Greater Bendigo Housing Strategy · 3 Greater Bendigo Housing Strategy – Issues and Opportunities...

Greater Bendigo Housing Strategy

Issues and Opportunities – the Planning Scheme

May 2016 V.02

2 Greater Bendigo Housing Strategy – Issues and Opportunities

Contents Overview and Summary ........................................................................ 3

Strategic Context .................................................................................. 4

Residential Zones ................................................................................. 5

Efficient use of land ............................................................................. 10

Longer Term Housing Opportunities ................................................... 11

Maiden Gully North West ................................................................. 12

Cherry Tree Lane, Big Hill ............................................................... 13

Potential Longer Term Growth Areas .............................................. 14

Appendix 1 - Land to be potentially rezoned ....................................... 15

Appendix 2 - Draft DDO ...................................................................... 17

Name Signature Date

Prepared by: Andrew Cockerall

Authorised by:

Endorsed by Council’


Overview and Summary What is the Purpose of this Housing Strategy - Issu es and Opportunities Discussion Paper? The purpose of this Discussion Paper is to set out the range of issues that relate to the future provision of housing across Greater Bendigo and facilitate the development of a Housing Strategy for adoption by Council. The focus of the Discussion Paper is the question: what policies and actions should Council employ to ensure that all our residents can access appropriate housing to meet their current and future needs? This Discussion Paper has been prepared to stimulate community engagement and debate and assist Council in adopting a Strategy. Comments on the contents are invited. How is the Discussion Paper structured? The Paper is structured in a number of sections for ease of readership. Section One provides a comprehensive summary of the range of issues and topics that Council is seeking to address. Section Two provides a comprehensive analysis of Greater Bendigo’s housing needs. Most of this section is provided as an extensive appendix to the whole Discussion Paper Section Three tackles whether there is sufficient land set aside across the whole City and particularly in urban Bendigo to meet our needs and how Council is proposing to tackle the City’s long term land supply. Section Four (this Section) sets out how Council has addressed housing as part of its Planning Scheme through adopted strategies, the

tools that are available in the planning scheme to address housing needs and how Council is proposing to use those tools. Section Five addresses issues are 10 minute neighbourhoods and neighbourhood character. Section Six the addresses housing affordability and provides ideas and options as to what role could consider pursuing.


Strategic Context The Greater Bendigo Residential Strategy (2014) was adopted by Council on 22 October 2014. The strategy establishes a framework to guide the residential growth of the Municipality to 2040 and beyond. The strategy is focussed on accommodating Bendigo’s future residential development through creating a compact city, vibrant City Centre, neighbourhoods and small towns where people can readily access their daily needs and where there is real transport choice rather than relying on the car. The key direction in the Strategy is for Bendigo to be a Compact City and this is to be achieved by:

• Promotion of “10 Minute Neighbourhoods” where residents can access most, not necessarily all, of their daily needs such as employment, shops and schools within a 10 minute walk or cycle from where they live.

• Strengthening the role and function of the UGB as a tool to manage the outward growth of the City.

• Making better use of land within the UGB. • Identifying Key Development Sites that might be suitable for higher

density housing due to a range of factors including land size, access to services, facilities and transport.

• Improving design standards of not only medium density housing, but also open space and the public domain.

• The need to improve the diversity of the housing being built and the density of development. This cannot be achieved by continued outward growth of estates dominated by detached large houses.

Planning Scheme Amendment C215 is implementing the recommendations of the Greater Bendigo Residential Strategy. The amendment is updating the Municipal Strategic Statement as it applies to residential development.

Included among the changes are the strengthening of the provisions that relate to Urban Growth Boundary (UGB), new provisions relating to 10 Minute Neighbourhoods, increasing the density and diversity of housing, facilitating the progress of the Key Development Sites (refer below) and design quality. The amendment is currently with the Minister for Planning awaiting approval.


Residential Zones In 2013 the State Government introduced three reformed residential zones to replace the Residential 1 Zone. The new zones were developed in recognition of the fact that Councils have areas where they want to encourage different forms of housing (areas where a special character needs to be protected or higher density is appropriate) and the Residential 1 Zone did not adequately respond to this. The three residential zones are: • Residential Growth Zone – where higher density is encouraged and

could applied in and around activity centres and along transit corridors.

• General Residential Zone – would be applied to “typical” residential areas.

• Neighbourhood Residential Zone – this is the most restrictive of the zones and recognises that there is a special character that needs to be preserved.

Issue There is a need to strategically apply the new zones. There may be pressure to apply the Neighbourhood Residential Zone widely irrespective of any recognised character that might exist as this is the most restrictive zone in terms of redevelopment opportunities. There may also be community opposition to the application of the Residential Growth Zone because it may be seen as too supportive of higher density development. Discussion The Greater Bendigo Residential Strategy (2014) established a clear set of criteria that articulates how the new zones will be applied. The criteria for applying the new zones are based on those drafted by the

Residential Zones Standing Advisory Committee and but have been modified to suit local circumstances. These criteria were adopted by Council when the strategy was adopted in October 2014 but have been modified so they more closely align with 10 minute neighbourhood principles. Criteria Applicable to:

NRZ GRZ RGZ Character Is the site subject to any character

controls? (HO, NCO, SLO) Yes Part No

Is the site subject to any risk factors? (fire, flood, salinity)

Yes Part No

Are there any environmental values? (VPO, ESO, etc.)

Yes Part No

Is it within the buffer to an industry? Yes Part No Strategic Is the site greater than 1ha? No Yes (not

vacant) Yes (Vacant)

Accessibility Proximity to public transport (metres) 801+ 401-800 0-400 Proximity to a separated

walking/cycling track (metres) 801+ 401-800 0-400

Proximity to passive open space (metres)

801+ 401-800 0-400

Proximity of the site to a major road? (metres)

801+ 401-800 0-400

Proximity of the site to a current or proposed railway station? (metres)

801+ 401-800 0-400

Context Is reticulated infrastructure available?

(sewerage, water, etc) No Upgrade

required Yes

Proximity to an activity centres or node? (metres)

801+ 401-800 0-400

Proximity to health services (metres) 801+ 401-800 0-400 Proximity to educational services

(metres) 801+ 401-800 0-400


Opportunities

The Greater Bendigo Residential Strategy (2014) identified a number of “Key Development Sites” that were considered suitable for higher density residential development due to a variety of reasons including location, land size and access to services. Some of these sites are already zoned in a way that would allow more intensive residential development to be undertaken, others require rezoning and some have site specific issues that would need to be resolved, such as contamination. These sites are illustrated on the following map and listed in a table on pages 8 and 9. The Greater Bendigo Residential Strategy (2014) recommends that these sites be considered for application of the Residential Growth Zone, however some sites may only require a rationalisation of other planning controls, such as the removal of the site from the Residential Character Policy to facilitate their development. Concern has been expressed by the development industry about the ability to deliver housing on these sites, some of which are constrained by contamination associated with past mining activities, landownership or other limiting factors. The development of these sites is supported by the Loddon Mallee South Regional Growth Plan. At a State Government level the Treasurer has publicly foreshadowed the release of a major Housing Strategy and the delivery of the government’s election commitment to address affordability. The indications are that a major report prepared by a cabinet subcommittee examining surplus Crown Land (such as Chum Street), the processes to release land for housing and how affordable housing will be provided on that land is likely to be released in July. It is understood that Bendigo is well placed to be part of that initiative. The Greater Bendigo Residential Strategy 2014 recognises that these sites have been in the “too hard basket”. To overcome this the strategy recommended the appointment of a Residential Development Facilitator

whose role is to work with government, developers, the community and other stakeholders to de-risk these sites, to remove some of the barriers to development and make the sites market ready. This position is not currently funded but remains a high priority.

To ensure that the development of these sites maximises the benefits to the broader community a Design and Development Overlay (DDO) has been prepared based on The Smart Growth Manual (2010) (Duany, Speck and Lydon). This overlay addresses issues such as accessibility, housing diversity, street layouts, built form and open space. A draft version of the DDO can be found at Appendix 1. Comments on the draft are invited. Community feedback is sought on:

• Are there additional Key Development Sites that should be considered for residential development?

• How comprehensive should Council be in applying the new zones?


Map 1 - Key Development Sites


Site Current controls

Proposed controls

Rationale

Already zoned or zoning in progress 1. Former Crystal Ice

and Gillies Pie Factory, Garsed Street, Bendigo

C1Z EAO DDO13 HO PO

N/A None required. The existing planning controls that apply to the site will facilitate the type and scale of development that is being envisaged by the Housing Strategy.

2. Former Poyser Motors site, 153-155 High Street, Bendigo

C1Z PO

N/A None required. The existing planning controls that apply to the site will facilitate the type and scale of development that is being envisaged by the Housing Strategy.

3. Former Coliban Water site, Alder Street, Kangaroo Flat

GRZ DPO 10 EAO (part)

RGZ DDO EAO (part)

Could be developed for higher density housing now but the RGZ would send a clear message about the form of housing being advocated for the site.

4. 680 and 708 Calder Highway, Maiden Gully

GRZ DDO10 ESO1 (part) VPO (part)

N/A The DDO10 (which specifies a 1500m2 minimum lot size) is being removed from this site as part of C215.

Short term opportunities (1 -5 years) 5. 244 Edwards Road,

Maiden Gully GRZ DPO28 WMO (part) ESO1 (part)

MUZ to town centre

This will allow for a greater diversity of uses in the town centre which is an important component of a 10 minute neighbourhood.

6. “Lansell Crest”, 39-51 Lansell Street, Bendigo

GRZ DPO16

GRZ DPO16 (amended)

Rezoning is not required but the removal of the 65 dwelling cap and a general “refresh” of the DPO will allow for the type development envisaged by the Housing Strategy

7. Former Symons Dairy, Thistle/Lily Street, Bendigo

GRZ HO (part) Local Policy

GRZ Amend MSS

Identification of the site as a Key Development Site and rationalise the planning controls.

8. 195 McIvor Road, Strathdale

GRZ (part) CZ1 (part LSIO (part) ESO1 (part) Local Policy

GRZ DDO LSIO (part) ESO1 (part) Amend MSS

This site demonstrates strong 10 minute neighbourhood principles and has limited abutting residential properties. Removal of the character policy will streamline the assessment process.

9. Former mine, Chum Street, Golden Square

PUZ7 (part) GRZ (part)

RGZ EAO DDO

This site demonstrates strongly 10 minute neighbourhood principles, is to be referenced in the MSS and is supported by State Policy.

10. Former Teachers PUZ5 RGZ (part) This site demonstrates strong 10 minute neighbourhood principles and has limited abutting


Site Current controls

Proposed controls

Rationale

College site, Osborne Street, Flora Hill

DDO HO (part)

residential properties

Medium term opportunities (5 -10 years) 11. Southern Cross

Austereo site, Golden Square

SUZ3 MUZ (part) RGZ (part) EAO DDO

This site demonstrates strong 10 minute neighbourhood principles and has limited abutting residential properties. Has potential to link in with the redevelopment of St. John of God Hospital that is undergoing a redevelopment

12. 48 Hopetoun Street, Bendigo

PUZ7 ESO1 (part) HO (part)

RGZ LSIO DDO

This site demonstrates strong 10 minute neighbourhood principles, however no change is proposed at this stage. There are outstanding issues around flooding, contamination and access that need to be resolved prior to a decision being made on this site.

Longer term opportunities (10 years+) 13. Former Murchison

Mine, 153 Sailors Gully Road, Eaglehawk

GRZ N/A This site is a longer term proposition for development and it is premature to consider a change to planning controls.

14. Former Dai Gum San Mine, Cunneen Street, Long Gully

SUZ6 (part) PUZ7 (part) WMO

N/A This site is a longer term proposition for development and it is premature to consider a change to planning controls.

CZ Commercial Zone DDO Design and Development Overlay DPO Development Plan Overlay EAO Environmental Audit Overlay ESO Environmental Significance Overlay GRZ General Residential Zone HO Heritage Overlay LSIO Land Subject to Inundation Overlay PO Parking Overlay RGZ Residential Growth Zone SUZ Special Use Zone VPO Vegetation Protection Overlay WMO Wildfire Management Overlay


Efficient use of land As stated previously the key strategic direction from the Greater Bendigo Residential Strategy is to promote a Compact Bendigo. This means there is a need to make better use of land within the Urban Growth Boundary (UGB). The small towns within the City of Greater Bendigo also have opportunities to accommodate growth and offer a lifestyle alternative to living in the Bendigo urban area. Currently 15% of all housing occurs in small towns and rural areas. Issue There are significant opportunities within the UGB and in small towns to promote residential development. This includes land that is zoned Farming or Low Density Residential or otherwise incorrectly zoned. There are also overlay controls within the Planning Scheme that limit residential development opportunities. Discussion The majority of the sites within the UGB that are zoned Farming or Low Density Residential or have a planning control that limits the density of development are largely a result of the translation of the pre-amalgamation planning schemes in the state-wide Victoria Planning Provisions format. By and large these areas have not been strategically assessed, other than on a minor case by case basis. There are areas where limitations on residential development are appropriate due to environmental factors such as vegetation, flooding, fire risk or some other constraint but others appear to have development potential.

Opportunities During the development of the GBRS a number of landowners have come forward nominating their properties as candidates to be rezoned. These sites are identified in Appendix 2 a number of them have definite potential for residential development where others have some of the constraints referred to previously. A separate piece of work is underway to assess these sites and other sites. During the exhibition of the Issues and Opportunities Paper the community are encouraged to comment on the sites identified in Appendix 2 as well as nominate other sites that should be considered. Areas affected by a Development Plan Overlay (DPO) that limits lot sizes could also be investigated. The other advantage of reviewing the DPO is that it currently restricts residents ability to be involved in planning applications. The removal of the control would allow them to participate in the planning process. Community feedback is sought on:

Is there additional land within the Urban Growth Boundary that should be considered for residential development?


Longer Term Housing Opportunities

This section identifies longer term opportunities for accommodating Bendigo’s growing population. These areas would be subject to further investigation as part of the 2024 review of the Greater Bendigo Residential Strategy. The following map indicates how the Bendigo with a population of 200,000 might look like and this is explored in the following pages.


Maiden Gully North West Given the strong population growth that has been forecast into the future and the need to plan for an ultimate population of 200,000 it is important to think longer term about how this future growth might be accommodated. The Greater Bendigo Residential Strategy identifies a number of areas as having “Potential Longer Term Growth”. These areas include land to the east and south of Huntly, to the south of Strathfieldsaye and to the north of Jackass Flat. These areas were all endorsed by the C215 Panel (Chapter 6). However the next more immediate growth front for Bendigo is to the north west of Maiden Gully. This growth front offers a number of positive attributes: • It is relatively unconstrained from an environmental perspective. • There has been strong developer interest in the area in particular

the Balgownie Winery and the former Eaglehawk Golf Course. • There are a number of larger holdings making land assembly

easier. • It is of sufficient scale (approximately 600 hectares) that would

allow for the area to be fully master planned. • The site has the potential for an additional train station and could

connect a re-opened Marong Station with Eaglehawk and then ultimately the Bendigo Station.

Council resolved to commence the detailed planning and assessment of this area in 2020, so that it could feed into the next review of the Greater Bendigo Residential Strategy. In the interim land owners within the area can commence site investigation works that will feed into the planning process.

Community feedback is sought on:

How appropriate is this Maiden Gully area in accommodating future residential development?


Cherry Tree Lane, Big Hill There has been strong landowner interest in developing this site over a number of years and the area has a number of positive attributes that lend it toward residential development. It abuts the UGB, is close to services and public transport, near an activity centre and a school. This area is considered to be a logical inclusion into the urban area and is one of the last remaining development fronts for the Kangaroo Flat area. It is a question of timing. The contribution of this area (with an area of approximately 32 hectares) to overall land supply would be relatively minor supply for the city. The Greater Bendigo Planning Scheme Amendment C215 Planning Panel (chapter 6) supported the inclusion of this land within the UGB. There are a number of important issues that need to be addressed prior to a decision being made on the future of the area. These include: • Access to reticulated sewerage as Coliban Water have advised

there are “capacity” issues as the site is at the upper end of the catchment.

• The Country Fire Authority has also advised that there are bushfire risks associated with the adjoining public land.

• According to the Bendigo Flood Study the site is substantially affected by “waterway flooding” and the impacts of this on the development potential of the area need to be understood.

• Access to the highway would also need to be resolved. While not required at the moment, this area, together with Maiden Gully will be given priority in the next review of the Greater Bendigo Residential Strategy.

In the interim land owners within the area can commence site investigation works into the issues identified above and to ensure there is full landowner support for the proposal.

Cherry Tree Lane

Structure Plan

area


Potential Longer Term Growth Areas During the development of the Greater Bendigo Residential Strategy (2014) a number of landowners came forward with sites they wanted considered for future residential development. A number of these sites were identified in the “Bendigo Urban Area Residential Growth Framework” in the strategy as having “Potential Longer Term Growth”, these include: • To the east and south of Huntly • South of Strathfieldsaye • North of Jackass Flat In terms of development priorities, the Maiden Gully North West (Section 10.1) and Cherry Tree Lane (Section 10.2) are the higher priorities. The timing of the inclusion of this land within the UGB will be subject to a number of factors: • The take up land in other areas, in particular the State Planning

Policy relating to planning for growth over a 15 year period. • Outcomes of the State of Housing Report (Section 13). • In the case of Huntly, the proposed future train station will also be

a determining factor. It is noted that the Maiden Gully North West Growth Future Growth Area is likely to significantly add to the planned supply of residential land and this may affect the timing for the planning of these areas.


Appendix 1 - Land to be potentially rezoned


Appendix 2 - Draft DDO

SCHEDULE [NUMBER] TO THE DESIGN AND DEVELOPMENT OVERLAY

Shown on the planning scheme map as DDO[number].

KEY DEVELOPMENT SITES

This schedule applies/is to be applied to land that has been identified as a Key Development Site within the Greater Bendigo Residential Strategy (2014), the Greater Bendigo Housing Strategy (2016) or in Clause 21.02.

1.0 Design objectives

To facilitate the development of the Key Development Sites identified in the Greater Bendigo Residential Strategy (2014) and the Greater Bendigo Housing Strategy (2015).

To ensure site design, building frontages, design articulation and internal layout achieve a high quality interface and surveillance of the public realm.

To ensure building massing, separation and orientation optimises solar access to living rooms and open space areas of new buildings, and communal and public spaces and pathways within the Key Development Site.

To ensure a mix of dwelling types are provided in the Key Development Site, including 1, 2 and 3+ bedroom dwellings.

To prioritise pedestrian and cycle movements over vehicle movements within the Key Development Site.

2.0 Buildings and works

A permit is not required to:

• Carry out any works associated with the remediation of contaminated land

• Remove or create an easement or restriction

• Construct or extend one dwelling on a lot of more than 300 square metres provided there is not an existing dwelling on the lot.

• Construct or carry out works normal to a dwelling

Natural Features

• Any natural features such as stands of vegetation or waterways are to be retained and incorporated into the development.

• The view lines to any open space areas are to be protected.

• Minimise the amount of cut and fill required on site.

• A Stormwater Water Management Plan is to be prepared that indicates among other things how stormwater is to be treated and reused within the site.

Housing diversity, density and mixed use

• Where appropriate provide for the provision of sites to accommodate uses that support the neighbourhood such as shops, childcare centres, schools and the like.

• Provide for a full range of housing types in the neighbourhood that visually address the street.

• Provide for high density multi-level dwellings especially near activity centres and nodes

• Provide for short setbacks from the street.

• Provide for the adaptive reuse of any historic buildings.

Access and Movement

• Prioritise walking and cycling over other forms of transport by providing safe, direct and attractive streets and open space networks.

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• Provide for linkages to the external walking, cycling and public transport network.

• Streets are to be laid out as grid network and integrate with the external street network.

• Cul de sacs are strongly discouraged.

• Sidewalks are to be provided on both sides of the road.

• All streets are to be constructed to no greater than an Access Street standard in accordance with Clause 56.06-8.

• Lots fronting an open space reserve must be served by rear lane access unless it is impractical to do so.

• A mix of road pavement materials are to used at intersections and pedestrian crossings in lieu of line marking.

Built Form

• Mix of uses

• High design standards

Open Space

• Provide for a variety of quality public open spaces within 800 metres from all dwellings

• A Landscape Management Plan that indicates the retention of existing trees within open space reserves or within road reserves and the planting of canopy on both sides of the street.

3.0 Application requirements

An application for development must include the following information to the satisfaction of the responsible authority:

• An Urban Design Report, prepared by an urban design professional or architect, addressing how the development addresses the Design Objectives set out at Clause 1.0 above and the Buildings and Works requirements set out at Clause 2.0 below, including how the proposal integrates with any developed portions of the precinct and yet to be developed portions to ensure the internal amenity for occupiers of proposed dwellings is addressed and to identify the reasonable development opportunities of adjoining sites.

• A Landscape Design Report detailing the planting strategy associated with each stage of development including an assessment of the impact on any existing trees.

• A Sustainable Management Plan (SMP) prepared by a suitably qualified person that demonstrates how the development provides for environmentally sustainable design measures.

4.0 Decision guidelines

Before deciding on an application the responsible authority must consider, as appropriate:

• Whether the form, scale and design detail of the development is in keeping with design objectives of this clause.

• Whether the design is of high architectural and urban design quality.

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