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Yarrambat Township Plan Project

Issues and Options PaperApril 2014

Executive summaryThis issues and options paper will provide a basis for consultation leading to the preparation of a Yarrambat Township Plan and associated planning scheme amendments.

From issues identified in background reports, it outlines a range of issues and associated implications across themes of housing, social needs, service infrastructure, transport and mobility, economic factors, and environmental factors.

A critical contextual factor affecting the issues and options in Yarrambat is the township’s location within the green wedge and in close proximity to rapidly growing residential areas to the north.

Key questions for Nillumbik Shire Council in considering the future of Yarrambat 'township' are whether it should remain as it is currently, whether it should grow a little to accommodate identified needs of the local community, or should look to meet the needs and to capitalise upon economic opportunities presented by communities in the adjoining growth corridor.

In addressing these questions a key issue is to consider is the extent of economic development desirable in maintaining the required character of Yarrambat 'township'.

State and local planning policy set out in the Nillumbik Planning Scheme provides further context for the issues and options identified, recognizing Yarrambat’s green wedge location and semi-rural character, acknowledging some of the challenges facing Yarrambat, and setting out associated objectives and strategies for the future.

Key, issues identified include:

The high level of traffic carried by Yan Yean Road given its function as a major connector between growth areas to the north and established areas to the south. This creates and influences safety issues associated with speed and turning lanes, poor connectivity between the east and west sides of Yarrambat, and lacking pedestrian and cycling facilities.

Yarrambat has an ageing population which raises issues in relation to the township's lack of housing diversity, and the inability to provide greater diversity given the restrictive planning controls currently in place.

The township is not connected to reticulated sewerage, given its location outside the Urban Growth Boundary, and there are no current plans to provide such infrastructure by the sewerage authority. This affects options for further development and investment in Yarrambat and raises the issue of how any such upgrades can be funded. A similar issue exists in relation to potable water supply in that infrastructure would require upgrading to accommodate additional growth of the township.

Whilst services and facilities in Yarrambat have benefited from strong demand from nearby urban growth areas, commercial activity is limited due to the absence of any commercially zoned land and the limited opportunities allowed in the Low Density Residential Zone. Local residents must travel to meet their retail and service needs.

There is a lack of opportunity for incidental social interaction in Yarrambat. Both physical improvements and facilitating additional opportunities for residents to recreate, socialize and gather could address this issue.

There are implications associated with each issue and emerging from this are a number of options for responding to these issues.

Options range from physical improvements within the township core to improve mobility and opportunities for incidental social interaction, to regulatory change aimed at addressing issues associated with a lack of housing diversity.

In the context of preparing and undertaking consultation in relation to the new Yarrambat Township Plan, there are a number of questions or matters that emerge from the identified options and require further thinking and discussion. These questions relate to both detailed considerations about matters such as where and what specific physical improvements should occur, through to overall questions such as what role Yarrambat should play in servicing the nearby residential growth areas.

1 IntroductionThis Issues and Options Paper forms part of a body of work leading towards the preparation of a Yarrambat Township Plan and associated amendments to the Nillumbik Planning Scheme.

The current structure plan for Yarrambat was prepared in 1993 and was last updated in 2000.

Council’s Green Wedge Management Plan, prepared in 2011, identified the need for a new plan for the township (Action 2.1 p49).

A priority action in Council’s Economic Development Strategy 2011-2016 is to ‘ ensure that any review of the Planning Scheme and the development of Township Strategies, considers existing impediments to sustainable economic development and appropriate tourism related activity in rural areas, and identifies land for the potential establishment of additional light industrial activities'.

The Township Plan Project proposes to identify a preferred future role for the Yarrambat 'township' and to provide an appropriate strategic plan to facilitate that role.

The overall study area for the Township Plan Project is shown in Figure 1, outlined in red. This area extends north along Yan Yean Road to the southern boundary of the Yarrambat Park Golf Course, south to North Oatlands Road and the southern boundary of the Yarrambat Primary School, west to the rear of properties fronting Yan Yean Road, and a staggered boundary to the east of Yarrambat Memorial Park and the east west sections of Youngs Road and Ironbark Road.

Within this study area, outlined in blue, is the township core where most of Yarrambat's services and facilities are located, along the north and south sides of Ironbark Road, to the east of Yan Yean Road.

A range of background reports have been prepared in a preceding stage of the project, as follows:

Yarrambat Structure Plan Traffic and Transport Study, prepared by GTA Consultants (December, 2013).

Yarrambat Structure Plan Project: Biodiversity Study, prepared by Indigenous Design Land Management (August, 2013).

Yarrambat Structure Plan Project Heritage Assessment Report, prepared by Samantha Westbrooke (October, 2013).

Residential Role and Function Analysis - Yarrambat, prepared by .id (August-September, 2013).

Yarrambat Township Plan Social Needs Analysis, prepared by Capire (January, 2014).

Yarrambat Site & Neighbourhood Context Assessment, prepared by Hansen Partnership (December, 2013).

Also prepared and obtained as part of the Township Plan Project, and referred to within this Paper are the following:

Advice from Yarra Valley Water to Council (dated December, 2013) providing preliminary servicing advice in relation to Yarrambat; and

Property and land use survey data extracted and compiled by Nillumbik Shire Council from its GIS/property database.

In addition, several other background reports provide relevant context and background information to the project, including the Nillumbik Activity Centres Review, prepared by SGS Economics and Planning (November, 2002); the Economic Input to Planning Scheme Review, prepared by Essential Economics (October, 2009); the Economic Analysis of Eltham MAC, prepared by SGS Economics and Planning (October, 2012); and the Industrial Land Strategy Draft Report, prepared by SGS Economics and Planning (June, 2013).

The purpose of this Issues and Options Paper is to provide a base document for consulting with the Yarrambat community about the future of the township.

From a synthesis of the information contained in the background reports, this paper identifies a range of issues relevant to future planning for Yarrambat, and provides options for responding to the issues. These are set out under broad themes of housing, social needs, service infrastructure, transport and mobility, economic and environmental.

The Growth Corridor

A critical factor influencing many of the issues facing Yarrambat is its proximity and position relative to the northern growth corridor (see Figure 2), an area which is expected to accommodate an additional 137,000 people by 2031.

Yan Yean Road provides a major north-south connection between the established urban areas to the south and the growth areas to the north. It is operating at or close to capacity during peak periods and this causes a range of issues for Yarrambat which are expected to be exacerbated given continuing population increase in the growth areas.

The demand for services and facilities in Yarrambat from the people living in the growth areas has been strong in recent years. This demand ranges from the primary school to sporting clubs and the use of the Memorial Hall for recreational activities and has assisted with their ongoing viability.

The proximity of the rapidly growing population and the associated demand for services and facilities within the growth areas also suggests there could be a range of potential opportunities for investment and economic development in Yarrambat.

2 Background reports

2.1 traffic and transport study

The Yarrambat Structure Plan Traffic and Transport Study, prepared by GTA Consultants (December, 2013) outlines the existing conditions, issues and opportunities with regard to traffic and transport in the township core.

The issues identified in the Traffic and Transport Study are broken into the themes of pedestrian movement, bicycle network, public transport, road network, and car parking.

Yan Yean Road, and in particular its physical condition, major north-south connector role and high volume of traffic, is a common factor amongst many of the issues identified in the Study, as detailed in Chapter 4 of this paper.

2.2 biodiversity study

The Yarrambat Structure Plan Project: Biodiversity Study, prepared by Indigenous Design Land Management (August, 2013) summarises the findings of a desktop assessment of a number of data sources (maps, biodiversity records, previous reports). An analysis of the data sources was undertaken to identify any species, habitat or other notable environmental values.

The Study found that, overall, the area has limited biodiversity attributes and that retained native vegetation provides more of an ‘amenity’ value than contributing to biodiversity values.

2.3 yarra valley water advice

Yarra Valley Water provided preliminary advice to Council in December 2013 which responded to questions about the capability and state of sewerage infrastructure and plans or options for future improvements.

The advice confirmed that, except for the primary school, the township is not connected to reticulated sewerage and there are no plans for this given that Yarrambat is located outside of the Urban Growth Boundary.

In order to service the township with reticulated sewerage, a main and pump used by Primary School (the Ironbark Road Sewage Pump Station) would need to be upgraded, in addition to replacement or duplication of the Mernda-Doreen to Diamond Creek transfer main.

Two options for connecting the township and surrounding area to reticulated sewerage are outlined in the Yarra Valley Water advice, both of which involve a combination of gravity and pressure systems and would require private funding.

Servicing the township core would involve installation of a gravity sewer along Ironbark Road, connecting to the existing Ironbark Road Sewage Pump Station. This would allow

properties on the south side of Ironbark Road to be serviced by gravity and require properties on the north side to have on site pressure pump units.

2.4 heritage assessment

The Yarrambat Structure Plan Project Heritage Assessment Report was prepared by Samantha Westbrooke Pty Ltd (October, 2013).

There is registered Aboriginal cultural heirtage present in Yarrambat and a Cultural Heritage Management Plan would be required if a high impact activity is proposed within 50 metres of that heritage.

In relation to post-settlement heritage, the report notes the historical significance of the township as an early settlement within the Shire of Nillumbik, and the inclusion of the St Michaels Church within a Heritage Overlay. Commercially and socially it notes that the centre of the township has been, and continues to be, along Ironbark Road.

The report identifies four sites as being of potential heritage significance – Memorial Park, Eltham and District Woodworkers Building (Ironbark Road), War Memorial Hall (Ironbark Road) and the Yarrambat Store Residence (Ironbark Road).

2.5 social needs

The Yarrambat Township Plan Social Needs Analysis, prepared by Capire (January, 2014) documents an analysis of the current and future services and facilities required in Yarrambat.

Whilst concluding that existing services and facilities are meeting demand, and are expected to meet demand for the next 5-10 years, the report highlights a number of issues associated with opportunities for social interaction, a lack of public transport, an ageing population, and a lack of housing diversity.

The report makes recommendations in response to the key findings of the analysis and the associated implications. These address considerations for the preparation of the Township Plan, and community building considerations addressing issues such as opportunities for social interaction, ageing in place, and assessing demand for improved public transport.

2.6 residential role and function analysis

The Residential Role and Function Analysis - Yarrambat, prepared by .id (August-September, 2013) identifies a number of features of Yarrambat's population and housing particularly relevant to future planning for the township.

It is important to note that, whilst still providing valuable and relevant information and analysis, the report uses Census data collected from a wider geographic area than the township core and overall study area.

Key features identified include the following:

The population of Yarrambat in 2011 was estimated to be 1512 people, which is 46 less than in 2006 but 99 more than in 2001.

The population is very stable with two-thirds having lived in the area for more than 5 years.

There is a dominance of mature families with older children and emerging empty nesters whose children have left home.

The population aged 65+ is projected to increase from 11% to 18% over the next 18 years.

The percentage of people born overseas in Yarrambat is lower than the average across Greater Melbourne but similar to the average in the Shire of Nillumbik.

Household income in Yarrambat is close to the average in the Shire of Nillumbik and higher than the average across Greater Melbourne.

The occupation profile consists mainly of managers, tradespersons and machinery operators in the Construction and Manufacturing Industries

Dwellings are typically large, with 61% of all dwellings containing 4 or more bedrooms. 93% are owner occupied.

University attendance and the percentage of the population with a university qualification is relatively low. 17% of the population has a bachelor degree or higher, which is lower than the average in the Shire of Nillumbik (25%).

Secondary school attendance, and the percentage of students attending non-government schools, is higher is higher than the average in the Shire of Nillumbik.

The level of car ownership in Yarrambat is high relative to Nillumbik and Greater Melbourne.

2.7 site and neighbourhood context assessment

The Yarrambat Site & Neighbourhood Context Assessment, prepared by Hansen Partnership (December, 2013) documented and analysed the key built form and landscape features of Yarrambat, identified threats to the township's attributes and recommended a series of guiding principles to be considered in the preparation of the Yarrambat Township plan.

Key points made in the Assessment were:

The character of the area is defined by the semi-rural environment, significant topography and varied building design of 1-2 storeys

The study area contains a number of significant vantage points and key view corridors available from within the public realm towards the Kinglake Ranges and Plenty River

The guiding principles related to building height, setbacks, siting, topography, streetscape and facades, public realm, and materials and roof form.

3 site & socio economic context

3.1 site context

Yarrambat is a rural residential community located approximately 25km north east of Melbourne, or approximately 45 minutes driving time from the CBD.

The Yarrambat township is primarily centred on a collection of services and facilities located along a 400m stretch of Ironbark Road to the east of Yan Yean Road (see Figure 1). These include the following:

CFA Fire Station

Yarrambat War Memorial Park, containing a sporting oval, netball courts and pavilions.

Yarrambat General Store

Yarrambat Primary School

St Michaels Anglican Church

Yarrambat Plenty Preschool

Yarrambat Post Office and Tancks Corner Café

Outside of the township core, land within Yarrambat is predominantly used for residential purposes, consisting of 3-4 bedroom dwellings on allotments of 1-2 hectares.

Notable natural features of the township are its topography and vegetation. The elevation of the township provides for scenic views to the north and west. The vegetation within private property and within the public realm contributes to the visual amenity of the township.

The township is not connected to a reticulated sewerage system, with the exception of the Yarrambat Primary School.

The closest Major Activity Centres to Yarrambat are Diamond Creek (approximately 5.5km) and South Morang (approximately 7km). Each of these centres contains a railway station, from which a journey to Flinders Street Station takes approximately 1 hour and 45minutes respectively. A direct bus route connects Yarrambat with the Principal Activity Centre of Greensborough (28 minutes).

The rapidly developing residential growth areas of Mernda and Doreen are located to the north and north-west of the study area. Yan Yean Road provides a key link between these areas and established areas to the south. The Plenty River valley separates Yarrambat from the growth area of South Morang, to the west.

3.2 demographic profile

The current demographic profile of Yarrambat is detailed in the Residential Role and Function Analysis - Yarrambat, prepared by .id (August-September, 2013).

Key points made in this report are outlined below and provide important background context to the issues and options identified in Chapter 4 of this paper. As noted previously, available Census data has been collected from a wider geographic area than the township core and overall study area.

Population

Yarrambat’s population is around 1,500 people and stable, with a slight decline from 2006 to 2011, but a slight increase in the 5 years before that.

The age structure of Yarrambat is dominated by people between the ages of 10-25 and 45-70, typical of mature families and some empty nesters. Yarrambat has a higher proportion of school aged children than the Nillumbik and Melbourne averages.

There is also a significant component of middle-aged and older couples without children living at home.

The population is very stable with more than two-thirds having lived in the area for more than 5 years (The Australian average is 51%).

Plenty-Yarrambat is a stable population area with only a little growth expected over the next two decades.

Yarrambat’s current population, dominated by mature families with teenage children, will remain, but with significant increases in the older age groups.

The population aged 65+ will rise from 11% to 18% over the next 18 years.

Couple families with children will still be the largest group in 2031, but the largest rises will be in families without children and lone person households.

Housing

Yarrambat’s housing consists entirely of separate houses, is mostly fully owned or owned with a mortgage, and there is very little rental stock.

The average household size is high, at 3.23 persons per dwelling, and consists mainly of couple families with children – particularly teenage and adult children living at home with their parents.

Yarrambat dwellings are large, with 61% of all dwellings having 4 or more bedrooms.

The average dwelling density in Yarrambat is less than one third of a dwelling per hectare, compared to 15-20 dwellings per hectare in nearby new housing estates.

The population in the nearby areas of South Morang, Mernda, and Epping is expected to increase by a further 48,000 dwellings and 137,000 people by 2031.

The Residential Role and Function Analysis explains how communities play a role in providing housing for people at different stages of life and includes the diagram below (Figure 5) illustrating this.

Yarrambat, as indicated by its demographic profile and housing stock, currently provides for mature families with older children, and emerging empty nesters whose children have left home. With the ageing population projected to increase, issues and challenges will arise in meeting their housing needs, and whether Yarrambat can accommodate such needs.

Income

Yarrambat is a relatively high income area, with some low income households, likely to be elderly.

The occupation profile consists mainly of managers, tradespersons and machinery operators in the Construction and Manufacturing industries.

This is consistent with a relatively affluent, highly qualified blue collar area.

The Socio-economic index of disadvantage for Plenty-Yarrambat was 1,103, which means it has a socio-economic status significantly higher than the state average

3.3 state and local planning policy frameworks

Green Wedge land is defined in the Planning and Environment Act 1987 as land that is described in a metropolitan fringe planning scheme as being outside an urban growth boundary.

The Nillumbik Planning Scheme is listed in the Act as a metropolitan fringe planning scheme and Yarrambat is shown as being outside of the Urban Growth Boundary within the Scheme. On this basis Yarrambat is formally located within a green wedge area.

State Planning Policy Framework

Clause 11.04-6 of the State Planning Policy Framework seeks to 'protect the green wedges of Metropolitan Melbourne from inappropriate development' and includes strategies to:

Support development in the green wedge that provides for environmental, economic and social benefits.

Consolidate new residential development within existing settlements and in locations where planned services are available and green wedge area values can be protected.

Plan and protect major transport facilities that serve the wider Victorian community, such as airports and ports with their associated access corridors.

Protecting important productive agricultural areas such as Werribee South, the Maribyrnong River flats, the Yarra Valley, Westernport and the Mornington Peninsula.

Protect areas of environmental, landscape and scenic value.

Protect significant resources of stone, sand and other mineral resources for extraction purposes.

Clause 15 states that planning should achieve high quality urban design and architecture that:

Contributes positively to local urban character and sense of place.

Reflects the particular characteristics, aspirations and cultural identity of the community.

Enhances liveability, diversity, amenity and safety of the public realm.

Promotes attractiveness of towns and cities within broader strategic contexts.

Minimises detrimental impact on neighbouring properties

Clause 16.01-5 seeks to 'deliver more affordable housing closer to jobs, transport and services'. Strategies for achieving this objective include

Ensuring land supply continues to be sufficient to meet demand; and

Increasing choice in housing type, tenure and cost to meet the needs of households as they move through life cycle changes and to support diverse communities.

The objective of Clause 17.01-1 is 'to encourage development which meet the communities’ needs for retail, entertainment, office and other commercial services and provides net community benefit in relation to accessibility, efficient infrastructure use and the aggregation and sustainability of commercial facilities'.

Clause 19.02-1 Health facilities seeks to 'assist the integration of health facilities with local and regional communities' and includes a strategy to 'facilitate the location of health-related facilities (including acute health, aged care, disability services and community care facilities) with consideration given to demographic trends, the existing and future demand requirements and the integration of services into communities'.

Local Planning Policy Framwork

Clause 21.03-1 (Settlement and Housing) notes that there are undeveloped low-density residential zoned areas in Yarrambat (1-2 ha lots) and Plenty and that:

The proximity of the Plenty River to these areas means careful consideration of potential development is required based on existing environmental values.; and

The facilitation of drainage and sewerage in these areas is an important consideration.

Clause 21.03-2 (Rural Land Use) notes the ongoing pressure for low density residential development in Plenty/Yarrambat as an influence on rural land use issues in Nillumbik which must be considered. Also identified as influences are the protection of significant landscapes and vistas in rural areas, the location and design of buildings, and the appropriate management of effluent disposal associated with residential development.

21.03-5 - Infrastructure notes that existing drainage arrangements in Yarrambat are insufficient for further development and that earlier structure plan work provided for the collection of levies to fund future drainage of the area.(Yarrambat Local Structure Plan 1993 and Yarrambat Extension Area Local Structure Plan 1996 updated 2000).

Objective 1 of Clause 21.05-1 (Settlement and Housing) seeks to 'provide for a range of housing types to meet the projected increase in the number and type of households within the municipality, while respecting the neighbourhood character, and protecting the natural and cultural heritage values of the locality'.

A strategy of Clause 21.05-1 is to focus new residential subdivision and development in areas that are zoned residential and are currently vacant in Greensborough, Diamond Creek and Plenty, and new low density subdivision and residential areas currently zoned for that purpose in Yarrambat and Plenty and other appropriately zoned areas.

Objective 2 of Clause 21.05-1 is to 'contain urban development and maintain non-urban breaks between existing urban areas and townships, and between townships'. A strategy under this objective is to 'contain new low-density residential development in areas currently designated for that purpose at Yarrambat and Plenty and other appropriately zoned areas'.

In implementing housing and settlement strategies, the Design and Development Overlay is to be applied to 'locations in Plenty and Yarrambat where land capability, infrastructure

sequencing, environmental significance and preferred design outcomes influence future residential development'.

Clause 21.05-5-Infrastructure includes an objective to 'ensure the efficient provision of infrastructure to areas designated for residential and low-density residential development' and includes strategies to:

Recognise that traffic levels along Yan Yean Road has increased due, in part, to recent and anticipated future residential development in the Whittlesea growth corridor in the City of Whittlesea. Ensure that land use adjacent to Yan Yean Road is compatible with the long term arterial road transport function of the road and that direct access to properties from Yan Yean Road is minimised.

Provide for the long term duplication of Yan Yean Road, from Diamond Creek Road to Kurrak Road, and encourage sufficiently large set-backs for development and use on properties fronting the road along this alignment.

Encourage vehicular traffic generated by the Whittlesea growth corridor in the City of Whittlesea, to access Melbourne via Plenty Road, and not via Yan Yean Road.

Recognise the broader role of roads for all users including cycling, walking and buses.

Ensure integrated planning of transport modes, especially the provision of paths and roads to be continuously accessible in and between neighbourhoods and community facilities where possible to maximise opportunities for walking, cycling, use of mobility devises (ie. Motorised scooters/wheelchairs) and access to public transport.

Objective 6 of Clause 21.05-5 is to: 'ensure access and mobility needs of people of all abilities are:

addressed for existing public places;

encouraged for existing private meeting places; and,

considered in future use and development proposals.'

The Aboriginal Cultural Heritage Policy at Clause 22.05 seeks to ensure the identification and appropriate management of sites of significance.

The Roadside Management Policy at Clause 22.06 seeks to 'maintain and enhance the environmental, historical and landscape values of roadsides in the Shire, through the implementation of the Nillumbik Roadside Management Plan' and 'protect roadside vegetation for its habitat value'.

The Signage Policy at Clause 22.09 seeks to ensure advertising signs don't detract from the amenity and character of areas or impact on road safety, whilst providing for an appropriate level of identification for businesses.

The Wildfire Management Policy at Clause 22.13 applies to all land affected by the Wildfire/Bushfire Management Overlay. It aims to guide discretionary decision-making about the use of land, the design of subdivisions, the siting and design of buildings and the management of land in bushfire prone areas; to avoid intensifying local wildfire risk to

people and property through inappropriately located, designed or managed uses or developments.

The Subdivision in Green Wedge Areas Policy at Clause 22.02 expired in November 2009, and the Residential Use and Development on Small Lots in Green Wedge Areas Policy at Clause 22.03 expired in November, 2009.

3.4 other relevant policy documents

Plan Melbourne

The draft metropolitan strategy, Plan Melbourne, 2013, asserts that 'locking in an urban boundary is crucial' and that this will secure the future use of green wedges and the peri-urban areas for agriculture and agribusiness, biodiversity, recreation and open space, tourism, heritage and landscape conservation'. It also deals with a wide range of issues relevant to urban and green wedge areas, including housing affordability and diversity, environmental issues, and infrastructure provision.

Green Wedge Management Plan

The vision for the Nillumbik Green Wedge is one in which 'natural and cultural values are conserved and enhanced bushland rural landscapes are conserved and enhanced; the economic future is sound; communities are strong, connected and supported and are knowledgeable about the Nillumbik Green Wedge; and local identity and diversity is respected and nurtured'.

The Nillumbik Green Wedge Management Plan (Part 2 Delivering the Vision) sets out objectives and strategies in relation to the themes of environment, economy, people and communities, and governance.

The Green Wedge Management Plan identifies the need to prepare a township plan for Yarrambat and notes that a key issue for township strategies is to consider the extent of economic development desirable in maintaining the required character of individual places.

Economic Development Strategy

The Nillumbik Economic Development Strategy 2011-2016 covers five interrelated themes of activity centres, business development, tourism, arts, and rural/green wedge economy. A priority action of the Strategy is to ensure that consideration is given to impediments to sustainable economic development and appropriate tourism related activity in rural areas, and identifies land for the potential establishment of additional light industrial activities'.

Previous Structure Plan

The current structure plan for Yarrambat was prepared in 1993 and was last updated in 2000.This continues to be a reference document in the Nillumbik Planning Scheme in relation to the Design and Development Overlay - Schedule 2, which applies to most of the study area.

3.5 zones and overlays

Yarrambat is located outside of the Urban Growth Boundary and is, therefore, within the Nillumbik Green Wedge.

Yarrambat, and its southern neighbour Plenty, form a corridor of Low Density Residential Zoned land which is generally bounded by the Plenty River corridor to the west, the residential growth area of Doreen to the north, large areas of Rural Conservation Zone to the east, and a corridor of urban development along Diamond Creek Road, to the south.

Zones

Most of the study area is zoned Low Density Residential Zone. Exceptions to this are the primary school (Public Use Zone 2), a water storage facility on the western side of Yan Yean Road (Public Use Zone 1), and the War Memorial Park (Public Park and Recreation Zone).

Yan Yean Road is zoned Road Zone Category 2 (RDZ2).

The Low Density Residential Zone prohibits the use of land for more than two dwellings. The minimum lot size for unsewered allotments is 0.4 hectares.

Some of the permissible uses in the zone include Convenience shop, Community market, Food and drink premises (other than Convenience restaurant) and Place of assembly (other than Amusement parlour, Carnival, Circus and Nightclub). The use of land for a Bed and breakfast does not require a planning permit.

Prohibited uses include Retail premises (other than Community market, Convenience shop, Food and drink premises and Plant nursery), Industry (other than Car wash), Warehouse (other than Store) and Office (other than Medical Centre).

Overlays

Several overlays affect the study area, as outlined below.

Heritage Overlay (HO219) applies to the St Michaels Anglican Church at 469-475 Ironbark Road.

Desgn and Development Overlay - Schedule 2 (Yarrambat and Yarrambat Extension Area Design and Development Area) covers most of the study area.

The objectives of the DDO are:

To encourage rural residential development of lots at least 1 hectare in size.

To encourage environmentally sound and efficient development of land in accordance with the Yarrambat Local Structure Plan (May 1993) and Yarrambat Extension Area Local Structure Plan, (September 1996) and Plenty Valley Environmental Living Area Siting and Design Guidelines (June 1991).

To ensure adverse impacts of development upon the local drainage system are minimised.

To protect locally indigenous vegetation, and to encourage further planting of locally indigenous vegetation.

Within the DDO area, a lot must not contain more than one dwelling and a permit cannot be granted for more than one dwelling per lot. The minimum subdivision size is 1 hectare (unless excising land for a road or to provide a utility service).

A Wildfire Management Overlay covers part of the study area, extending south of Ironbark Road and east of Yan Yean Road.

Parts of the study area - on the south side of Ironbark Road, on the western side of Yan Yean Road, and a pocket in the northeast - are covered by an Environmental Significance Overlay (Schedule 1 - Sites of Faunal and Habitat Significance).

All land within the study area is in a Bushfire Prone Area which triggers additional requirements under building regulations.

One site in the study area (the water storage facility on the west side of Yan Yean Road, an above ground tank) is included in an Environmental Audit Overlay (EAO).

3.6 character

The character of the Yarrambat wider study area is described in the Yarrambat Site and Neighbourhood Context Assessment prepared by Hansen Partnership (2013) as follows:

The overall character of Yarrambat study area is illustrated through its picturesque, semi-rural location. There is a mixture of country lanes with small-acreage properties and enclaves with established dwellings on one or two hectares. Scattered remnant vegetation and areas of cleared land provide a bush setting for residents living in the area.

The unique landform of the township core is formed by the ridge along Yan Yean Road with rolling hills of the Diamond Valley to the east and Plenty Gorge and basalt plains to the west. Undulating topography adds to the picturesque view lines in some areas, particularly those closest to the Plenty River corridor to the west of the study area.

The study area has a strong relationship with the Plenty River corridor, located to the west of the study area. This is particularly associated with its undulating topography, views to the corridor and patches of remnant vegetation.

The overall study area is a semi-rural landscape with overall limited biodiversity values with existing native vegetation providing more an amenity value than contributing to biodiversity values.

The township core is characterised by the collection of civic buildings forming the township's 'main street', including the general store, café, St Michael's church, memorial hall, preschool and CFA fire station.

Buildings within the township core, with the exception of the memorial hall, are provided with generous setbacks from Ironbark Road, and vegetation within the front setback. All buildings are of single storey height and construction materials are a mix of brick and weatherboard. Pitched, corrugated iron roofs are also a common feature within the core.

The Heritage Assessment Report, prepared by Samantha Westbrooke notes that 'the civic buildings in the township demonstrate a boom within the development of Yarrambat during the 1940s and 1950s'.

3.7 recent planning approvals

Council records provide a snapshot of development proposed and approved in Yarrambat. Over the past three years, the following approvals are noted:

There have been no planning permits issued for new dwellings in Yarrambat.

A permit was granted for a church at 615-623 Yan Yean Road.

A permit was granted to use land at 605 Yan Yean Road for a place of assembly (children's party venue).

A permit for the use and development of the land at 466 Ironbark Road (the site currently containing the general store) for a medical centre was granted, and extended in 2011.

A permit was granted for the use and development of land at 476 Ironbark Road to use an existing building for the purpose of a restaurant and associated works. This permit was extended in 2013

These records indicate a level of sustained demand for commercial development within the township core.

There appears to have been some level of interest in investing in non-residential uses in the township however the reasons for not acting on permits granted are unknown

3.8 land use distribution

The table below provides an indication of the distribution of land uses within the overall study area, based on allotments occupied.

Whilst this shows that the single biggest land use in Yarrambat is residential development on lots of between 0.4ha and 20ha (42%, plus 7.2% on smaller allotments), it also shows that over 50% of land is used for 'township' type purposes, comprising commercial and community uses.

Land Use No. of lots %

Residential Rural Lifestyle (0.4 to 20 ha

29 42

Nature Reserve 11 15.9

Pre- School 6 8.7

Detached Home 5 7.2

School Primary Public/Private

3 4.3

Vacant Residential Rural (0.4 to 20 Hectares)

3 4.3

Water Storage Tanks (above ground), Pressure Control Towers and Pumps

3 4.3

Parks and Gardens (Local) 2 2.9

Church / Temple / Synagogue

1 1.4

Day Care Centre for Children

1 1.4

Fire Station Facility 1 1.4

Mixed Use Occupation 1 1.4

Post Office 1 1.4

Telecommunication Towers and Aerials

1 1.4

Veterinary Clinic 1 1.4

4 issues & optionsThe issues identified in the background reports and implications associated with these issues are outlined below, broken into broad themes of housing, social needs, service infrastructure, transport and mobility, economic and environmental.

Many of the issues identified across the different themes are closely related and, as such, have common consequences and invite overlapping, or mutually beneficial responses. For example addressing the issue of poor pedestrian connectivity also assists in responding to the needs of an ageing population.

The following tables outline the issues by theme, identify key area of related policy, explain the implications of the issue, provide options for addressing the issues, and list questions that require further consideration in pursuing the identified options.

4.1 housing

Large family homes make up most of the housing stock in Yarrambat, reflecting the dominance of families amongst the population, and also allotment sizes which invite the construction of larger houses. These characteristics also highlight restrictive planning controls which are a major contributor to a lack of housing diversity in Yarrambat

Issues Policy Context Implications Options Questions

There is a lack of housing diversity in Yarrambat (61% of all dwellings having 4 or more bedrooms) which is needed to meet the needs of an ageing population and to allow ageing in place. The Low Density Residential Zone and Design and Development Overlay applicable to most of the study area do not allow more than one dwelling on a lot or the subdivision of

Clause 11.04-6 of the State Planning Policy Framework seeks to 'protect the green wedges of Metropolitan Melbourne from inappropriate development'Clause 16.01-5 encourages housing diversity and seeks to 'deliver more affordable housing closer to jobs, transport and services'.Clause 21.05-1 of the LPPF seeks to provide for a range of housing

Maintaining the current absence of housing diversity will impact most significantly on the ageing population.The lack of housing diversity also affects other components of the population wanting smaller, low maintenance accommodation in Yarrambat. This includes empty nesters

Option H1: Seek to increase housing diversity through regulatory change and rezoning to provide some additional opportunities to provide more than one dwelling on a site and smaller allotments.

What type of housing would be required to provide the additional diversity required?What additional supporting justification and/or evidence would be required in association with pursuing this option?How much land would need to be rezoned in order to provide for increased housing diversity?How much land, if any, is it appropriate to rezone having regard to environmental considerations such


land into smaller, lower maintenance allotments. This severely limits the ability to provide housing diversity, including alternative, local housing options for the ageing population.

types.Clause 21.05-1 seeks to contain urban development and maintain non-urban breaks between existing urban areas and townships, and between townships'Clause 21.03 acknowledges the pressure for low density residential developmentAction 2.1 (p49) of the Green Wedge Management Plan is to 'review planning policies in order to encourage increased diversity of housing in…settlements of…Yarrambat…to accommodate a range of household sizes. 'Action 4.3 of the Green WedgeManagement Plan is to develop design policies for Green Wedge townships, including Yarrambat.

and young adults who are likely to be forced to look elsewhere, rather than stay within their local community.The absence of housing diversity is also likely to have an impact on affordability, with the price of larger dwellings on large allotments limiting the ability of various population segments, such as first home buyers or young families to settle in this area.The absence of a rental market in Yarrambat further limits the opportunity for people to live in the area

as bushfire, native vegetation, and township character?Where might land be rezoned and what would be the most appropriate combination of zone and overlay controls?What infrastructure upgrades might be required?How might LPPF provisions be amended?Given the bushfire risk to the township, is it appropriate to facilitate additional housing opportunities?What can be facilitated through the implementation of a new Township Plan?What are the potential impacts on desired township character?

4.2 transport & mobility

Transport and mobility issues in Yarrambat are largely influenced by the role and physical condition of Yan Yean Road and Ironbark Road.

Yan Yean Road carries high volumes of traffic given its function as a major connection between growth areas to the north and established residential areas to the south. Ironbark Road intersects with Yan Yean Road at the western end of the township core, at a busy signalized intersection. Pedestrian and cyclist movements are affected by the roles and physical condition of these roads. Also of importance are a lack of public transport connections to and from Yarrambat, and high levels of car ownership.


The use of Yan Yean Road is approaching capacity which causes congestion, affects access to key local land uses, and is increasing queues and delays. There is a lack of enforcement of speed limits along Yan Yean Road, Ironbark Road, and North Oatlands Road. A lack of right turn lanes off Yan Yean Road is a contributing factor to crashes. Yan Yean Road splits east and west, inhibiting access to the township core from the west. Cycling facilities along Yan Yean Road and Ironbark Road are

Clause 21.05-5 seeks to 'ensure the efficient provision of infrastructure to areas designated for residential and lowdensity residential development' and makes specific mention of issues associated with Yan Yean Road.Objective 6 of Clause 21.05-5 is to 'ensure access and mobility needs of people of all abilities are addressed for existing public places; encouraged for existing private meeting places; and, considered in future use and development proposals.Clause 22.06 implements the

A range of responses are required in relation to the identified transport and mobility issues in Yarrambat. The responses are required in order to provide a safer, more functional, better connected township, and a sustainable community.In not responding to these issues, a range of unsatisfactory situations will not only persist but in many cases are likely to worsen given the increasing level of traffic along Yan Yean

Option TM1: Upgrade footpaths in the township core to improve pedestrian and cyclist mobility, recreation opportunities, and presentation of the public realm.Option TM2: Investigate improvements to east west pedestrian connectivity across Yan Yean Road.Option TM3: Provide right turn lanes along Yan Yean Road at Ashley Road, North Oatlands Road and Worns Lane.

What are the costs and what source of funding is available to pursue the identified options?What short term solutions within the township core can be identified, costed and implemented in the short term?What additional work would be required to identify and implement improvements to cycling facilities?Is there sufficient current and anticipated future demand to justify improvements to public transport services?Would people use public transport if it was provided?Where would people want to go?What can be facilitated through


insufficient and unsafe, particularly along Yan Yean Road. This represents a significant impediment for commuter cyclists travelling to larger centres. The 60km/h speed limit along Ironbark Road is too high to support the safety and amenity of users of this space. Public transport connections are limited. The 520 bus route runs along Yan Yean Road at a frequency of 30-40 minutes and connects to the Greensborough Principal Activity Centre in approximately 30minutes. No direct connection is provided to the more closely located activity centres at Diamond Creek and South Morang. Passengers travelling to South Morang are

Nillumbik Roadside Management Plan'.

Road.Public investment is required for a range of physical improvements and further investigation is required in relation to the viability of more direct and frequent public transport connections.In the longer term it is anticipated that, in the absence of viable alternatives, the peak oil situation will have an impact on communities with high levels of car ownership and poor levels of public transport.

Option TM4: Provide improved cycling infrastructure to facilitate recreational activity and short trips, e.g. dedicated bicycle lanesOption TM5: Provide additional signage, and identify priority locations for enforcement of speed limits along Yan Yean Road and Ironbark Road.Option TM6: Lower the speed limit along Ironbark Road in the township core to provide a safer and more pedestrian friendly environment consistent with the role and function of this area.Option TM7: Subject to an assessment of demand, seek

the implementation of a new Yarrambat Township Plan?


required change to the 901 bus at Kurrack Road. Passengers travelling to Diamond Creek are required to catch a train from Greensborough. Most bus stops lack seating, shelter and dedicated lighting. Northbound bus stops in the north of the overall study area lack connections to pedestrian paths and safe crossing points of Yan Yean Road. No pedestrian connection is provided between the township core and the closest southbound bus stop on Yan Yean Road. Informal parking, particularly around the school and Ironbark Road businesses is at or approaching capacity during peak times. The level of car ownership in Yarrambat is high, consistent with

the provision of direct public transport links to activity centres and more frequent services. Potentially seek the diversion of 901 bus route.Option TM8: Identify, prioritise and implement upgrades to bus stops.Option TM9: Improve the efficiency of parking in selected locations within the township core through sealing and line marking.Option TM10: Identify priorities and allocate funding for investment in public realm improvements, including footpaths.


populations in locations where there is a lack of public transport and a need to travel elsewhere for employment, and a range of services and facilities. Lack of footpaths and steep topography reduce pedestrian mobility.

4.3 economic

Despite the semi-rural character of Yarrambat, and limited commercial and employment offering, its proximity to growth areas to the north, connection via Yan Yean Road, and overall range of services and facilities places it well to attract and benefit from additional investment and economic development. As indicated by the record of recent planning permit applications in Yarrambat there has been some interest in new commercial development within the township. Restrictive planning controls, however, are likely to be a factor in attracting additional interest in this regard.


The limited retail offering and absence of any commercially zoned land in Yarrambat means people must travel and spend elsewhere to obtain goods and services not available in the township and potential spending within the township is lost. The Low Density Residential Zone provides

Clause 17.01-1 encourages development which meets the communities’ needs for retail, entertainment, office and other commercial services.The Nillumbik Economic Development Strategy and Green Wedge Management Plan support

Given this objective and indications that there is some interest in investing in non-residential development in Yarrambat, future planning should investigate options for attracting and facilitating appropriate investment

Option EC1: Investigate the viability of facilitating additional retail land uses in the township through regulatory change and rezoning to a more commercial friendly zoning in select locations.Option EC2:

What role in servicing the demands of the growth areas should Yarrambat play?What tourism related opportunities would be a viable proposition in Yarrambat?How much additional retail/commercial floor space is viable in Yarrambat and where should it be located?What changes to the current planning


limited opportunities for retail uses. A retail premises (other than Community market, Convenience shop, Food and drink premises and Plant nursery) is prohibited in the zone. Offices are prohibited within Yarrambat under Low Density Residential Zone, which restricts the provision of many community services, and constrains opportunities for local employment. Light industrial uses such as panel beaters, mechanics, workshops, etc. are also prohibited, which again reduces the provision of local employment and services, including those that support agricultural activities. There appears to have been some level of interest in investing in non-residential

sustainable economic development in green wedge areas.Council’s Economic Development Strategy seeks to ensure the consideration of impediments to sustainable economic development and appropriate tourism related activity in rural areas.

within the township core.The current restrictions in the planning scheme and lack of local shops and services require people to drive to nearby towns and shopping centres for their basic needs. This leads to significant escape expenditure from the local area, and the municipality. It also reduces opportunities for local connection and community inter-action, which contributes to a town’s sense of place.There is an inconsistent and illogical approach as to which businesses are allowable and which are prohibited under the planning

Rezone land in the township core to a Township or Commercial Zone to facilitate additional business development within the town centre.Option EC3: Investigate additional tourism based investment focusing on the township's historical heritage assets, building on attractions such as the Nillumbik Tourism Association's 'Ye Olde Yarrambat Walk'.Option EC4: Make landowners aware of the potential to use land for a bed and breakfast through appropriate communication of planning

controls would be required to facilitate additional commercial/retail development?In addition to convenience, potential employment opportunities, and retaining local spending, what would be the benefits to Yarrambat of facilitating the introduction of additional retail/commercial development in the township core?What built form parameters should be applied to any new retail/commercial development?What infrastructure improvements would be required to service new retail/commercial development?What can be facilitated through the implementation of a new Yarrambat Township Plan?Is there a conflict between providing a significantly wider retail choice and the intent of State and


uses in the township however the reasons for not acting on permits granted are unknown.

scheme. For instance, why is reasonable to allow a service station, but not fruit and vegetable shop?

controls. Local Planning Policy to protect green wedge land for rural purposes?What are the potential impacts on desired township character from potential re-zoning?

4.4 environmental

The environmental attributes of Yarrambat, including its topography and the aesthetic value of native vegetation are important considerations for future planning, in terms of what is valued and needs to be protected and appropriately managed, and are fundamental factors in issues such as drainage and mobility, and any future residential development.


Land east of Yan Yean Road and south of Ironbark Road/De Fredricks Road is covered by a Bushfire Management Overlay. The proximity of the overall study area, and particularly the township core to these areas, raises issues about vegetation removal and retention, and the associated risk to homes, businesses and community facilities. Steep

Clause 21.03-2 notes the protection of significant landscapes and vistas in rural areas, the location and design of buildings, and the appropriate management of effluent disposal associated with residential development as influences on rural land issues in NillumbikThe Wildfire Management Policy at Clause 22.13 applies to all land affected by

The location and natural attributes of Yarrambat, in addition to climate change mean that bushfire risk will continue to pose a risk to Yarrambat into the future and, as such, a range of responses are required to ensure community awareness and education remains a high priority within the township.

Option EN1: Ensure community continues to be prepared, supported, and educated about the risk of bushfire.

How can the valued environmental attributes of Yarrambat be protected and enhanced in association with pursuing options associated with other themes, such as increasing housing diversity, and facilitating economic development opportunities?What can be facilitated through the implementation of a new Yarrambat Township Plan?


topography affects mobility and drainage, and affects the cost and type of improvements, such as footpath, required within the township.

the Wildfire/Bushfire Management Overlay. It aims to guide discretionary decision-making about the use of land, the design of subdivisions, the siting and design of buildings and the management of land in bushfire prone areas; to avoid intensifying local wildfire risk to people and property through inappropriately located, designed or managed uses or developments.

Inaction or inadequate attention to these issues poses a risk to the lives of residents and to the lifestyle they enjoy within this environment. Despite the challenges associated with the township's topography, improvements to pedestrian connections mobility within the township core in particular is important for safety, and social interaction, and to the liveability of Yarrambat.

4.5 service infrastructure

The absence of reticulated sewerage in Yarrambat emphasizes its semi-rural character and location outside of the urban growth boundary. This, and the need to upgrade drainage infrastructure are key service infrastructure issues in Yarrambat, particularly in the context of potential future development within the township core. Potable water supply infrastructure may also require upgrading in the event of any future development.


Drainage is an issue around the township because of the slope of the

Clause 21.03-5 - Infrastructure notes that existing drainage

Two consequences of maintaining the status quo

Option SI1: In consultation with Yarra Valley Water,

How much demand is there within the town ship, and in particular the


land downhill from Ironbark Rd to Youngs Rd, and because the current infrastructure needs to be upgraded. Whilst Council has plans to upgrade drainage infrastructure, such plans are only modelled on a status quo scenario and don’t factor in any increase in runoff from additional development. There is no sewerage connection, other than to the primary school, and Yarra Valley Water has no plans for an upgrade given Yarrambat’s location outside the Urban Growth Boundary. Yarra Valley Water has advised that future development in the area may require an upgrade or replacement of the Yarrambat pump station.

arrangements in Yarrambat are insufficient for further development and that earlier structure plan work provided for the collection of levies to fund future drainage of the area.

in relation to service infrastructure in Yarrambat are an ongoing decline in the physical condition of drainage, and the disincentive this represents for potential investment and economic development.

further investigate the need, cost and funding mechanism for pursuing the suggested option of upgrading a main and pump on Ironbark Road (used by the primary school).Option SI2: Investigate demand, willingness to pay, and funding options for increased sewerage pump capacity and private pump capacity.Option SI3 Investigate the extent of additional development that would trigger the need to upgrade potable water supply.

township core, for connection to reticulated sewerage?How much would various upgrade options cost to pursue and how could these be funded?What upgrades would be required in the context of pursuing options in relation to housing and economic development issues?What can be facilitated through the implementation of a new Yarrambat Township Plan?

4.6 social needs

Issues facing Yarrambat in the area of social needs are largely driven by the township's demographic profile, which is dominated by mature families and an ageing population. The issues identified require both physical improvements through capital expenditure, and also responses aimed at providing a connected, inclusive and resilient local community, as reiterated within State and local policy.


There is a lack of opportunity for incidental social interaction within the township core, due to the absence of a strong town centre, and a lack of active street frontages, and the provision of public seating and footpaths. There is no playground in the township core that is accessible at any time of the day. This further limits opportunities for social interaction. Most youth focussed activities are based around organised sport and recreation. Given that mature families are anticipated to remain the dominant demographic, there is a need to create opportunities for youth and older residents to

The Nillumbik Green Wedge Management Plan seeks to facilitate communities that are strong, connected and supported to support local identity and diversity.A goal of the Nillumbik Council Plan 2013-2017 is to provide a better future for Nillumbik residents and to encourage healthy, safe, and resilient communities.

Incidental social interaction is a contributing factor to maintaining connected, resilient communities. It is therefore important for the issues identified in Yarrambat to be investigated further and addressed where possible. Not addressing these issues would be a lost opportunity to strengthen the Yarrambat community and is likely to contribute to a decline in social cohesion.Providing additional local opportunities for the population of Yarrambat for recreation,

SN1: Identify priorities and allocate funding for investment in public realm improvements, including a playground in the township and public seating to provide additional opportunities for incidental social interaction.SN2: Facilitate the provision of additional opportunities for learning and non-sport based social interaction, potentially in venues such as the War Memorial Hall and primary school after hours.SN3: Facilitate the formation

What does the community see as a priority in terms of public realm improvements?What improvements would strengthen the 'town centre' role of the township core?What can be facilitated through the implementation of a new Yarrambat Township Plan?


recreate, socialise and gather.

socialising and gathering would also contribute towards establishing a connected and resilient local community. Through such efforts, residents who may travel elsewhere for such activities may stay in Yarrambat, and those who are not currently participate in any local activities, may be encouraged to do so.

of a Men’s Shed, or similar to draw, in particular on the extensive skills and experience of senior members of the community to contribute to community projects whilst proving opportunities for social interaction.

5 conclusionThis Issues and Options Paper provides a basis for public and stakeholder consultation which will inform the preparation of a township plan for Yarrambat.

A wide range of issues have been identified across the themes of housing, social needs, service infrastructure, transport and mobility, economic and environmental.

Each of the issues and options identified is set within and influenced by Yarrambat’s green wedge location, its proximity to the northern growth corridor, and current State and local planning policy objectives and strategies.

In preparing and implementing a new Township Plan for Yarrambat, overarching questions that need to be addressed include:

What future direction should and can be facilitated and supported through the Township Plan?

What level of change in terms of housing and economic development should be supported?

What role should Yarrambat play in servicing the needs of the nearby growth areas as well as its own residents?

Through a public and stakeholder consultation process, these questions, along with the detailed issues and options identified in this paper can be examined through robust discussion, analysis and further investigation to ensure the new Township Plan has a solid foundation and sets out an appropriate future direction for the township and community of Yarrambat.

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