2014-04-01-R01-00 - Section 96a Amendment v2 - Midfield Cold Store · 2014. 8. 26. · 2.1.2...
Transcript of 2014-04-01-R01-00 - Section 96a Amendment v2 - Midfield Cold Store · 2014. 8. 26. · 2.1.2...
Planning Report Midfield Meats Cold Store Development
Combined Planning Permit and Amendment Request under Section 96A
of the P&E Act 1987
17 & 19 Scott Street & 26 Strong Street, Warrnambool,
Prepared by Tract Consultants
for Midfield Group Pty Ltd
13 June 2014 2/226 Latrobe Street, GEELONG WEST 3218
Phone: (03) 5221 0105 www.tract.com.au
0313-0670
Planning Report
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Executive Summary
Background
Applicant/Owner Midfield Group Pty Ltd C/- Tract Consultants
Address 17 & 19 Scott Street & 26 Strong Street, Warrnambool
Lot Description Lot 12 on LP128276, Lot 23 on LP132203 & Lot 27 on LP132203
Relevant Planning Controls
State Planning Policy Framework
- Clause 17 – Economic Development
Local Planning Policy Framework - Clause 21.07 – Economic Development - Clause 22.03 – Economic Development
Zone - Clause 33.01 – Industrial 1 Zone
- Clause 36.01 – Public Use Zone (Schedule 6)
Overlays
- Not applicable.
Particular Provisions
- Clause 52.06 – Car Parking - Clause 52.10 – Uses with adverse amenity potential
- Clause 52.34 – Bicycle parking
Permit Application Details
Description of proposal
Use & Development of land for Freezing and Cool Storage and Reduction of Car Parking Requirements
Permit requirement - Use of land for Freezing and Cool Storage - Clause 33.01-1 and 36.01-1. - Development of land for Freezing and Cool Storage - Clause 33.01-4 and
36.01-2. - Reduction of Car Parking Requirements - Clause 52.06-3
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1 Introduction 2
1.1 Background 2 1.2 Vision and Community Benefit 2 1.3 Surrounding Development 2 1.4 Proposal 2
2 Urban Context Review 3
2.1 The Site 3 2.2 Local Context 5
3 Opportunities and Constraints 6
3.1 Opportunities 6 3.2 Constraints 6
4 The Proposal 7
4.1 Planning Scheme Amendment 7 4.2 Planning Permit Application 7
5 Planning Framework 11
5.1 Ministerial Directions 11 5.2 State Planning Policy Framework 11 5.3 Local Planning Policy Framework (including MSS) 11 5.4 Response to State Planning Policy Framework & Local Planning Policy
Framework (including MSS) 13 5.5 Clause 33.01 – Industrial 1 Zone 15 5.6 Particular Provisions 17
6 Planning Assessment 18
6.1 Planning Scheme Amendment 18 6.2 Planning Permit Application 20
7 Key Considerations 21
7.1 Visual Impact 21 7.2 Clause 52.10 & Amenity Impacts 21 7.3 Cultural Heritage Management Plan (CHMP) 22
8 Conclusion 23
8.1 Conclusion 23
Appendices
Appendix 1 – Technical Reports
Appendix 2 – Planning Scheme Amendment Documentation
Appendix 3 – Title
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1 INTRODUCTION
1.1 Background
This planning report has been prepared by Tract Consultants on behalf of Midfield Group Pty Ltd, to
support a request to amend the Warrnambool Planning Scheme and a concurrent planning permit
application.
The planning application is for the Use & Development of land for Freezing and Cool Storage and
Reduction of Car Parking Requirements.
The proposed rezoning will correct an anomaly in the Warrnambool Planning Scheme that incorrectly
identifies part of the site as being for public purposes. As detailed in this report, the proposal is consistent
with relevant State and Local Planning Policies and meets the objectives of the relevant particular
provision of the Warrnambool Planning Scheme.
We seek Council’s support for the proposal and respectfully request approval of this combined planning
permit application and Planning Scheme Amendment request under Section 96A of the Planning and
Environment Act 1987.
1.2 Vision and Community Benefit
The proposed development will enhance the established Midfield Meat operations which are based in
Scott St, Warrnambool. Midfields Meat is a significant local employer and the proposal will diversify the
service and production opportunities available from the site, which will in turn provide substantial
economic benefits for the local economy.
1.3 Surrounding Development
The surrounding environment of the subject site is an established industrial area that has contributed to
local employment for a significant period. This includes the Midfield Meat retail store located at 21 Scott
Street and the Midfield Meat abattoir which is located across the road on the corner of McMeekin Road
and Scott Street. Adjoining the site to the south is a residential area comprising a mix of traditional ad
medium density residential dwellings.
Other industrial complexes in the nearby area include multiple food production outlets, fabrication
warehouses, storage facilities, timber yard and the Warrnambool Council Depot located on the opposite
side of Scott Street.
1.4 Proposal
A new 1820m2 freezing and cool storage facility is proposed. Operations at the facility will involve the
transportation of meat to the site and subsequent freezing and storage of the products until such time as
they are required to be transported away from the site. The building will operate 24 hours a day, 7 days a
week with a maximum of nine staff on the site at any one time. 10 additional car parking spaces are
proposed as part of the development. The use will operate in conjunction with the Midfield Meat Retail
store on the adjacent site at 21 Scott Street.
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2 URBAN CONTEXT REVIEW
2.1 The Site
The subject site comprises of 17 & 19 Scott Street & 26 Strong Street, Warrnambool. The proposed
rezoning affects 19 Scott Street.
The existing site conditions of the proposal are:
• The existing Midfield Meats retail outlet; and
• Associated car parking.
Figure 1 – Site Context Plan
2.1.1 Description
The property is currently owned by Midfield Group Pty Ltd, the subject site comprises three properties, as
follows:
• Lot 12 on LP 128276 (17 Scott St);
• Lot 23 on PS132203 (19 Scott St); and
• Lot 27 on PS132203 (26 Strong St).
The site is irregular in shape with a 47m frontage to Scott Street and a 26.6m frontage to Strong Street,
equating to an approximate site area of 5617 square metres.
The site contains three existing single storey industrial buildings which will be demolished to make way for
the proposed development. These buildings are used by The Midfield Group for storage and fabrication
operating 6:00am – 6:00pm weekdays whilst the building fronting Scott Street is used for waste collection.
The remainder of the site is surfaced with a mixture of concrete and gravel and is used for car parking,
driveways and storage. There are currently 37 on-site car parking spaces, accessed from Scott Sreett,
located on the Meat Barn land.
Midfield Meats
Retail outlet
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There is no existing vegetation present on site and there is a 2 metre wide easement running along the
rear boundary of 26 Strong Street. The land is not subject to any restrictive covenants or Section 173
Agreements.
17 Scott Street and 26 Strong Street are located within the Industrial 1 Zone while 19 Scott Street is located
within the Public Use Zone (Schedule 6) - Refer Figure 2 – Zone Plan. The subject land is not affected by
any planning overlays.
2.1.2 Landscape and Vegetation
The existing landscape and vegetation within the site area comprises of grassed nature strips and existing
small medium buffer planting located on Scott Street and Strong Street. A landscape plan has been
prepared and forms part of this application.
2.1.3 Topography and Views
The subject site is marginally higher than its surroundings having fall towards Scott Street and Strong
Street at both ends of the site. There are no significant view lines from the site. Visual montages have been
prepared and accompany this planning report.
2.1.1 Interfaces
The site is located on the west side of Scott Street next to the existing meat barn owned by Midfield Meat.
The Midfield abattoir which is located opposite the site on Scott Street operates 24 hours a day on
weekends. The west boundary of the site faces a storage yard located in the Industrial 3 Zone on Strong
Street - refer to Figure 1 - Site Context Plan.
2.1.2 Land Use and Development
The site incorporates 3 land parcels and extends between Scott Street and Strong Street. A building of
approximately 480sqm floor area fronting Scott Street and another building centrally within the site of
approximately 175sqm floor area are used for storage and fabrication with 6 employees operating
weekdays. Another building of approximately 230sqm floor area fronting Strong Street has been used for a
waste collection business. The Meat Barn premise (Midfield’s retail outlet) is located immediately to the
north of the site and its car park and loading bay are located partly within the site land. The floor area of all
existing buildings located on-site total approximately 885sqm.
2.1.3 Existing Planning Controls
Most of the subject site is within the Industrial 1 Zone. A portion of the land (19 Scott Street) is located
within the Public Use Zone Schedule 6 that regulates the use of land to local government. There are no
overlays currently affecting the subject land.
2.1.4 Infrastructure Connectivity
As shown in Figure 2 – Locality Plan, the subject site is located between Scott and Strong Street on the
southern periphery of the West Warrnambool Industrial Precinct which is located approximately 1.5
kilometres west of Warrnambool’s CBD.
There are a variety of zones within the immediate surrounding area including further Public Use Zone land
(Schedules 1, 2 & 6), Industrial 3 Zone, Public Park & Recreation Zone along with residentially zoned land
located approximately 80m to the west of the subject.
Scott & Strong Street both run south off McMeekin Road which is designated as a Road Zone, Category 2.
Scott Street.
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2.2 Local Context
2.2.1 Built Form and Heritage Character
The Warrnambool Railway Line is located approximately 135m east from the subject site.
The land is surrounded by
industrial operations. It adjoins
the Warrnambool Meat Barn
(Midfield’s retail outlet), and a
self-storage facility to the north.
Midfield Meat Transport depots
are located to the south of the
site.
The Midfield Meat occupy the
large landholding to the east of
the site, over Scott Street and to
the south (across Strong St)
accommodates a number of
industrial uses including a
fibreglass sales and repairs
business. There are a variety of
zones within the immediate
surrounding area including
further Public Use Zone land
(Schedules 1, 2 & 6), Industrial 1
Zone, Industrial 3 Zone, Public
Park & Recreation Zone.
2.2.2 Landscape Character
The existing character of the site
and area is heavily industrial
mostly comprising of small
buildings enclosed with metal
sheeting. There are multiple
storage facilities and operational
buildings currently used on the
site. Existing car parking is
available on the site as well as
Strong Street and Scott Street.
2.2.3 Pedestrian Network
Footpaths are generally not provided along nearby roads except for footpaths on McMeekin Road
adjacent the Albert Street and Koroit Street signalised intersections.
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3 OPPORTUNITIES AND CONSTRAINTS
3.1 Opportunities
The site is located within a strong industrial area and is in a prime location for further industrial
development. The site presents a key opportunity for increased meat production and the storage
processed at the abattoir located directly opposite the site. The site can be accessed via Scott Street or
Strong Street creating efficient truck movements through the area.
Gravel and small areas of concrete are the common materials found on the land allowing for a relatively
smooth transformation of the site terrain. The 3 existing buildings on the land are all constructed of steel
and metal sheeting making the demolition process considerably efficient.
3.2 Constraints
The interfaces with adjoining sites have been considered in detail. The facility will incorporate 4 truck
loading bays located at the front of the site which reflects existing access arrangements.
Truck movements to and from the site have been considered. A transport assessment report is included
with this submission addressing any increase in truck movements and occupants resulting from the
proposed development.
The site has been selected to achieve operational efficiencies through proximity to the existing abattoir.
The size of the cold storage building has been maximised within the available site area to be of a sufficient
size to fulfil the operational requirements of the Midfield business.
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4 THE PROPOSAL
4.1 Planning Scheme Amendment
4.1.1 Summary
An amendment to the Warrnambool Planning Scheme is sought to rezone part of the subject land from
the Public Use Zone (PUZ6) to the Industrial 1 Zone (IN1Z).
This amendment will address an anomaly that restricts the use of the land for the proposed operations.
The land is currently zoned for public (government) purposes. Given the private ownership of the land, the
zone is inappropriate and does not reflect the current or future use and development of the land.
4.2 Planning Permit Application
4.2.1 Summary
Proposal
The land use proposed sites a freezing and cool storage facility that will operate under the ownership of
Midfield Meat. Located directly opposite the abattoir meat will be transported to the site freezing the
products and storing them until the produce is required to be transported away from site. The operational
hours of the facility will be 24 hours a day, 7 days a week and will run in conjunction with the Midfield
Meat Retail store on the adjacent site at 21 Scott Street.
A maximum of nine staff will be operating from the site at any one time and an additional 10 car parking
spaces will be provided as part of the development.
The building comprises three key zones:
Freezer area:
This is the largest component of the building and occupies a floor area of approximately 980sqm. This
area will have an internal ceiling height of approximately 27m. This part of the building provides the
freezing and storage functions of the operation. Frozen pallets of meat will be stored and stacked within
this space using a system of pallet racks. Because of the extremely low temperatures in this area, under
normal operations this area will not be accessible to personnel or visitors. The pallets will be stored and
retrieved using automated equipment that operates from roof-mounted suspended track.
Internal Dispatch Area:
The internal dispatch area occupies the eastern part of the building and is used to manage the incoming
pallets and labelling of outgoing consignments. The space has an area of approximately 530sqm and is
designed to accommodate both semi-trailers and B-double vehicles. Outgoing product is dispatched to
for both local supply and international exports.
It is anticipated that there will be approximately 10 trucks delivering product to the facility per day,
although this will vary in line with client orders.
Plant
An enclosed plant area is provided at first floor level on the eastern extent of the building. The building
includes both internal and external areas. The un-roofed external plant is contained behind walls so that it
appears as part of the main cold store building.
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4.2.2 Design Philosophy
Built form
The proposed building will have a total floor area of 1820m2. The freezer section of the building makes up
two thirds of the floor space at 66.4m long and 15.2m wide and will have an overall height of 27.3m. The
front third of the building is of a more modest scale at 8m or 12.5m in height.
The proposed building has a varied setback from the Strong Street boundary, with a minimum setback of
1m. The building is setback 3.2m from the southern boundary line. The proposed building will be setback
m from the Scott Street boundary and approximately 10m from the northern boundary line.
A selection of exterior colours and materials are limited for this type of structure, which will be clad in pre-
fabricated insulated panels. The panels are available in standard Colorbond colours. To tie in with the
existing Midfield plant, the proposed colour scheme will comprise a combination of ‘Colorbond Surfmist’
and ‘Pale Eucalypt’. The selection of these neutral tones will minimise the impacts of the built form within
the streetscape and broader view lines.
Landscaping
A detailed landscaping plan proposes a mix of native and indigenous plants within these designated
landscaping areas. An appropriate and site responsive mix of plants has been considered and an
indicative schedule of planting is provided as follows:
A detailed landscaping plan and planting schedule can be provided as a condition of planning permit,
should this be required by Council.
Emissions / Industry Regulations
Neither an EPA Works Approval nor Waste Discharge License is required and no consideration of matters
under the Occupational Health and Safety (Major Hazard Facilities) Regulations 2000, the Dangerous
Goods Act 1985 or the Dangerous Goods (Storage and Handling) Regulations 2000 are required.
4.2.3 Demolition
The proposed development incorporates demolition of existing site buildings including the 480sqm
building fronting Scott Street, the 175sqm building centrally located within the site and the 230sqm
building fronting Strong Street.
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4.2.4 Buildings and Works
The proposed works include the construction of a new building approximately 1,820sqm providing a cold
storage facility to be used to store meat processed at the abattoir. The facility will incorporate 4 truck
loading bays at the front, a goods receiving and dispatch handling area and a cold store room at the rear
that uses a pallet racking storage system.
4.2.5 Commercial Component
The proposed development is consistent with State Planning Policy & Local Planning Policy including MSS.
The response to the objectives and strategies provided in the development adhere to the focus of
increasing Warrnambool’s primary production and food processing industry influencing the employment
base of the community.
The establishment of the cold storage facility will significantly service the abattoir located opposite the site
increasing production whilst meeting the requirements for the cold storage of meat.
4.2.6 Common Areas
Sufficient common areas will be provided for employees and visitors to the site.
4.2.7 Waste Collection
Standard waste collection is expected to continue from the site as well as the proper measures required
for the disposal of any product waste throughout the operation of the cold storage facility.
4.2.8 Access
Existing driveways to Scott Street and Strong Street will remain to provide access to/from the site with
some widening modifications proposed. The Meat Barn loading bay is to be accessed through the site as
per current arrangements subject to some proposed widening of the splayed entry to the loading bay.
4.2.9 Car Parking
A total of 10 additional car parking spaces are provided as part of the proposal. A traffic engineering
assessment, including an assessment of car parking provision, has been prepared by ESR Transport
Planning. The traffic engineering report identified that the proposed use and development generates a
statutory car parking requirement for 27 car spaces, however a waiver of car parking spaces is justified on
the basis of the shared uses, operational requirements and the quantity of existing car parking spaces on
the subject land.
Further discussion and justification of the car parking waiver is provided later in this report.
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Figure 3 - Proposed Zones (IN1Z)
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5 PLANNING FRAMEWORK
5.1 Ministerial Directions
A Planning Scheme Amendment must respond to any relevant Ministerial Direction.
The amendment is consistent with the Ministerial Direction on the Form and Content of Planning
Schemes under section 7(5) of the Act.
The following Ministerial Directions are relevant to this amendment:
5.1.1 Ministerial Direction No. 11
The purpose of Ministerial Direction 11 is to ensure a comprehensive strategic evaluation of a planning
scheme amendment and the outcomes it produces.” the overall strategic objectives are achieved once the
correct zoning is applied.
5.1.2 Ministerial Direction No. 12
The amendment is consistent with the Ministerial Direction on the Form and Content of Planning
Schemes under section 7(5) of the Act.
5.1.3 Planning Practice Note – Public Land zone (October 2013)
The Practice Note states that land can only be in a Public Use Zone, a Public Park and Recreation Zone or a
Public Conservation and Resource Zone if the land is Crown land, or is owned by, vested in or controlled
by a Minister, government department, public authority or municipal council. Following the sale of the
land will now be in private ownership and should no longer be in a Public Use Zone.
5.2 State Planning Policy Framework
The following objectives of the revised SPPF are relevant to this application:
5.2.1 Clause 17 – Economic Development
The objective of 17.02-2 is to “facilitate the sustainable development and operation of industry and research
and development activity.”
Strategies
- Ensure that industrial activities requiring substantial threshold distances are located in the core of
industrial areas.
- Encourage activities with minimal threshold requirements to locate towards the perimeter of the
industrial area.
- Minimise inter-industry conflict and encourage like industries to locate within the same area.
- Provide adequate separation and buffer areas between sensitive uses and offensive or dangerous
industries and quarries to ensure that residents are not affected by adverse environmental effects,
nuisance or exposure to hazards.
- Encourage manufacturing and storage industries that generate significant volumes of freight to locate
close to air, rail and road freight terminals.
5.3 Local Planning Policy Framework (including MSS)
5.3.1 Clause 21.07 –Economic Development
Relevant Objectives
- To develop Warrnambool as a major food and dairy processing centre for Victoria.
- To encourage well planned industrial development with high standards of amenity, siting and design
especially along major routes.
- To protect the amenity of residential areas from the effects of industrial activity, while not impeding the
productivity of industrial enterprises.
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Planning Report
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Relevant Strategies
- Enhance all industrial areas through the development and maintenance of a high standard of
landscaping.
- Manage the interface between industrial and residential activities, particularly in regard to heavy
vehicle traffic, industrial emissions, noise and visual setting.
5.3.2 Clause 22.03 – Economic Development
The objective of 22.03-1 is to “encourage well planned industrial development throughout the municipality
setting out clear requirements for industrial development and dealing efficiently with proposals that meet these
requirements.”
Relevant Performance Standards
Buildings
- Buildings should not occupy more than 50% of the site. Applications for buildings that do occupy
more than 50% of the site should show how matters such as car parking can be satisfactorily
addressed.
- Buildings should be constructed in materials that are visually attractive such as brick, masonry or
Colorbond metal.
Setbacks
- Setbacks may vary depending on the nature of the site, existing development and the need to ensure
safe traffic circulation.
- Frontage setbacks - To ensure active and vibrant road frontages and to generate a sense of
containment within industrial development, front setbacks should be reduced and consistent, with
minimal car parking located in the front setback. Car parking should be located along the side and rear.
Car Parking
- On site car parking must be provided according to the rate prescribed in the planning scheme unless a
proposed use warrants a reduction.
- Vehicle loading and unloading should be designed to occur totally within the site.
- Common parking areas should be considered as part of any integrated development.
Advertising
- Advertising signs should identify the name of the business occupying the premises and the service
offered.
- Above roof signs are discouraged.
- Integrated projects involving a number of lots and buildings should include a directory sign indicating
business names and services offered.
Landscaping
- Landscaping on each site will be encouraged to:
� Retain existing vegetation where practical.
� Use locally indigenous vegetation.
� Screen areas where visibility for safety is not essential.
� Define areas of pedestrian and vehicular movement.
� Provide landscaping that minimises maintenance requirements.
� Allow appropriate maintenance and landscaping of areas where future building may occur.
� Use landscaping instead of fencing in areas such as the frontage of the site.
� Avoid fencing at the site frontage unless the applicant demonstrates fencing is required for security
reasons.
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5.4 Response to State Planning Policy Framework & Local Planning Policy Framework
(including MSS)
The proposal is consistent with the objectives and strategies of Clause 17.02-2 as:
- Although the proposed use is an industrial activity requiring a 150m threshold under Clause 52.10 it is
not a “substantial” threshold distance and therefore it is appropriate that the proposed use locate
towards the perimeter of the industrial area.
- The proposal will minimise inter-industry conflict as the freezing and cool storage will operate in
conjunction with other Midfield Meats sites adjacent and directly opposite the subject site.
- The site is well positioned within the local road network for an industry that requires moderate delivery
and dispatch movements. The site has convenient access to higher order roads such as McMeekin
Road, Albert Street & Walsh Road which are all designated Category 2 roads under the Road Zone and
provide direct access to the Princes Highway which is designated as a Category 1 road under the Road
Zone. The site is also well positioned to access the Warrnambool-Melbourne Railway line should the
ability or need to utilise rail freight arise in the future.
The proposal is consistent with the objectives and strategies of Clause 21.07 as:
- The development and maintenance of a high standard of landscaping will be provided as part of this
development, however as stated previously in this report it is requested that a landscape plan be
requested via a condition of a planning permit.
- The proposed use and development will ensure the interface between industrial and residential
activities is maintained to the extent that there will be no loss of amenity as a result of heavy vehicle
traffic, industrial emissions, noise and visual setting. Further discussion regarding amenity is provided in
Section 5 of this report.
The proposal is consistent with the performance standards of 22.03-1. The following comments are
provided:
Buildings:
With a total site area of approximately 5,600 sqm and a proposed floor area of 1,550 sqm the building will
not occupy more than 50% of the site.
The building is proposed to be constructed of Colorbond metal to ensure an attractive aesthetic is
provided.
Setbacks:
The proposed building setbacks are considered to be appropriate and not inconsistent with development
within the vicinity of the subject site. The building has been sited to ensure safe traffic circulation. The
swept path diagrams contained in the traffic engineering report indicate that a generous setback to Scott
Street is required in order to achieve single direction manoeuvre truck movements on the site. This
requirement is paramount, as reducing the number of truck movements or multi-on site movements
lowers occupational health and safety risks for personnel on the site.
Although the front setback is considerable, it does not include car parking areas, and will therefore provide
a streetscape interface with acceptable visual amenity.
Car Parking:
A waiver of 19 car parking spaces is sought. Further discussion on this matter is provided later in this report
and within the attached Traffic Assessment Report prepared by ESR Transport Planning.
An appropriate amount of car parking will be provided on site having due regard for staff and customer
numbers, parking provided on the adjoining site in the same ownership and the availability of on-street
parking. Further assessment and justification is provided in the attached Transport Assessment Report
prepared by ESR Transport Planning.
Common parking areas have been considered with car parking areas on the subject site and the adjacent
Midfield Meat retail store to provide a consolidated parking area.
Vehicle loading and unloading has been designed to occur entirely within the site. The facility will
incorporate 4 truck loading bays at the front, a goods receiving and dispatch handling area and cold store
room at the rear that uses a pallet racking storage system.
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Advertising:
The proposal includes Business Identification in accordance with the requirements of Clause because:
• Advertising signs that identify the name of the business occupying the premises and the service
offered are proposed; and
• No above roof signs are proposed.
Landscaping:
It is requested that a landscape plan be required via a condition of the planning permit.
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5.5 Clause 33.01 – Industrial 1 Zone
As shown in the zone plan to the right,
the subject land is currently within the
Industrial 1 Zone and the Public Use
Zone (Schedule 6).
The purpose of the Industrial 1 Zone is to
“provide for manufacturing industry, the
storage and distribution of goods and
associated uses in a manner which does not
affect the safety and amenity of local
communities.”
Comment:
The proposed use and development
accords with the purpose of the zone as
it will provide for a goods storage and
distribution facility which will directly
support the food processing industry in
Warrnambool and will not affect the
safety and amenity of local residents.
The proposed use is defined in the
Warrnambool Planning Scheme as
‘freezing and cool storage’ which is nested
under the broader land use term:
‘Warehouse’. Under the Industrial 1 Zone,
a planning permit is required to use land
for a warehouse if it does not meet the
threshold distance at Clause 52.10 of the
Scheme.
It is noted that the proposed use is listed
in Clause 52.10 and has a required threshold buffer of 150m from land within a residential zone. There is
residential land approximately 80m west of the site and does not satisfy the threshold distance at Clause
52.10. Accordingly, a planning permit is required for the use of the subject land. Under the Industrial I
Zone, a planning permit is also required for the buildings and works proposed as part of the development.
Accordingly, the application will be referred to the EPA pursuant to Clause 66.02-7. It is considered that
the EPA’s comments will provide some evidence that the proposal will not impact nearby residents.
Further discussion regarding amenity is provided in Section 5 of this report.
The below comments are provided in response to the decision guidelines for both use and development
within the Industrial 1 Zone:
The effect that the use may have on nearby existing or proposed residential areas or other uses which are
sensitive to industrial off-site effects, having regard to any comments or directions of the referral
authorities.
The proposal will not affect the safety and amenity of local residents. The insulated nature of the building
will mitigate noise impacts. The traffic report provided by ESR Transport Planning confirms that trucks
entering and exiting the premises will not be required to enter the residential road network in order to
access higher order roads. There are no odour emissions associated with the proposed use and
development.
The effect that nearby industries may have on the proposed use
The proposal will not unreasonably impact on nearby industry. It is noted that there is a substantial food
production sites within the vicinity of the subject land.
The drainage of the land
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The proposal will not inappropriately impact on drainage because minimal regrading of land will be
required as part of the development proposal. Further, the proposal does not include expansive areas of
hardstand.
The availability of and connection to services
Connection to services is available within this established industrial precinct.
The effect of traffic to be generated on roads
The traffic report prepared by ESR Transport Planning confirms that traffic generated by the proposed use
and development can be adequately accommodated within the surrounding road network.
Any natural or cultural values on or near the land
There are no natural values on or near the site however the site and the surrounding area is identified as an
aboriginal cultural sensitive area. Please refer to Section 5 of this report for further discussion relating to
culturally sensitive land.
The interim use of those parts of the land not required for the proposed use
The proposed development occupies most of the subject land. Any balance land will be landscaped or
used for vehicular movements, and kept in an orderly state.
Streetscape character / Built form / Landscape treatment.
The proposal is considered to provide an acceptable outcome in terms of streetscape character and built
form, with the landscape treatment requested to be deferred and required via a condition of the planning
permit.
The proposed building is of a significant scale, however is appropriate within its surrounding residential
context. Three dimensional photographic montages have been prepared, in order to evaluate the impact
of the proposed built form. The viewing locations have been identified by Council as key public viewing
points point.
These views analysis shows the proposed development will be visible from a number of view lines in
Warrnambool. The use of muted tonings will soften the visual impact of the development.
The proposed external colours have been selected to minimise impacts of the building on the streetscape
and with the consideration of views of the building from the broader site context.
Interface with non-industrial areas.
Not applicable.
Parking and site access.
A total of 10 spaces have been provided which does not meet the statutory requirement of 27 as per
Clause 52.06. Further discussion and justification for this waiver is provided elsewhere in this report.
Loading and service areas
Appropriate loading areas have been provided in accordance with Clause 52.07.
Outdoor storage
No outdoor storage areas are proposed as part of this application.
Lighting
Lighting has not been proposed at this stage although it is certainly intended to do so. It is requested that
lighting details be required through a landscape plan condition on the planning permit.
Stormwater discharge
The legal point of discharge for this site has been nominated as an existing side entry pit located in Scott
Street (in line with the southern boundary of the site). The site has moderate fall towards this pit. The
existing drainage system in Scott Street has been designed to cater for an industrial site (co-efficient of
runoff = 0.9, 20year ARI) and this development will not exceed this.
A detailed internal drainage design which captures all runoff from the site during a 20year ARI event will
be submitted to council for approval as part of a planning permit condition. Aspects of Water Sensitive
Design and water reuse will be considered in this detailed design.
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5.6 Particular Provisions
5.6.1 Clause 52.06 – Car Parking
The purpose of Clause 52.06 is:
- To ensure the provision of an appropriate number of car parking spaces having regard to the demand
likely to be generated, the activities on the land and the nature of the locality.
- To support sustainable transport alternatives to the motor car.
- To promote the efficient use of car parking spaces through the consolidation of car parking facilities.
- To ensure that car parking does not adversely affect the amenity of the locality.
- To ensure that the design and location of car parking is of a high standard, creates a safe environment
for users and enables easy and efficient use.
Comments:
Under the Warrnambool Planning Scheme, 1.5 car parking spaces are required for each 100sqm of net
floor area for a cold store. The proposed floor area of approximately 1820 sqm therefore generates a
statutory requirement for 27 car parking spaces. A permit can be granted to waive or reduce this
requirement.
A total of 10 spaces have been provided on site therefore a waiver of 17 spaces is sought.
As detailed in the attached Transport Assessment Report prepared by ESR Transport Planning, this waiver
is justified because:
• An empirical assessment suggests that only eight car parking spaces will be required for the
anticipated 9-10 staff on site at any one time.
• Car parking efficiencies will be achieved through the sharing of spaces across the various Midfield
operations.
• There is sufficient on-street car parking available within the vicinity of the site which will be
supplemented by a further 80 additional spaces (approximately) which will be provided through
Council improvements.
• Any additional demand can be accommodated through informal parking on site.
5.6.2 Clause 52.34 Bicycle Facilities
Under the Warrnambool Planning Scheme, the proposed development generates a requirement for 2
bicycle spaces. Storage areas within the proposed development will provide suitable bicycle parking
opportunities to satisfy this requirement.
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6 PLANNING ASSESSMENT
6.1 Planning Scheme Amendment
This section of the planning report has been prepared in response to Section 3.1 of Ministerial Direction
No. 11 under Section 12 (2)(a) of the Planning and Environment Act 1987. The purpose of the Strategic
Assessment Guidelines is to provide a consistent framework for the evaluation of a proposed planning
scheme amendment and the outcomes it produces. The Guidelines address a number of matters which
are outlined below:
6.1.1 Why is an amendment required?
The subject land has been identified as an appropriate location for a cooling and storage through the
strategic planning for the township of Warrnambool.
It is proposed to rezone the site to an Industrial 1 Zone. The schedule caters specifically to provide for
manufacturing industry, the storage and distribution of goods and associated uses in a manner which
does not affect the safety and amenity of local communities.
The proposed Zone allows the subject site to be developed and used for the purposes envisaged through
the Warrnambool Planning Scheme.
6.1.2 How does the amendment implement the objectives of planning in Victoria?
The amendment implements the objectives of planning in Victoria, contained in Section 4 of the Planning
and Environment Act 1987, in the following ways:
− Provides for the fair, orderly, economic and sustainable use and development of land as it facilitates
a coordinated development in a strategically identified location and in a responsible manner
through the implementation of appropriate zone and overlay controls.
− Provides for the protection of natural resources by introducing controls that require that future
development proposals address environmental, biodiversity, ESD and WSUD considerations and
the maintenance of ecological processes and genetic diversity.
− Secure and provide a pleasant and safe recreational environment for all Victorians and visitors to
Warrnambool.
− Seeks to balance the present and future interests of all Victorians by facilitating capital investment
in the Warrnambool region and facilitating a high quality industrial development.
6.1.3 How does the amendment address the environmental effects and any relevant social and
economic effects?
Environmental Effects
The proposal is not expected to have any significant adverse environmental effects. The Site is used for
storage.
The Industrial 1 Zone will guide the development of the land in a manner that takes into account local
environmental considerations.
The removal of vegetation is not proposed as part of this amendment.
Social Effects
The proposed amendment accords with the guiding Victoria Planning Provisions – Principles of Land Use
and Development, and is expected to deliver positive economic and social effects for the area through:
− Opportunity to provide new employment within close proximity to Warrnambool township.
− Consolidating the site for supporting community infrastructure.
− Contributing to strong growth in the industrial sector and developing Warrnambool as a major
food and dairy processing centre for Victoria as outlined in Clause 21.07 Economic Development of
the Warrnambool Planning Scheme.
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Economic Effects
The amendment will lead to the following economic benefits:
− Construction facilitated through the amendment will result in the creation of direct and indirect
employment opportunities.
− Enhancing the sites industrial potential given its location
− Midfield is already an established local business with the proposed development enhancing the
service and production opportunities for the site and community.
6.1.4 Does the amendment comply with the requirements of any other Minister’s Direction
applicable to the amendment?
The amendment is consistent with the Ministerial Direction on the Form and Content of Planning
Schemes under Section 7(5) of the Planning and Environment Act 1987 and meets the requirements of
relevant Ministerial Direction No. 1.
Ministerial Direction 1: Potentially Contaminated Land Section 12 (2)(a) of the Planning and Environment
Act 1987. The subject land has previously been used exclusively for grazing and the land is not anticipated
to be affected by contamination. As mentioned, this notion is based on an assessment of the Department
of Planning and Community Development’s General Practice Note for Potentially Contaminated Land
(June 2005).
6.1.5 How does the amendment support or implement the State Planning Policy Framework?
The amendment supports a number of key policy directions within the SPPF. These include:
− Ensure wherever possible, that there is suitable separation between land uses that reduce amenity
and sensitive land uses.
− Provide for the protection of and conservation of pre and post contact Aboriginal cultural heritage
places.
− Provide outlets of trade related goods or services directly serving or ancillary to industry and which
have adequate on site car parking.
− Protect and carefully plan existing industrial areas to, where possible, facilitate further industrial
development
− Identify land for industrial development in urban growth areas where good access for employees,
freight and road transport is available.
6.1.6 Does the amendment support or implement the LPPF? If not, how is the LPPF proposed to
change?
The amendment supports the key policy directions within the LPPF. These include:
− Developing Warrnambool as a major food and dairy processing centre for Victoria
− To encourage well planned industrial development with high standards of amenity, siting and
design especially along major routes.
− Vehicle loading and unloading should be designed to occur totally within the site.
− Common parking areas should be considered as part of any integrated development.
− Encouraging a high quality built environment enhancing the surrounding natural environment and
landscape values.
− To identify areas of aboriginal cultural heritage sensitivity.
6.1.7 Does the amendment make proper use of the Victoria Planning Provisions?
The proposed amendment makes appropriate use of the Victoria Planning Provisions through the use of
land being utilized for the purpose of a milk processing facility. A setback has been provided for the
location of the building on site to protect the neighbourhood from effects of noise levels and air-borne
emissions on residential dwellings.
The application of the Zone will support the future use of the land in an appropriate manner, and facilitate
industrial development.
6.1.8 How does the amendment address the views of any relevant agency?
The amendment will be formally referred to all relevant agencies as part of the public exhibition process.
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6.1.9 Does the amendment address the requirements of the Transport Integration Act 2010?
Given the site’s regional location, the requirements of the Transport Integration Act are not directly
relevant to the amendment.
6.1.10 What impact will the new planning provisions have on the resource and administrative
costs of the responsible authority?
The amendment is unlikely to have a significant impact on the resources and administration costs of the
responsible authority.
6.2 Planning Permit Application
An assessment of the proposed development requires an analysis of the following considerations:
6.2.1 Is the proposal consistent with the Warrnambool Planning Scheme?
The proposal seeks to amend an anomaly in the Warrnambool Planning Scheme that has incorrectly
zoned part of the subject site in the Public Use Zone (PUZ6). This proposal will amend the current zone to
the Industrial 1 Zone to facilitate the proposed development of a Freezing & Cool Storage Facility. The
proposal is consistent with the Industrial 1 Zone and particular provisions of the Warrnambool Planning
Scheme.
6.2.2 Is the proposal a satisfactory site-responsive design?
The proposal will appropriately locate a freezing & cool storage facility in an existing industrial area
effectively responding to the nature of the subject sites surroundings. The site abuts another of the
Midfield Groups industrial facilities in the area being the Midfield Meat retail store. The Midfield Meat
Abattoir is located directly opposite the site making the proposal an ideal location capable of servicing the
abattoir complex efficiently.
6.2.3 Does the proposal create any unreasonable amenity impacts on the surrounding area?
The proposal includes the development of a building not exceeding 30m in height providing the
appropriate setback from the site boundary facing Scott Street. Car parking is located on each side of the
facility with the appropriate setbacks provided as outlined in Clause 54.04-1 of the Warrnambool Planning
Scheme. The proposal will not have any unreasonable amenity impacts on the surrounding area for the
determined use.
6.2.4 Is the internal amenity of the proposal satisfactory?
The internal amenity of the proposal responds to the proposed use of the site allowing for trucks to
comfortably enter, unload/load and exit the site. The materials used in the building design will respond to
the materials used by existing buildings located in the industrial area.
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7 KEY CONSIDERATIONS
7.1 Visual Impact
3D photographic montages have been prepared in order to assess the visual impacts associated with the
development. These images confirm that the proposal is appropriate to the location and context of the
subject site. Refer to Attachment.
7.2 Clause 52.10 & Amenity Impacts
Clause 52.10
It is noted that the proposed use is listed in Clause 52.10 with a required threshold buffer of 150m which is
not achieved given the residential zoned land approximately 80m west of the site. Accordingly, the
application will require a referral to the EPA pursuant to Clause 66.02-7. The EPA’s assessment is
anticipated to confirm that the proposal will not adversely impact nearby residents.
Heavy vehicle traffic
The traffic impact assessment notes:
Midfield Meat currently processes in excess of 2 million beef and small stock annually, the majority of which is transported to cold storage facilities, predominately in Melbourne. The proposed cold storage facility will provide a nearby location to store this product that currently is transported elsewhere. Accordingly, the development proposal it not expected to generate new truck movements but rather redirect truck movements that are already occurring in the precinct.
Truck movements to the cold storage facility will likely be on a regular basis as product is processed and then delivered to the facility for storage. Trucks used are predominately semi-trailers, with the occasional B-double used. Trucks may have their trailer detached from the prime mover at the loading bays while product is loaded / unloaded. In the order of 10 trucks a day are expected to be delivering product to the facility.
Product will also be delivered to the meat barn loading bay through the site as per existing conditions.
Truck movements from the site will be in accordance with client orders and will vary in terms of number and frequency. Typically, trucks are delivering to clients on a daily basis while at times of peak demand (eg. large export order), the number of trucks delivering product from the facility may be in the order of 15 a day.
Proposed local truck movements are described in the traffic impact report as follows:
The proposed development has been designed to accommodate truck entry from Strong Street and egress to Scott Street. Trucks delivering product from the abattoir will access the site by travelling south along Scott Street, turning right into Strong Street and right from Strong Street into the site. The alternative access route using McMeekin Road will not be adopted given potential delays for vehicles entering McMeekin Road and also because the site access is better suited to right turn entry given its width. Also, the Scott Street - Strong Street route is expected to easily accommodate anticipated truck movements given the lower traffic volumes on these roads.
As product is taken from the site, trucks will egress to Scott Street and use McMeekin Road and Koroit Street to exit the precinct as per existing conditions.
The site is well positioned in terms of access to higher order roads such as McMeekin Road which is a
designated Category 2 road under the Road Zone.
Heavy vehicles will be able to utilise higher order roads to gain direct access to the Princes Highway which
is designated as a Category 1 road under the Road Zone.
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Importantly, the route via McMeekin Road ensures that heavy vehicles are not travelling through
residential areas and therefore will not impact upon the amenity of those areas through traffic congestion
or noise.
Industrial Emissions & Noise
The proposed use is not anticipated to generate emissions that would unreasonably impact upon the
amenity of nearby residential land. Odour noise or dust emissions beyond current levels are not
anticipated to be emitted from the site.
Heavy vehicles could use the McMeekin Road/Albert Street/Walsh Road route to provide access between
the site and the Princes Highway and therefore avoid any residential areas to prevent and nullify any issues
relating to vehicle noise.
As for noise from site operations these would be minimal as the only noises sources would be vehicles on
the site such as forklifts and trucks or machinery within the building. It is noted that the site’s operations
would need to meet EPA requirements in terms of noise emissions from the site.
7.3 Cultural Heritage Management Plan (CHMP)
The permit applicant has confirmed that the subject land has been subject to significant previous
disturbance and for this reason a CHMP is not required. The attached report confirms that a mandatory
CHMP is not required under these circumstances.
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8 CONCLUSION
8.1 Conclusion
This report has detailed the context and design response for the proposal at 17-19 Scott Street and 26
Strong Street in Warrnambool. The proposal is appropriate to the location and context of the subject site
and should be supported by Council for the following reasons:
− It is consistent with the relevant State and Local planning policy referenced in the report; and
− It is consistent with objectives and decision guidelines of the applicable Particular Provisions.
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APPENDIX 1 – TECHNICAL REPORTS
The Master Plan for the site has been influenced and informed by a number of specialist technical reports
and assessments. These reports have considered the future development proposal in the context of the
existing site and environmental conditions.
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APPENDIX 2 – PLANNING SCHEME AMENDMENT
DOCUMENTATION
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APPENDIX 3 – TITLE