Report 10.3 - Brimbank Planning Scheme …...distribution, manufacturing and wholesale industries. Strategies 1.1 Support development of the Derrimut industrial area as one of Melbourne’s

Brimbank City Council Ordinary Council Meeting Agenda Officer Reports 7

Report 10.3 - Brimbank Planning Scheme Amendment C177 – Brooklyn Industrial Precinct Directorate: City Development Director: Stuart Menzies Policy: Planning and Environment Act 1987, Brimbank Planning Scheme,

Brooklyn Evolution Strategy 2012 Attachments: Attachment 1: Proposed Changes to Clause 21.09 Attachment 2: Draft Design and Development Overlay Attachment 3: Proposed Rezoning Map Purpose For Council to consider the preparation and exhibition of proposed Brimbank Planning Scheme Amendment C177 - Brooklyn Industrial Precinct (Amendment C177), which seeks to amend Clause 21.09 Industrial Land Use of the Municipal Strategic Statement (MSS), apply Schedule 11 to the Design and Development Overlay (DDO11) to all land in the Brooklyn Industrial Precinct, and rezone land along part of the Geelong Road frontage from Industrial 1 Zone to the Commercial 2 Zone, and approve changes in the Brooklyn Evolution Strategy. Report 1. Background The Brooklyn Industrial Precinct (the Precinct) is a key strategic development area with an important economic and employment role in Melbourne’s West. Council is working to improve the amenity, economic performance, image, infrastructure and environmental sustainability of the Precinct. The Melbourne Metropolitan Planning Strategy, Plan Melbourne, recognises Brooklyn as part of a state-significant industrial area. The Brooklyn Evolution Strategy includes an implementation plan that identifies a range of initiatives and activities for delivery by Council and other government agencies, including the introduction of planning scheme provisions to guide the future redevelopment of the Precinct. This includes: • Updating the MSS within the Brimbank Planning Scheme to give certainty about the

future role and function of the precinct as a key employment node • Identifying sites requiring rezoning to facilitate preferred land use outcomes including

rezoning along the Geelong Road frontage to an appropriate business zone • Introducing design requirements for industrial development.

Implementation of the Brooklyn Evolution Strategy is an identified action in the Brimbank Council Plan 2013 – 2017. The introduction of the new planning scheme provisions will also support work being undertaken as part of the Living Brooklyn Project. 2. Consultation It is proposed that Amendment C177 be publicly exhibited for a six (6) week period in accordance with Section 19 of the Planning and Environment Act 1987 including: • Publication of a notice in newspapers generally circulating in the area and the

Government Gazette • Notices to land owners and occupiers within, and immediately adjoining, the Precinct,

as well as relevant authorities and prescribed parties • An industry/community information session and property owner meetings

Meeting No. 379 24 February 2015

Brimbank City Council Ordinary Council Meeting Agenda Officer Reports 8 Report 10.3 - Brimbank Planning Scheme Amendment C177 – Brooklyn Industrial Precinct (continued) • Presentations to the Brooklyn Industrial Precinct Committee and the Brooklyn

Community Reference Group. 3. Analysis Following a review of the land use, and design and development recommendations in the Brooklyn Evolution Strategy, it is considered that the following planning provisions are the most appropriate to deliver these directions: • An amendment to the MSS to introduce specific policy guidance for future land use

and development within the Brooklyn Industrial Precinct (Attachment 1 – proposed changes to Clause 21.09)

• The introduction of DDO11 which will provide specific requirements relating to the design and built form of new development (Attachment 2 – Draft DDO11)

• The rezoning of land fronting Geelong Road in Brooklyn from Industrial 1 (INZ1) to Commercial 2 Zone (C2Z). This zone is the most appropriate to promote and enable the type of uses outlined in the Brooklyn Evolution Strategy which includes office development, showrooms and large format retail (Attachment 3 – Proposed rezoning map).

The Brooklyn Evolution Strategy forms the strategic justification for Amendment C177 and it is proposed that it will become a reference document in the Brimbank Planning Scheme. It is also proposed that a change is required to the Brooklyn Evolution Strategy to increase the front landscape setback from 3.0 metres to 5.0 metres, and to permit boundary fencing which will improve overall design outcomes, and provide appropriate security for occupiers. Amendment C177 does not include all the planning scheme amendment work proposed in the Brooklyn Evolution Strategy, and on this basis represents the first stage of planning scheme amendment work. 4. Resource Implications Resource requirements can be met within Council’s 2014/2015 Annual Budget. 5. Compliance Statement This report has been prepared in accordance with Part 1A and Part 3, Division 1 of the Act, and is consistent with the requirements of the Planning Scheme.


Brimbank City Council Ordinary Council Meeting Agenda Officer Reports 9 Report 10.3 - Brimbank Planning Scheme Amendment C177 – Brooklyn Industrial Precinct (continued) 6. Officer Recommendation That Council: a. Approves the preparation and exhibition of Amendment C177 to the

Brimbank Planning Scheme to amend the Municipal Strategic Statement, introduce a Design and Development Overlay (Schedule 11) to the Brooklyn Industrial Precinct, and rezone land on part of the Geelong Road frontage (as shown at Attachment 3 to this report) from Industrial 1 Zone to a Commercial 2 Zone.

b. Endorses changes to the Brooklyn Evolution Strategy 2012 to increase the front landscape setback for new development from 3.0 metres to 5.0 metres, and allow boundary fencing to sites for security purposes.


BRIMBANK PLANNING SCHEME

MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.09 PAGE 1 OF 7

21.09 INDUSTRIAL LAND USE

Key Issues

21.09-1 Industrial Precincts

Brimbank currently has the largest supply of Industrial zoned land in the western region.

The estimated 2,230 hectares of industrial land comprises approximately 10% of the total

metropolitan supply (Urban Development Program, 2009).

The south west of the municipality contains large tracts of Industrial 2 zoned land. The

Derrimut area has been listed in the State Planning Policy Framework as an industrial area

of State significance. These areas have seen the infiltration of small strata style industrial

uses attracted to the area due to the cheaper price of land in comparison to business zoned

land. This type of development does not achieve the objectives of the Industrial 2 zone.

The incremental intrusion of retail and other non-industrial activities should be managed to

ensure the core function of these Industrial 2 areas remain for industrial uses.

Objective 1

Strengthen and consolidate Brimbank’s role as a location for transport, logistics and

distribution, manufacturing and wholesale industries.

Strategies

1.1 Support development of the Derrimut industrial area as one of Melbourne’s key

logistics hubs.

1.2 Limit any retail component associated with an industrial and/or warehouse use.

1.3 Discourage retailing and non-industrial uses within industrial areas, other than

manufacturing sales, takeaway food premises and other uses that provide a service to

employees.

1.4 Ensure office developments in industrial areas are associated with the industry carried

out on the site.

1.5 Maintain the viability and purpose of industrial areas by minimising land use conflicts

and encroachment from non-industrial uses.

1.6 Ensure the development of industrial sites avoids and/or minimises the loss of native

vegetation.

1.7 Support the redevelopment of the Brooklyn Industrial Precinct into a high quality

business and industrial precinct with a focus on minimising amenity impacts.

1.8 Ensure new uses and development reinforce the identified role of the Brooklyn

Industrial Precinct and are consistent with the land use strategies in the Brimbank

Industrial Land Strategy 2012 and the ‘Brooklyn Evolution 2012’ .

Objective 2

To protect existing industrial areas.

Strategies

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2.1 Retain the Industrial 2 zoned land in Derrimut.

2.2 Discourage the development of community uses such as fitness centres, places of

assembly and entertainment facilities within the Industrial 2 zone.

2.3 Discourage the development of factoryettes in the core of the Industrial 2 Zone.

Objective 3

To provide a buffer between industry and sensitive land uses.

Strategies

3.1 Ensure Industrial 3 zoned land provides a buffer between industry and sensitive land

uses.

3.2 Ensure new industrial developments minimise the impacts of noise, odour, dust and

traffic.

3.3 Ensure the location of new development considers the proximity and interface with

existing commercial, residential, open space and other sensitive uses

3.4 Encourage the redevelopment of Geelong Road Brooklyn with a focus on office,

showroom and large format retailing.

Objective 4

To support businesses in Industrial 3 zones.

Strategies

4.1 Support the development of the North Sunshine Industrial Estate as a high quality

business and light industrial precinct with a focus on trade supplies and start up

businesses.

4.2 Ensure the use and development of the Solomon Heights area bounded by Munro,

Vermont and Baldwin Avenues and the Melbourne-Sydney railway line does not

proceed until provision has been made for roads, water supply, sewerage, drainage

and other services.

4.3 Support the development of non-industrial uses such as fitness centres and places of

assembly where there is good access to public transport, walking and cycling

networks.

4.4 Encourage the development of factoryettes in Industrial 3 areas.

21.09-2 Environmental Impacts of Industrial Uses

Sustainable land practices and environmental management has not been a feature of

industrial activity in Brimbank. This has resulted in on and off-site amenity impacts

including odour, dust, pollutants, noise emissions and contamination.

Best-practice community safety and environmental standards should be a feature of future

industrial development, to mitigate any off-site environmental impacts and provide

appropriate threshold distances from nearby sensitive uses.

Objective 1

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To ensure industrial activity minimises environmental risks on-site and to nearby sensitive

uses.

Strategies

1.1 Encourage industry to adopt best-practice community safety and environmental

standards regarding matters such as noise, odour and dust emissions, stormwater

quality and contamination.

1.2 Industrial activities with potential for on and/or off-site amenity impacts should be

located an appropriate threshold distance or implement appropriate on site mitigation

measures from nearby sensitive uses.

1.3 Require the precautionary principle to be applied when deciding on appropriate

mitigation measures to consider future implications to health and/or the environment.

1.4 Within the Brooklyn Industrial Precinct, require as appropriate:

1.4.1 A dust management plan that includes real time dust monitoring and

response for land uses with high truck movements, dust generating activities

and/or sites with areas that are unsealed.

1.4.2 The location of stockpiles, the storage of materials and areas for the

processing of recycled materials to be within enclosed structures.

1.4.3 Trafficable areas on sites to be appropriately sealed for purpose.

1.4.4 New developments and additions to existing development to implement best

practice technologies to minimise off site amenity impacts.

Application Requirements

An application for industrial activities with potential for on and/or off-site amenity impacts

must be accompanied by the following information, as appropriate:

An Environmental Management Plan (EMP) for approval by the responsible

authority outlining:

The identification of any on-site and off-site environmental and/or amenity impacts,

including contamination;

Mitigation measures including but not limited to the use of low frequency beepers,

air filters, noise attenuation, dust suppressants, landscaping and adoption of

appropriate hours of operation and threshold distances from sensitive uses;

How the proposed measures will be successful at preventing on and off-site

environmental and amenity impacts; and

How the development could harvest and re-use storm water.

A Peer Review of the EMP may be required.

21.09-3 Industrial Design

Council has taken the initiative in requiring design guidelines to be prepared for the new

industrial estates that are developing in the southern area of the municipality. These

guidelines set out minimum standards for design, landscaping and car parking. These have

been successful in providing an improved quality to built form in these areas.

However, the older, established industrial areas are typified by ad hoc development, with

little landscaping, poor quality building design and amenity. Redevelopment in these areas

should be of a high quality urban design.

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Objective 1

To improve the design and appearance of buildings and sites in industrial areas.

Strategies

1.1 Ensure new development highlights key corners and intersections on main roads,

through the use of design projections, detailing and massing that presents to

surrounding street frontages.

1.2 Ensure new development sits harmoniously within the streetscape and landscape in

terms of scale and proportion.

1.3 Encourage new buildings to create visual interest through the use of various forms,

robust building materials, openings and colours.

1.4 Encourage office uses associated with industrial buildings to face the primary

frontages to achieve natural surveillance and present a positive aspect.

1.5 Ensure the design of new development considers the proximity and interface with

existing commercial, residential, open space and other sensitive uses.

1.6 Ensure the storage of materials, including goods, machinery or vehicles are contained

within a building. For additions to existing development, encourage existing outdoor

storage areas to be relocated to be within a building.

Objective 2

To ensure new development demonstrates best practice environmentally sustainable design.

Strategy

2.1 Encourage new development to incorporate water sensitive urban design, water

harvesting and re-use systems, and other environmentally sustainable design

initiatives.

2.2 Require that perimeter planting is provided on redeveloped sites.

Policy Guidance (criteria for the exercise of discretion)

It is policy that, as appropriate:

New industrial developments should incorporate underground power and solar street

lighting.

New subdivisions should provide multiple through-block connections to provide for

efficient pedestrian and cycling connections.

New subdivisions should incorporate high quality public open space areas for

employees within the industrial areas.

New subdivisions should incorporate adequate street widths to provide for waste

collection and emergency vehicles, walking and cycling infrastructure.

Outdoor storage areas are effectively screened from public view.

New industrial development should incorporate passive surveillance of open space and

car parking areas.



Fencing is transparent, compatible with the style of the building and maintains adequate

security.

The provision of security cameras must be accompanied by associated signage and be

visible at all site access points.

The use of barbed wire fencing is discouraged.

Loading facilities should be located away from public spaces, streets and residential

areas, and screened from the public realm.

Exposed side and rear walls of buildings should be well articulated and provide visual

interest.

Large areas of blank exposed walls are discouraged.

Development should not impact on Melbourne Airport’s Prescribed Airspace.

21.09-4 Implementation

Zones and Overlays

Apply the Industrial 1 Zone to land designated for manufacturing and logistics

industries.

Apply the Industrial 2 Zone to land designated for industrial uses with potential for

adverse amenity impacts.

Apply the Industrial 3 Zone to land designated for industrial uses that have low amenity

impacts on nearby residential communities.

Apply the Environmental Audit Overlay to areas identified as being potentially

contaminated.

Further Strategic Work

Review the Brimbank Industrial Areas Strategy.

Advocate for the development of the Living Brooklyn Gayteway site to provide a high

quality entrance to the Brooklyn Industrial and Commercial Precinct.

Investigate the rezoning of redundant industrial areas.

Develop industrial design guidelines for those established industrial estates where there

are no existing design provisions.

Investigate the application of the Business 3 and Business 4 zones to areas within

existing industrial areas that have substantial retail uses.

Undertake a review of the Solomon Heights Strategic Development Site bounded by

Munro, Vermont and Baldwin Avenues and the Melbourne-Sydney railway line to

identify policy direction for the future development of the area.

Develop a Landscape Master Plan for the Brooklyn Industrial Precinct.

Advocate for the alignment of the Western Section of the East West Link, the

extension of Grieves Parade and duplication of Somerville Road.

Develop industrial design guidelines for the Brooklyn Industrial Precinct incorporating

water sensitive design to minimising environmental impacts.

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Reference Documents

Western Region Employment Industrial Development Strategy, July 2007.

Melbourne Airport Master Plan, Australia Pacific Airports (Melbourne) Pty. Ltd., 2003.

Industrial Estate Guidelines:

Derrimut Park, Part 1, November 2004.

Derrimut Park, Part 2, November 2004.

Gilberton’s Industrial Estate, November 1997.

Glengala Estate, October 2000.

Glengala Estate, Stage 2, October 2008.

Marksx Industrial Estate, July 2006.

North Sunshine Industrial Estate Guidelines, 2007.

Paramount Estate, Release 1, March 2006.

Paramount Estate, Release 2, October 2006.

Paramount Estate, Release 3a, November 2006.

Paramount Estate, Release 3b, November 2007.

Paramount Estate, Release 4a, July 2007.

Paramount Estate, Release 4b, August 2008.

Paramount Estate, Release 5a, November 2007.

Proximity Fairbairn Road, August 2005.

Translink Business Park, Stage 3, May 2006.

Translink Business Park, March 2004.

West Park, May 2004, amended February 2005.

West Park, Stage 5-8, January 2006.

West Park, Stage 9, March 2009.

The Brooklyn Evolution, October 2012.




SCHEDULE 11 TO THE DESIGN AND DEVELOPMENT OVERLAY

Shown on the planning scheme map as DDO11

BROOKLYN COMMERCIAL AND INDUSTRIAL PRECINCT

1.0 Design objectives

To improve the amenity and appearance of the Brooklyn Commercial and Industrial Precinct To create an attractive environment to work and visit. To ensure that development incorporates appropriate design measures that will protect surrounding residents and businesses from adverse visual, noise, odour or dust impacts. To ensure new development provides suitable internal access and connectivity throughout the precinct. To ensure best practice environmental design, operation and storm water reuse is used for new development and business operations. To improve the image and create a sense of identity for the precinct. To ensure high quality landscape treatments contribute positively to the street edges and to the setting of buildings. To minimise visual clutter, including excess signage and external storage.

2.0 Brooklyn Commercial and Industrial Precinct Development Guidelines

General Guidelines Access and connection Access and egress to all sites must be sealed (with asphalt or concrete), drained and include kerb and channel to the road reserve. Ensure all off street car parking areas are paved and drained. No loading facilities should be located between any building on the land and the landscape buffer to the frontage of the site. Access to the site should be designed to allow vehicles to enter and exit the site in a forward motion and ensure access contributes to a safe, legible and attractive frontage. Ensure visitor car parking spaces are clearly defined and signed and located towards the primary street frontage. Orient staff car parking to the side or rear of the development. Access for loading/deliveries and truck movements should be separated from staff, visitor and pedestrian access. Environmental Conditions All areas associated with the use and development of the site, including storage areas, car parking, accessways, buildings, must be sealed. Encourage new development to incorporate Water Sensitive Urban Design and water storage facilities for on-site reuse into building design. Ensure new development includes storm water treatment and reuse initiatives, to ensure improved water quality and controlled release into Kororoit Creek and other drainage outlets. The design and location of buildings and choice of landscaping and trees should consider solar access, opportunities for natural lighting, the use of deciduous trees to minimise energy use and encourage environmentally sustainable design in built form.

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DESIGN AND DEVELOPMENT OVERLAY - SCHEDULE 11 PAGE 1 OF 5

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Image and Identity Landscape areas shall have a minimum width of 5 metres along street frontages and 2.0 metres for side streets. Building plant equipment should be screened, through the use of architectural features or building design and not be visible from the street frontage. Building facades should be articulated to provide visual interest, through the use of building materials, textures, openings and use of landscaping features. Blank walls should be avoided and must not be used where the site abuts the Federation Trail, Kororoit Creek or a roadway. Outdoor storage areas are generally discouraged. Rubbish storage facilities/enclosures, manufactured goods, raw product or other equipment associated with the use of the site, must be located within a building. All utilities and services to new development should be located in underground conduits. Energy efficient lighting should be provided for security and navigation through the site. Fences and/or planting along property boundaries should not adversely affect adjacent public realm. Commercial 2 Zone Area Landuse, employment and economic activity Encourage the development of large format retail and commercial uses and higher intensity employment uses along the Geelong Road frontage, to provide an interface and buffer with the industrial land to the north and the residential landuse opposite. To maintain and strengthen the economic role of the precinct as a key employment node. Office and retail uses should be located with a frontage to Geelong Road. Access and connection Site frontages must be designed to allow the future development and provision of on street bicycle paths Provide safe access for pedestrians, bicycles, cars and trucks. Image and Identity Development should contribute to the boulevard character of Geelong Road. Encourage the development/provision of integrated art, identifiable architecture and/or landscaping to the entrances and corners of the precinct along Geelong Road. New built form should be of a contemporary architectural style, which avoids the use of long walls constructed on a single plane. Built form design should utilize articulated massing, including the use of a range of materials, textures, openings and landscaping.. A robust palette of materials and strong colours are encouraged, to reinforce the location of entrances and building frontages.

Industrial Area Landuse, employment and economic activity New development should incorporate locations for outdoor breakout spaces and amenity areas for staff. These areas should be landscaped with shade trees and located away from adverse amenity impacts. Buildings should be setback a minimum of 9.0 metres from the site frontage and 4.0 metres on a side street. Only landscaping and car parking will be permitted within this setback. Where car parking areas are proposed within the site frontage, the landscaping of the frontage should be incorporated into the carparking design layout. Land used for the storage of shipping containers must:



• ensure that the location, scale and height of stacking does not visually dominate buildings on site or buildings on adjoining land,

• ensure that containers are stacked in a tier or pyramid formation when adjacent to landscape setbacks, property boundaries and adjoining roads to reduce their visual bulk,

• provide suitable accesssways and vehicle queuing areas within the site to avoid congestion along roads and at road intersections. (any access from a road zone must have VicRoads approval),

• be fully sealed and drained to withstand shipping container loads and stormwater runoff,

• be visually screened through the use of mounding across the front landscape setback, and include effective screen planting, such as combinations of dense shrubs and high branching taller trees.

Access and connection Loading bays should be located within a building. No loading facilities should be located between any building on the land and the landscape buffer to the frontage of the site. Ensure that new development contributes to the improvement of the internal road network, including the provision of connections to pedestrian and bicycle networks. Environmental conditions Prior to the approval of new development on disused landfill sites, ensure a ‘land fill gas’ assessment has been undertaken in accordance with the Best Practice Environmental Management Guidelines 2006. Encourage the reuse of grey water for irrigation, cleaning, dust suppression and toilet flushing. Stockpiling and storage of materials should be within enclosed areas to minimise dust impacts. Storage areas should be paved or sealed. Wheel wash facilities should be provided on site where vehicles will be entering and egressing onto unsealed areas and roadways. For manufacturing industry, motor repairs, materials recycling and other uses with noise impacts, the use of acoustic treatments should be incorporated within the building fabric as appropriate. Image and Identity Where land is adjacent to or has a boundary with the Kororoit Creek and/or the Federation Trail, the boundary should be landscaped to a minimum of 3.0 metres in width, using indigenous species of local providence. Development abutting the Federation Trail or Kororoit Creek should be designed to be oriented to provide an articulated frontage to the Federation Trail or the Kororoit Creek and provide passive surveillance opportunities. New built form should be of a contemporary architectural style. Landscaping should be used to act as an acoustic and visual buffer and a screen between uses that have an adverse amenity impact. Retain existing mature trees on site where possible and incorporate them into new development design Landscape bunds to screen existing and approved stockpiles must be landscaped and be constructed no more than 2.0 metres higher than the approved stockpile height. The bunds should be engineered to support long term landscaping irrigation for plant survival. Protect heritage buildings and encourage the adaptive reuse of heritage buildings and associated works. Building materials should reflect the industrial nature of the precinct and include the use of corrugated iron, timber and textured concrete.



3.0 Buildings and works

The permit requirement for buildings and works includes the construction of a front fence facing a street frontage that exceeds 1.2 metres in height. A front fence must be:

• No higher than 2.0 metres, • Transparent. • If chain mesh, be black or green plastic coated. • Not include barbed wire.

A permit is not required for: • Buildings and works associated with the provision of public open space, • Repairs and routine maintenance to buildings and works. • Public road works and associated street furniture and lighting. • Fencing where the height does not exceed 1.2 metres

3.0 Subdivision

Consider subdivision of the land into smaller allotments only if it can be shown that the following are able to be provided:

• Good road access to the site (road reserve at least 18 metres wide). • Adequate truck access to buildings. • Provision of footpaths and landscaping in road reserves. • Sufficient off-street car parking, vehicle turning and standing areas. • Sufficient screened storage and waste areas.

An application to subdivide land must make a contribution to the council for public open space in an amount specified in the schedule to clause 52.01, for land intended to be used for residential, industrial or commercial purposes, or a percentage of the site value of such land, or a combination of both. The contribution shall be used in accordance with the City of Brimbank Open Space Strategy 2013.

4.0 Advertising signs

Signage should be integrated into the built form of the building. Free standing signage should be low and integrated into the front landscape treatment. Signage should be limited in number to avoid visual clutter and repetition. For multiple business sites, shared signage is encouraged.

5.0 Decision guidelines

In addition to the requirements of Clause 43.02-5, before deciding on an application the responsible authority must consider, as appropriate:

• Whether the development has any adverse visual impact on adjacent areas of public open space.

• Whether new driveways and vehicle crossings have been located to avoid street trees.

• Whether the development will make a positive streetscape contribution. • Whether any steps have been taken to minimise visual clutter caused by overhead

services. • Whether carparking vehicle access and service areas visually impinge on front

setbacks and/or landscape buffers.

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• Whether the landscape treatment in the front and side setbacks contribute to the enhancement and improved of the appearance of the precinct.

• The design objectives of this Schedule.

6.0 Reference Documents

The Brooklyn Evolution, October 2012. Greening the West – A Regional approach, Strategic Plan, 2013.


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LEGEND Part of Planning Scheme Map 12

AMENDMENT C177

COMMERCIAL 2 ZONE

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