21.04 LAND USE. Managing amenity through land use strategies

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1 21.04 LAND USE This section contains objectives and strategies for land use, under the themes of: Housing and community Retail, entertainment and the arts Office and commercial use Industry Education and hospitals The City of Melbourne has put much energy and commitment intro reversing previous population losses and the number of residents is increasing significantly. It is important to maintain this momentum and continue to take advantage of current opportunities for residential growth, as well as to attract people from a diversity of backgrounds, including families, students, the elderly and children. Like all modern cities, Council must also respond to increasingly complex social needs and issues and encourage collaboration among all sectors of the community, including government and the development industry, to respond to these needs. It must also ensure that Melbourne continues to be a safe, accessible and welcoming City. In response to the increasing number of residents who live in the municipality, and the number of visitors, workers and tourists, there are substantial opportunities to build on the arts, cultural tourism, sporting facilities, and other leisure activities. The ability to keep pace with, and capitalise on, global market development will be vital in determining which cities and regions are successful in the 21st century. The City s science, education and technology capabilities provide a platform for this. While Central City retailing remains strong and is the State s pre-eminent retail centre, strategies need to be developed and implemented to maintain and build on this role. It is also important to attract more office development to the municipality and to maximise employment opportunities. Managing amenity through land use strategies Amenity is a key priority of the City. It must be managed and enhanced in a way which ensures quality of life for existing and future residents. However, the type of amenity achieved will vary in different parts of the municipality. Land uses influence the sort of amenity experienced by residents and visitors to the municipality. The presence of business, retail and entertainment uses can create active and vibrant areas with good access to services and facilities, but could also mean increased noise from the operation of businesses, on-street parking impacts, and impacts from signs, lighting and odours. The intention of the Municipal Strategic Statement is to identify the amenity expectations and standards for both residential and non-residential uses in the different parts of the City. Table 3 - Land Use Amenity Principles sets out the amenity standards and expectations for the various zones in the City. Table 3 addresses: noise, odour, lighting, signage, traffic and parking. Strategies that address the effects of built form on amenity, for example, overshadowing and privacy, are addressed in Clause City Structure and Built Form. The Land Use Amenity Principles in Table 3 have been incorporated throughout the Municipal Strategic Statement and the Melbourne Planning Scheme. Development and Policy should be consistent with these Principles. MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

2 Table 3: Land Use Amenity Principles ZONE Residential Zones (except Mixed Use Zone) LAND USE AMENITY PRINCIPLES Maintain the highest standards of residential amenity. In appropriate locations, to allow educational, recreational, religious, community and a limited range of other non-residential uses to serve local community needs. 1 Ensure that responsibility for management of operational impacts such as traffic, parking, odour, light spill, signage and noise falls upon the agent of change, to minimise impacts on the neighbourhood. All new dwellings immediately adjacent to a Road Zone, railway line or existing noise generating use should consider acoustic attenuation measures. Mixed Use Zone & Business 5 Zone To provide for a range of residential, commercial, industrial and other uses which complement the mixed-use function of the locality. Ensure that responsibility for management of operational impacts such as traffic, parking, odour, light spill, signage and noise falls upon the agent of change, to minimise impacts on the neighbourhood. Ensure that all new residential uses have appropriate acoustic attenuation measures. Business Zones (except Business 5 Zone) Public Use, Capital City and Docklands Zones Industrial Zones New residential development in these zones needs to acknowledge and manage off-site impacts. Ensure that all new residential uses have appropriate acoustic attenuation measures. Residential amenity in the Capital City and Docklands Zones is not comparable to that of residential zones, and residential use and development in these zones must not compromise the other purposes and functions of the Central City and Central Activities District. New residential use and development in these zones needs to acknowledge and manage off-site impacts including appropriate acoustic attenuation measures. New residential development close to existing industrial zones needs to acknowledge and manage off-site effects caused by these industrial areas. An Environmental Management Plan should be developed for all new industrial uses Housing and community Melbourne s population is growing The municipal population has increased from 31,596 residents in 1992 to 52,117 in The City s population is forecast to reach 94,036 by Managing residential growth in a sustainable way is a key issue for the City of Melbourne. 1 Refer to Clause Discretionary Uses in the Residential 1 Zone Local Policy for further guidance on non-residential uses in the Residential Zone. MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

3 Protecting residential amenity In the Residential 1 & 2 Zones, protecting and enhancing residential amenity is an important consideration. High standards of on-site amenity should be provided in all residential developments including access to sunlight and daylight and privacy. The effects of residential developments on their residential neighbours should also be considered. These aspects of amenity are addressed in Clause Built Form and City Structure. In areas zoned Capital City, Docklands, Business and Mixed Use, residential development needs to take into account the amenity impacts of established and potential uses, including noise impacts and lightspill, and take protective steps to minimise these impacts on future occupants. High standards of residential amenity with respect to residential building design and construction, which address issues such as access to sunlight, overlooking, open space and noise, need to be provided in all areas of the City. Housing opportunities The City of Melbourne offers a considerable range of opportunities for new housing development. The degree of opportunity varies generally from area to area dependent on existing local characteristics, particularly the built form and character of areas. Within the municipality, some areas can absorb higher density housing without threat to their existing valued character, while in others (eg. intact heritage streetscapes), housing development must be restricted to sensitive infill. Figure 5 indicates the different areas where housing opportunities are identified. Within the municipality, Docklands, Southbank (north of City Link) and the Central City will over the next ten years be areas that accommodate the most significant population growth. Other areas such as St Kilda Road and parts of Southbank, Carlton and North and West Melbourne will also accommodate increased population growth to varying degrees. There are some stable areas which will experience minimal change, such as South Yarra, parts of Parkville, Carlton, East Melbourne and Jolimont. Other parts of Carlton and West Melbourne will accommodate increased population growth to varying degrees. Housing diversity The inner city housing market is not adequately providing for low to moderate income households and there is a growing need for low cost accommodation and social housing across the municipality. Provision needs to be made for a diverse range of housing types and tenures to cater for the City s varied community. As the population ages, disabilities are becoming more prevalent and a wider range of housing is required. Provision needs to be made for housing that can be adapted to cater for people with disabilities and older persons when the need arises. This means that housing can cater for the needs of residents at various stages of their lives. Accessibility, visitability and adaptability reduce social isolation, exclusion and discrimination. The contribution of residential development Residents are central to the vitality and liveability of the City. More people living within the City leads to an increase in, and diversity of, activity throughout the day and night, enhances safety, and ensures efficient use of services and infrastructure. Increased residential development contributes to the overall urban consolidation objectives outlined within the State Planning Policy Framework. MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

4 Objectives and strategies The objectives and strategies set out below must be read in conjunction with Figure 5 Housing Opportunities, the objectives and strategies in other parts of this MSS especially Clause City Structure and Built Form and Figure 10 - Built Form Character, and the detailed Implementation Strategies set out in Clauses (Local Areas). MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

5 FIGURE 5: HOUSING OPPORTUNITIES MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

6 1. To provide for new housing while preserving the valued characteristics of the City s neighbourhoods. 1.1 Increase housing densities and the number of dwellings in a sensitive and sustainable manner. 1.2 Encourage new housing development in identified locations as identified in Figure Encourage the most significant housing and population growth in the Central City, Docklands and Southbank (north of City Link) as identified in Figure Encourage increased housing and population growth to varying degrees in St Kilda Road, and parts of Southbank, Carlton and North and West Melbourne as identified in Figure Limit housing and population growth in the residential areas of South Yarra and in parts of Parkville, Carlton, East Melbourne and Jolimont, North and West Melbourne as identified in Figure Discourage housing where it will undermine the viability of existing industrial and port uses. 2. To ensure new dwellings are located and designed to protect residents from off-site amenity impacts. 2.1 In the Capital City, Docklands and Business Zones, ensure residential development takes into account the amenity impacts of established and future uses, including noise impacts, and provides acoustic insulation in dwellings to protect future occupants. 2.2 Encourage consideration of acoustic attenuation measures in dwellings that adjoin or are located close to the Capital City Zone, Docklands Zone, or Business Zones, or are in the Mixed Use Zone. 2.3 Encourage all residential developments adjacent to industry, rail corridors and major roads to provide acoustic insulation in dwellings to protect future occupants. 3. To ensure the amenity of existing residential uses is protected. 3.1 Ensure that the reasonable expectations of amenity for existing residential uses are maintained. 3.2 Ensure that high standards of residential amenity are achieved with respect to building design and construction including access to sunlight, overlooking, overshadowing. 4. To support a diverse range of housing tenures, types and options to meet the housing needs of the community. 4.1 Support the establishment of housing for older people close to public transport, facilities and other services. 4.2 Support the provision of affordable, safe and well designed and managed student housing in locations with good access to public transport, services and tertiary education facilities. 4.3 Support the provision of well-designed and managed affordable housing, social housing, crisis accommodation and rooming houses. 4.4 Support the development of well-designed and managed tourist accommodation close to major visitor attractions in the Central City and Docklands. 5. To ensure new residential developments contribute to the social and physical infrastructure of the City. MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

7 5.1 Ensure that in areas where a new built form character is sought, new residential development adds to the vitality, amenity, comfort and safety of the area and its residents, and ease of access for pedestrians. 5.2 Support the provision of facilities and services for residents, including convenience retail and community facilities in new developments Retail, entertainment and the arts Central City Retail Core The retention of a vibrant and successful Retail Core is an important component of Melbourne s Capital City functions. There is a critical need for rejuvenation and reinvestment to maintain and enhance the Retail Core as a world class shopping district while respecting the character and heritage of its buildings and lanes. Cultural vitality Melbourne has a reputation as a culturally vibrant City and is well known for its eating establishments, food markets, performing and visual arts, museums, historic places, exhibitions, sport, shopping, major events and festivals, and other entertainment. Key facilities include those within the Sports and Entertainment Precinct, the Arts Precinct, the Melbourne Convention Centre, Flemington Racecourse, as well as the other sports facilities, arts colleges and performance spaces throughout the City. The Central City and neighbourhoods such as Carlton offer substantial entertainment attraction for Melburnians and visitors. Protecting local retail A proliferation of eating and entertainment uses should not threaten the localised character and range of services offered in the City of Melbourne s local shopping streets. MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

8 FIGURE 6: BUSINESS, RETAIL, ARTS & ENTERTAINMENT MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

9 Objectives and strategies The objectives and strategies set out below must be read in conjunction with Figure 6 - Non-Residential Uses Business, Retail, Entertainment and Arts, Figure 10 - Built Form Character, and the detailed Implementation Strategies set out in Clauses (Local Areas). 6. To support the Central City and local retail uses. 6.1 Support the retention and enhancement of a world class retail experience within the Retail Core, by supporting land uses and a built form which sustains this experience. 6.2 Enhance the viability, diversity and vitality of local retail centres. 6.3 Support local shops and services which primarily serve the surrounding community in Mixed Use Zones and shopping streets. 6.4 Manage the balance of the local and regional tourism roles of Lygon Street in Carlton. 6.5 Ensure that a proliferation of eating and entertainment establishments do not threaten the local retail function of all shopping streets outside the Central City and Docklands. 6.6 Encourage the provision of local shops and services which serve the emerging residential community in the Central City, Southbank and Docklands. 7. To provide a diverse range of leisure, cultural and entertainment facilities and enhance the City as Victoria s pre-eminent cultural and entertainment location. 7.1 Support and encourage the growth of a vibrant cultural environment in the Central City, Southbank and Docklands, by supporting entertainment uses and the arts. 7.2 Support entertainment and cultural attractions in Business and Mixed Use Zones, where consistent with the Amenity Principles. 7.3 Support quality public institutions, including art galleries, libraries and museums, throughout the municipality, where consistent with the Amenity Principles. 7.4 Support the City s major sports facilities and parks in recognition of their national significance. 7.5 Promote the Docklands waterfront as a tourism and leisure destination of State significance Office and commercial use Office development The Central City is the prime location for business, and along with the St Kilda Road commercial area, is of state significance. As development in Docklands gains momentum, a State significant business role is emerging there. Areas zoned Mixed Use and Business around the Central City have traditionally provided locations for business activities which support Capital City functions. These areas are under increased pressure for housing, and it is important to ensure their ongoing functioning and viability as business areas which serve both local community needs and the Capital City. MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

10 Growing innovative businesses Innovation in business is vital to maintaining Melbourne s economic vitality. In Business and Mixed Use Zones, emerging innovation sectors such as biotechnology and information technology are supported to assist in creating a globally competitive and innovative Capital City. Objectives and strategies The objectives and strategies set out below be read in conjunction with Figure 6 Nonresidential Uses Business, Retail, Arts and Entertainment, Figure 10 - Built Form Character Map, and the detailed Implementation Strategies for Local Areas set out in Clause To reinforce the City s role as Victoria s principal centre for commerce and professional and innovative business and financial services. 8.1 Support the Central City s role as a principal centre for commerce, professional, business and financial services, and encourage new and innovative business that takes advantage of the Central City s location. 8.2 Support the development of Docklands as a vibrant business and retail area complementary to the Central City, and enhancing its Capital City function. 8.3 Support the consolidation of St Kilda Road as a vibrant office and high density residential district. 8.4 Support the development of globally competitive, sustainable industry and business clusters in identified locations. 8.5 Support improved links between City businesses and tertiary institutions, research and development organisations and training institutions. 8.6 Support Melbourne as a gateway for biotechnology and commerce in Australia and the Asia Pacific. 8.7 Support the development of a diversity of incubators and facilities catering for innovative business sectors. 8.8 Support the provision of facilities and services that respond to the changing and diverse needs of residents, visitors and workers. 9. To encourage employment opportunities for local residents. 9.1 Encourage a diversity of small to medium enterprises in the Central City, Docklands and Business Zones and in areas zoned Mixed Use. 9.2 Support the development of home based businesses, consistent with maintaining amenity in Residential and Mixed Use Zones. 9.3 To ensure the nature and intensity of office and commercial activity is appropriate to its location. 9.4 Encourage a mix of commercial and business support and services close to the Central City in identified parts of Southbank, South Carlton, East Melbourne, Jolimont and North and West Melbourne (identified in Figure 6). 9.5 Ensure that all new office and business uses manage off site impacts such as noise, traffic generation and parking consistent with the Amenity Principles. 9.6 Support business uses that provide services to the local community in Residential and Mixed Use Zones, only where consistent with the Amenity Principles. MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

11 Advanced manufacturing and industry Opportunities in advanced manufacturing In recent times, there has been substantial change in the manufacturing sector with many manufacturing uses in the inner City areas relocating to areas on the periphery of Melbourne. However, the City of Melbourne offers certain locational and access advantages, particularly for high technology uses. Many existing industries have readjusted, becoming cleaner advanced manufacturing entities, and new advanced manufacturing and research industries have emerged in the municipality. These industries need to be recognised, protected and supported. Protecting industry and residents Industries can affect the amenity and environment of nearby sensitive land uses, especially residential areas. There is increasing tension between industry and surrounding residential areas due to traffic, noise and other issues. Industries need to work towards the highest standards of environmental management practice, and should also be protected from the encroachment of residential uses. Objectives and strategies The objectives and strategies set out below must be read in conjunction with Figure 7 Advanced Manufacturing and Industry and the detailed Implementation Strategies for Local Areas set out in Clause MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

12 FIGURE 7: ADVANCED MANUFACTURING AND INDUSTRY MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

13 10. To improve the long term sustainability and security of the City s industries Support the development of Port Melbourne (Fishermans Bend) as the preferred location for clean, high profile, value added advanced manufacturing, research and development, and ancillary services Support the ongoing function of the Port of Melbourne (administered by Port of Melbourne Corporation) as Australia s leading container port, and associated industries Support the ongoing function of National Rail Terminal and the redevelopment of the Dynon Rail Hub to support Port Melbourne (Fishermans Bend) and Port of Melbourne by better integrating port operations with the rail network Facilitate the growth of industry in identified parts of Kensington, West Melbourne Industrial Area and in West and North Melbourne Limit the development of commercial and retail uses within Port Melbourne (Fishermans Bend) which are not ancillary to industrial use. 11. To encourage industries to adopt the highest standards of environmental management practice Encourage all industries to adopt Environmental Management Plans and ensure new industrial uses incorporate measures to minimise noise and environmental impacts Ensure that the appearance and operation of transport, manufacturing, wholesale and distribution industries do not adversely affect the amenity and physical condition of the public environment and minimise impacts on the surrounding road network Knowledge and Innovation Medical Hospitals and health care facilities provide significant medical services including trauma facilities (some with 24 hour emergency helicopter access) but also act as teaching and research hospitals, contributing to the knowledge function and Capital City role of the City of Melbourne. There are a large number of supporting uses such as doctors and specialist suites, medical support services and medical clinics located close to the hospitals. Education The City has a national and international profile as a location for excellent education facilities and opportunities. The presence of the Universities of RMIT and Melbourne, the City campuses of other Universities, and TAFE institutes and colleges, makes Melbourne a Knowledge City. A large local and overseas student population contribute to Melbourne s economy, as well as add to the City s cultural diversity and vitality. Further, the linkages of these places of learning with industry, business and other institutions, such as hospitals, provide a strong foundation for Melbourne s future growth and success in the global economy. Strength in biotechnology and research One of Victoria s greatest strengths in biotechnology capability is the co-location of key education, hospitals, and industry in a number of precincts of research excellence. These MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

14 precincts, including Parkville and the Alfred (and others), provide for a focal point for sharing resources and the exchange of ideas. 2 The Council s Towards a Knowledge City Strategy (2002) has identified the need to consolidate and link the education and training nodes in the Central City. The strategy identifies an existing cluster based around RMIT in the north of the Central City and two emerging clusters near Flinders Street and Spencer Street Stations. Docklands contains a technology based precinct - Comtechport as well as TAFE facilities. Managing off-site impacts Many institutions are located on existing sites with significant infrastructure investment and have potential for expansion. However, redevelopment is often difficult given site conditions and the land use and built form of surrounding areas. While supporting these uses is a priority issue, institutions need to sensitively manage redevelopment of their built form interface within adjoining areas (especially residential areas with heritage significance and parklands). Such uses also need to manage any off-site impacts such as car parking and traffic so as to preserve the character and amenity, including visual amenity, of neighbouring areas. Objectives and strategies The objectives and strategies set out below must be read in conjunction with Figure 8 Non-residential Uses Knowledge and Innovation, Figure 10 Built Form Character, and the detailed Implementation Strategies for Local Areas set out in Clause Biotechnology Strategic Development Plan for Victoria, Department of State and Regional Development, 2001 MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

15 FIGURE 8: KNOWLEDGE & INNOVATION MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16

16 12. To support education, medical, and research activities Support and enhance advanced education and promote growth in Melbourne s tertiary education services, whilst protecting the amenity of Residential and Mixed Use zoned areas and the heritage values of areas with cultural heritage significance, consistent with the Amenity Principles Support the operation of the City s hospitals and their intensive care trauma facilities and capacity Support the clustering of hospitals and their continued operation and development in their current locations Support greater interaction and collaboration between education and medical institutions, research and development establishments, the business community and industry by promoting the linkage of tertiary education campuses with surrounding technology or activity clusters compatible with the amenity of existing residential uses and areas of heritage significance Discourage uses or development near hospitals that prejudice public safety or risk reducing the efficiency or safe delivery of acute health care, trauma and emergency services (including 24 hour emergency helicopter access) Ensure that all new knowledge and innovation uses manage off site impacts such as noise, traffic generation and parking. 13. To ensure a high standard of soft infrastructure 3 to support innovative activity and education Support accommodation, services and facilities which serve and attract a highly skilled labour pool Support the provision of facilities and services for students and researchers Support affordable accommodation options for students. 14. To encourage research and development uses throughout the City Encourage research and development uses throughout the municipality Encourage research and development activity clusters, including biotechnology uses, throughout the municipality as identified in Figure 8. 3 Soft infrastructure can be described as cultural activities, high quality housing and its surrounds, a labour force, and networks which facilitate an innovative economy. MUNICIPAL STRATEGIC STATEMENT - CLAUSE OF 16