HEPBURN STRUCTURE PLAN REVIEW - Hepburn Shire - July 2007 - NET
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Hepburn Shire
HEPBURN STRUCTURE
PLAN REVIEW
Daylesford, Hepburn Springs
Creswick, Clunes, Trentham
Prepared by
Planit
&
Hepburn Shire Planning Department
July 2007CONTENTS
1. Background to Review 1
1.1 Purpose of review
1.2 Review Process
1.3 Consultation with town communities
2. Vision and Strategic Directions 2
3. Trends and issues 2
4. Review of existing policies and plans 4
4.1 Settlement hierarchy
4.2 Review of existing structure plans
4.3 Review of existing policies
5. Recommended changes to Hepburn Planning Scheme 9
6. Revised Structure plans and policies 10
6.1 Daylesford 10
6.2 Hepburn Springs 17
6.3 Creswick 24
6.4 Clunes 32
6.5 Trentham 39
Attachments
A. Revised Clause 21.01 (Municipal Profile)
B. Revised Clause 21.05: (Settlement and Housing)
C. Clause 22.07: Settlement (highlighting sections retained for inclusion in 21.05,
policy to be deleted)
D Submissions - Summary and Considerations
E Diagrams - Population Growth and future estimatesHepburn Shire Hepburn Structure Plan Review 2007
1. BACKGROUND TO REVIEW
1.1 Purpose of Review
The Hepburn Planning Scheme contains a structure plan for each of the five main towns and several
of the smaller settlements of the Shire. These structure plans form part of the Municipal Strategic
Statement (MSS-Clause 21.05).
The purpose of this review is to:
• revise and improve existing township structure plans for Daylesford, Hepburn Springs, Creswick,
Clunes and Trentham
• review clauses 21 (MSS) and 22 (Local Policies) to strengthen policy support for the structure
plans
• involve local communities in the review process.
A planning scheme amendment will be prepared. The proposed amendment will insert the final
structure plans and the revised clauses into the MSS. The amendment will be placed on public
exhibition and submissions to the amendment will be invited.
The proposed planning scheme amendment will not include rezoning of any land. This Report does
however include proposals to investigate a change of zoning or the use of an overlay.
Implementation of the Review Report will include subsequent planning scheme amendments to
rezone land and introduce new overlays.
1.2 Review Process
Council decided to review the township structure plans and Clause 21.05 of the Municipal Strategic
Statement through a process of community consultation. A series of five workshops were held in
each of the five towns. Draft revised structure plans and a new set of objectives and strategies were
prepared for each of the five towns. These were made available for community comment and
submissions.
Council commissioned David Robb of Planit, a planning and urban design consultancy firm, to
complete the review project. Completion of the project involved the following:
• revision of draft structure plans and preparation of digitised plans for each of the five towns
• revision of written document for each town which includes a vision statement, definition of
sustainabilty, objectives and strategies and implementation and make contents consistent and
suitable for inclusion in the Municipal Strategic Statement.
• review of the Settlement Strategy 2004 and the Settlement Local Policy (Clause 22.07)
• completion of draft structure plan and document for Creswick with an additional workshop
• review and consider community submissions, and
• prepare a planning scheme amendment to implement the recommendations of the Review
project.
1.3 Consultation with town communities
Several workshops were held in each of the five towns. The focus of the community planning
workshops were clause 21.05 (Settlement and Housing) and the township structure plans. The aims
of the workshops were:
Final Report 1Hepburn Shire Hepburn Structure Plan Review 2007
• identify key issues
• form a vision for the town
• develop objectives
• review the structure plan
Draft documents including new structure plans were prepared and community comment was sought
on the documents. Final drafts were finalised after consideration of community submissions. A
report reviewing these submissions is included in Attachment E. A further period for comment and
submissions will be available at the planning scheme amendment stage.
2. VISION and STRATEGIC DIRECTIONS
A review of township structure plans and the settlement and housing clause must consider Clause
21.03 Vision and Strategic Framework of the MSS. The revised plans and clause must be
consistent with the vision and strategic directions set out in the clause.
The vision for future land use planning and development in the Shire is:
Hepburn’s vision for future land use planning and development is to build a Shire based on the
strength and character of the individual and valued lifestyle aspects of the towns, small
communities and rural areas of the Shire. The Shire has an outstanding cultural and natural
heritage including Australia’s greatest concentration of mineral spring resources. This is a heritage
for which the community has a long-term management responsibility. The future prosperity of the
Shire will derive from protecting and effectively managing these assets and highlighting the
locational advantages of the Shire for growth and development based on residents seeking new
lifestyles, commuting opportunities and the growth of individual towns, tourism, recreational
development and productive agricultural pursuits.
The strategic directions and policies of this vision are included in Clause 21.03.
3. TRENDS AND ISSUES
3.1 Population and housing growth
Population growth has generally been occurring in the five main towns since 1981 (See Table 1
below). The average annual growth rate had generally increased from 1996 to 2001, after a small
decline from 1991 to 1996. The number of approved residential subdivisions and dwelling approvals
in the towns since 2001 indicate that growth rates are generally being maintained.
Population and household projections for the Shire (DSE Victoria in Future 2004) had shown
consistent increases in population and number of occupied dwellings over the next 25 years.
However, the 2006 ABS Census has just become available, and permanent population has declined
noticeably in Daylesford-Hepburn (combined), just slightly for the other towns, and the Shire overall.
Earlier figures included the outer districts for Creswick. Clunes and Trentham; the adjusted town
figures are shown in the chart below. The structure plan areas include some of the outer, peripheral
areas which may be experiencing some growth, possibly at the expense of the areas within the
towns, most recently. Options for fringe as well as infill growth should be provided.
Household size is declining in the Shire, consistent with national and regional trends. Household
size in the Shire in 2001 was 2.4 and it is projected to decline to 2.1 in 2011 and to 1.9 by 2021
(DSE projections). Factors contributing to a decline in household size include ageing of the
population, increased divorce rates and lifestyle changes. Housing growth in the Shire and its towns
will occur from migration and declining household size. Greater diversity of housing types will be
required to trend towards smaller households.
Final Report 2Hepburn Shire Hepburn Structure Plan Review 2007
Table 1. Population: Hepburn Towns & Shire 1981-2006
aagr %
1981 1986 1991 1996 2001 2006
01-06
Daylesford 2,883 3,111 3,347 3,278 3,382 3,085 -0.02%
Hepburn Springs
Creswick 2,036 2,266 2,387 2,327 2,448 2,418 -0.01%
Clunes 761 817 846 982 1,091 1,057 -0.01%
Trentham 522 554 632 658 697 800 -0.03%
Shire 13,559 13,984 14,488 14,566 14,828 14,235 -0.01%
aagr = average annual growth rate
Source DPCD Towns in Time (forthcoming)
A graph by DPCD plotting this growth is at Appendix E, plus a diagram of the census boundaries,
which may indicate growth outside of the town boundaries. Growth for most of the towns, sustained
over a long period, together with suggestion of peripheral growth, indicate a need to plan for
continued growth for all the towns, with a strong emphasis on consolidation within central areas.
This is discussed in detail for the structure plan for each town below. A better idea of the projected
growth for the towns and Shire should be available from ‘Towns in Time’ as 2008 progresses.
Issues identified in the Municipal Strategic Statement (Clause 21.02 Key Influences) are still relevant
today. They are:
• Population growth is occurring on the periphery of key towns and areas within commuting
distance of north-western metropolitan Melbourne and Ballarat.
• Shire population is generally ageing and household sizes are declining in line with State trends.
The specific needs of the elderly and other distinct age groups such as the youth need to be
recognised and included in longer term planning strategies.
• Population growth rates vary across the Shire between urban and rural areas.
• Population characteristics differ markedly across the Shire and are often linked to
location/commuting choices.
• Some rural settlement areas are restricted in terms of future growth potential due to servicing
constraints. Improved access to facilities in key towns, as distinct from more remote rural
settlements is an important issue.
• Understanding the urban fabric of townships and the need to maintain lifestyle and residential
amenity is important.
• There is potential for the loss of some social and support services if viable permanent
populations are not maintained.
• Growth is being shared between the five main towns.
• There is potential for loss of townscape, heritage and landscape character with growth and
development in the Shire’s towns.
The structure plan review project has identified some key growth management issues that need to
be considered in planning for the future of the five main towns.
Loss of urban form is a potential issue, particularly in Trentham and Clunes, with extensive low
density residential zoning beyond the existing urban edge of the towns. Infill and consolidation is
required at the edges of the towns to retain urban form, and to make more efficient use of
infrastructure (eg roads and waste water management).
Potential loss in rural town character is an important consideration for all five towns. There are large
areas of undeveloped residential land in Daylesford, Clunes, Creswick and Trentham. Integration of
Final Report 3Hepburn Shire Hepburn Structure Plan Review 2007
new residential subdivisions and housing with the existing urban fabric is an important planning
issue for these towns.
Pressures of development are stronger in Daylesford and Hepburn Springs. With few opportunities
for ‘greenfields’ residential subdivision in both towns, substantial new housing will occur through
urban consolidation and infill development. Heritage, landform, vegetation cover and landscape
vistas are all strong elements that define the urban character of Daylesford and Hepburn Springs.
The liveability and appeal of these towns is closely tied to the urban character of the town.
Absorbing this new development into the existing urban fabric is likely to be an ongoing planning and
design issue,
A significant element of each town’s character, to a varying degree, is the substantial cover of native
vegetation within their urban boundaries. The outward expansion of these towns over time could
pose a threat to existing native vegetation. Retention of native vegetation, wherever possible, will
ensure protection of town character.
Urban boundaries of Daylesford, Hepburn Springs, Creswick and Trentham are formed partly by
forests. Development adjacent to these forests poses potential threats, such as to native fauna from
domestic animals, increase in weed invasion, dumping of waste, habitat loss and increased fire risk.
While this is an important issue for all townships, it has particular importance for Trentham and
Creswick, due to the amount of undeveloped residential land at the forest interface.
Planning and development issues were identified at community workshops held in each of the five
towns. Issues for each of the towns are discussed in section 6 of this Report.
4. REVIEW OF EXISTING POLICIES AND PLANS
4.1 Settlement Heirarchy
A “Revised Settlement Strategy” was prepared for Hepburn Shire in 2004. This strategy report
generally endorses the existing planning scheme policies and objectives relating to settlement and
housing. The report, for instance, supports the focus of new development in the five main towns of
Daylesford, Hepburn Springs, Creswick, Clunes and Trentham. This focus will achieve more
sustainable development across the Shire. Each of the five main towns has all urban services such
as sewerage, water, road infrastructure, retail and business and community facilities.
The “Revised Settlement Strategy” also supports some development in villages subject to necessary
infrastructure being available. Villages located on major roads between principal towns in the Shire
are identified for future housing development.
A settlement hierarchy for the Shire is described in Clause 21.01 (Municipal Overview) of the MSS.
Some minor changes to the hierarchy are proposed as a result of the Revised Settlement Strategy
and the structure plan review project. These changes relate to table headings, settlement types and
role descriptions. The main change is the separation of Daylesford from other towns into its own
category i.e. regional town. Strategic justification for assigning this status to Daylesford is:
• Daylesford performs a wider role with its range of shopping, business, administrative and
community facilities in relation to the other four towns.
• Daylesford is a major centre in the regional settlement pattern, with a similar role to towns such
as Castlemaine, Woodend, and Maryborough.
• Daylesford’s role is strengthened by its proximity to Hepburn Springs.
It is recommended that the table at Clause 21.01-5 (Key towns and settlements) be modified as
follows:
Final Report 4Hepburn Shire Hepburn Structure Plan Review 2007
Settlement Classification System: Settlements in the Hepburn Shire
Settlement Settlement Settlement role and function
Type
Regional Daylesford Providing district retail, business,
town employment and cultural facilities, higher
order shopping and some regional level
services.
Service Clunes Providing district level retail, business,
Town Creswick employment and cultural facilities with
Hepburn Springs limited comparison shopping.
Trentham
Village Allendale Lyonville A village with fewer than 500 persons
Bullarto Newlyn/Newlyn N providing local convenience needs with
Broomfield Smeaton potential for increased commuter and/or
Glenlyon tourist role.
Kingston
Hamlet Blampied Dean A small village providing residential
Bullarto South Drummond opportunities in the form of rural living with
Campbelltown Eganstown limited community and infrastructure
Coomoora Franklinford facilities.
Rocklyn
A revised Clause 21.01 showing the above changes in included in Attachment A.
With the inclusion of Clunes and Trentham as Service Towns should come the replacement of
Township Zones with Residential 1 Zones, discussed in the text for each town below.
4.2 Review of existing structure plans
The structure plans for the five main townships were prepared as part of a major planning scheme
review in 1998-99. Structure plans provide the framework and major strategic directions for town
growth and development. Generally structure plans have a timeframe of 10 to 15 years. They are a
useful strategic planning tool. Council can use them to flag strategic intentions for a town.
There are several problems with the existing structure plans for Daylesford, Hepburn Springs,
Creswick, Clunes and Trentham:
• Poor legibility; the plans are difficult to read.
• Local content is lacking, out of date or in error, eg urban layout, road names, recreation areas
etc need to be added to the base of plans.
• Plans need to be more propositional; the plans need to be more robust, providing greater
strategic direction and guidance for land use planning and development.
• Physical, social and cultural differences between towns need to be reflected in structure plans.
The revised Township Structure Plans are included in section 4 of this Report. These plans have
been developed from community planning workshops and finalised with consultant and Council
officer input. The structure plans have several common elements. They include:
• Urban growth boundaries defining the physical limit of future town growth and the rural edge.
• Priority areas and sites for residential growth, most of which is to be infill of existing zoned land.
• Direction for any future, minor expansion of town centres.
• Existing industrial zones, with possible new areas for Clunes and Trentham.
Final Report 5Hepburn Shire Hepburn Structure Plan Review 2007 • Elements of town structure and form, eg open space networks. • Sites, areas, and features to be protected so that growth can be properly managed. • Investigations required into future zoning and application of overlays. The final structure plans are proposed to replace existing structure plans. They will be exhibited with a planning scheme amendment. Submissions on the plans will be invited during the public exhibition period. Key Elements of Revised Structure Plans Urban form The urban form of each town has been influenced by historical factors, landform, forest boundaries, highway and major road routes and natural features. Defining urban growth boundaries on structure plans is a means by which urban form can be controlled. The existing urban form and possible future forms from existing zoning could be quite different for the towns of Clunes, Creswick and Trentham. In these towns there are expansive areas of undeveloped land in the Low Density Residential Zone and Township Zone. More clearly defining the transition from conventional township density to low density, will be important in terms of achieving sustainable urban form, improved access to town facilities and efficient use of existing infrastructure. Consolidation Urban consolidation is proposed in all townships. Most new residential development in Daylesford and Hepburn Springs will be by consolidation as there are ample infill opportunities in the former, and limited residential expansion opportunities in the latter. There are also considerable opportunities for residential infill and consolidation in Clunes, Creswick and Trentham. Consolidation within the existing urban areas of these townships needs to be encouraged, while having particular regard to the protection of rural town character. Community workshops indicated a clear preference for maintaining the spaciousness of prevailing density of townships. Greater housing diversity needs to be encouraged in all townships. Declining household sizes and the diversity of household types require a mix of housing densities and styles including medium density housing. Locations for medium density housing have been identified on structure plans for all five towns by a guide line, indicating reasonable walking distance to town centres, while avoiding areas with sensitive neighbourhood character, helping to focus development opportunities. Town centre expansion A proposal for minor town centre expansion has been included on the structure plan for Trentham, which infills existing Business 1 Zones, linking with the old train station. This extension is logical and of a size that would not cause adverse impact on existing town centre businesses. A planning scheme amendment will be required for proposed rezoning from Township Zone to Business 1 Zone. For Clunes town centre, a minor expansion to its east is indicated, to be investigated if required in the future. The Hepburn Springs Structure Plan shows a proposed activity precinct along Main Road, to include existing Business 1 Zones and significant existing tourist uses, from Fifth Street to Eleventh Street. Commercial, residential and active street frontages are to be encouraged in this proposed precinct. The two existing business zones are staggered across the main road; any future expansion would be minor, and to draw the two zones closer together. Strategic work would be required prior to any amendment to rezone land. Final Report 6
Hepburn Shire Hepburn Structure Plan Review 2007 In Creswick, a parking and traffic study is to be carried out, taking into account future use of the Council depot, which could be wound down eventually, possibly for town centre car parking, and large, vacant development sites within the Business 1 Zone. Daylesford is deemed to have sufficient Business 1 Zone, including land adjoining the existing business centre which is currently in residential use, to cater for any future expansion required; a retail, traffic and parking study is to be undertaken to investigate whether this is the case, in terms of these related issues, as detailed in the Daylesford section below. Protection of Character Structure plans for the towns include proposals to protect and enhance important geographical and built elements. They are important to the towns’ characters and include open space links, protection of views and vistas, avoiding intrusive development on ridgelines and hilltops and retention of vegetation. In the case of Creswick, Raglan Street has been identified as a special link between the town centre and the train station. In Daylesford, use can be made of the Neighbourhood Character policies and overlays to discourage over-development of sites, including for special housing needs close to the town centres. Open space networks An open space network is identified for each town following watercourses, gullies and drainage lines. Potential exists to extend these networks, where residential subdivision can create secondary links to the networks. Urban Forest Interface The structure plans identify urban–forest interface areas where some planning control will be required to ensure development proposals address potential bushfire risk, habitat management of adjacent forests and landscape and visual amenity. This is relevant in varying degrees for all of the towns. Industrial Development Industrial development opportunities in Daylesford and Creswick can be met in the foreseeable future, from the existing supply of vacant, serviced industrial zoned land. The Review Report recommends that a master plan be prepared for Creswick’s major industrial zoned area adjoining Ring Road. The proposed master plan will provide a land use planning framework for the development of this area. It will address issues such as a future local road network, the location of industrial development and use of flood-prone portion for open space areas and flood management. Clunes currently has no industrial zone. An area identified earlier (circa Sept 2006) for investigation is on Smeaton Road, at the urban boundary. It has an area of 7.6 hectares, is relatively level, with good access, just over a kilometre from the town centre. However, Central Highlands Water advises that it would be difficult to service, particularly with sewerage. Under-utilised railway land, about 4 hectares, on the Ballarat Rd, has attributes similar to the Smeaton Road site, and is just over half a kilometre from the town centre. It has been briefly discussed with Vic Track, and appears to be a better candidate for further investigation. Planning for industrial development has been addressed in the structure plan for Trentham, with a large existing industrial area having capacity for redevelopment, and a small infill area adjoining the disused railway identified on the plan. 4.3 Review of existing policies Municipal Strategic Statement (Clause 21.02) - Final Report 7
Hepburn Shire Hepburn Structure Plan Review 2007
The key issues and influences for land use planning and natural resource management in the Shire
are listed under the headings of settlement and housing, infrastructure, economic development, rural
land use, agriculture, environment and heritage.
One of the dominant issues expressed during consultation in all towns was the potential for loss of
town character as the town grows and develops. This potential loss could impact on forests and
native vegetation, townscape, heritage buildings and streetscapes. This has become a higher order
issue since the preparation of the existing township structure plans in 1998-99.
All towns are experiencing growth in housing and residential subdivision. Higher population growth
rates are occurring in Creswick and Clunes.
Three new issues are proposed under the settlement and housing heading:
• Higher population growth rates have occurred in Creswick and Clunes.
• Daylesford’s proportion of the Shire’s population appears to be declining.*
• Potential for loss of townscape, heritage and landscape character with growth in the Shire’s
towns.
Municipal Strategic Statement (Clause 21.03) -
Hepburn Shire’s vision for future land use planning and development is to build a Shire based on the
strength and character of the individual and valued lifestyle aspects of the towns, small communities
and rural areas of the Shire.
The major strategic directions of the vision that are particularly relevant to the structure plan review
are:
• Support future urban and residential development in townships that have local facilities and
services including reticulated water and sewerage and provide a high level of amenity and
community infrastructure.
• Support industrial and commercial in-fill opportunities, including investigation of the provision of
new locations for such development, that are compatible with the objectives and strategies of the
MSS.
• Protect and conserve the natural and built heritage of the Shire’s urban and rural areas from
inappropriate development.
• Ensure that future development is compatible with the quality, character, amenity and lifestyle of
rural and urban communities and the development of the Shire’s tourism and recreation.
The new township structure plans and proposed changes to the Municipal Strategic Statement
support the vision and strategic directions of Clause 21.03.
All township structure plans are part of Clause 21.03. The ‘Hepburn Structure Plan Review’ report
recommends that the new structure plans replace the existing plans at Clause 21.03.
Municipal Strategic Statement (Clause 21.05)
Township structure plans require policy support in the Municipal Strategic Statement at Clause 21.05
(Settlement and Housing) of the Hepburn Planning Scheme. In its current form this clause does not
provide sufficient policy support. This was also a conclusion of the Panel in its report on the new
format planning scheme in 1999. The structure plan review project recommends some changes to
the plans. These changes also need support in this clause.
Objectives and strategies
Seven objectives with strategies have been formulated, for insertion in the MSS, to replace the
existing Clause 21.05. They complement and support the township structure plans. Objectives and
Final Report 8Hepburn Shire Hepburn Structure Plan Review 2007
strategies must also assist Council in its assessment of land use and development proposals. The
objectives and strategies relate to the following strategic themes:
• Sustainable urban form
• Protection of heritage and townscape character
• Town centre consolidation with limited expansion
• Housing diversity and affordability (if not at risk to town character)
• Water and energy efficiency
• Economic development and diversity which enhances and supports existing development
• Open space and recreation that builds on and links public land, and protects biodiversity
A draft revised Clause 21.05 is attached. (see Attachment B)
Strategic work required
An extensive list of future strategic work was identified in the review process. This work relates to
streetscape improvement, traffic management and transport, industrial land, heritage, landscape and
vegetation assessment.
Major studies are recommended, a review of Township and Low Density Residential Zoning in
Trentham and Clunes.
The Review Report also recommends that planning scheme amendments with strategic justification
be prepared for re-zonings and new overlays as proposed in the report.
The list of additional strategic work across the five towns is too ambitious for Council to achieve in
the next 3-5 years. It is recommended that the list be prioritised and reduced to a volume that
Council can achieve within its resource capabilities.
The list of further strategic work, in order of priority, is included in Attachment B.
Settlement Local Policy (Clause 22.07)
This local policy repeats policy in other parts of the planning scheme (eg zone provisions and State
policy) and includes text and policy statements that are more suited to the Municipal Strategic
Statement at Clause 21.05.
It is recommended that local policy 22.07 be deleted from the planning scheme and that relevant
statements of the policy be inserted in Clause 21.05 of the MSS.
A copy of the local policy is included in Attachment C to this report. Parts of the policy that are to be
retained for inclusion in the MSS are highlighted.
5. RECOMMENDED CHANGES TO HEPBURN PLANNING SCHEME
A planning scheme amendment is to be prepared. The proposed amendment documents will
include:
• revised Clauses 21.01 to update population and employment statistics and make minor
modifications to the Table to Clause 21.01-5 (Settlement classification),
• amendments to Clause 21.02 (Key Influences) to include three additional issues under
Settlement and Housing,
• new structure plans inserted at Clause 21.03,
• new set of objectives and strategies for Clause 21.05 (Settlement),
• listing of “Hepburn Structure Plan Review” 2006 as a reference document at Clause 21.05, and
• deletion of Clause 22.07 (Settlement) retaining some policies and objectives for inclusion in the
revised Clause 21.05
Final Report 9Hepburn Shire Hepburn Structure Plan Review 2007 The planning scheme amendment containing the above documents will then be placed on public exhibition as part of the amendment approval process. 6. REVISED STRUCTURE PLANS AND POLICIES Each of the five towns is different in role, size, landform and other characteristics. The local policy part of the Planning Scheme needs to acknowledge these differences. Each town has a separate identity, history and community aspirations, regarding the future of each of the towns are different. 6.1 Daylesford Township Daylesford had a resident population of 3,415 (combined with Hepburn) at the 2001 census, an increase from 2,883 in 1981. The town had experienced consistent growth both as a permanent and visitor destination over the past 15 years. The number of dwellings increased over the same 20 year period from 1,478 in 1981 to 2,108 in 2001, but many were used only for weekend and holiday accommodation. This trend is an important part of the explanation as to why the population dropped to 3085 in the 2006 census, ie an increasing number and proportion of dwellings are being used for weekends and holidays by owners, or used for accommodation, while more and more permanents are finding it too costly to stay in Daylesford-Hepburn, and are moving outside of the census areas for the two towns. However, going by recent building trends, it is estimated that up to 40 new dwellings will be required in the next 10 years for occupation by this limited growth of 80 mainly part-time residents (estimated 2 persons per dwelling), for which there is ample capacity in existing Residential 1 Zones (see Objective 1 below). Daylesford has a distinctive townscape character with undulating topography, prominent ridgelines and hilltops, lakes and extensive vegetation cover. Daylesford’s’ urban character and cultural landscape is strongly influenced by its heritage buildings and streetscapes, and contributory buildings from an early period of the town’s development, many from the 1850’s. Daylesford’s character is defined by spaciousness between buildings, large house lots, wide road reserves with narrow roadways, extensive native vegetation cover and exotic tree plantings. A Neighbourhood Character Study was completed for Daylesford in 2003. Most of the recommendations of the Study have been implemented in the planning scheme to protect character elements of town precincts. One recommendation in the study was a 600 square metre minimum lot size, thought to be compatible with the prevailing existing lot sizes. However, given that permission may be sought for more than one dwelling on such lots, the Neighbourhood Character policies and overlay controls are recognised methods to avoid overdevelopment of sites and adverse amenity impacts. Daylesford town centre is substantially within the existing Business 1 zone, with a scattering of commercial development to the east and west on the Midland Highway, most blending in with the existing, predominantly residential character. Tourism retailing is now the dominant retail type with cafes, gift shops, galleries and food outlets. Car parking availability is an issue particularly on weekends and holiday periods. The dominance of motor vehicles in Vincent Street can have an adverse impact on the streetscape character and atmosphere of the precinct. Significant views and vistas within and to the outside of the town are available from hills, ridgelines and elevated sites, eg from Cornish Hill lookout to the south. Siting of buildings is important to protect these views in Daylesford’s townscape, and to minimise land disturbance. Wombat Hill provides such vistas, and is a dominant feature of the town. Wombat Hill Gardens, Convent Gallery Final Report 10
Hepburn Shire Hepburn Structure Plan Review 2007
(formerly the Presentation Convent and Gold Commissioners Dwelling); Lakes Daylesford and
Jubilee, constructed during the 1930’s depression, are cultural icons valued by the community.
The guide line for medium density housing has been located to indicate reasonable walking distance
to the town centre, but also to avoid compromising the value of the above features. In discussing
development proposals close to the town centre, the protection of such values, including
Neighbourhood Character, should be of equal influence to the need for special housing.
1. Vision for the Future
The following vision was formulated at the workshops held in Daylesford:
Daylesford is a working and liveable country town, which retains its rural character, both physically
and socially, while respecting its natural environment, and maintaining its sense of place set amongst
the pastoral and forest scenery of the central Highlands. The landforms of ridges and valleys will
continue to dominate the town. It is characterised by a vital social environment, which promotes
diversity, social inclusion and quality of life for its residents. Its urban form is characterised by a
spacious, open country town feel characterised by large lots, diverse accommodation options, wide
tree lined streets and lines of sight, projecting into the rural hinterland.
2. Key Issues
The main points raised during community planning workshops in Daylesford include:
Housing
• Loss of affordable housing.
• Lack of housing options for older members of the community.
• Too many houses and units which are unoccupied during the week.
Lifestyle and Community
• Great diversity of people and lifestyles
• Loss of community values, as lifestyle and indulgence issues are becoming paramount in the
focus of the town.
Employment
• Limited nature of employment opportunities.
• Economic dependence on tourism and hospitality jobs.
Resources and Infrastructure
• Limited water resources, need to encourage more efficient use of water
• Limited sewerage capacity of infrastructure.
Town Character
• Possible erosion of town’s character through inappropriate development (including over-
commercialisation of highways entering into the existing, compact town centre).
• Erosion of an overall feeling of harmony and beauty, sometimes called rural ambience.
• Protection of features including significant view lines, ridge lines, gullies, creeks and tree
coverage, and retention of large lots, preferably over 600 square metres.
• Excessive artificial light pollution, which reduces the ability to see the night sky.
• Need to control height, with some new developments intruding on the town's sky line.
Environment
• Creation and enhancement of corridors for wildlife.
Final Report 11Hepburn Shire Hepburn Structure Plan Review 2007
3. Sustainability Definition
Sustainability, as defined by the residents at the Daylesford community planning workshop, means a
community which:
• Utilises environmental resources for human needs without threatening the long term integrity of
these resources, and preserves the natural landscapes and natural spring sources within the
town and its immediate environs, including gullies, lakes and ridgelines.
• Encourages people to learn together, share knowledge, be creative, innovative, where wide
participation is fostered, and a town which enables a diverse and cohesive community to be
maintained; and
• Provides a variety of businesses, industries and institutions that are financially viable, and
encourage local employment opportunities which have a low environmental footprint.
4. Objectives and Strategies
Objective 1 Achieve a sustainable urban form for Daylesford by containing future development
within the urban growth boundary shown on the Daylesford Structure Plan.
Strategies
• In dealing with proposals, support urban development (including group accommodation) only
within the Urban Growth Boundary shown on the Daylesford Structure Plan, which has space for
at least 200 dwellings in the Residential 1 Zone, in the north-east alone (similar figure in the
south-east), more than ample to meet 5 to 10 year demand for housing.
• Encourage and support residential infill, and medium density housing within the guide lines,
generally a 20-minute walking distance to the town centre as shown on the Plan, while having
due regard for Objective 2 below.
• Ensure development proposals at the interface with public and private forests address the need
to protect habitat, landscape and visual amenity values of forests.
• Ensure development adjacent to the Urban Growth Boundary does not cause an adverse impact
on the visual amenity of the rural hinterland.
Objective 2 Protect and enhance Daylesford’s heritage, landscape and townscape character.
Strategies
• Encourage low rise residential development that protects and enhances the townscape features
of Daylesford, which may include sensitively-designed first floor features, to accord with
Daylesford Neighbourhood Character Study 2002.
• Ensure development protects landscape character and the visual amenity of prominent hilltops
and ridges lines.
• Ensure entry areas on the Ballan Road and Midland Highway, particularly the ‘eastern gateway’,
receive further protection for the streetscapes, which include facades of many heritage and
contributory buildings, and avenue-of-honour trees.
• Ensure development is in keeping with the dominant character of the surrounding built
environment as identified in the Neighbourhood Character Study.
• Ensure new residential development responds to the local context and positively contributes to
the character and identity of the local neighborhood.
• Ensure that new developments within Daylesford are sympathetic to the visibility of church
spires and views of adjoining rooftops.
Final Report 12Hepburn Shire Hepburn Structure Plan Review 2007 Insert map Final Report 13
Hepburn Shire Hepburn Structure Plan Review 2007
• Ensure development adjacent to Wombat Hill, Lake Daylesford, Cornish Hill and Jubilee Lake
does not have a detrimental impact upon the landscape, environmental and townscape
significance of these community icons.
• Ensure proposals for new development and works in the public domain protect and enhance
Daylesford’s heritage and townscape character in terms of design, scale, form and material
composition.
• Encourage development of public art in streetscapes to identify principal streets and to act as
visual markers within the town.
• Discourage light pollution in residential and public areas.
• Reduce vehicular speed in the township with street design, and promote walking and bicycling
as alternate safe means of transport.
Objective 3 Increase housing diversity and affordability
Strategies
• Encourage high quality medium density housing, including for retirees, within central township
area as shown on the Daylesford Structure Plan, as Medium Density Housing Guide Line.
• Ensure new residential developments and subdivisions provide for housing diversity to meet
requirements of different population segments.
• Encourage sustainable retrofitting and renovation of existing housing stock.
Objective 4 Encourage water and energy efficiency in the subdivision of land and in design and
construction of buildings and streets.
Strategies
• Ensure the layout and design of residential subdivisions maximise opportunities for solar
orientation, drainage infiltration and re-use, vegetation retention and landscaping.
• Encourage the use of rainwater tanks and grey water reuse.
• Conserve water in the management of public open spaces by drainage infiltration, water re-use
and water wise local native plantings.
• Encourage the design of new residential areas to incorporate the principles of water sensitive
urban design.
Objective 5 Encourage a greater diversity of economic activity in Daylesford.
Strategies
• Encourage the development of employment generating activities, which reflect the communities’
vision for the town and definition of sustainability, eg new ‘Hepburn House’ aged care facility.
• Ensure a sufficient supply of serviced industrial land is available to meet requirements of
industry and business.
• Encourage the establishment of value added industry and business based on agriculture,
heritage and lifestyle.
• Encourage enhancement of the town centre, to meet demands of retailing, tourism, and small
business.
• Conduct a retail study to find whether the existing Business 1 Zoning is sufficient to serve
genuine need for the foreseeable future, in a compact form, providing the best service to the
community.
Final Report 14Hepburn Shire Hepburn Structure Plan Review 2007
Objective 6 Protect and enhance the compact form and heritage character of the town centre
Strategies
• Ensure new buildings, works and advertising signs protect and enhance the heritage and
townscape character of the town centre, having particular regard to existing building height,
form, scale and mass.
• Ensure that proposed developments interact positively with the adjacent public spaces.
• Support new business development only within the town centre, to protect its viability; in
particular, avoid over-commercialisation of the highway approaches to the existing centre.
• Require all business development to provide parking where it can connect with other parking
areas; investigate possibility of a future Council-initiated parking scheme.
Objective 7 Provide an open space network based on creeks, drainage lines, existing parks and
recreation areas
Strategies
• Develop a linked, accessible and safe public open space network as shown on the Daylesford
Structure Plan.
• Promote pathways and walking trails in new development, which link to public open spaces,
providing connections to key community facilities and icons including Cornish Hill, Wombat Hill,
Lake Daylesford, Jubilee Lake and the town centre.
• Ensure that the management of existing and new open spaces support sustainable plantings,
encouraging indigenous species and water conservation.
Objective 8 Protect and promote local biodiversity.
Strategies
• Encourage the establishment of wildlife corridors in new and existing residential areas and along
the town’s watercourses
• Encourage the planting of a range of native and local indigenous vegetation in new residential
subdivisions and as part of new development.
• Ensure development proposals address the potential impacts on water quality standards and the
natural condition of watercourses, mineral springs, acquifers, existing vegetation, flora and fauna
habitat.
• Encourage the design of new subdivision that retains native vegetation.
• Encourage maintenance of existing remnant tree canopies in the design of new subdivision and
development.
5. Implementation
Implementation will be in (at least) two Planning Scheme amendments. The first will amend the
Municipal Strategic Statement (MSS). The second will introduce new zones, overlays and local
policies.
Municipal Strategic Statement
The Daylesford Structure Plan will be inserted into Municipal Strategic Statement (Clause 21) of the
Planning Scheme. The MSS will also be amended by the inclusion of objectives and strategies for
Daylesford.
Final Report 15Hepburn Shire Hepburn Structure Plan Review 2007
Zones
The Daylesford Structure Plan shows land already suitable for future residential, industrial and
business development within the Urban Growth Boundary, zoned appropriately. Therefore, at this
stage it appears that no land will need to be rezoned. Further investigation and consideration (see
below) may prove otherwise. Any re-zonings would be proposed in a second planning scheme
amendment.
Overlays
Further controls will be needed to protect significant landscapes and vegetation, eg in the gullies
which are to be part of the open space network, and to co-ordinate and plan future residential areas.
Particular attention is required at Ballan Road and Midland Highway entries to ensure that new
development is in character with that existing. These controls will be investigated for the second
planning scheme amendment. (For example, some investigation has already commenced on the
‘eastern gateway’, where Midland Hwy and Trentham Rd meet from the east to become Raglan St,
at Council’s request, referred to in Objective 2 above.)
Local Policies
Where appropriate, local policies will be developed to implement the structure plan objectives and
strategies. New policies for insertion at Clause 22 will be prepared for the second planning scheme
amendment. New policies, some of which would apply to other townships, may be required in
relation to:
• Urban Growth Boundary and Medium density guide line
• Heritage policy
• Discretionary uses in residential zones
• Advertising signs
• Daylesford commercial precinct, parking and traffic
• Vegetation clearing, conservation, biodiversity, and fire risk management in conjunction with
other controls mentioned above
• Residential Infrastructure
• Lighting
Undertaking further strategic work
• In next 5 years, prepare Daylesford/Hepburn Traffic and Transport Management Strategy,
including parking and transport options, as set out in the Transport Connection Project.
• Conduct a retail study to find whether the existing Business 1 Zoning is satisfactory to serve
genuine need for the foreseeable future, providing the best service to the community.
• Use Recreation Needs Strategy report to plan facilities.
Reference Documents
• Daylesford Neighbourhood Character Study 2003
• Hepburn Shire Land Use Strategy: Strategic Directions, RPD Group, March 1999
• Cornish Hill Management Plan 1998
• Daylesford Streetscape Study, September 1996
• Daylesford Township Traffic Management Strategy, October 1996
• Daylesford and Hepburn Springs Conservation Study 1985
Final Report 16Hepburn Shire Hepburn Structure Plan Review 2007 6.2 Hepburn Springs Township The population of Hepburn Springs in 1996 was 1,129 increasing to about 1180 by 2001. New house and residential subdivision approvals have been consistent for many years, although the 2006 Census indicates a slight decrease from the 2001 one. There are still opportunities for infill housing, tempered by the desire to retain town character. Opportunities for larger scale residential subdivisions are limited to two areas to the north of the structure plan. These infill areas should cater for dwellings that may be required for Hepburn’s share of up to 80 mainly part-time residents in the next 10 years (as estimated with Daylesford in 6.1 above). Council’s depot in Hepburn Springs, Main Road, between Radium Road and Fourth Street, is likely to wind down in about three years, and will become available for residential development. An environmental audit has been carried out (Sinclair Knight Merz, June 2007), and the site has been found free of ground water contamination. An accredited EPA auditor must oversee any sale and any development of the site. There are significant development constraints including steep slopes, bushfire risk, and dense tree cover. The townscape character is defined by the forest backdrop, undulating landform, the town’s ridgelines, gullies and native vegetation cover. Siting and design of new development are important issues in terms of protecting the town’s character. The creek gullies, mostly managed by the Dept of Sustainability and Environment, provide walking trail links to different parts of the town, forest and to Daylesford. Hepburn Springs has a significant gold mining history. The town has developed around the mineral springs which was set aside as a reserve in 1867. Hepburn Springs is the heart of the Victorian Spa Country. The town’s mineral springs and spa resort are a major attraction for tourists and visitors. Under major renovation, it is set to re-open early-to-mid-2008. Many new houses have been built as holiday houses or bed and breakfast accommodation; however, the town remains predominantly residential, also providing accommodation and services to visitors. The spa resort, accommodation and hospitality businesses are important components of the local economy. Hepburn Springs no longer has a strong physical separation from Daylesford, and the edges between the two towns are now less defined. Rigorous implementation of the existing Design and Development overlay controls on properties between them should allow some development, while retaining/enhancing the visual separation with setbacks, vegetation retention and landscaping. In any case, the two towns have a close cultural relationship, and proximity to Daylesford means Hepburn Springs is able to sustain more tourism retailing than would be possible for other towns of its size. Many of the important heritage buildings in Hepburn Springs are from the Edwardian era. Major reconstruction of the town occurred following the 1906 bushfire, which destroyed much of the town. Two significant heritage buildings, the old Marconi factory and Villa Parma are two examples of architecture by Swiss-Italian migrants from the pre-gold-rush era. 1. Vision for the Future The following vision was formulated at the workshops held in Hepburn Springs. Hepburn Springs maintain is to retain its rural village atmosphere. This is characterized by its human scale, tree cover, safety, social diversity, and its close connection with the surrounding forest, to maintain its unique sense of place. The town is known as a popular tourist destination, which emphasises the natural environment and its innovative approach to environmental management. Final Report 17
Hepburn Shire Hepburn Structure Plan Review 2007
Its urban form is characterised by a diversity of lots, range of accommodation options, and wide tree-
lined streets, slow traffic speeds, and lines of sight projecting into the surrounding forest, and then to
rural hinterland.
2. Key Issues
The main points raised during community planning workshops, in regard to which issues needed to
be addressed by a structure plan in Hepburn Springs include:
Town identity and a character
• Role of local icons such as the Hepburn spa and pool, and access to these icons
• Village environment characterized by its human scale (and large lots)
• Cultural and physical character which is distinct from Daylesford
• Need (or not) for a central physical focal point in town
• Need for development of a farmers market
• Light pollution reducing ability to see the night sky
Housing
• High proportion of vacant single dwellings (absentee owners or cottages for accommodation with
low occupancy rates).
• Lack of housing options for older members of the community
• Affordable land and housing
Town centre
• Fragmented nature of commercial development in Hepburn Springs
• Need for businesses to provide employment for locals and development of services such as a
community bank, chemist, doctor, kindergarten support
Landscape and environment
• Ridgeline protection within the confines of Hepburn Springs and views out of town boundaries,
which define the sense of place and landscape setting
• Gully and creek protection
• Creation of corridors for wildlife
• Fire management to reduce risk of wildfire in and around town, especially along gullies
Transport and Infrastructure
• Improve pedestrian and cycling access and facilities within town and linkages between old
Hepburn” and “New Hepburn”.
• Traffic Reduction and Speed Limits
• Inadequacies in infrastructure, particularly limited water resources and a need to encourage low
water use
• Improve drains, with swales or kerb and channelling with swales
3. Sustainability Definition
Sustainability, as defined by the residents at the Hepburn Springs community planning workshop,
means:
Final Report 18Hepburn Shire Hepburn Structure Plan Review 2007
• A community which utilises environmental resources for human needs without threatening the
long term integrity of these resources, and preserves the natural landscapes within the town and
its immediate environs
• A place where people learn together, share information and knowledge, are creative and
innovative, and where wide participation and involvement is fostered; diversity, social cohesion
also nurtured
• A community which enables people to feel empowered and take responsibility based on a
shared vision, equal opportunity, ability to access expertise and knowledge for their own needs;
and which builds and maintains public infrastructure and social capital
• A variety of businesses, industries and institutions that are financially viable and encourage local
employment opportunities, which have a low environmental impact.
4. Objectives and Strategies
Objective 1 Achieve a sustainable urban form for Hepburn Springs by containing future
development within the urban growth boundary shown on the Hepburn Springs
Structure Plan.
Strategies
• In dealing with proposals, support urban development (including group accommodation) only
within the Urban Growth Boundary shown on the Hepburn Springs Structure Plan, which shows
opportunities for at least 50 dwellings, the estimate required for permanent full-time residents for
the next ten years.
• This should be in the form of residential infill in the northern areas, and medium density housing,
including for the elderly, within and around the activity precinct as shown on the Hepburn
Springs Structure Plan.
• Ensure development proposals at the interface with public and private forests address the need
to protect habitat, landscape and visual amenity values of those forests.
• Integrate land use and transport planning, and increase opportunities for walking and bicycling.
Objective 2 Protect and enhance Hepburn Springs’s heritage, landscape and townscape
character.
Strategies
• Ensure future development is in keeping with the Hepburn Springs character, including its village
form, forest and bushland setting, and significant native vegetation cover.
• Ensure proposed buildings and works minimize alteration to landform and native vegetation.
• Ensure that new developments within Hepburn Springs retain the visual qualities of ridgelines
and views of adjoining rural hinterland and forested areas.
• Protect and enhance major townscape elements of key community icons such as Hepburn
Springs Reserve.
• Promote development of public art in streetscapes to identify principal streets and to act as
visual markers within the town.
• Ensure proposals for new development and works in the public domain protect and enhance
Hepburn Springs’s heritage and townscape character in terms of design, scale, form and
material composition.
• Discourage light pollution in residential and public areas.
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