funding.
This policy is limited to those infrastructure items exhibiting a
close nexus with the actual development of land. The
Council will fund and finance the majority of community
infrastructure required in the area from conventional
sources.
(Rel:280WPS021 Page 3
City of Whitllesea
3. THE CASE FOR DEVELOPMENT CONTRIBUTIONS
Development contributions have been an integral part of the land
development process for over four decades. They take the form of
direct provision for infrastructure, land or levies.
Development contributions, for good reasons, have traditionally
applied to infrastructure which for functional reasons is required
up-front in the development process. The need for many
infrastructure items arises even before people move into an area
end the need for other items arises because they cannot be
retro·fitted later.
Thus there has been a concentration on roads and utility services.
More recently there has been an extension of the principle to the
human services area· but primarily for capital items.
...
•
•
•
•
•
Need for Infrastructure: Development contributions should f'elate
to the infrastructure needs of the community and its staging, and
there should be a nexus between the requirements generated by the
development and the purpose for which the contribution is levied.
As far as practicable, the timing of the provision of a service
should match the demand for that service.
Efficiency of Infrastructure Charging: Development contributions
policies should he designed to promote the provision of
infrastructure at minimum cost and with maximum flexibility. The
development contributions levied on a development should relate to
the cost of providing the infrastructure for which they are
intended and should provide clear price signals.
Equity of Cost Apportionment: Development conliioulions'po1/cfes
""
s/iouf;{'ensure ihat the burden of paying for infrastructure is
spread f airfy between beneficiaries, with due regard to the
benefit received.
Efficiency of Urban Form: Development contributions policies should
be complementary to efficient form of urban development and the
efficient supply of land and infrastructure.
Housing Affordability: Development contributions policies should
not constrain housing aflordah1lity, while ensuring that
communities are provided with appropriate infrastructure and
services.
Administrative Efficiency: Development contributions policies
st,ould he clearly stated. Procedures should he simple and
transparent, and the responsible authority should be accountable
for the proper administration and expenditure of funds.
• Consistency and Certainty: There should be consistency between
local authorities in the way development contributions are derived,
collected, held, and spent. Development contnbutions policies
should provide maximum certainty for parties involved in the
development process.
• Commercial Viability: Development contributions should not
threaten the commercial viability of a project.
Note: When development contributions would substantially conflict
with these principles, other means of funding should be
adopted."
These principles are taken into account below. A balance between
all of the alternative sources of funding is sought through
presentation of a scenario (Scenario Bl which takes into account
the potential application of part of the growing rate base to
infrastructure funding. Calculation of development contributions is
guided by a methodology in a manual produced by Spiller Gibbins
Swan Pty Ltd (et al, 19921 the elements of which are shown in
Figure 2.
(Ref:280WPS02 J Page 4
1. OOCUH(HI UISllh"C O(V(LOPH(Hl
iRef:280WPS021
l. (Sl IHAl( fUlU( 0( V(L orH( H 1 g\ :l
Soulh Morang· Local Slruclure Plan lnfrasuuclure Funding
Scheme
City of Whitllesea
<(Sl!.OLISll(S ·,c co·,
-
P(rA( c1,r1 lAl VO,lS PCOCRAH VllH "110-JHI ANO IJHIHG or ALL
(XP(HOJTU(
J
EXl(Nl or '[Xl[RNAI. 8(H(flfS•·
gg;:g;: :g &3116 C
Orfrt I
8.
IO[HIJFY Af'Pl!OPl!IAH cost -··· ·- ........ ----·-·····--··-·
APPORI 1011.[Hl HElHOOS ([SIA8L(SH[S '(OUI IY' J
q_ CALCULAT( CONTRJBUTJOH QEOUJ R(O
l 10.
![ST CASH·fLOV JHPLICAIIOHS AOJUSI CAf'llAL VOR(S PR(x;RAH
PPIORIT IS[ AHO S[ 1 L(V(l or (OH IR I BU I I OH H I [ R I HPA( I
ASALYSIS
AOJUl (ASH fLOS I ____ J
,z IMPL(t<!klAI ICN
f'IL.t.U!IIP:C S(H[PJ,f POL I c, c "" 1 1.- 1 NC o• (ONIRIBUIICHS
IN FINO <c(O"J•1,81t 11 r ?PC,C(C,V(',
1[$1AfllN(5 "<((0JN1'81ti1> 1!
FIGURE 2: OVERVIEW OF METHODOLOGY
Page 5
City of Whittfesea
The planning unit for an infrastructure item 1s the area over which
its benefits are reasonably evenly distributed. For example,
the
planning unit for a cul-de-sac may be the ten or so houses it
serves; the planning unit for an arterial road might be the whole
of the
northern suburbs. The more localised the facility in question the
more contained the planning unit becomes.
The functional planning units for the South Morang LSP area are
those shown in Figure 3.
The planning units are centred on the three Community Activity
Centres and they encompass the areas' arteriaVsub-arterial
road
network. Higher order roads will of course have planning units
extending beyond the LSP area.
The infrastructure that is relevant to the two planning units west
of Plenty Road indudes:
arterial/sub-arterial roads; and
community activity centres{2).
The infrastructure that is relevant to the planning unit east of
Plenty Road is the community activity centre and a number of
items
such as a predator proof fence adjoining the Plenty Gorge
Park.
5. THE EASTERN PRECINCT
The eastern precinct is that part of the eastern planning unit
located east of Plenty Road and north of Gorge Road.
5.1 EXISTING DEVELOPMENT
Existing development is largely confined to the area south of Gorge
Road which has a capacity for 600 lots, but as this area is
already largely developed and development contributions paid, it
has been excluded from the current analysis to avoid double
payment.
5.2 FUTURE DEVELOPMENT
'Mlile there is a capacity for approximately 1,200 lots in the
planning unit overall (induding the 600 lots existing to the south
of
Gorge Road), the area to the north of Gorge Road which will contain
future development of approximately 600 lots is the focus of
this study.
5.3 EXISTING INFRASTRUCTURE
The precinct is well served with roads. The collector roads can be
treated as subdivisional roads (providing access frontages)
and
provided directly by developers.
trcture Plan
'·· , ;; ·."
;·-:::-:. '\
South Morang - Local Structure Plan Infrastructure Funding
Scheme
City of Whittfesea
The infrastructure required, costs and cost apportionment 1s shown
in Table A which 1s presented on a "per hectare" basis.
Residential densities of 15 lots per hectare have been
assumed.
Table A: Eastern Precinct Costings
Item No. Category Detail Cost
I Community Activity Centre Riverside CAC $300,000
(half cost)
(half cost)
$27,000
Collector Road Connections
TOTAL $412,000 $6,060
per hectare
Collector roads within the eastern preanct are treated as
subdivi,;1cnal roads, and thus provided by developers, because
house
frontages will abut directly with access provided. However,
collector road connections to the existing road network are
an
appropriate component of the development contribution as they fall
outside the responsibilities of developers. Additional details
of
costings are induded in Appendix A.
The recommended development contribution is $6060 per hectare for
the land to be located north of Gorge Road. Development
contributions have already been paid on land to the south of Gorge
Road under prior pemiits.
(Rel:280WPS021 ge8
6. THE WESTERN PRECINCT
The western precinct consists of the two planning units located
west of Plenty Road.
South MorNlf} • Local Structure Ffan
Infrastructure Funding Scheme
City of Wlutt/esea
While the basis for distributing costs in the eastern precinct is
'per lot' the western precinct costings are dominated by roads
which are not as sensitive in their requirements to the number of
lots. The same road network can accommodate a wide range of
residential densities. Accordingly, it is recommended that costs be
distributed on a unit-area basis (ie. 'per hectare l This has the
advantage of providing a financial incentive for developers to
pursue higher densities, which in turn will have the effect of
making publicly-funded infrastructure more cost-effective. As with
the eastern precinct, collector roads are treated as subdivisional
roads.
6.1 EXISTING DEVELOPMENT
There is no existing development which is relevant to the
development contribution calculation.
6.2 FUTURE DEVELOPMENT
The developable land in the western precinct has an area of 428.5
ha.; 135.17 ha. of which is included in the National Mutual
(Silverton) Holdings area and 293.33 forming the remainder. Average
gross residential densities will be 15 dwellings per hectare.
6.3 AGREEMENT BETWEEN THE PLANNING AUTHORITY AND NATIONAL MUTUAL
(SILVERTON)
HOLDINGS
Agreement has been reached between the City of Whittlesea and
National Mu'tual (Silverton) Holdings on a land budget and
development contribution for the National Mutual component of the
Western Precinct.
Principal elements of the agreement include:
• The estimated net residential area for National Mutual holdings
is 135.17 ha.
• A reservation width of 22.6 metres is to be provided for The
Boulevard with a 15 metre wide reservation for light rail to be
developed by the State. One carriageway of 7 .3 metres in width is
also to be provided.
• A reservation width of 22 metres is to be provided for NS-1, with
the provision for one carriageway of 11 metres in width.
• A total of 50% of both land and construction of the 605 metres of
Findon Road in the National Mutual area is assumed to be externally
funded due to its role as a regional facility. There will be no
costs attributed to the notional acceleration of land acquisition
for the road.
• Open space, fitted out with infrastructure as specified, will be
provided on the basis of 5% unencumbered and 3% encumbered. Any
provision in excess of these figures will be compensated from the
open ..space fund. Conservation A land is included as part of the
development contribution.
6.4 EXISTING INFRASTRUCTURE
The precinct is served by McDonalds Road and Plenty Road. There is
no other relevant infrastructure save for existing road reserves
which can accommodate part of the distribution road network.
(Rel:2BOWPS02J Page 9
Soulh Morang - Local Slruclure Plan lnfraslruc<ure Funding
Scheme
City of Whilllesea
The infrastructure required, costs and cost apportionment is shown
in Table B.
Additional information on the costings are included in Appendix A.
The costings are for the road network inclusive of
collector road connections, but exclusive of that half of the
construction cost of Findon Road which relates to its role
as a regional facility. As in the eastern precinct, developers will
provide sub·divisional roads (collectors with frontages
providing access). On this basis the costs are:
• Roads • Community Activity Centres • Open Space, including
Neighbourhood Parks etc
TOTAL
50,000
812,432
5,804,565
The development contribution for this precinct is calculated on a
cash·flow basis. That is to say, it is calculated on the
basis of a per hectare levy on developable land required to service
a fund which has a zero balance at the end of a pre
determined period. The fund may at times go into debit or credit
and the cost of interest paid and earned is taken into
account.
Appendix B outlines the methodology and assumptions employed. The
scenario developed below is indicative only and
should not be taken as representing the Council's intentions. For
example, if the release of lots is appreciably faster or
slower than the assumed rate, then this will have implications for
the timing of service provision.
(Ref:280WPS02J Page 10
City of Whittlesea
Western Precinct Other Than National Mutual Area
Item Number
N-S 1 • Land & Construction
N-S 2 • Land & Construction
Lakeside (AC • land & Construction
Equipping and landscaping Neighbourhood Park; E1c.
Total
Page 11
Infrastructure Funding Scheme
City of Whitrlesea
New development brings with it a growing rate base. It is assumed
that rates equate to $9,000,lta of which 10% is
available for capital expenditure.
By incorporating the growing rate base into the cash flows it is
possible to reduce the development levy. Table C
shows the resultant cash-flows where it can be seen that on this
basis the levy would be $42,566,lta ($2,838,1ot). (It
should be noted that South Morang Pastoral Pty Ltd is exempted from
further development contributions on the basis
of a previous Section 173 Agreement).
6.8 SPREADING COSTS INTO THE FUTURE
. . · . · ·.· ·· ..
However, the restraint on local government's options implied by
global borrowing arrangements and the legislative
environment must be recognised, along with Council's policy of
limiting borrowings . In this context an alternative
scenario based on the municipality's improved capacity to fund debt
on long-lived infrastructure provided by new
development, and thus reduce further the development contribution
borne by initial purchasers, is only of academic interest.
(Ref :280WPS021 Page 12
l
Dev
H
9
2c;
!5
of Race
727,693 1,064, 150 727,693 1,064, 150 727,693 1,064, 150
1,723,905 1,064, 150 1,723,905 1,064, 150 1,723,905 1,064, 150
1.732,490 1,064, 150 1.017.0'iO 1,064,150 1.027,050 1,064, 150
447,808 1,064, 150 447,808 1,064,150 447,808 936,452
12,484,808 12,642, 102
Net Revenue ($)
336,457 336,457 336,457: -659,755 -659,755; -659,755 i -668,340 37,
100 37, 100
616,342 616,342 488,644
157,294
Rate Revenue i A .1 bl f . Net evenucvar a e or
C . 1 After R.ites
22,500 358,957 45,000 381,457 67,500 403, 957 1 90,000
-569,7551
112,500 -547,255} 135,000 -524.755 t 157,500 -510,840 180,000 217,
100: 202,500 239,600 225,000 841 ,342 247,500 863,842 237,600
726,244
1,722,600 1,879,894
Borrowing Interest Rare ar
Fund (S) Re.ii ("lo)
358,957 6.00% 761,951 6.00%
1,211,626 6.00% 714,568 6.00% 210, 187 6.00% -301,957 7.00%
-833,934 7.00% -f,75,209 7.00% -482,874 7.00% 324,667 6.00%
1,207,989 6.00% 0 7.00%
1,280,469 0
-. ..,., "' - c: - '< :, v, O Cl. -- -. c: '<:':::, I")
s:;:0-:l - ::,- v, c:
- g_ Cl> -;:i "' 3 iii :,
-4 )> tlJ ,m 0
)> c:, ::c mm 0 2 )> -4 0 2 )>,- c: -4 c: )>,- 0 m <
m,- 0 '"C m 2 -4 C") 0 2 -4 :0 to c: -4 0 2
PROPOSED NATIONAL MUTUAL DEVELOPMENf CONTRIBUTION
INFRASTRUCl URE OPEN SPACE Plavi:rounc! Equipment Basic
Landscapini; Perimeter Planlini: (Im.) Cvcle Paths (Im.)
Conservation Lanrl Total Open Space
ROADS lHE BOUL(VAR() findon-Cordons Cordons-NS 1 Sub Total FINDON
ROAD Boulcv.ud· NS 1 Sub To1.,I NSl Boulcvarc!·Slh of Cordons lane
Findon-Slh of Cordons lane Sub Total TotJI Roads
COMMUNITY FACILITIES Community Pl.in Initial Community Mcclini:
Room Told/ (ommunrl)' r.1c:1/,1ic1
GRAND TOTAL
Total Land Area (ha)
2.02 2.86 4.88
0.66 ,. l
1.76 7.77
1780 S4 2100 sn
895 1265 2160
I Un,t Rate Construction
lonslruc1,on land Cosl Cost
S20t.85 S544,500 S20t.465 SS44,500
Sll9,520 $929,500 S 196,000 S43 7,500
. S3 l 7,S20 S 1,367,000
$ J,J97,67J SJ.544,460
s1.,, s. on J ss1. 689,4 91
T 01al
S 1 ,040.706 S 1,470,942 S2,5t 1.648
P45.CJ.,s S745,96S
. . ,
Rates Integrated . Fund at $0
Year 12
(Table CJ
National Mutual
8. ASSESSMENT
Per lot
City of Whitt/esea
. . .. ·- ---- ...... -.•·¥·. .
It should be noted that few developers will actually pay cash as in
most instances land and works will be provided to
equivalent value. Therefore, the scheme should be seen as a method
of equitable cost apportionment in that it provides
a benchmark against which contributions can be assessed. • w• • • •
• • • - •• •• • • • • • ,v • , • • • ·-•·0.-, ....... ..,.... .....
,......,..., ·--"''-.\ -.--•--• ,,
Moreover, in providing infrastructure directly, the cost to
developers is at wholesale prices. Developers also receive
the
benefit of increased marketability of the product. Thus the impact
is substantially lower than the assessed levy.
The scenario requires borrowings lwhich may be internal to the
Council's finances! but it is believed that such an
approach is appropriate given that the infrastructure delivers
benefits well into the future and there is an assured
income stream. It is therefore both efficient and equitable to
borrow to spread the cost over the generations who
benefit and to minimise the impact of development contributions on
housing affordability and commercial viability (The
'Minister's Review' criteria).
A further consideration is the extent of the deficit. In theory the
scenario shown in Table C accumulates a maximum
deficit of $0.9 million. This might require borrowings or it might
be financed internally at considerably lower cost. This
represents borrowing from other ratepayers rather than
cross-subsidies which would occur in other circumstances.
-
City of Whittlcsea
.--------------------------------------------------------
Y)-0 0 0
BRING THE FUND TO $ZERO IN YEAR 12
s... ro Q)
Infrastructure Funding Scheme
City of Whitt/esea
Documentation
Documentation of the development contribution scheme should take
the form of a report dealing systematically with all
relevant steps. The rationale for all decisions and the nature of
assumptions should be made explicit. Most important
in the documentation is identification of the specific projects
which development contributions will fund.
The Planning Scheme
A properly researched and documented Development Contribution
Scheme can have force or effect as a Council
adopted policy. Meaningful consultation during preparation with
land owners and the wider community can provide
extra legitimation.
However, if a contribution is required on a 'per dwelling' basis
obviously the planning scheme must make provision for
this. It could either require a permit for dwellings; having a
condition requiring a contribution, or require a contribution
on issue of Building Approval. Similarly when a contribution is
required on a 'per lot' or 'per unit of land area' basis a
permit must be required for subdivision.
Where development contributions relate to open space, the open
space requirements must be in the planning scheme as
opposed to the 'default' Subdivision Act requirements.
In most cases it will be desirable to amend the planning scheme to
make explicit the development contribution
requirements.
Briefly, the alternatives are:
• stating the nature of required contributions and their timing in
the scheme;
• requiring an agreement to be entered into;
• specifying that development contributions may be considered in
issuing e permit;
• incorporating the Development Contribution Scheme document.
Enforcement
It follows from the foregoing that enforcement of development
contributions may be by:
• where no permit is required, reliance on the planning scheme
provisions or an agreement under the provisions
of the planning scheme;
• where permits are required, reliance on provisions in a condition
or an agreement required by a condition.
(R,f:280WPS021 Page 17
South Morang - Local Slructure Plan Infrastructure Funding
Scheme
City of Whittlesea
The appropriate point in the development process to require, or
levy, the development contribution will depend on both the nature
of the need generating measure and the development process. This
depends on whether new development occurs:
• contiguous with but separate from established areas on yet to be
subdivided 'greenfields', and/or
• amongst or near established areas on existing subdivisions.
Greenfield Development
This is the simple case. The area of land being subdivided can be
readily identified and informed assumptions made about the future
number of dwellings (given likely densities). In this case the
point at which the contribution is required will be at the point of
subdivision:
• on each lot capable of having a dwelling (lots with existing
dwellings are exempt); or
• per hectare of land being subdivided.
Where residential densities are likely to vary between sub-areas in
a new subdivision it may be desirable to exact the contribution
differentially. That is, the cost of constructing the basic
distributor road network and a portion of the arterials may be
required on a per-area basis, while for local and higher-order
community facilities, contributions can be required on a per lot
basis.
Development Amongst Established Areas
. . , , .. '" ..... ..... , ........... , ,.,. . .. .. . .. . , 1 •
' •
In 'country towns' or in settlements where there has been
subdivision in the past, there may be a large number of vacant lots
scattered amonysl existing settlements. Where these towns are on
the fringe of urban settlements (or within the • commuting field1
the accelerating development of these existing, vacant lots will
create no less pressure on infrastructure than development of
'greenfield' areas. In such a case (since the opportunity to levy
at the subdivision stage has passed) it may be necessary to require
contributions at the dwelling approval stage.
If development is occurring both in existing areas and on fringe
'greenfields' the responsible authority will have to _; devise a
scheme that appropriately differentiates. It is desirable to
require. contributions at the subdivision stage.
However, if it is decided that development on the stock of existing
lots will be such that pressure on infrastructure will be
intolerable and fall unevenly, then contributions should also be
required at the point where a dwelling is constructed on lots
existing when the scheme is adopted. In this case, if the
contribution has been made at the subdivision stage, the first
dwelling on each new lot would be exempt, but subsequent dwellings
on the lot {in a medium density development, for example) would be
levied.
Contributions In-kind
The development contribution scheme distributes the cost of 'nexus'
infrastructure on a fair bcfsis. The contributions are designed in
the first instance to be cash payments made at the time of
development (eg. at the point of land subdivision, construction, or
occupation of dwellings).
However, developers should be encouraged to provide infrastructure
directly. This has the advantage of lessening the financial impact
on development because developers will bring infrastructure on·line
in such a way that the marketability of their product is enhanced.
They are also able to internalise the 'profit component' of
infrastructure provision, that is, the cost to the developer is the
wholesale price.
(Ref:280WPS02 I Page 18
City of Whittfesea
In order that the integrity of the development contribution scheme
is preserved the following principles apply:
• the in-kind contribution must be an item of infrastructure which
has been costed into the development contribution scheme; and
• the financial value of the contribution is the cost estimate in
the development contribution scheme.
In-kind contributions can be land, buildings or structures
providing the above principles apply. A major pitfall to avoid is
accepting an in-kind contribution for non-costed infrastructure
such as an item, or portion of an item, that has been discounted
when initially formulating the scheme. Recall that the discounts
relate to:
• the extent to which 'external benefits' are produced; • the
extent of use by existing development; • the extent of use by
outside development.
The effect of accepting in-kind contributions which relate to
non-costed items (or the non-costed portion of items) is to leave a
shortfall in the scheme and to provide a 'bonus' for the agencies
responsible for funding (ie. the 'other sources'
funding).
Of course, this can be redressed by the agency undertaking to
reimburse the scheme at a future point in time. This can be
achieved by a cash contribution or by taking responsibility for
items of equivalent value in the scheme.
Accountability
•
•
Once the detail of a development contribution scheme has legal
force as a provision in a Planning Scheme, condition on a planning
permit or in an agreement made under Sl 73 of the Planning and
Environment Act
1987 the Council becomes publicly accountable to both the developer
and residents to ensure that f acifities and services are provided
as described in the scheme. Rational and efficient administrative
procedures are required to enable these obligations to be
fulfilled.
Following the preparation of the scheme, which will define the
scope of the works, and the forecast expenditure timeframe, and the
adoption of a means for legal implementation (Planning Scheme,
Permit Condition, S173 Agreement) negotiations with the developer
should decide the form of the contribution (whether as a payment or
contribution in-kind).
Expenditure of the contributions should be only on works in the
scheme (ie. consistent with the notion of 'hypothecation l within
the agreed timeframe and as authorised by a resolution of
Council;
All accounting for the receipt of revenue, expenditure and balance
of reserves should be in accordance with the Local Government Act
1989, and appropriate Regulations and Accounting Standards,
particularly AAS 27. These require the proper collection of due
monies, arrangement for appropriate secority, correct expenditure
and appropriate authorisation and control over assets owned by or
in the custody of the Council. In addition, they provide for public
access to information and consistent reporting procedures. These
include minutes, agreements, permits, annual reports, financial
statements and supporting information. Specifically:
The development contribution, however received, whether cash or in
kind, should be treated as operating revenue in the Consolidated
Operating Statement. {Contributions from
Page 19
Infrastructure Funding Scheme
City of Whittlesea
developers, as distinct from ratepayers. should be treated as
revenue when the Council
obtains control over the assets comprising the contribution).
A development contribution scheme reserve fund should be created as
a transfer to reserves
in the Statement of Changes in Equity separately in respect of each
scheme. See Appendix
C for the detail to be contained in each such fund.
• The Councils' financial processes and reports are to be audited
by external auditors in accordance with the
standards and Regulations.
Open Space
Open space has been excluded from the development contributions
framework on the grounds
that tried and tested means for its provision exist in the
Subdivision Act. The requirement is for 5% of land lor cash
equivalent) to be provided unless the planning scheme makes
provision for a different amount.
Local open space is still required at a rate of 8% to enable
VicCode and other appropriate planning criteria to be met.
Encumbered land requires more flexibility to provide the same level
of recreational utiiity as unencumbered land. It is
estimated that in the order of double the area is required.
An appropriate benchm2· atio is 5% unencumbered land to 3%
encumbered for a total of 8%. Thus the range of
options is:
B 4% 5% 9%
c 3% 7% 10%
D 2% 9% 11 %
E 1% 11 % 12%
F 0% 13% 13%
When less that 8% of land is required on a particular parcel a cash
contribution is payable. However, land
compensation legislation results in acquisition costs being higher
per unit area than cash in lieu of land payments;
generally in the order of 1.5 times higher. Thus. where cash
contributions are made they must be 1 .5 times the value
of land unable to be provided.
It is therefore appropriate to include provisions in the planning
scheme along the lines:
"Open space shall be provided at a rate of 8% of the land being
subdivided with a maximum of 3% encumbered land. The responsible
authority may consent to less than 5% of unencumbered land provided
any deficiency is compensated by double the amount of encumbered
land" Local open space shall be provided generally in accordance
with the Local Structu.re Plan and Vic Code to the satisfaction of
the responsible authority. In instances where less than 8% of land
is required the responsible authority may require a cash
contribution equivalent to the value of the land which is the
subject of the reduced requirement multiplied by a factor of 1.5 to
enable equivalent land to be purchased elsewhere".
I Ref:280WPS02 I Page 20
South Morang • Local Structure Plan Infrastructure Funding
Scheme
City of Whitt!esea
It is recommended that this report become an appendix to the Local
Structure Plan and incorporated for information
purposes and that the specific requirements for development
contributions be included in the zone provisions of the
planning scheme.
The provision for the western precinct might be along the
lines:
"The owner of the land shall enter into an agreement to the
satisfaction of the responsible authority
to provide for a development contribution to be made to a value of$
... per hectare of land being
subdivided either by payment of cash or by direct provision of
1i1frastruct11re items in accordance
with the local Structure Plan. "
For the eastern precinct the contribution will be a per lot figure
(excluding the first lot).
Findon Road • Unfunded Portion
A problematic aspect is the unfunded portion of Findon Road (50%),
for which it is difficult to justify development contributions as a
source of funding.
Options to address this issue are:
delay development of the area;
fund from other council resources or borrc·:1ings;
delay development of specific parcels affected while negotiating
VicRoads funding for the regional component.
The deletion of the Findon Road alignment is not a viable
option.
Council's Funding Obligation
The Council will of course be responsible for providing a full
range of community infrastructure to be funded from
general rates, grants and other sources. Development contributions
in this policy are limited to the minority of capital
items which have a close nexus with the actual development of
land.
1Ref:280WPS021 Page 21
City of Whittfesea
ft is recommended that the development contribution in the Eastern
Precinct be set at $6,060 per hectare (equivalent
to $404 per lot at 15 lots per hectare).
ft is recommended that the development contribution applicable to
the National Mutual area of the Western Precinct be
set at $42, 943 per hectare (equivalent to $2,863 per lot at 15
lots per hectare).
ft is recommended that the development contribution applicable to
the Western Precinct outside the National Mutual
area be set at $42,566 per hectare (equivalent to $2,838 per lot at
15 lots per hectare).
!Ref:2BOWPS02 I - · • Page 22
City of Whiftlesea
Sound fiscal planning for a development area includes appropriate
development contributions.
In the western precinct a per hectare contribution ($42.566 per
ha.) encourages higher densities.
Findon Road - the 50% regional portion cannot be part of the
scheme.
Most contributions will be in·kli1d.
Some borrowings to spread the cost over the period of the
development contribution scheme are appropriate.
Open space should be considered separately and set at 8% with a
higher rate applying to encumbered space to
preserve its recreational utility.
Cash-in-lieu of land for open space to be increased by a factor of
1.5 to enable equivalent land to be purchased.
The recommendations of the Minister's Review (2 tier contributions)
can be accommodated.
In the event that the development contribution is set at any figure
less than required to return the fund to zero, a
special rate on the area should be considered.
The recommended contributions are:
Page 23
APPENDIX A
COSTINGS INFORMATION
ROAD COSTINGS
Name Category
Landscaping
Landscaping
landscaping
lnfrascroctuff fund111g Policy
City of WhittfeS11a
$ 675 per linear metre 0.1
$ 1,800 per linear metre 0.0
$ 666 per linear metre 0.0
$ 1, 110 per linear metre 0.0
$ 380 per linear metre 0.91
$1, 100 per linear metre 0.0
$380 per linear metre 0.91
$1,300,000
$ 600,000
$ 600,000
Area Tora/
Developable Area: Main Roads:
Boulevard 14.1
Findon Road 8.1 Gordons Road (Sub-arterial) 3.5 N/S 1 3.2 N/S 2 3.6
Gordons Road (Collector) 6.8 Collector 1 2.1 Collector 2 2.7
Employment Areas 40.1
Open Space: Neighbourhood Park 46.8 Electrical Easements 13.9
Drainage Lines 23.7
Net Area 496.9
Cay of lln,11/e.tea
2.7
40.1
19.3
8.5
6.5
City of Wliittlcsca
ROAD CROSS SECTIONS
C11y of W/1iu/csea
2 l. 1
t0
- 1,1/
IND(:l\1 rco
PAG !-( lf·JG
COLLC:CTOR TYPE - A
WI Hi AO U 11 I NG /.,CC E SS
21.6 + PIPETRACK
5 5 __1 .., ___ 5_.s ___ I 5 8 1 a 5
,-1 >, .... ---r. v, , ;
·,,.: 2.3 1 3.5 , 1 r 3.5 ; 1.1 J PIPETRACK i)
1\6/
' l -------' c::J
VERGE INCL.
CYCLE PATH
I 22.0
'tr 2 • 5 5
NO AGUnlNG t-<CCESS