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This version of the Draft Surf Coast Statement of Planning Policy has been prepared for use with screen reader software. The printed publication contains various design features that have been necessarily omitted from this version. In other respects this document contains identical text to that in the PDF version of the document which is available at www.engage.vic.gov.au/distinctive-areas-and-landscapes-program/surf-coast

Surf Coast Distinctive Area and Landscape

Draft Surf Coast Statement of Planning Policy

November 2020

1 | Surf Coast DAL Draft Surf Coast Statement of Planning Policy

http://www.engage.vic.gov.au/distinctive-areas-and-landscapes-program/surf-coast

The Surf Coast declared area is among Victoria’s most-preferred places to live, work, visit and play. Consequently, its unique values and distinctive attributes — its Aboriginal cultural and historic heritage, biodiversity, superb landscapes, natural resources, productive land, strategic infrastructure and built form — need protection against overuse, overdevelopment and climate change impacts.

The effects of these pressures on Torquay–Jan Juc in the past decade have fuelled community concerns about the need to protect and conserve our coastal environments, hinterland areas, township characters, local services and infrastructure.

The Minister for Planning has prepared this Draft Surf Coast Statement of Planning Policy and its accompanying proposed landscape planning controls to propose for consultation a framework to guide future use and development of land within the declared area to ensure appropriate protection and conservation of its distinctive attributes.

This Draft Surf Coast Statement of Planning Policy has been prepared by the Department of Environment, Land, Water and Planning in collaboration with the Traditional Owners the Wadawurrung, the Surf Coast Shire Council, the Greater Geelong City Council and other relevant government agencies and authorities.

We invite written submissions from the general public, community groups, responsible public entities, industry representatives and other interested parties about the Draft Surf Coast Statement of Planning Policy and the Draft Surf Coast Statement of Planning Policy: Proposed Landscape Planning Controls. Submissions must be lodged before 4.00 pm Friday 22 January 2021. Further details about how to lodge a submission are found under ‘Have your say’ section.

Acknowledgment

We acknowledge and respect the Traditional Owners of the Wadawurrung land and waters, their unique ability to care for Country and deep spiritual connection to it. We honour Elders past and present whose knowledge and wisdom has ensured the continuation of culture and traditional practices.

We are committed to genuinely partner and meaningfully engage with Traditional Owners to support the protection of their Country, the maintenance of spiritual and cultural practices and their broader aspirations in the 21st century and beyond.

© The State of Victoria Department of Environment, Land, Water and Planning 2019

This work is licensed under a Creative Commons Attribution 4.0 International licence. You are free to re-use the work under that licence, on the condition that you credit the State of Victoria as author. The licence does not apply to any images, photographs or branding, including the Victorian Coat of Arms, the Victorian Government logo and the Department of Environment, Land, Water and Planning (DELWP) logo. To view a copy of this licence, visit http://creativecommons.org/licenses/by/4.0/

Citation

Department of Environment, Land, Water and Planning (2020). Draft Surf Coast Statement of Planning Policy. State of Victoria, Melbourne 2020.


Disclaimer

This publication may be of assistance to you but the State of Victoria and its employees do not guarantee that the publication is without flaw of any kind or is wholly appropriate for your particular purposes and therefore disclaims all liability for any error, loss or other consequence which may arise from you relying on any information in this publication.

Accessibility

If you would like to receive this publication in an alternative format, please telephone the DELWP Customer Service Centre on 136186, email [email protected], or via the National Relay Service on 133 677 www.relayservice.com.au. This document is also available on the internet at www.delwp.vic.gov.au.


Contents

INTRODUCTION...........................................................................................................5About Victoria’s peri-urban areas.........................................................................................5About the declared area.......................................................................................................5About the Draft Surf Coast Statement of Planning Policy.....................................................9State and regional policy context.......................................................................................11Implementation of the Statement of Planning Policy.........................................................12Have your say.....................................................................................................................14

WADAWURRUNG STATEMENT OF SIGNIFICANCE................................................................16OUR VISION..............................................................................................................18DECLARED AREA FRAMEWORK PLAN...............................................................................19POLICY DOMAINS.......................................................................................................21

Environmental risks and resilience.....................................................................................22Landscape...........................................................................................................................27Environment and biodiversity.............................................................................................33Aboriginal cultural heritage................................................................................................36Historic heritage.................................................................................................................38Tourism, agriculture and natural resources........................................................................40Strategic infrastructure.......................................................................................................45Settlements.........................................................................................................................49

REFERENCES.............................................................................................................64GLOSSARY................................................................................................................66


Introduction

About Victoria’s peri-urban areas

The Surf Coast region, along with other peri-urban areas surrounding Melbourne, Geelong and other regional cities, includes areas of outstanding natural beauty and environmental, economic, social and cultural heritage significance.

These highly valued areas have been under the safe stewardship of Traditional Owners for millennia, and they are rich in Aboriginal cultural heritage. These areas are important to Traditional Owners, for the protection of Country and the maintenance of spiritual and cultural practices. They also have unique ecosystems, the native vegetation of which provides habitat for threatened and endangered species. The picturesque landscapes of peri-urban areas, especially along the coasts, attract millions of local, interstate and international visitors; and tourism is a major contributor to local economies. Peri-urban areas offer connections to nature and our rich heritage, as well as being locations of productive industries and important infrastructure. These areas are central to the way of life Victorians enjoy.

The challenge facing the Victorian Government and community is to manage Victoria’s growth while conserving and enhancing significant landscapes. The growth of metropolitan Melbourne and of regional settlements must be carefully planned and balanced with the need to conserve and enhance distinctive areas and landscapes.

A sustainable approach to planning and managing peri-urban areas recognises, conserves and enhances their distinctive attributes and unique values — their landscape character, biodiversity and environment, and Aboriginal cultural and historic heritage — and ensures that development responds appropriately to these attributes and values. At the same time, it must also recognise, conserve and enhance the things that make the areas prosperous: productive rural land and natural resources, local businesses, sustainable tourism, transport and essential services infrastructure, well-planned settlement growth and liveability.

About the declared area

The Victorian Government has legislated to protect and enhance Victoria’s distinctive areas and landscapes, so they can be enjoyed by current and future generations.

Parts of the Surf Coast Shire and the City of Greater Geelong were declared a distinctive area and landscape under section 46AO of the Planning and Environment Act 1987 (the Act) by order of the Governor in Council published in the Government Gazette on 19 September 2019. The order came into effect on the same day.

Under the Act, an area of Victoria can be declared a distinctive area and landscape if it has a majority of the attributes section 46AP of the Act specifies — outstanding environmental, geographical, heritage, cultural, natural resources or productive land, strategic infrastructure or built form significance — and if its attributes are under threat of significant or irreversible land use change that would affect the environmental, social or economic value of the area.

Table 1 lists the attributes that qualified the declaration of the area as a distinctive area and landscape under section 46AO of the Act.


https://s3.ap-southeast-2.amazonaws.com/hdp.au.prod.app.vic-engage.files/9615/6886/0165/Order_in_Council_-_Surf_Coast_Declaration_-_Government_Gazette_19_September_2019.pdf

Table 1: Attributes qualifying Surf Coast declared area as a distinctive area and landscape

Attribute Distinctive features

Outstanding environmental significance

a) Creeks, wetlands, saltmarshes, woodlands and beaches in the area provide habitat for numerous state and national threatened species.

b) Areas of biodiversity significance include Point Addis Marine National Park, Point Danger Marine Sanctuary, Point Impossible, Karaaf Wetlands, Breamlea Flora and Fauna Reserve, Thompson Creek, Deep Creek and remnant vegetation west of Torquay–Jan Juc.

Significant geographical features, including natural landforms

a) The landscape includes areas of state and national significance, particularly along the coastline.

b) Bells Beach, the surrounding rugged coastline and hinterland offers scenic views from landmark cliffs, points and lookouts that define the character of the area.

c) Landscape character is highly visible from main road corridors.

Heritage and cultural significance

a) The area has extensive heritage and cultural value including areas of Aboriginal heritage significance, renowned surfing locations and shipwrecks along the coastline.

b) Coastal areas and waterways contain significant Aboriginal heritage value and are gathering places for the Wadawurrung people.

c) Bells Beach is an area of state heritage significance and included on the Victorian Heritage Register for its surfing, cultural and aesthetic heritage values.

d) The Great Ocean Road is included on the National Heritage List: it serves as a memorial to Australian service people in the First World War and enables access to spectacular natural scenery.

Natural resources or productive land of significance

a) The Surf Coast is a major nature-based tourism destination of state significance, with tourism assets including Bells Beach, the Great Ocean Road and Torquay–Jan Juc.

b) Extractive industries in the area are significant, particularly for their contribution to Victoria's supply of limestone.

Strategic infrastructure or built form of significance

a) The Great Ocean Road is strategic infrastructure of national significance and is an important aspect of the tourism economy.

b) The Surf Coast Highway and Anglesea Road also form part of the state transport network, which is critical for the functioning of the Surf Coast.

Map 1 shows the Surf Coast declared area in relation to Melbourne, Geelong and Ballarat; Map 2 shows the declared area at a large scale. Its southern boundary extends along the Bass Strait coastline 600 m seaward of the low water mark from the eastern edge of the Great Otway National Park to the Breamlea Flora and Fauna Reserve. It extends north to just beyond Mt Duneed and Lower Duneed roads. Land within the declared area includes the settlements of Breamlea, Torquay–Jan Juc and Bellbrae and their hinterland.


Map 1: Location of Surf Coast declared area


Map 2: The declared area


About the Draft Surf Coast Statement of Planning Policy

Under the Act, the Minister for Planning must prepare a Statement of Planning Policy (SPP) for a declared area, the purpose of which is to create a framework to guide future use and development of land within the declared area to ensure appropriate protection and conservation of its distinctive attributes. Division 3 of Part 3AAB of the Act also specifies the contents, consultation, endorsement, approval, commencement and amendment requirements for an SPP.

The draft Surf Coast SPP has been prepared by the Department of Environment, Land, Water and Planning (DELWP) in collaboration with the Wadawurrung, the Surf Coast Shire Council, the Greater Geelong City Council and relevant government agencies and authorities. Prior to the preparation of this draft, there were two phases of public engagement with local participants and other stakeholders, and this draft draws heavily on the feedback they provided. This feedback is reported on the Surf Coast Distinctive Areas and Landscapes Program web page.

The draft Surf Coast SPP aims to protect the declared area’s outstanding landscapes and coastal landforms, unique natural environment, rich Aboriginal cultural heritage and historic heritage, and important infrastructure and natural resources. These are the distinctive attributes that qualified the declared area as a distinctive area and landscape and are listed in Table 1 and the order published in the Government Gazette.

What is a distinctive area and landscape?

Under section 46AO of the Act, an area of Victoria can be declared a distinctive area and landscape if it has a majority of the attributes section 46AP of the Act specifies — outstanding environmental, geographical, heritage, cultural, natural resources or productive land, strategic infrastructure or built form significance — and if its attributes are under threat of significant or irreversible land use change that would affect the environmental, social or economic value of the area.

In this document, ‘the declared area’ refers to the area shown on Map 2, which has been declared as a distinctive area and landscape. It includes parts of the Surf Coast Shire and the City of Greater Geelong.

What’s in a Statement of Planning Policy?

A Statement of Planning Policy (SPP) applies to a declared area. Under section 46AV of the Act it must:

set a 50-year vision that identifies the values, priorities and preferences of the Victorian community in relation to the distinctive attributes of the declared area, including preferences for future land use, protection and development

set out the long-term needs for the integration of decision-making and planning for the declared area

state the parts of the SPP that are binding on responsible public entities (RPEs), which are defined in the glossary, and the parts that are in the nature of recommendations to which RPEs are only required to have regard

include a declared area framework plan set out Aboriginal tangible and intangible cultural values and other cultural and heritage

values.


https://engage.vic.gov.au/distinctive-areas-and-landscapes-program/surf-coast

Importantly, a SPP can also include protected settlement boundaries to help provide assurance to local communities about the direction of future growth of settlements in the declared area.

This document is the draft Surf Coast SPP, which has been prepared for public consultation.

United Nations Sustainable Development Goals

As the State Government’s lead agency promoting sustainable development, DELWP supports the objectives of the United Nations Sustainable Development Goals (UNSDGs) and is committed to ensuring these goals are considered and reflected in policy. The draft Surf Coast SPP will help to deliver on the UNSDGs that provide a framework to achieve a sustainable future for all.

While the integrated delivery of all 17 UNSDGs applies to the declared area, the UNSDGs shown in Table 2 are the most relevant, and they provide a foundation for the draft Surf Coast SPP’s vision, objectives and strategies.

Table 2: Selected United Nations Sustainable Development Goals

Goal Description

3. Good health and well-being

The draft SPP aims to support active transport and healthy communities that have access to clean air and a healthy environment.

6. Clean water and sanitation

The draft SPP aims to protect water quality by reducing runoff and improving water management.

8. Decent work and economic growth

The draft SPP aims to support sustainable economic growth and the visitor economy.

9. Industry, innovation and infrastructure

The draft SPP aims to protect infrastructure and fosters local businesses.

11. Sustainable cities and communities

The draft SPP aims to provide certainty about the valued attributes to be protected while indicating preferred locations for potential long-term growth.

12. Responsible consumption and production

The draft SPP aims to support the protection and sustainable management of natural resources.

13. Climate action The draft SPP aims to support mitigation and adaptation to climate change impacts.

14. Life below water

The draft SPP aims to recognise the importance of and support the conservation of marine life.

15. Life on land The draft SPP aims to support the conservation and improvement of biodiversity values.

17. Partnership for the goals

The draft SPP aims to support governments working together with stakeholders to implement its objectives and strategies.


https://www.delwp.vic.gov.au/corporate-plan/home/sustainable-development-goals

https://www.delwp.vic.gov.au/corporate-plan/home/sustainable-development-goals

State and regional policy context

This draft Surf Coast SPP aligns with several state and regional plans and policies, which seek to ensure that growth and change are effectively managed while protecting Victoria’s natural assets, unique features and cultural and Aboriginal cultural heritage and historic heritage.

G21 Regional Growth Plan

The 2013 G21 Regional Growth Plan provides among other things a strategic framework for the five G21 member councils — the City of Greater Geelong, Surf Coast Shire, Borough of Queenscliffe, Colac Otway Shire and Golden Plains Shire (for its southern part) — to manage growth and infrastructure provision and make land use decisions. It recognises the region’s population is growing and that there is a need to proactively plan and manage projected growth while protecting areas of environmental significance, biodiversity assets, unique landscapes, coastal areas and heritage assets. Torquay–Jan Juc is identified as a district town in the region.

Plan Melbourne 2017-2050

Plan Melbourne 2017-2050 is the overarching strategic document for metropolitan Melbourne, published in 2017. The plan’s policy 4.5.2 identifies the need to protect Melbourne’s peri-urban areas, areas that contain landscapes that have significant geographic and physical features and are increasingly experiencing pressure for change. This pressure for change could potentially undermine the long-term natural or non-urban uses of land in these areas and must be carefully managed.

Victoria’s Climate Change Adaptation Plan 2017–2020

The draft Surf Coast SPP supports the Victorian Government’s commitment set out in Victoria’s Climate Change Adaptation Plan 2017 – 2020 to achieve net-zero emissions by 2050, as mandated by the Climate Change Act 2017. This will be achieved by facilitating sustainable development, protecting the environment and prioritising sustainable transport modes (such as walking, cycling and public transport), particularly in Torquay–Jan Juc.

Marine and Coastal Policy

The declared area is valued for its coastal environment and the draft Surf Coast SPP supports the objectives of the Victorian Government’s 2020 Marine and Coastal Policy about the planning, management and sustainable use of coastal areas. The policy provides direction to decisionmakers including local councils and land managers about dealing with the impacts of climate change, population growth, ageing coastal structures and other issues.

Protecting Victoria’s Environment – Biodiversity 2037

The 2017 Protecting Victoria’s Environment – Biodiversity 2037 aims to protect and improve Victoria’s natural environment by achieving a net gain in the overall extent of natural habitats in terrestrial and marine environments. It recognises the importance of the natural environment to our way of life and their high resource value.


https://www.environment.vic.gov.au/biodiversity/biodiversity-plan

https://www.marineandcoasts.vic.gov.au/coastal-management/marine-and-coastal-policy

https://www.climatechange.vic.gov.au/__data/assets/pdf_file/0024/60729/Victorias-Climate-Change-Adaptation-Plan-2017-2020.pdf

https://www.climatechange.vic.gov.au/__data/assets/pdf_file/0024/60729/Victorias-Climate-Change-Adaptation-Plan-2017-2020.pdf

https://www.planmelbourne.vic.gov.au/

https://www.planning.vic.gov.au/policy-and-strategy/regional-growth-plans/g21-regional-growth-plan

Great Ocean Road Action Plan

Parts of the declared area are within the area of the 2018 Great Ocean Road Action Plan. The plan recognises the importance of the nationally heritage-listed Great Ocean Road to the people of Victoria for its cultural, landscape and environmental values. A key objective of the plan is to protect the area’s distinctive landscapes.

One of the actions of the Great Ocean Road Action Plan was to implement legislation to specifically protect this region. The Great Ocean Road and Environs Protection Act 2020 recognises the state significance of the Great Ocean Road and its landscapes, establishes the Great Ocean Road Coast and Parks Authority and provides for the establishment of an overarching strategic planning framework for the region. The strategic planning framework applies to the Great Ocean Road region which overlaps with the Surf Coast declared area and includes Torquay–Jan Juc. The Act requires the plan to not be inconsistent with a SPP for a distinctive area and landscape under Part 3AAB of the Planning and Environment Act 1987. As such, the objectives and strategies in the final Surf Coast SPP will be reflected in the Great Ocean Road Strategic Framework Plan.

Wadawurrung Healthy Country Plan

The Wadawurrung Healthy Country Plan, planned for publication in 2020, will provide guidance and information to support the draft Surf Coast SPP. The plan will outline the goals and aspirations of the Wadawurrung for the care and management of Wadawurrung Country that has been in many ways much harmed by the impacts of colonisation.

Implementation of the Statement of Planning Policy

Effective implementation of the final Surf Coast SPP will require a concerted effort by all — governments, public land managers, the Wadawurrung, businesses, industries, residents, tourists and the community as a whole — to work collaboratively together by taking ownership and sharing knowledge, expertise and resources to support the achievement of the long-term vision for the declared area. Ways of implementing the final Surf Coast SPP are explained below.

Implementation through planning schemes

After the final SPP is approved, it will come into effect immediately and will be taken to form part of the standard provisions of the Victoria Planning Provisions. Planning scheme amendments will be progressed to implement it into the Surf Coast and Greater Geelong planning schemes. This will provide a consistent approach to land use planning and development across the declared area.

The Surf Coast Shire Council and the Greater Geelong City Council will need to consider the final Surf Coast SPP in their roles as planning authorities (where their role is to prepare planning scheme amendments) and as responsible authorities (where their role is to administer and enforce the planning scheme).

DELWP will also work with the Wadawurrung, the Surf Coast Shire Council, the Greater Geelong City Council and RPEs to facilitate any planning scheme amendments required to align planning policies and to introduce necessary planning controls to effectively implement the final Surf Coast SPP.


https://www.planning.vic.gov.au/__data/assets/pdf_file/0026/394271/GreatOceanRoad_ActionPlan.pdf

Implementation by responsible public entities

In addition to implementation through planning schemes, the final Surf Coast SPP will also be implemented by RPEs as the agencies or bodies responsible for managing land in the declared area. When the final Surf Coast SPP is approved, under section 46AV(1)(c) of the Act:

the objectives in the final Surf Coast SPP are binding on RPEs the strategies in the final Surf Coast SPP are not binding on RPEs: they are

recommendations to which RPEs are required to have regard.

Section 46AZK of the Act requires that ‘A responsible public entity must not act inconsistently with any provision of the SPP that is expressed to be binding on the public entity when performing a function or duty or exercising a power in relation to the declared area.’

That means that when developing or implementing policies or programs or making decisions in relation to the declared area, including when performing their regular functions or duties, RPEs must not act inconsistently with the final Surf Coast SPP’s objectives.

An RPE should endeavour to integrate the objectives and strategies which are relevant to it and its responsibilities into its policies, programs and decision-making in the declared area. A RPE should balance any conflicting strategies in favour of an outcome that best promotes the intent of the final Surf Coast SPP for the benefit of present and future generations.

As well, under section 46AZL of the Act, a RPE when developing or implementing policies or programs or making decisions in relation to the declared area should: consult with all levels of government and government agencies relevant to the decision

use best practice measures to protect and conserve the unique features and special characteristics of the declared area

undertake continuous improvement to enhance the conservation of the environment in the declared area.

Doing so will: better coordinate decision-making for land use and development across the declared area

to achieve integrated management, environmental, infrastructure and development outcomes

ensure any proposals for land use changes and development are consistent with the protection of the declared area’s significant landscapes and with state- and nationally significant environmental, economic and Aboriginal cultural heritage and historic heritage values

guide the sustainable use of natural resources in keeping with the declared area’s significant landscapes, environmental and heritage values

reinforce the importance of building community resilience to environmental risks and climate change including the potential effects of natural hazards (such as bushfires and flooding)

provide greater certainty for current and future residents and businesses.

Monitoring and review

To provide long-term certainty for the declared area, the final Surf Coast SPP must be reviewed at least every 10 years. The review will be conducted by the Minister for Planning in


collaboration with the Surf Coast Shire Council, the Greater Geelong City Council and the Wadawurrung and in consultation with the Victorian community.

The final Surf Coast SPP may be reviewed at an earlier date if strategic planning work (such as landscape assessments, biodiversity assessments or reviews of township frameworks or structure plans) identify the need for an earlier review. Following each review, relevant planning schemes may be amended if necessary.

Have your say

DELWP invites written submissions from the general public, community groups, responsible public entities, industry representatives and other interested parties about this Draft Surf Coast Statement of Planning Policy and the Draft Surf Coast Statement of Planning Policy: Proposed Landscape Planning Controls.

These documents can be found at www.engage.vic.gov.au/distinctive-areas-and-landscapes-program/surf-coast.

The submission process is independently managed by Planning Panels Victoria.

A submission must state the name and address of the person making it, and it will be treated as a public document. Proforma submissions and petitions will only be counted as one submission, and any contact will be made through the first-named person.

Submissions must be lodged through the Engage Victoria platform at www.engage.vic.gov.au/dalsac before 4.00 pm Friday 22 January 2021.

Where a submitter is unable to lodge a submission online, they must contact Planning Panels Victoria through the DELWP Customer Service Centre on 136 186 (select option 6) and request a hardcopy submission coversheet. Each hardcopy submission must be accompanied by a coversheet issued by Planning Panels Victoria.

Submissions will be treated as public documents and will be published on the Victorian Government’s engagement website. Do not include any personal information in the body of your submission (such as your email address or phone number). Your submission and your name will be made public.

Advisory Committee

The Minister for Planning has appointed the Distinctive Area and Landscapes Standing Advisory Committee, which will consider all submissions, hold public hearings (at which submitters can present) and provide an independent report to the Minister for Planning.

The Advisory Committee will hold a Directions Hearing on Thursday 11 February 2021. Its Public Hearings will commence from Monday 15 March 2021 and are likely to go for several weeks. If you would like to appear before the Advisory Committee, you must make a written submission and complete the relevant sections on the online form. Hearings are likely to be held in both Torquay and Melbourne if convened in person, or by videoconference if COVID-19 restrictions remain.

Upon receipt of the Advisory Committee’s report, the Minister for Planning will consider the findings and a final draft Surf Coast SPP will be prepared and provided to responsible public entities and Ministers responsible for those entities for endorsement. The Minister for Planning will then seek the Governor in Council’s approval for the final draft Surf Coast SPP. Once


http://www.engage.vic.gov.au/dalsac



approved, the Surf Coast SPP will form part of the standard provisions of the Victoria Planning Provisions, with immediate effect. Planning scheme amendments will also be progressed to implement it into the Surf Coast and Greater Geelong planning schemes, to provide a consistent approach to land use planning and development across the declared area.


Wadawurrung statement of significance

The following statement sets out the significance of Wadawurrung Country and the area to the Traditional Owners in traditional language.

Comugeen budj-o thalikiyu kin bil beng-ordi-ngadak. Ngarrwabil, boron, guli, bagurrk. Comugeen budj-o bengadak ngarr-uk dja, ngubiyt, weagoon gobata gupma wurring-wurring baap beng-ordi-nganak, djarrima murrup-nhuk bengadak.

Gobata Wadawurrung balug jumbuk didalbil murrup-nhuk bundjil monomeeth beek-o weagoon. Mutjak-ak noogie n’uder durralully.

Wa-ngarrak Wadawurrung balug bengadak mirriyu boron-dja gobata-k ying, ngarrimilli, wah-ak, karrung, kuy-a, nyanayit-yanunit, djilenawurr, baap willam beng-ordi-ngadak.

Nyurrinana-ngal beng-ordi-ngadak.

Willam Barwon Yaluk baap Koaka-dorla “bass strait” Wadawurrung Balug dja beng-ordi-ngadak, bullarto nerr-i-girr baap monomeeth worrowing warree, gelanyi bul-boluk.

Weagoon-o Modewarre-wa, Mode baap kiang-purt.

Weagoon-o Koaka-Dorla-wa Dorla.

Weeagoon-o Wurdiboluk, Gherang, Pawon Yaluk monomeeth-wa Yonbarra baap wirrapiyn, buniya, tark-a binyak-ngal.

Wa-weagoon nerr-i-gurr-o kit baap bullarto gurrin-gurrin-k wah-ak, karrung, yanikan-werrity. Corroborree bullarto wa-ik-ngitj balug-wa beng-ordi-ngadak.

Mirr wurru-ngarra dja bengadak.

Mirr-i-tonton dja Wadawurrung balug, gobata be-ak yerra-ak murrup yani-mirriyu ngarrwa-uk beng-ordi-ngadak.

The English translation of which is …

We deeply respect our People of the past. Elders, children, men, women. We deeply respect their knowledge of Country, water, life, their care of the Traditions and of each other, we stand with their spirit.

Great spirit Bunjil told us to take care of the great life within the land. To only take what you need without selfishness.

Wadawurrung shared their knowledge of singing, dance, trade, camps, fishing, hunting, paintings, and homes to us to protect for our future generations.

We all need to help.

Our Wadawurrung family group lived within Barwon River and Bass Strait, with a large land of forested areas and wonderful banks of the ocean, near many water bodies.

Life in the Modewarre gave Musk duck and Bream. Life in the Anglesea gave Mullet.


Wurdiboluk, Gherang, Barwon River all provide ideal life to birds and fish, eels. Reeds turned into our baskets.

Life in the forest gave resources like food and lots of tools to use for trade, building, journey.

If there was lots to trade, we would share with our families and celebrate

We would name our Country, by what we could see.

Our Country is remembered by Wadawurrung, our proud spirit walks to tomorrow to teach others the care of our earth.


Our vision

The vision for the declared area is set out below. It is for at least 50 years, and it identifies the values, priorities and preferences of the Victorian community in relation to the distinctive attributes of the declared area, including preferences for future land use, protection and development.

By 2070, our vision for the declared area is that the Wadawurrung, governments, public land managers, businesses, residents and visitors work together to ensure the declared area’s unique values and distinctive attributes — the things people love about the area — are protected and enhanced and are not degraded over time.

This is how people will describe the area in 50 years.

Aboriginal cultural heritage: Wadawurrung rights to self-determination are respected so that their aspirations for land, water and culture are realised through the transfer of relevant decision-making powers. Wadawurrung knowledge and practices inform planning, land and waters management decisions and help to protect environment and biodiversity values. Aboriginal cultural heritage is highly valued and the area is respected as a place of significance to the Wadawurrung.

Environment and biodiversity: Native vegetation is restored and regenerated to contribute to the area’s unique ecosystems and biodiversity, providing habitat for endangered and threatened species and ensuring the area’s distinctive places (such as Point Addis Marine National Park, Karaaf Wetlands, Breamlea Flora and Fauna Reserve and other coastal reserves) flourish. The declared area’s natural beauty and abundant wildlife are celebrated.

Environmental risks and resilience: The declared area is resilient to the impacts of climate change. The declared area’s greenhouse gas emissions are minimised as best practice approaches to environmentally sustainable design and development and investment in walking, cycling and public transport infrastructure are prioritised.

Historic heritage: The area’s rich surfing history, culture and international attractions are thriving and create a strong sense of place for the declared area. Historic heritage sites (such as Bells Beach and the nationally heritage-listed Great Ocean Road) are respected and celebrated.

Landscape significance: The landscapes of the declared area are protected and renowned for their scenic beauty, contribution to the area’s ecosystems and link to Wadawurrung cultural heritage. Dramatic coastal settings, superb views, woodlands, wetlands and the rural vistas between settlements are highly valued.

Natural resources and productive land of significance: The area’s distinctive cultural heritage, environment, historic heritage and landscapes support a flourishing, prosperous economy which is based on sustainable and responsible tourism, agriculture and natural resources, manufacturing and other key industries.

Strategic infrastructure and built form of significance: Torquay–Jan Juc is a vibrant and cohesive regional service centre that supports the needs of residents and the tourism economy. Developments are sympathetic to the coastal and hinterland landscape setting, and Torquay–Jan Juc is well-connected to the surrounding area.


Declared area framework plan

The proposed declared area framework plan is made up of Map 3 and Maps 10-15, which are the proposed settlement maps for Torquay–Jan Juc (two options), Bellbrae, Breamlea, Connewarre and Mount Duneed.

The declared area framework plan maps are to be read in conjunction with the policy domains, including the objectives and strategies.

These maps integrate environmental, social, cultural and economic factors for the benefit of the community, encourage sustainable development and identify areas for protection and conservation of the distinctive attributes and unique values of the declared area.

The maps show the proposed location of protected settlement boundaries and the areas for minimal, incremental and substantial change. For Torquay–Jan Juc, two options are shown for the area referred to as Spring Creek, reflecting the strongly divided community views that have been put through previous public engagement. For further information, refer to the ‘Settlements’ policy domain in this document and to the Draft Surf Coast Statement of Planning Policy: Settlement Background Paper.

What is a declared area framework plan?

Section 46AV(2) of the Act requires a declared area framework plan to provide a framework for decision-making in relation to the future use and development of land within the declared area. The plan must integrate environmental, social, cultural and economic factors for the benefit of the community, encourage sustainable development and identify areas for protection and conservation of the distinctive attributes of the declared area.


Map 3: Proposed Surf Coast declared area framework plan


Policy domains

The policy domains align with the objects for distinctive areas and landscapes in the Act, and they recognise that the unique values and distinctive attributes of the declared area result from the complex interaction of the area’s landscape character, biodiversity and environment, settlement patterns, infrastructure, natural resources and Aboriginal cultural heritage and historic heritage. They set out the long-term needs for the integration of decision-making and planning for the declared area.

The policy domains are:

Environmental risks and resilience Landscape

Environment and biodiversity Aboriginal cultural heritage

Historic heritage Tourism, agriculture and natural resources

Strategic infrastructure Settlements.


Environmental risks and resilience

Climate change is one of the most pressing issues facing Victoria. It already is, and will continue to, directly affect the declared area’s landscape significance, environment and biodiversity, Aboriginal cultural values and historic heritage values and liveability. New and innovative development and land management practices must be developed to ensure the declared area is resilient to the impacts of climate change. This includes supporting best practice approaches to achieving environmentally sustainable development.

In coming years and based on current research, the declared area is forecast to experience: increasing minimum and maximum temperatures

very variable rainfall, which over the long term will continue to decline in winter and spring (with medium-to-high confidence) and autumn (with low-to-medium confidence) but with some chance of little change

extreme rainfall events becoming more intense

frequent extreme weather events fire seasons that are longer and which start earlier in the year

sea levels continuing to rise.

The changes are occurring now and will continue to affect the viability of some land uses (such as agriculture and tourism), the resilience of natural landscapes and waterways, Aboriginal cultural and historic heritage and the local and regional economies. There is also a risk that marine habitats will be lost and there will be changes to the reproduction, number and distribution of species.

Globally, many national, regional and local governments have formally declared a climate emergency. Effective, sustained measures to mitigate and adapt to climate change impacts need all levels of government, the private sector, non-governmental agencies and communities to work together. At the local level, land management approaches including the use of Traditional Owners’ burning methods will help to mitigate some of the impacts of climate change.

Map 4 shows environmental risks in the declared area.

Sea level rise, coastal erosion and flooding

Rising sea levels pose challenges for coastal communities, their infrastructure and the environment. Bells Beach and Point Impossible will be particularly affected. Point Addis Marine National Park and Point Danger Marine Sanctuary, both of which are partially within the declared area, are at risk from increasing ocean acidity and sea-surface temperatures, and the rates of increase of both will continue to climb due to climate change.

Coastal erosion alters the patterns and rates of longshore drift, deposition and erosion, to which coastal modifications (such as dredging, stormwater disposal, coastal protection structures, beach renourishment and harbours) also contribute. The changing patterns of erosion of coastlines will affect flora and fauna (such as the threatened beach-nesting shorebird, the Hooded plover). Public infrastructure, recreational facilities and adjacent residential or commercial areas (particularly around Torquay–Jan Juc and Breamlea) will also be threatened.


Rising sea levels and coastal erosion threaten Aboriginal cultural heritage and historic heritage sites, which are concentrated along the coast.

As the rate of coastal erosion continues to increase and sea levels rise, action (such as replenishing beaches and relocating physical infrastructure away from coastal hazards) will be needed to support the resilience of coastal settlements.

Low-lying urban and non-urban areas around waterways will be at particular risk from flooding. More areas near water bodies and coastal reserves will be unavailable for existing uses at times during the year, and the ecology of these areas will change. In particular, the area around Breamlea will be at high risk from flooding by 2070 with significant impacts including on Aboriginal cultural heritage values.

Human impacts

Over time, the demand for access to the declared area’s beaches and natural assets will increase as the number of residents and visitors continues to grow. Management of this demand at peak periods must be carefully addressed.

Other human impacts that must be mitigated are littering, trampling of vegetation due to unmanaged access, illegal clearing of native vegetation and damage of culturally significant sites. More intense rainfall events are also likely to result in greater quantities of pollutants being washed from urban areas into waterways.

Bushfires

Much of the declared area is at risk from bushfire, including its settlements and rural hinterland. As well as the risk to human life and property, the increased likelihood of extreme bushfire events could further jeopardise the survival of threatened species in the declared area, environment and biodiversity values and Aboriginal cultural heritage sites.

Bushfires can also impact and shape the declared area’s tourism industry and related economic activity. The key tourist destinations — Otway National Park, Bells Beach and the nationally heritage-listed Great Ocean Road — are threatened as are agricultural businesses, which may lose productive land, stock and infrastructure. Bushfire planning policy, emergency management planning and fire mitigation activities (such as cultural burning) can help minimise these impacts.

Current bushfire planning policy gives priority to the protection of human life over all other policy considerations. This means reducing the vulnerability of communities to bushfire by considering bushfire risk should be a key factor in decision-making at all stages of the planning process.

In the declared area, bushfire risk must be considered when determining the location of new development, the expansion of existing settlements, the rebuilding of fire-damaged settlements, changes in land use, and efforts to protect and encourage more native vegetation. Future land use and development should not increase bushfire risk in the declared area.

This approach will help minimise risk and strengthen the declared area’s resilience to bushfires, so that human life, communities, strategic infrastructure, the economy and the environment can thrive.


‘Appendix 3: Managing bushfire risk’ of the Draft Surf Coast Statement of Planning Policy: Settlement Background Paper explains how bushfire risk has been considered in the development of the draft Surf Coast SPP.

Water security

The compounding impacts of climate change, urban development, a growing population and visitation numbers are placing increasing demand on already declining water resources in the region. This has implications for residential consumption, the productivity of agricultural land and biodiversity levels. To address water security, Barwon Water has strategies to manage changing demands for water.

The Black Rock Water Reclamation Plant at Breamlea is the largest water reclamation plant Barwon Water operates. While located outside of the declared area, the plant produces recycled water suitable for residential and agricultural uses within the declared area. The plant provides an opportunity to strengthen water security by increasing the volume of available recycled water, which aligns with Barwon Water’s goal of achieving a zero-waste target and complete resource recovery.

Reducing water consumption and replacing the use of drinking water with recycled water when suitable, will help to achieve optimal use of precious water resources, support the resilience of communities, support agricultural land use and help restore biodiversity levels. It will also help with bushfire management by providing a more secure water supply.

Salinity

Increased stormwater runoff from urban development and land-clearing has contributed to increasing salinity levels, particularly along Thompson Creek and around the Karaaf Wetlands. These ecosystems are valued for their natural beauty and ecological value, and they are fragile. Without intervention, increasing salt levels in these areas will damage ecosystems and degrade their value. Increasing native vegetation coverage and minimising stormwater runoff will help support the environment and biodiversity values in these areas and support agricultural production.

Objective and strategies

Objective 1

The following objective is binding on RPEs.

To support the resilience of the declared area’s distinctive attributes by taking sustained measures to mitigate greenhouse gas emissions and adapt to the impacts of climate change and natural hazards.

Strategies

Responsible public entities must consider, where relevant, the following strategies to achieve the objective when performing a function or duty or exercising a power in relation to the declared area.

1.1 Through bushfire risk-based planning, prioritise the protection of human life over all other considerations.


1.2 Avoid new development or sensitive land uses in areas at high risk of bushfire, coastal and riverine flooding or coastal erosion.

1.3 Utilise Wadawurrung biocultural knowledge and practices to better manage bushfire risk.

1.4 Ensure that coastal infrastructure is designed to have minimal impact on its existing environmental features including vegetation, natural landforms and waterways.

1.5 Implement water-sensitive design practices for new development to reduce the negative impacts of urban and agricultural stormwater runoff on waterways, wetlands, beaches and the marine environment.

1.6 Improve the energy, water and waste performance of development and infrastructure by implementing environmentally sustainable development practices including the use of renewable energy technology.

1.7 Consider and plan for the cumulative impact of changing land uses and climate on water availability in the region, and support the use of recycled water.


Map 4: Environmental risks


Landscape

The declared area is renowned for its significant landscapes. There are superb, scenic coastal settings: rugged coastlines and impressive coastal landforms — cliffs, headlands, estuaries, wetlands, dunes and beaches. The area is also an iconic part of Australian surf culture. Away from the coast, woodlands, saltmarshes, volcanic plains and the sense of rural openness between settlements further contribute to the landscape setting.

As well as being visually significant, these areas support the biodiversity of the region, provide an important link to Wadawurrung cultural heritage and have significant social value to the residents and visitors who enjoy them. The landscape has evolved over millennia and continues to provide an important link to Aboriginal cultural heritage and historic heritage.

Map 5 shows the declared area’s significant landscapes:

the nationally significant Bells Beach to Point Addis landscape the state-significant Torquay Coast, Coastal Saltmarsh and Woodland landscape

the regionally significant Mount Duneed Plain and Surrounds landscape.

The entire declared area has landscape significance (consistent with its declaration under the Act) which is categorised as nationally significant (which is the highest level of significance), state significance and regional significance. The required level of protection for a landscape accords with its level of significance: for example, nationally significant landscapes require the highest level of protection. The categorisation of a landscape is based on its visual values, Aboriginal cultural heritage, historic heritage, environmental, scientific, social and any other relevant values.

‘Landscape significance’ is different from ‘landscape character’: landscape significance focuses on the visual values of a landscape (such as scenic beauty,

heritage value and environmental qualities) and less-tangible values (such as memories or associations).

landscape character focuses on physical features (such as topography, geology, waterbodies, vegetation and urban development) and is a secondary consideration when determining landscape significance.

Map 6 shows the declared area’s six landscape character areas:

Mount Duneed Volcanic Plain Torquay Coast and Hinterland

Dry Coastal Woodland and Heath Low Coastal Heath

Coastal Saltmarshes Point Impossible Coastal Dunes.

Continued pressure from urban development and encroachment, increasing visitation, climate change impacts and coastal erosion put the declared area’s significant landscapes at high risk of incremental, cumulative and irreversible damage. Undertaking long-term planning of these areas now can help to address these issues and safeguard these landscapes for current and future generations. The declared area will continue to be renowned for its scenic coastal and hinterland landscapes and the environment and biodiversity values, Aboriginal cultural heritage and historic heritage values they support for many decades to come.


Landscape significance

Nationally significant landscape: Bells Beach to Point Addis

Bells Beach to Point Addis is a wild and dramatic coastal landscape of visually stunning cliffs, headlands and beaches. The exposed and windswept landscape supports a dense cover of coastal headland scrub and dry forest, including significant Grass Tree, Coastal Moonah and Red Ironbark communities. The landscape edge is punctuated by numerous inlets, which form steep ravines and gullies in the coastal hinterland.

The internationally famous Bells Beach is the home of the longest running surfing competition in the world (the Rip Curl Pro), which first took place at Easter, 1962. At Bells, waves refract around the headland, and elevate and curl consistently over the rugged shore platform of limestone, resulting in its reputation as one of the best surfing spots in the nation.

The constant abrasive energy of the waves on this stretch of coastline has eroded, shifted and created the precipices and rock stacks that characterise the landscape. The cliffs that front the beaches also vary in their geology, and therefore their colours and response to weathering. The remarkable limestone cliffs of Bells; the Jarosite-rich burnt-ochre rock faces of Addiscot Beach; and the calcium-rich, majestic Point Addis Limestone headland, all combine with the signature grey-green of the coastal heathland scrub, and the blues of the wild ocean to create an unparalleled scene on this part of the Victorian coast.

The views from the Point Addis Boardwalk, Southside Lookout and Bells Beach lookout are of state as well as national significance.

State-significant landscape: Torquay Coast, Coastal Saltmarsh and Woodland

The Torquay Coast, Coastal Saltmarshes and Woodland is a well-known and highly valued coastal and hinterland landscape from which the Great Ocean Road begins its iconic journey, and travels through, to Anglesea and beyond. The landscape is one of stunning contrasts, particularly at the coastal edge, which includes the high dunes of Point Impossible; the low flat beaches of Torquay; the limestone crags of Rocky Point; and the contrasting colours of the Jan Juc cliffs, with a unique landscape feature in the form of the Jan Juc Marl (Bird Rock), a small sea-stack that sits just off the coast.

This significant coastal area is incised by numerous creeks and their tributaries, which also creates a hinterland of contrasting landscape features. The Thompson Creek estuary flows through and behind the dunes at Breamlea, forming a unique, lineal coastal wetland; and further south at Torquay, Spring Creek meanders through the township and beyond, between picturesque rolling hills and remnant eucalypts.

It is south of Spring Creek, to the west of Torquay, that the landscape becomes increasingly hilly, steep and elevated as it climbs towards the Otway Ranges. This change in landform also coincides with an increase in indigenous vegetation cover, including dense patches of dry heathy woodland, which characterises the Anglesea Heath, one of the richest and most diverse vegetation communities in Victoria.

The views from Bird Rock Lookout and Jan Juc Lookout at Point Danger are of regional as well as state significance.

Regionally significant landscape: Mount Duneed Plain and Surrounds


The Mount Duneed Plain and Surrounds is a flat to gently undulating landscape formed by volcanic flows of basalt. It includes the low volcanic rise of Mount Duneed itself, with its unique geology and communities of grasslands. Another landscape feature is the Thompson Creek, which winds its way from the coast at Breamlea, its upper and middle reaches cutting a pathway through the patchwork of paddocks that characterise this agricultural landscape.

Remnant eucalypts are a further feature of this landscape, located in riparian reserves, adjacent to road corridors or scattered throughout the paddocks. They contrast with the mostly exotic, lineal shelterbelt planting. This is an open and expansive landscape of long straight roads, under big skies. It plays a very important role as a green break between the built up areas of Geelong and Torquay, and the settlement areas of the Bellarine Peninsula.

Landscape character areas

The Mount Duneed Volcanic Plain area forms a green break between Geelong and Torquay–Jan Juc, and it contributes to a sense of rural openness. The landscape is flat to gently undulating, and its characteristics include the volcanic rise of Mount Duneed, Thompson Creek and the patchwork of paddocks with stands of remnant eucalypts.

The Torquay Coast and Hinterland area includes Torquay–Jan Juc, Bellbrae, the iconic Bells Beach and the start of the Great Ocean Road. The coastal setting of Torquay–Jan Juc is highly valued, as is the hinterland landscape surrounding Bellbrae, which provides it with a sense of enclosure. Other landscape characteristics are the gently-undulating-to-hilly topography; coastal cliffs, creeks and gullies; and vegetation including stands of eucalypts, heath and scrub.

The Dry Coastal Woodland and Heath area adjoins the Great Otway National Park, and it includes some of the highest points in the declared area as it climbs towards the Otway Ranges. There is much heavily forested terrain. Other landscape characteristics are the hilly topography carved with creeks and gullies, partly cleared and partly vegetated areas with dry coastal woodland, agricultural land with some farming structures, the Bells Beach hinterland settlement area and the Great Ocean Road.

The Low Coastal Heath area extends from Hurst Road to Southside Beach and includes Point Addis and Bells Beach Recreation Reserve. The area is characterised by sandy beaches, high cliffs with coastal inlets and dense, scrubby coastal vegetation. Other landscape characteristics are the hilly, exposed headlands and some remote, inaccessible terrain.

The Coastal Saltmarshes area centres on the Thompson Creek estuary and wetlands. It includes Breamlea Flora and Fauna Reserve, and it encompasses The Sands residential area. The area is characterised by flat, marshy terrain contained by high dunes at the southern edge and the Thompson Creek estuary. There are a few roads and very few buildings, creating a sense of isolation.

The Point Impossible Coastal Dunes area is characterised by a long, narrow, coastal dune system, with coastal dune scrub and grasslands extending from the Deep Creek Inlet to Surf Club Lane. The rocky headland of Point Impossible and stretches of low, sandy beaches are also key characteristics of the area. The small coastal hamlet of Breamlea is located at the northern end of this area.


Objective 2



To conserve and enhance the declared area’s significant landscapes.

Strategies


2.1 Provide protection that accords with the level of landscape significance, with the greatest level of protection to be provided for the nationally significant Bells Beach to Point Addis landscape.

2.2 Protect the coastal and hinterland setting of settlements by containing urban growth within settlement boundaries.

2.3 Reserve green breaks between settlements for conservation, agriculture, nature-based tourism and natural resource purposes that prioritise the protection and enhancement of the significant landscape and landscape character setting.

2.4 Prevent any further residential subdivision and infill development at Addiscott Road Estate.

2.5 Ensure any developments allowed to be located in green breaks between settlements responds to the surrounding landscape character and maintains the visual dominance of the natural landscape by:

being sited so that buildings are responsive to the landscape and use established vegetation or new vegetation buffers to screen development when viewed from the public realm

providing substantial setbacks from road corridors and publicly accessible land

using building forms, design detailing and materials and colours that immerse buildings within the landscape, so they are not visually dominant.

2.6 Ensure development does not protrude above hilltops and ridge lines, so the natural contours and vegetation remain visible.

2.7 Manage development and infrastructure to retain the dominance of views to the rural hinterland and/or coast from main road corridors within the landscape.

2.8 Conserve and increase native vegetation, particularly along waterway corridors and within vegetation reserves, by revegetating land in keeping with the ecological vegetation classes to strengthen landscape character.


Map 5: Landscape significance areas


Map 6: Landscape character areas


Environment and biodiversity

A healthy environment and high levels of biodiversity are important values for the declared area. They provide valuable social, economic and cultural benefits, and they are integral to Wadawurrung cultural heritage.

The declared area’s marine parks and rugged coastal cliffs, wide-open beaches and densely vegetated wetlands make its biodiversity and environment variable, dynamic and unique. Inland, there are remnant, wooded areas that connect the declared area to the Great Otway National Park. Coastal and inland areas are connected by meandering creeks, which form green spines reaching deep into the hinterland. Map 7 shows the declared area’s biodiversity values.

Ingoldsby Reef (within the Point Addis Marine National Park) and the Point Danger Marine Sanctuary provide habitat for at least 20 marine species that have been observed in the area. These species are listed as threatened under the Victorian Flora and Fauna Guarantee Act 1988 and the Commonwealth Environment, Protection and Biodiversity Conservation Act 1999. The many coastal reserves including the Karaaf Wetlands, Breamlea Flora and Fauna Reserve and Point Impossible have high biodiversity value and are home to many unique species. The area is also recognised for its rich archaeological deposits: several animal fossils have been discovered in the cliffs around Bells Beach.

Areas of remnant native vegetation west of Jan Juc and around Bellbrae add to the area’s beauty, and they provide biolinks to other areas of vegetation and habitat for native animals. Biolinks are important thoroughfares for native animals, and they increase the area’s biodiversity. The Bellarine yellow gum, which is unique to the area around Torquay–Jan Juc and the Bellarine Peninsula, is a treasured species and must be protected.

Urban expansion, native vegetation removal and climate change threaten the declared area’s environment, ecology and biodiversity. Wetlands and waterways are particularly vulnerable to rising sea levels, stormwater runoff, changes to tidal flows, increased nutrient loads, increased salinity and other threats. Careful management of development is needed to limit stormwater runoff, particularly into the Karaaf Wetlands, to restore water quality and flow regimes to pre-development levels. Also, as the climate becomes hotter and drier, extreme bushfires will become more likely, with a heightened risk that patches of remnant native vegetation will be destroyed.

In time and with careful management and improved planning protections, the declared area’s environment and biodiversity values should improve. Improving waterway corridors by increasing native vegetation coverage will create new biolinks and improve the ecological values of the area.


Objective 3


To conserve and improve the environment and biodiversity values of the declared area.

Strategies



3.1 Plan and implement environmentally and culturally responsible best practices to conserve and improve areas of remnant native vegetation.

3.2 Utilise Wadawurrung biocultural knowledge and practices in the management of environment and biodiversity values.

3.3 Minimise the negative impacts of weeds and pest animals on environmental and biodiversity values by undertaking best practice land management.

3.4 Encourage ecological restoration works to connect areas of high environmental and biodiversity value, including increasing connections between sites by facilitating biolinks.

3.5 Reinforce the role of waterway corridors (within and between settlements) and coastlines as biolinks for native flora and fauna.

3.6 Ensure the collection, disposal and storage of waste do not degrade areas of high environmental, ecological and biodiversity value.


Map 7: Biodiversity values


Aboriginal cultural heritage

The declared area is Country of the Wadawurrung, who have inhabited the area for millennia. It is rich in their spiritual and cultural heritage, and all aspects of the landscape — land, sea, sky, water and tangible and intangible cultural heritage sites — are connected and significant.

Wadawurrung were appointed as a Registered Aboriginal Party (RAP) in 2009 as a Traditional Owner group legally recognised under the Aboriginal Heritage Act 2006 with responsibilities for managing and protecting Aboriginal cultural heritage on Country in the declared area.

Although colonisation has had a devastating impact on Wadawurrung culture, it continues to be alive and resilient: the Wadawurrung continue to engage in traditional cultural practices today. The coastal areas from Point Impossible to Point Addis overflow with Wadawurrung history and cultural heritage. Inland landscapes and waterways including Spring Creek, Thompson Creek, Deep Creek, Jan Juc Creek and other, unnamed waterways provided access to food and shelter as well as connections to the rest of Wadawurrung Country.

There are numerous sites along the declared area’s coastline with evidence of long-term habitation in the form of living spaces and large shell middens. Living spaces along the coast and inland had housing and easy access to fresh water, food and other resources. In these living spaces, the Wadawurrung engaged in aquaculture and agriculture, dried and stored food and enjoyed cultural activities. Inland living spaces were usually on hilltops and at major vantage points. Resources were traded within and between the coast and the inland of Wadawurrung Country and with other Aboriginal communities: complex, far-reaching trade networks spread across Wadawurrung Country and beyond.

Living spaces and large shell middens provide evidence of civilisation back to the distant past, and there are places where ochre was — and still is — mined and used for ceremonies. Archaeological sites along the coast are fragile and susceptible to climate change impacts including more extreme weather events, rising sea levels and coastal erosion.

Wadawurrung Country is strongly connected to water: to the Country’s river systems, estuaries, wetlands, lakes and creeks. The use of living spaces depended on healthy waterways, and fresh water was always readily available. Keeping waterways healthy into the future is important for ensuring age-old connections and songlines remain strong.

Wadawurrung Country, with its rich history and contemporary uses, extends beyond the declared area’s boundary, and cultural walking tracks in the declared area connect communities to other parts of Wadawurrung Country. Development has the potential to threaten tangible and intangible connections to Country, impinging on Wadawurrung waterways and walking tracks and damaging their associated songlines and knowledge links.

What is a Registered Aboriginal Party?

A Registered Aboriginal Party (RAP) is a Traditional Owner group legally recognised under the Aboriginal Heritage Act 2006.

A RAP is the primary source of advice and knowledge on matters relating to Aboriginal places and Aboriginal objects in its area. It has many functions including: consultation on all cultural matters on Country

evaluating cultural heritage management plans


assessing cultural heritage permit applications

undertaking cultural burns entering into Aboriginal cultural heritage land management agreements with public land

managers ensuring that the health and wellbeing of Traditional Owners are prioritised.

The Wadawurrung are the RAP for the declared area. They are currently preparing a Healthy Country Plan, which land managers should use to support decision-making.

For further information visit https://www.wadawurrung.org.au/


Objective 4


To conserve, strengthen and promote the declared area’s Aboriginal cultural heritage values and partner with the Wadawurrung to care for Country.

Strategies


4.1 With the Wadawurrung, identify, manage, conserve and enhance Aboriginal cultural heritage — sites, landscapes, waterways (including unnamed waterways), natural resources and significant views.

4.2 With the Wadawurrung, build awareness and understanding of tangible and intangible Aboriginal cultural heritage knowledge including language, oral traditions and various pre-colonial cultural practices, and draw on it when planning and managing land use and development.

4.3 With the Wadawurrung, encourage the use of Wadawurrung language and place names throughout the declared area.


https://www.wadawurrung.org.au/

Historic heritage

The arrival of colonists to the declared area began a process of dispossession of the Wadawurrung’s land and livelihoods. The conflict between colonists and Traditional Owners resulted in forced removals, massacres and systemic suppression of Wadawurrung culture through forced assimilation. To develop the land for their own purposes, colonists destroyed Wadawurrung crops and living spaces both intentionally and unintentionally by introducing diseases and invasive species.

In 1841–42, the Spring Creek Station was established at Torquay. In the 1850s, farm allotments were subdivided at Mount Duneed, Bellbrae, Jan Juc and Torquay. Some of the natural features were given the names of the European squatters (such as Zeally Bay, named after Robert Zealley, who held the pre-emptive right to South Beach Station from 1856). Historic homesteads (such as Addiscot at Bells Beach) are a legacy of this era.

The appeal of the coastline, with its rugged natural beauty and many recreational opportunities, led to the narrow strip of foreshore between Point Roadknight and Point Lonsdale being set aside as the Ocean Park Reserve in 1875. Later, the coastline became a world-renowned tourist destination, known for its surf culture and as the gateway to the nationally heritage-listed Great Ocean Road. The landscape character and historic heritage features have combined to give the declared area its unique identity.

The waters off the declared area’s coastline became important for trade. There are many heritage-listed shipwrecks along the coast including Victoria Tower (wrecked in 1869) and Lucy Lee (wrecked in 1868). Further off the coast, a concentration of wrecks highlights the area’s importance as a trading thoroughfare.

From the 1880s, the rugged natural beauty of the declared area’s coastline and its many opportunities for enjoyment drew holidaymakers who helped grow the settlements of Torquay and Jan Juc into thriving towns. The settlements grew quickly and established their own landscapes: Taylor Park in 1882, the caravan park in 1889 and the ‘cosy corner’ beach area of the foreshore — popular for camping, sporting activities and beach recreation — in the late 1880s. Since the 1950s, the Point Danger War Memorial in the foreshore reserve has become a popular place for Anzac Day commemorations.

The Great Ocean Road attracts tourists from around the world, and it is listed on the Victorian Heritage Register and the National Heritage List, which provides protection under the Commonwealth Environment Protection and Biodiversity Conservation Act 1999. Returned servicemen built the road between 1918 and 1932, and it offers sweeping views of the coastline and the beautiful natural landscapes. The road begins in Torquay, connects several tourist destinations and provides access to coastal settlements along its route.

In the 1920s, people started driving to the area for swimming, surfing and enjoying the beach. The Torquay Surf Life Saving Club, established in 1945, is one of the oldest clubs in Victoria, and it is an important local institution. Two iconic Australian surfing brands — Rip Curl and Quiksilver — started in Torquay. Nearby Bells Beach, a state-listed heritage site, held its first surfing competition in 1961: it has since become a major international event. Surfing locations like Winkipop are popular spots for locals and visitors, offering some of the best surfing in the country. The site is also valued for its landscape beauty and Aboriginal cultural heritage value.

Careful management of the threats of rising sea levels, coastal erosion and increased visitation will ensure the iconic Bells Beach and Great Ocean Road continue to contribute to the area’s historic heritage and are conserved and improved for all to enjoy.



Objective 5


To protect, strengthen and promote the declared area’s historic heritage values.

Strategies


5.1 Ensure that significant historic heritage places within the declared area are identified, conserved and managed by using best practice techniques, particularly to enable these places to adapt to climate change impacts.

5.2 Minimise the visual impacts of buildings and works on heritage places by ensuring the siting and design of development and infrastructure respects the unique historic heritage character of the declared area.

5.3 With the community, promote and celebrate the declared area’s rich historic heritage values.

5.4 With the Wadawurrung, ensure that Bells Beach and the nationally heritage-listed Great Ocean Road are accessible, well-maintained and sustainably managed.


Tourism, agriculture and natural resources

Tourism

The declared area is a nature-based destination that draws visitors from around Victoria, Australia and the world. Its many tourism assets include Bells Beach, the start of the nationally heritage-listed Great Ocean Road and the coastal area from Point Impossible to Point Addis. Bells Beach and the Great Ocean Road together draw millions of visitors a year, and visitor numbers are projected to continue to increase. As a result, there is a need to plan for the sustainable provision of additional visitor accommodation and infrastructure. There are also opportunities to develop a cultural tourism industry managed by the Wadawurrung that celebrates Wadawurrung cultural heritage.

Torquay–Jan Juc is well-placed to provide for additional tourism accommodation and related services, given that it is the eastern gateway to the Great Ocean Road and that there are limited development opportunities along the Great Ocean Road itself. Map 8 shows the preferred locations for tourism development within Torquay–Jan Juc. These locations are in or close to existing activity centres and along identified tourism routes.

There are several locations within Torquay–Jan Juc, identified in the Surf Coast Planning Scheme Clause 21.08-4 and Schedule 5 to Clause 37.01, with capacity for tourism-related development and growth. The locations identified are:

Surf Coast Gateway Precinct, Surf Coast Highway, Torquay Surf City Precinct, Surf Coast Highway, Torquay

Town Centre Foreshore Precinct, The Esplanade, Torquay Corner Bristol Road and Surf Coast Highway, Torquay

Bell Street, Torquay.

Outside Torquay–Jan Juc, Bellbrae and the surrounding rural land present opportunities for the future growth of the agritourism industry, due to their proximity to the Great Ocean Road.

Climate change impacts, urban growth and increasing visitation need to be managed to ensure nature-based tourism in the declared area is protected and remains viable. The visitor economy should continue to prioritise the sustainable management of the area’s distinctive Aboriginal cultural heritage and historic heritage, environment, biodiversity and landscapes. To support this, the connection to and stewardship of Country by the Wadawurrung is integral.

There are opportunities to expand the visitor economy by increasing the number of days visitors stay in the region. Encouraging longer visits (at least overnight, not just day visits), developing facilities and infrastructure for visitors and reducing impacts on local amenity (such as traffic, parking and access to services) are key challenges to address to support the visitor economy.

Surf industry and entrepreneurial culture

The Surf Coast Shire and the declared area have a strong manufacturing history, connected to the area’s surfing culture. World-renowned surfing brands Rip Curl and Quiksilver have their headquarters in Torquay, as do other surfing brands, and the surf industry is one of the shire’s biggest-employing industries. Continuing to support the strong cultural, historical and economic links of surfing and the surf industry with the declared area will contribute positively to the local economy and the area’s identity.


As the surf industry continues to evolve, a range of entrepreneurial businesses, often with strong environmental or social values, have emerged. These include creative industries and home-based businesses including craft breweries, wellness and health food businesses, fashion products, visual arts and small-scale manufacturing. Supporting and developing the growth of these emerging industries will help create a prosperous, sustainable and diverse local and regional economy.

Agriculture

Agriculture — intensive farming, commercial farming (broadacre crop and hay production), lifestyle farming and agroforestry — are important for the regional economy. Niche agricultural industries have been established in the Surf Coast Shire in pork production, beef, wool, poultry and stock feed crops. For the declared area in particular, there is a focus on farm-gate and agri-food or agritourism.

There are many small wineries and other food and beverage producers in the hinterland of Torquay–Jan Juc that are important for agritourism. They include farms that offer dining experiences, wineries with cellar-door selling, berry-picking experiences and farm-gate sales. Building on the successes of these enterprises will help grow the local economy and encourage more people to visit the rural hinterland.

The loss of arable farming land and important rural landscapes to settlement expansion could have severe consequences for the future economic potential and job-creation contribution of the hinterland. In the declared area, these areas must be protected to ensure non-urban (for such as farming) uses can continue in the green breaks between settlements.

The declared areas’ agricultural industries will need to adapt to a changing climate: to less rainfall, warmer average temperatures and a greater risk of bushfires. A key way to do this and to improve the sustainable use of resources is to facilitate greater opportunities for recycled water to be used, particularly for the agricultural land in the green break between Torquay–Jan Juc and Geelong. This would strengthen the area’s water security.

Supporting agricultural land uses will also bring economic and employment benefits to the declared area and the broader region while working towards achieving a zero-waste target and complete water-resource recovery.

Extractive industries and construction

Extractive industries provide materials for use in construction, building, manufacturing and infrastructure works, including the construction of wind farms. The construction industry accounts for a large proportion of the workforce in the declared area and the region. Locating extractive industries close to where materials are needed helps to keep transportation and construction costs down, and it can have environmental benefits.

Extractive industries and the infrastructure required to support them will need to be carefully managed so that they take account of the declared area’s environment, landscape and Aboriginal cultural heritage values.

Quarries in the declared area produce rock, sand and gravel. There is also an Extractive Industry Interest Area (EIIA) located towards the northern boundary of the declared area, which Map 8 shows. EIIAs indicate that the land is likely to contain extractive resources and may be suitable for extractive industry, although quarries cannot be established as of right. The purpose of these areas, which is set out in Victoria Planning Provisions Clause 52.09, is to:


ensure that the use and development of land for extractive industry does not adversely affect the environment or amenity of the area during or after extraction

ensure that excavated areas can be appropriately rehabilitated

ensure that stone resources, which the community may require for future use, are protected from inappropriate use and development.

It is also important to recognise that extractive industries are a temporary land use within rural and peri-urban landscapes. They require appropriate buffers during their operating life and rehabilitation at the end of their life in a way suitable to the surrounding landscape character, thereby providing a net community benefit.

Objectives and strategies

Objective 6a


To support a sustainable and responsible visitor economy that protects and promotes the landscape significance, environment and biodiversity values, Aboriginal cultural values and historic heritage values of the area.

Strategies


6a.1 With the Wadawurrung, facilitate culturally responsive tourism and related economic development that encourages people to recognise, understand and celebrate Wadawurrung cultural heritage, rights and authority.

6a.2 Encourage ecologically sustainable, tourism-related uses and infrastructure within the preferred areas for tourism in Torquay–Jan Juc and agritourism in the area surrounding Bellbrae.

6a.3 Ensure the sighting and design of development and infrastructure are sympathetic to the landscape significance, environment and biodiversity values, Aboriginal cultural heritage, and historic heritage values of the declared area.

6a.4 Support the development of tourism infrastructure that highlights Torquay–Jan Juc’s surfing identity and coastal character.

Objective 6b


To support a strong regional economy, including agriculture and natural resource industries, that is compatible with the landscape significance, environment and biodiversity values, Aboriginal cultural heritage, and historic heritage values of the declared area.

Strategies



6b.1 Encourage rural land outside settlements to be used for agricultural, nature-based tourism and natural resource and related purposes that prioritise the landscape significance, environment and biodiversity values, Aboriginal cultural heritage and historic heritage values of the declared area.

6b.2 Use best practice measures to ensure the use and development of land for extractive industries and the rehabilitation of excavated areas avoid and minimise impacts on the landscape significance, environment and biodiversity values, Aboriginal cultural heritage values and historic heritage values of the declared area.

6b.3 Encourage and support environmentally sustainable, innovative farming practices (such as water reuse and new technologies) to enable farming to adapt and respond to a changing climate and emerging markets.

6b.4 Restrict the supply of rural residential land to conserve and protect agricultural practices and other rural land uses.


Map 8: Tourism, agriculture and natural resources


Strategic infrastructure

Transport infrastructure

Integrated transport and land use planning is vital for securing a sustainable future for the declared area. Transport networks support community wellbeing and economic prosperity by providing access to jobs, markets, services and social opportunities.

Transport networks must support the area’s declaration as a distinctive area and landscape by protecting the landscape significance, environment and biodiversity values, Aboriginal cultural values and historic heritage values of the declared area and improving its resilience to climate change impacts. This includes mitigating transport-related greenhouse gas emissions.

Motor vehicles are the main mode of transport in the declared area, and buses provide a transport alternative for residents and tourists. To help achieve the Victorian Government’s target of net-zero greenhouse gas emissions by 2050, the declared area needs more sustainable transport infrastructure, particularly for public transport, walking and cycling.

The nationally heritage-listed Great Ocean Road is an internationally renowned tourist destination and a key piece of transport infrastructure that links Torquay–Jan Juc with coastal settlements further south. The impacts on the road of increasing visitor numbers and of climate change — severe weather events, coastal erosion and inundation — must be effectively managed. The government is protecting the Great Ocean Road by establishing the Great Ocean Road Coast and Parks Authority and by implementing the Great Ocean Road Action Plan.

The Surf Coast Highway and Anglesea Road are regionally significant transport infrastructure. They link the declared area to Geelong and further on to Melbourne via the Princes Freeway, providing access to many services and employment opportunities. To cope with growing numbers of visitors, these roads must be maintained and improved in a way that protects sweeping views across the landscape.

Map 9 shows the proposed Armstrong Creek to Torquay Transit Corridor that will link Torquay–Jan Juc with southern Geelong. The corridor provides a future opportunity for a transit hub to be located within Torquay–Jan Juc. This could enable a community activity node to be established through integrated transport and land use planning, linking to other activity centres within Torquay–Jan Juc.

Planning for the Armstrong Creek to Torquay Transit Corridor must ensure that:

infrastructure is planned and designed to integrate with existing settlements in a way that is sensitive to the landscape significance, environment and biodiversity values, Aboriginal cultural values and historic heritage values of the declared area, particularly to the green break between Geelong and Torquay–Jan Juc

the transit terminal is located within the protected settlement boundary for Torquay–Jan Juc and can readily connect with the transit corridor alignment and existing transport corridors

the transit terminal is located in an area accessible to the Torquay–Jan Juc community with good connections to existing cycling, walking and public transport routes, and thus supports and enhances the existing active transport network.

The planning process for the corridor and terminal location should also aim to ensure:


the transit terminal supports the co-location of community services within the protected settlement boundary for Torquay–Jan Juc

the transit terminal is in an area that can strengthen the local and regional transport network

the transit terminal location is supported by a residential catchment into the future, providing opportunities for housing diversity

the planning and design of the transit corridor and terminal location protects the landscape significance and coastal character of Torquay–Jan Juc. For example, development should not protrude above hilltops and ridge lines, so that the natural contours and vegetation remain visible; and development should seek to establish and improve connections between areas of high environmental and biodiversity value including areas along waterways.

Essential services and community infrastructure

Torquay–Jan Juc is an important regional service centre and iconic tourist destination, and it needs adequate essential services and community infrastructure to continue to be so. This includes water, electricity, renewable energy, telecommunications and waste management infrastructure as well as schools, sporting facilities, libraries, health services and town centres.

The Black Rock Water Reclamation Plant is located outside the declared area and provides some properties with recycled water. It will become increasingly important as increasing demand and declining surface water availability threaten the area’s water security.

The planned Torquay Community Hospital will provide public healthcare, for which people will no longer have to travel into Geelong. The Victorian Health and Human Services Building Authority is currently undertaking planning works for the hospital. A site had not been acquired at the time of publication but was expected to be by late 2020.


Objective 7a


To ensure the integrated provision of strategic infrastructure protects and enhances the declared area’s distinctive attributes and values, while meeting community needs.

Strategies


7a.1 Ensure the provision, maintenance and upgrading of infrastructure conserves and improves the landscape significance, environment and biodiversity values, Aboriginal cultural heritage and historic heritage values of the area.

7a.2 In consultation with the Wadawurrung, ensure the provision, maintenance and upgrading of infrastructure protects, conserves and enhances sites of Aboriginal cultural heritage significance.


7a.3 Design infrastructure to be sympathetic to the preferred character of townships and landscapes by maintaining view lines from key transport corridors and by providing vegetation that strengthens landscape character.

Objective 7b


To maintain the role of Torquay–Jan Juc as a sustainable regional service centre that supports the community’s social and economic needs and increases their resilience to climate change impacts.

Strategies


7b.1 Provide infrastructure in sequence with development to meet the needs of communities, local businesses and tourists.

7b.2 Prioritise infrastructure that minimises greenhouse gas emissions and improves resilience to climate change impacts.

7b.3 Prioritise sustainable transport modes (such as walking, cycling and public transport).


Map 9: Strategic infrastructure


Settlements

Settlements in the declared area have a relaxed, coastal character in a rural setting. They are accessible to Geelong, Melbourne and the broader region, making them highly desirable places to live, work and visit.

The rate and amount of population growth in the declared area over the last decade have been strong, compared to other settlements in the G21 region and regional Victoria. As a result, the declared area’s unique values and distinctive attributes have been under pressure from overdevelopment. To achieve the 50-year vision, it is paramount that settlements are carefully planned and that ecologically sustainable development is reinforced.

Torquay–Jan Juc, Bellbrae and Breamlea are all in state-significant landscapes and close to areas of Aboriginal cultural heritage and high biodiversity value that should be protected from urban encroachment. Protected settlement boundaries will be applied to these three settlements, to provide certainty to communities about how their unique values and distinctive attributes will be conserved for the long-term while designating areas for sustainable, managed growth. Table 3 shows the proposed hierarchy designation of these three settlements and Mount Duneed and Connewarre.

Development within all settlements should apply best practice, environmentally sustainable design and development principles. This includes supporting energy and resource efficiency, minimising car dependency, reducing stormwater runoff impacts and promoting waste reduction and recycling throughout the design, construction and operation phases of a development.

Table 3: Proposed hierarchy of Surf Coast declared area settlements

Settlement Proposed hierarchy designation

Torquay–Jan Juc District town: a regional centre with a large, diverse population, employment and housing base, which has strong relationships with surrounding settlementsTorquay–Jan Juc is the largest settlement in the declared area and will continue to provide housing and employment opportunities to support local and regional communities and the visitor economy

Bellbrae, Breamlea

Village: a small settlement with a low populationBellbrae and Breamlea are small settlements and designated for minimal change with no further greenfield growth

Mount Duneed and Connewarre

Hamlet/locality: a cluster of rural residential dwellingsThese settlements are not designated for growth

Torquay–Jan Juc

Torquay–Jan Juc will continue to be a district town providing housing choices, employment opportunities and community services for residents, workers and visitors within the declared area and the broader region. Urban development will be sustainably managed through a combination of infill and greenfield development.


The majority of new development will be directed to activity centres, tourism precincts, residential areas identified for substantial change and designated future settlement areas. Any further outward greenfield growth will be restricted, to avoid compounding impacts on surrounding areas of high biodiversity value, Aboriginal cultural heritage, state-significant landscapes and township character.

The use of public transport and other active modes of transport (such as walking and cycling) will be encouraged by providing infrastructure and improving the public realm. The proposed Armstrong Creek to Torquay Transit Corridor provides an opportunity for a sustainable transport link between Geelong and Torquay–Jan Juc, as well as an opportunity for the co-location of the transit corridor terminal with community facilities and infrastructure.

The ‘Coastal character statement for Torquay–Jan Juc’ below sets out the preferred outcomes for development in Torquay–Jan Juc.

Coastal character statement for Torquay–Jan Juc

Torquay–Jan Juc retains a strong connection with its coastal and rural landscape setting, through the dominance of vegetation, the visibility of the natural contours of the land and views of the coast and the high-quality design of new development.

Views from streets and other public places are ones of native vegetation and exotic canopy trees. Further plantings of native vegetation (especially next to roads, along waterways, in reserves and along the coastline) increase the coastal character.

The natural contours and vegetation of the hilltops and ridge lines surrounding the settlement remain visible. In new development areas, hilltops and ridge lines are vegetated and new development does not protrude above them. Views of the coast from the nationally heritage-listed Great Ocean Road are maintained.

New development provides high-quality design responses, which consider the landscape significance, environment and biodiversity values, Aboriginal cultural heritage and historic heritage values of the area. This means using architectural styles, environmentally sustainable designs and materials and finishes that contribute towards the existing sense of place.

Generous transition areas at the urban-rural interface, within the protected settlement boundary, provide a successful transition to the surrounding green breaks. The visibility of the settlement from the green breaks is minimised. This is achieved through the use of reduced dwelling densities, smaller building footprints and substantial landscaping or generous vegetated buffers at the urban-rural interface. Materials and finishes that temper visibility (such as darker materials and materials that weather naturally) are used.

Activity centres

New development within activity centres is of outstanding built form and design, and uses colours, materials, architectural features and landscaping that promote and celebrate the surfing, beach and coastal image of Torquay–Jan Juc.

Mixed-use development with shop-top apartments and offices is supported at a scale that is in keeping with the role and character of the activity centre.

Landscaping is also provided in public places to support the dominance of vegetation.

Substantial residential change areas


New development at higher densities is respectful of older-style beach houses.

New development is sited in accordance with the predominant pattern of front setbacks in the street, to allow for space for retaining or planting canopy trees and shrubs that soften the built form and contribute to the spaciousness and leafiness of streetscapes.

Incremental residential change areas

New development provides housing diversity while respecting the coastal character of the area with low-rise built form set in well-landscaped gardens.

Generous boundary setbacks help minimise visual bulk, protect existing vegetation and allow space for additional landscaping including canopy trees. Materials and finishes reduce the visibility of new development so that the surrounding vegetation is the dominant feature.

Minimal residential change areas

The coastal character of these areas is protected, and new development has a low-rise built form set in well-landscaped gardens so that the surrounding vegetation is the dominant feature. Generous boundary setbacks help minimise visual bulk, protect existing vegetation and allow space for additional landscaping including canopy trees. Materials and finishes reduce the visibility of new development.

Future settlement and low density ecologically sustainable development areas

The coastal character of Torquay–Jan Juc will continue to be represented in these areas with low-rise buildings set within well-landscaped gardens that reflect the surrounding landscape significance.

There are generous urban-rural transition areas within the settlement boundary, which provide a soft edge to urban development as it meets the surrounding green breaks, to minimise the visibility and to better manage the environmental and landscape impacts of the settlement. New development provides screening vegetation and smaller building footprints, and it uses materials and finishes that temper visibility (such as darker materials and/or materials that weather naturally).

Activity centres and tourism precincts

Torquay–Jan Juc has several established activity centres and tourism precincts including Torquay Town Centre and The Esplanade, Bell Street, Jan Juc, Torquay North and Surf City. Development in these areas will respond to the ‘Coastal character statement for Torquay–Jan Juc’, and it will help achieve the role set out for the following centres.

Torquay Town Centre

Torquay Town Centre is a major activity centre located at the heart of the ‘old Torquay’ precinct adjacent to the foreshore. It is centred on Gilbert Street and has expanded to the north and west but development has become fragmented, which has reduced its accessibility and amenity. New development will help to consolidate these areas and improve amenity and pedestrian connectivity.

The Torquay Town Centre will remain the primary activity centre for Torquay–Jan Juc. It is a preferred location for additional tourism uses and infrastructure including accommodation as well as commercial uses and community services.


Bell Street Neighbourhood Activity Centre

The Bell Street Neighbourhood Activity Centre has a surfing, tourist and entertainment focus. Development in this area will support the continuation of this role while responding to the surrounding sensitive coastal and residential interfaces.

Jan Juc Activity Centre

The Jan Juc Activity Centre is a small commercial centre primarily serving the local community. Development in this area will respond to the existing low-scale setting and the surrounding sensitive coastal and residential interfaces.

Surf City Precinct and Surf Coast Gateway Precinct

The Surf City Precinct and the Surf Coast Gateway Precinct are surf industry hubs and have been identified as having the capacity for tourism-related development and growth. They also provide entertainment and community facilities. The buildings in these precincts, home to iconic surfing brands, are distinctive and contribute to the surfing identity and character of Torquay.

Commercial and residential development along the Surf Coast Highway will continue to provide a focal point for commercial and tourism activity and create a sense of arrival. Visual connections through to Bass Strait will be retained. Given its designation as a tourism development precinct, this is a preferred location for future tourism-related uses and infrastructure, as is the tourism development location on the corner of Bristol Road and the Surf Coast Highway. While the changing nature of the surf retail industry may lead to changing use in this area, including along Baines Crescent, it will continue to retain a tourism focus, given its highly prominent location.

Torquay North Neighbourhood Activity Centre and Community and Civic Precinct

This is a neighbourhood activity centre and civic precinct. As well as commercial uses, it includes the Surf Coast Shire municipal offices, a sporting precinct, a secondary school, the Kurrambee Myaring Community Centre, the Grant Pavilion community hub and the proposed Surf Coast Aquatic and Health Centre.

Additional development of community and civic uses in this area is encouraged and will further consolidate this area as a vibrant community and civic precinct.

The Armstrong Creek to Torquay Transit Corridor provides an opportunity for a transit hub to be located close to the precinct, providing a public transport link to Geelong.

Torquay–Jan Juc residential areas

The coastal character of Torquay–Jan Juc is highly valued by the community. New residential development will respond to the ‘Coastal character statement for Torquay–Jan Juc’ so that the settlement retains a strong connection with its state-significant landscape.

Substantial change areas

Areas designated for substantial residential change are focused around Torquay Town Centre and Surf Coast Highway, close to jobs, services and facilities. Increasing the supply of housing here will reinforce the role of Torquay Town Centre as a major activity centre and the role of the Surf City Precinct and the Surf Coast Gateway Precinct as tourism hubs.


Directing additional housing supply to these locations allows for the majority of Torquay–Jan Juc’s established residential areas and sensitive coastal and rural interfaces to be reserved for incremental or minimal residential change.

Incremental change areas

Most of Torquay–Jan Juc’s existing residential areas are designated for incremental change. Incremental change areas will allow for a diversity of housing types that respect the coastal character of the area.

These areas provide a transition between areas of substantial change and residential areas identified for minimal change.

Minimal change areas

Minimal change areas are generally located on the periphery of Torquay–Jan Juc and are existing low density residential areas.

Any development in these areas will be limited to low-rise built form set within well-landscaped gardens. Existing, larger-lot residential areas will be retained at the edges of Torquay–Jan Juc to provide a transition between the urban and rural landscapes.

Future settlement and low density ecologically sustainable development areas

Future settlement and low density ecologically sustainable development areas will provide for additional development opportunities, in line with the ‘Coastal character statement for Torquay–Jan Juc’.

Messmate Road

The Messmate Road future settlement area is in a landscape of regional significance and designated for urban growth that responds to this setting.

Residential development will make a positive contribution to the coastal character of Torquay–Jan Juc and have a strong connection to the surrounding hinterland landscape. This will be achieved with low-rise buildings set within well-landscaped gardens and a generous transition area at the urban-rural interface.

Development at the urban-rural interface will not extend past the ridgeline and building heights will not protrude above the ridgeline.

Alternative non-residential uses (such as sensitive eco-tourism development and community infrastructure) may also be accommodated in this area.

Spring Creek

Two options are proposed below for the Spring Creek area.

Protected settlement boundary options for Spring Creek

We have heard through the previous two phases of public engagement on the Surf Coast Distinctive Area and Landscape project that the Spring Creek area — the area currently subject to a proposed Precinct Structure Plan through Amendment C114 to the Surf Coast Planning Scheme — is a divisive topic, with many people expressing very strongly that development of


this area should not go ahead, while other people advocating very strongly that development occur.

A protected settlement boundary is proposed for Torquay–Jan Juc to manage long-term growth of the settlement and to protect the state-significant landscape setting, as well as areas of Aboriginal cultural heritage and high biodiversity value.

Map 10 and Map 11 show two options proposed for the protection of the distinctive attributes found in the Spring Creek area.

Option 1: Low density ecologically sustainable development (current settlement boundary retained)

Map 10 shows Option 1, with the Spring Creek area designated for low density ecologically sustainable development and included within the protected settlement boundary for Torquay-Jan Juc.

Under this option, the area could be developed for residential and associated uses in a way that is sympathetic to the state-significant landscape setting, Aboriginal cultural heritage, historic heritage and environmental and biodiversity values. The proposed Precinct Structure Plan would need to be revised to provide for lower residential densities including larger lot sizes and vegetated buffers along the Great Ocean Road frontage, on ridgelines and at the urban-rural interface to the west, and the retention of existing vegetation.

Alternative non-residential uses (such as a sensitive eco-tourism development or community infrastructure) could also be explored for this area.

Under this option, the location of the current settlement boundary in the Surf Coast Planning Scheme would be retained.

Option 2: Green break area (excluded from settlement boundary)

Map 11 shows Option 2, with the Spring Creek area outside of the protected settlement boundary and forming part of the surrounding green break between Torquay–Jan Juc and Bellbrae. A protected settlement boundary would be applied at Duffields Road and the area between Duffields Road and Bellbrae would be rural land.

Under this option, Spring Creek could be rezoned to allow for rural land use and development consistent with the purpose of the green break (such as a Rural Conservation Zone).

The final Surf Coast SPP will include one option for a protected settlement boundary for Torquay–Jan Juc and this will form part of the framework plan shown in Map 3 and be implemented through the planning scheme.

Torquay North East

The Torquay North East Investigation Area will be located outside of the protected settlement boundary, as further work is required to determine if urban growth can be accommodated in a way that ensures the protection of the surrounding state-significant landscape setting, environment and biodiversity values and Aboriginal cultural heritage values.

Development in this area has the potential to have substantial negative environmental impacts on the Karaaf Wetlands and Breamlea Flora and Fauna Reserve, which are of state and national environmental significance. Stormwater management and impacts on the Karaaf Wetlands and Breamlea Flora and Fauna Reserve is the primary concern. Any future development of this area


must guarantee that no stormwater overflow emanates from the area or is discharged into the Breamlea Flora and Fauna Reserve and/or surrounding developments.

Further work is required to determine if such a guarantee is technically feasible and if the area can be developed without impact on the Karaaf Wetlands and Breamlea Flora and Fauna Reserve. Until this work is undertaken, the investigation area should remain outside of the Torquay–Jan Juc protected settlement boundary and be retained as part of the green break between settlements.

Bellbrae

Map 12 shows the proposed Bellbrae protected settlement boundary. Bellbrae will remain a small village located within a treed environment and surrounded by the rural landscape of the hinterland. It is not identified as a location for increased housing or expansion. Residential growth will be limited to the protected settlement boundary and its unique character maintained.

The spacious streetscapes dominated by vegetation will be retained, with new residential development occurring at a scale sympathetic to the existing built form. New development will integrate with the surrounding landscape and remnant coastal bushland, presenting a soft edge to Anglesea Road and using materials and finishes that blend carefully into the landscape.

Non-residential and community uses will be encouraged along School Road to promote activity and create a ‘main-street’ feel, with buildings designed and sited to enhance the village character of the settlement and improve pedestrian accessibility.

Breamlea

Map 13 shows the proposed Breamlea protected settlement boundary. Breamlea will remain a small coastal hamlet, within a protected settlement boundary.

Due to the environmentally sensitive coastal and estuarine environment within which it sits, there will be no development beyond the current extent of the settlement area and no additional infill development within the settlement area. Any new or replacement development must be low-rise and designed and located to minimise the removal of vegetation.

Mount Duneed and Connewarre

Map 14 shows the proposed Mount Duneed settlement boundary and Map 15 the proposed Connewarre settlement boundary.

The Mount Duneed and Connewarre low-density residential areas are within the green break between the Armstrong Creek Urban Growth Area in Geelong and Torquay–Jan Juc. The green break is a regionally significant landscape and provides a rural setting for the settlements. It also has environment and biodiversity values and Aboriginal cultural heritage values, particularly along Thompson Creek.

To protect these values and to stop settlements coalescing, the Mount Duneed and Connewarre low-density rural residential areas will be contained within a settlement boundary. Vegetation will be used to screen development, particularly when viewed from Mount Duneed Road, Bluestone School Road and Breamlea Road.


Armstrong Creek Urban Growth Area

The northern boundary of the declared area abuts the Armstrong Creek Urban Growth Area in Geelong. A protected settlement boundary will be needed for this area to ensure greater protection of the green break between Geelong and Torquay–Jan Juc, which has been identified as a landscape of regional significance.

The resolution of the location of this settlement boundary will be informed by strategic planning work led by the City of Greater Geelong in consultation with DELWP and other relevant agencies once Amendment C395 – Settlement Strategy and the Northern and Western Geelong Growth Areas Framework Plan has been given effect. This work should include consideration of urban-rural transition areas that support the regionally significant landscape setting.


Objective 8


To plan and manage the sustainable growth of settlements in the declared area consistent with the protection of the area’s landscape significance, environment and biodiversity values, Aboriginal cultural heritage and historic heritage values, and consistent with the unique character, role and function of each settlement.

Strategies


8.1 Direct urban development to a hierarchy of settlements, through designating areas for change and clearly defining protected settlement boundaries.

8.2 Implement protected settlement boundaries for Torquay–Jan Juc, Bellbrae, Breamlea and the Armstrong Creek Urban Growth Area, and settlement boundaries for Mount Duneed and Connewarre.

8.3 Facilitate commercial development, community services, visitor accommodation, infrastructure and facilities within Torquay–Jan Juc’s activity centres and tourism precincts.

8.4 Direct the majority of residential development to activity centres, areas identified for substantial change or future settlement areas in Torquay–Jan Juc.

8.5 Ensure development in Torquay–Jan Juc respects the coastal character of the settlement, in line with the ‘Coastal character statement for Torquay–Jan Juc’.

8.6 Ensure development in Torquay–Jan Juc maintains view lines from the nationally heritage-listed Great Ocean Road towards Bass Strait.

8.7 Within the protected settlement boundary for Torquay–Jan Juc, provide a generous transition between urban and rural areas to support the relationship with the landscape setting and minimise the visibility of the settlement from surrounding green breaks.


8.8 Ensure development at the Torquay–Jan Juc urban-rural interface does not extend above natural hilltops and ridge lines, with landscaping provided including vegetated areas on the top of hilltops and ridge lines, to minimise the visibility of development.

8.9 Minimise the visibility of development within villages and hamlets/localities through landscaping that responds to the landscape character of the areas, particularly at the interface between urban and rural areas.

8.10 Prevent any further residential subdivision and infill development in Breamlea.

8.11 Ensure developments in all settlement areas achieve best practice, environmentally sustainable design and development for the full life of the development.


Map 10: Proposed Torquay–Jan Juc protected settlement boundary (Option 1)


Map 11: Proposed Torquay–Jan Juc protected settlement boundary (Option 2)


Map 12: Proposed Bellbrae protected settlement boundary


Map 13: Proposed Breamlea protected settlement boundary


Map 14: Proposed Mount Duneed settlement boundary


Map 15: Proposed Connewarre settlement boundary


References

AEC Group (2014). Economic Value of the Surf Industry to Surf Coast Shire, AEC Group, Melbourne.

Authentic Heritage Services Pty Ltd (2009). Surf Coast Shire Heritage Study Stage 2B, Surf Coast Shire, Torquay.

Aboriginal Victoria (2019). Cultural Heritage Management Plans, Aboriginal Victoria, Melbourne.

Barwon Water (2017). Urban Water Strategy, Barwon Water, Geelong.Capire Consulting Group (2020). Surf Coast Distinctive Area and Landscape: Phase Two Engagement Report, Capire Consulting Group, Melbourne.Claire Scott Planning (2020). Distinctive Areas and Landscapes: Surf Coast Assessment Review, Claire Scott Planning, Melbourne.Corangamite Catchment Management Authority (2009). Corangamite Marine and Coastal Biodiversity Strategy, Corangamite CMA, Melbourne.City of Greater Geelong (2019). Amendment C395 – Settlement Strategy and Northern and Western Geelong Growth Areas Framework Plan, City of Greater Geelong, Geelong.Department of Environment, Land, Water and Planning, Commonwealth Scientific and Industrial Research Organisation (2019). Barwon Climate Projections 2019, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2020a). Planning Practice Note 90: Planning for Housing (PPN90), State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2020b). NatureKit, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2020c). Marine and Coastal Policy, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2020d). Surf Coast Planning Scheme, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2020e). Hydra Map Share Vic, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2019a). Long-Term Water Resource Assessment, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2019b). Victoria in Future 2019. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2018). Great Ocean Road Action Plan, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2017a). City of Greater Geelong Planning Scheme, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2017b). Plan Melbourne 2017–2050 Five Year Implementation Plan, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2017c). Plan Melbourne 2017–2050 Metropolitan Planning Strategy, State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2017d). Protecting Victoria’s Environment – Biodiversity 2037, State of Victoria, Melbourne.


Department of Environment, Land, Water and Planning (2016). Climate Ready Barwon South West, State of Victoria, Melbourne.Department of Environment, Land, Water and Planning (2015). Barwon South West Climate Change Adaption Snapshot Report, State of Victoria, Melbourne.Department of Sustainability and Environment (2012). Code of Practice for Bushfire Management on Public Land, State of Victoria, Melbourne.Department of Sustainability and Environment (2011). Western Region Sustainable Water Strategy, State of Victoria, Melbourne.Ethos Urban (2020). Surf Coast Distinctive Area and Landscape: Township Character Assessment, Ethos Urban, Melbourne.G21 Geelong Regional Alliance (2013). G21 Regional Growth Plan, G21 Geelong Regional Alliance, Geelong.Surf Coast Shire (2020). Prosperous Places: Discussion Paper, Surf Coast Shire, Torquay.

Surf Coast Shire (2019). Rural Hinterlands Futures Strategy, Surf Coast Shire, Torquay.Surf Coast Shire (2018). Surf Coast Economic Insights, Surf Coast Shire, Torquay.

Surf Coast Shire (2014a). Biodiversity Mapping Project, Surf Coast Shire, Torquay.Surf Coast Shire (2014b). Sustainable Futures Plan Torquay–Jan Juc 2040, Surf Coast Shire, Torquay.Surf Coast Shire (2007). Torquay and Jan Juc Structure Plan, Surf Coast Shire, Torquay.

Wathaurung Aboriginal Corporation (trading as Wadawurrung) (2020). Surf Coast Cultural Heritage, Wathaurung Aboriginal Corporation, Ballarat.


Glossary

Term Definition

Aboriginal cultural heritage

Tangible heritage — Aboriginal places, objects and ancestral remains — and intangible heritage — knowledge of or expression of Aboriginal tradition including oral traditions, performing arts, stories, rituals, festivals, social practices, craft, visual arts, and environmental and ecological knowledge (not including anything that is widely known to the public), as set out in the Aboriginal Heritage Act 2006

Biodiversity All components of the living world: the number and variety of native plants, animals and other living things across our land, rivers, coast and ocean. Biodiversity includes the variety of their genetic information, their habitats and their relationship to the ecosystems within which they live.

Biolink A connection across the landscape that links up areas of habitat and supports natural processes that occur in a healthy environment including the movement of species to find food and water.

Built form The combination of features of a building including its style, façade treatments, setbacks, height and site coverage.

Declared area An area to which an order under Planning and Environment Act 1987 section 46AO applies. Map 2 shows the Surf Coast declared area.

Declared area framework plan

A plan required by the Planning and Environment Act 1987 section 46AV(2) to provide a framework for decision-making in relation to the future use and development of land in the declared area.

District town A regional centre with a large, diverse population and an employment and housing base, and which has strong relationships with surrounding settlements. Within the G21 region, district towns can have populations from between 10,000 and 100,000 people.

G21 Alliance The formal alliance of government, business and community organisations working together to improve the lives of people in the G21 region, which spans the City of Greater Geelong, Colac Otway Shire, Surf Coast Shire, Borough of Queenscliffe and Golden Plains Shire.

Green break Predominantly rural land located in between settlement boundaries that may comprise a variety of non-urban land uses (such as agriculture, hobby farms and agritourism businesses).

Greenfield area Rural or non-urban land designated for new or future development.

Great Ocean Road region

The area south of Princes Highway between Warrnambool and Torquay including the coast. The region includes parts of the City of Warrnambool and the Moyne, Corangamite, Colac Otway and Surf Coast shires.

Hamlet/locality A cluster of rural residential dwellings.

Historic heritage Historic types of heritage places which can include archaeological sites and artefacts, buildings, structures, precincts, gardens, trees,


cemeteries, cultural landscapes, shipwrecks and their artefacts, and significant objects and objects associated with places. ‘Historic’ can refer to a range of periods or eras.

Incremental change area

An area where housing growth occurs within the context of existing or preferred neighbourhood character. Planning Practice Note 90: Planning for Housing (PPN90) has further details.

Infill development The incremental development of additional dwelling(s) on individual residential sites (such as a three-unit development on a site on which there was previously a single house).

Landscape character

The sum of the physical features of an area (such as its topography, geology, waterbodies, vegetation and urban development).

Landscape significance

The designation of a landscape as special or important due to its visual, cultural heritage, environmental, scientific, social and other values.

Living space A place where Wadawurrung people lived, with housing and access to fresh water and where aquacultural and agricultural activity including the development of infrastructure took place.

Low-density residential area

An area designated for low-density residential development that responds to a semi-rural environment and is often constrained by servicing issues.

Minimal change area

An area with neighbourhood, heritage, environmental or landscape characteristics that are sufficiently special to a municipality, metropolitan Melbourne or Victoria to warrant protection. Planning Practice Note 90: Planning for Housing (PPN90) has further details.

Peri-urban area An area, some or all of which is less than 100 km from Melbourne, with a predominantly rural character.

Peri-urban town A settlement outside Melbourne’s Urban Growth Boundary which is less than 100 km from Melbourne.

Protected settlement boundary

A settlement boundary in a declared area that is protected under a SPP. Any amendment to a SPP that seeks to change a protected settlement boundary must be ratified by both Houses of Parliament.A protected settlement boundary is a long-term settlement boundary intended to protect the valued attributes of the rural hinterland surrounding the settlement by containing its growth.

Registered Aboriginal Party (RAP)

A Traditional Owner group legally recognised under the Aboriginal Heritage Act 2006 and responsible for managing and protecting Aboriginal cultural heritage in an area. The Victorian Aboriginal Heritage Act 2006 recognises RAPs as the primary guardians, keepers and knowledge holders of Aboriginal cultural heritage.

Responsible public entity (RPE)

An agency or body responsible for managing land in the declared area. In the context of a declared area, a RPE is any of:

the Secretary (within the meaning of the Conservation, Forests and Lands Act 1987)

the water corporation responsible for the area in which the declared area is located


a municipal council whose municipal district contains land in the declared area

Parks Victoria the Victorian Planning Authority a catchment management authority for a catchment and land

protection region that contains land in the declared area the Roads Corporation of Victoria Victorian Rail Track any committee of management or trustees in relation to land in the

declared area any Traditional Owner Land Management Board in relation to land

in the declared area any other public entity prescribed to be a RPE in relation to the

declared area.

Urban-rural transition area

An area that provides a soft edge between urban development within a settlement boundary and the rural land beyond, to minimise the visibility of the development and better manage the settlement’s environmental and landscape impacts.

Settlement An area comprising township- or urban-related land uses that includes housing, community facilities, commercial and industrial areas and other uses.

Settlement boundary

A long-term boundary that marks the limit of urban development in an area and protects the valued attributes of the surrounding rural hinterland by containing the settlement’s growth. Unlike a protected settlement boundary, amendments to a settlement boundary do not need to be ratified by both Houses of Parliament.

State significance A quality of environmental, landscape, economic and cultural heritage value important to the State of Victoria.

Statement of Planning Policy (SPP)

A Statement of Planning Policy approved under Planning and Environment Act 1987 pt 3AAB in relation to a declared area.

Songlines A track or trail across the land or sky which has a special connection with Aboriginal culture and creation stories.

Substantial change area

An area where housing intensification will occur that results in a substantially different scale and intensity of housing compared to other areas of a municipality, including an area in and around an activity centre or along a public transport corridor and a strategic development area. Planning Practice Note 90: Planning for Housing (PPN90) has details.

Traditional Owners An Aboriginal group with Country in a declared area. The Wadawurrung are the Traditional Owners of the Surf Coast declared area.

Village A small settlement with a low population.

Visitor People travelling and staying outside their usual place of residence for holidaying, sight-seeing and recreation, and people travelling for other


reasons (such as visiting friends and relatives, business, work, education and accessing medical services).

Visitor economy The production of goods and services for consumption by visitors including industries that directly serve visitors (such as hotels, transport providers, tour companies and attractions) and intermediaries and indirectly involved industries (such as retail and food production).


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