MANNINGHAM RESIDENTIAL STRATEGY

Transcription

1 MANNINGHAM RESIDENTIAL STRATEGY..providing choice, well being and environmental sustainability FEBRUARY 2002

2 ECONOMIC & ENVIRONMENTAL PLANNING UNIT MANNINGHAM CITY COUNCIL FEBRUARY 2002 Page 2 of 91

3 PART A: BACKGROUND AND ISSUES INTRODUCTION OBJECTIVES OF THE RESIDENTIAL STRATEGY STUDY METHODOLOGY MANNINGHAM S RESIDENTIAL AND LIFESTYLE CHARACTERISTICS Urban Areas Low Density Residential Non-Urban Areas DEMOGRAPHIC OVERVIEW HOUSING CONTEXT Introduction Population Projections Population Change between Baby Boomers to Empty Nesters Setting a New Population Target 120,000 People by We Live in a Culturally Diverse City Car Ownership & Mode of Travel to Work RESIDENTIAL DEVELOPMENT ACTIVITY AND TRENDS Demand for diversity in housing stock Houses are getting larger New housing in Manningham Emerging Trends EXISTING PLANNING POLICY FRAMEWORK State Planning Policy Framework (SPPF) Municipal Strategic Statement (MSS) Council Reference Documents PART B: THE RESIDENTIAL STRATEGY CHAPTER 1: DIVERSE HOUSING OPPORTUNITIES INTRODUCTION Defining low, medium and high density residential development OPPORTUNITIES FOR INCREASED RESIDENTIAL DENSITIES High Rise Development at Doncaster Hill Increased Housing Densities Around Existing Activity Centres SINGLE STOREY DWELLINGS VS DOUBLE STOREY DWELLINGS OLDER PERSON HOUSING IN MANNINGHAM Older Person Housing in the Non Urban Areas CHAPTER 2: NEIGHBOURHOOD CHARACTER & AMENITY ISSUES INTRODUCTION OVERVIEW OF MANNINGHAM S NEIGHBOURHOOD CHARACTER Traditional Grid Modern Curvilinear Larger Lots NEIGHBOURHOOD CHARACTER POSITIVE AND NEGATIVE INFLUENCES Traditional Grid areas Modern Curvilinear Areas Larger Lots Warrandyte Non-Urban CURRENT PLANNING FRAMEWORK ISSUES AND RECOMMENDATIONS RELATING TO NEIGHBOURHOOD CHARACTER Res Code MANNINGHAM DRAFT NEIGHBOURHOOD CHARACTER STUDY Introduction Issues Page 3 of 91

4 6. DRAFT BUILDING BULK GUIDELINES (1999) Introduction Issues VEGETATION PROTECTION CHAPTER 3 SUSTAINABLE DEVELOPMENT INTRODUCTION ISSUES Energy Efficiency ResCode Passive Solar Design Water Usage Waste Protection of Indigenous Vegetation Transport CHAPTER 4 LAND CAPABILITY AND INFRASTRUCTURE INTRODUCTION EXTENSIVE EARTHWORKS AND ITS IMPLICATIONS Education Enforcement Integrated Planning Processes Flooding Domestic Wastewater Waterway Quality Wildfire Management CHAPTER 5 SAFETY AND ACCESSIBILITY INTRODUCTION ISSUES Accessible and Visitable Homes Planning for People with a Disability CHAPTER 6 AFFORDABLE HOUSING INTRODUCTION ISSUES Affordable Housing: the Victorian Context Affordable Housing in the Eastern Region Public Housing and Private Rental Centrelink Recipients Special Accommodation CONCLUSION: RECOMMENDATIONS Page 4 of 91

5 STRUCTURE OF THE REPORT The Strategy is divided into two (2) sections including: Part A: Part B: BACKGROUND AND ISSUES; and THE STRATEGY. Part A: Addresses the following: Objectives of the Residential Strategy Study Methodology Manningham s Residential and Lifestyle Characteristics Demographic Overview Residential Development Activity and Trends Existing Planning Policy Framework Part B: Examines and makes recommendations on the following issues: Diverse Housing Opportunities Neighbourhood Character and Amenity Environmentally Sustainable Development Land Capability and Infrastructure Safety and Accessibility Affordable Housing Page 5 of 91

6 PART A: BACKGROUND AND ISSUES 1. INTRODUCTION The Manningham Residential Strategy provides a policy framework aimed at meeting the existing and future housing needs of the municipality. The principle underlying the Strategy is the need to provide housing that promotes the health and well being of all people living in the municipality. Access to good quality, affordable and safe housing is critical to maintaining good physical, emotional and mental health, social inclusion and the ability to participate in community life. Page 8 Victorian Homelessness Strategy: Working Report A review of the Manningham population shows that it is ageing; household sizes are getting smaller; and residents are from diverse cultural backgrounds. The existing housing stock predominantly provides accommodation for the traditional family. Presently Manningham has a population of around 112, 000 people. Council has set a target population of 120,000 people by It is anticipated that at least an extra 6,460 dwellings will be needed over the next two decades to cater for future housing needs. It is considered that a population of around 120,000 is required to sustain the level of community facilities and physical infrastructure presently provided. To achieve the projected population target, redress population decline and to meet the changing demographic trends of the community, there is a need to provide a greater diversity of dwelling types. Council s vision for residential development over the next ten years is to create safe and liveable neighbourhoods, that provide housing choice for people from a range of socioeconomic groups. It is anticipated that there will be a range of single houses on a lot with substantial private open space around them to meet the needs of traditional families, and for smaller households seeking more space around them. This will be interspersed with high or medium density developments for households seeking a house or an apartment with less private open space to maintain. Increased residential densities will occur around existing activity centres, where appropriate, so that the residents, including the elderly and young families, teenagers etc can walk, or will be within close driving distance to a range of social and community facilities. Houses will be designed to be energy efficient, and will be influenced by land capability and infrastructure characteristics. Furthermore, the existing topographic and environmental features of an area will be protected and enhanced. Importantly, houses will be designed so that they are accessible by people with limited mobility so that houses may be used over a lifespan. Accessible and safe housing encourages independent living and promotes well being within the individual. Importantly, suitable housing opportunities will be provided for people with special needs. Page 6 of 91

7 2. OBJECTIVES OF THE RESIDENTIAL STRATEGY The objectives of the Residential Strategy are: 1. To provide housing diversity to meet peoples needs. 2. To provide residential areas that are safe and accessible, and create a sense of place and well-being within the community. 3. To ensure that new development is compatible with the urban character of existing residential areas and respectful of neighbouring properties. 4. To ensure that new residential development is environmentally sustainable. 5. To design and site dwellings that positively respond to topographic, land capability and infrastructure characteristics. 3. STUDY METHODOLOGY To determine the appropriateness of the existing housing stock within the municipality extensive research has been undertaken, including: analysing the existing and projected residential profile of the municipality; examining the property market; identifying an area where high rise residential development may occur; gauging residents opinions regarding the suitability of the houses in which they live and the liveability of their neighbourhoods; undertaking fieldwork to examine residential developments throughout the municipality; and reviewing data research on development approvals in the municipality over the last decade. 4. MANNINGHAM S RESIDENTIAL AND LIFESTYLE CHARACTERISTICS Manningham is located to the east of Melbourne, approximately 15 kilometres from Melbourne s Central Business District. The municipality offers a variety of residential and lifestyle opportunities influenced by the waterways and extensive open space networks within it. The Mullum Mullum Creek provides a natural boundary between the urbanised areas to the west and the non-urban areas to the east. Residential areas may be divided into three broad categories including: urban, low density and non-urban. Map 1 on page 8 shows the distribution of the different residential areas in the municipality Urban Areas The urban areas include Bulleen, Doncaster, Doncaster East and Lower Templestowe. These areas are generally included in the Residential 1 Zone. Lot sizes generally range between 300m2 and 1400m2. They include a range of dwelling types, varying from single detached housing, to 1960s multi-storey flats, and Page 7 of 91

8 medium density developments built from the to 1970 s to the present day. These areas have a distinct urban character with engineered roads, kerb and channel and overhead wires. Older housing stock is generally located in Bulleen, Templestowe and Doncaster Low Density Residential A lower residential density occurs in parts of Templestowe, Donvale, Warrandyte, the township of Wonga Park, and areas of Park Orchards where lots are generally no smaller than 0.2ha. These areas are included in the Low Density Residential Zone. They differ from the urban areas in that they have a greater sense of openness. The presence of tall canopy trees and less engineered roads, in some places, gives these areas a rural residential feel. Small scale hobby farm operations occur on some properties Non-Urban Areas The non-urban area is generally located east of the Mullum Mullum Creek where lots range between 3ha to 40ha. This area is included in the Environmental Rural Zone. The non-urban areas provide a semi-rural lifestyle choice with significant landscape and environmental values. Major land uses include rural residential living, conservation and small scale agriculture (viticulture and grazing). The terrain is generally undulating dissected by ridges and drainage gullies. The area has a distinct rustic feel given the low residential density and the extensive range of vegetation, including mature canopy trees. Page 8 of 91

9 Map 1 Manningham s Residential Areas Page 9 of 91

10 5. DEMOGRAPHIC OVERVIEW HOUSING CONTEXT 5.1. Introduction An ageing population, coupled with the trend towards smaller family structures dominates Manningham s population and dwelling forecasts. Whilst the single detached dwelling will still represent a large proportion of Manningham s housing stock, medium density development will constitute a greater percentage of residential development in the future. The trend towards smaller household size is reflected in the significant increases in: lone person; mature family; retirees; one parent; and couples without children households. The ageing population and decreasing household size is expected to increase demand for single-storey multi-unit developments, dual occupancies, retirement villages, special accommodation houses and other forms of medium-density and high-density housing. The balance between the provision of appropriate housing and supporting infrastructure will continue to be a focus and challenge for Council s residential land-use planning Population Projections The Victorian Government s population projections (Department of Infrastructure) as shown in Figure 1 indicates that Manningham s population and growth rate are stabilising. The population is expected to increase from 112,094 people in 2001 to 112,777 people in 2006 and 115,871 persons by It is estimated that the growth rate will be 3.4% from 2000 to There is an expected increase of 3,850 people between , with 6,460 additional dwellings needed to cater for future housing needs. Melbourne s population is projected to increase from 3,284,007 at the time of the 1996 Census to 3,934,878 in the year 2021, this equals a growth rate of 16.2%. Most of Melbourne s population growth will continue to grow in fringe areas. The middle and outer suburbs will also experience growth as they are home to most of Melbourne s population and have the capacity to absorb future population growth through infill development and redevelopment. Population projections for Manningham predict that the number of children (0-19 year olds) will decline by 11 % and the number of young adults (20-39 years) will decline by 28 % over the 20 years from Page 10 of 91

11 Figure 1: Manningham - Projected Population PROJECTED POPULATION Source: The Victorian Government s population projections for Manningham (C), , DoI Victoria in Future, January Population Change between Figure 2: Population change between Source: The Victorian Government s population projections for Manningham (C), , DoI Victoria in Future, January Figure 2 shows the population change between The graph highlights a decline in the 0-4, 5-17, 18-24, age groups and an increase in the and 50+ age groups. Page 11 of 91

12 Figure 3: Population change between Source: The Victorian Government s population projections for Manningham (C), , DoI Victoria in Future, January Figure 3 shows the population change between Importantly the graph shows that there is an expected increase of 36% for the number of people aged years and a 41% increase in people aged Baby Boomers to Empty Nesters One of the most significant demographic changes has been the shift of the Baby Boomer age group, people born in the late 1950s and 1960s period of economic growth, into the 45+ age bracket. According to the Department of Infrastructure (DoI) population forecasts the 35 and over age bracket will grow by around 8,606 people between 2001 and Notably, the 50 and over age bracket will grow by around 8,200 over this period. Figure 4: Manningham Change in Household Size HOUSEHOLD SIZE Source: The Victorian Government s population projections for Manningham, , DoI Victoria in Future, January Page 12 of 91

13 Household structure is changing. As shown in Figure 4 household size is declining, from 3.04 people in 1996 to 2.86 people in The continual decrease in average household size is reflected in the significant increases in lone person, mature family, retirees, one parent and couples without children households. Figure 5: Manningham Change in Household TYPE, HOUSEHOLD TYPE ( ) Couple with children Couple no children One parent families Other one family 2 or more families Lone person Group households Source: The Australian Bureau of Statistics, 1991 & 1996, Census of Population and Housing As shown in Figure 5 couples with children represent under 50% of households. These demographic trends indicate the need for future housing requirements to be appropriately tuned to smaller and single person households and housing suitable for an ageing population Setting a New Population Target 120,000 People by 2021 It is difficult to predict population growth. The Department of Infrastructure estimates that Manningham s population will be around 115,871 by Council has set a population target of 120,000 people by 2021 (4,129 additional people than current State Government population projections) as it is considered that rounding the population figure up to 120,000 will provide an opportunity to: ensure the effective utilisation of physical and social infrastructure including roads, public transport, schools etc.; respond to community needs for new housing by providing a range of dwelling types; and support and enhance existing Activity Centre areas, including the Doncaster Hill Precinct to ensure the social and economic vitality and viability of these centres. Furthermore, Council s Doncaster Hill planning policy, that estimates around 8,0000 residents within a twenty year timeframe in the vicinity of Doncaster Shoppingtown, will provide an opportunity to increase the population of the municipality. Page 13 of 91

14 5.6. We Live in a Culturally Diverse City Manningham has a culturally diverse population. More than a third of the municipality s residents were born overseas (31% of residents were born overseas, 1996 ABS Census). A high proportion of residents born overseas have come from Italy, Greece, China, Hong Kong and Malaysia. Recently, there has been an increase in the number of Chinese, Mandarin, Cantonese and Arabic speaking residents. The ethnic Chinese population grew substantially between 1981 and Doncaster East, Doncaster and Templestowe contain some of the highest concentrations of people born in China, Hong Kong, and Taiwan in metropolitan Melbourne. Similarly, South Africans have settled in more affluent suburbs of Melbourne, including Templestowe and Doncaster Car Ownership & Mode of Travel to Work Car ownership and use is high in the municipality. Travel is predominantly car based and public transport is via a bus service. Manningham s car ownership is higher than the metropolitan average (the second highest in the State!). 68.3% of residents drive to work. Almost a quarter of all households own 3 or more vehicles. 42% of households own two vehicles. 4.2% of residents do not own a vehicle. For those who cannot drive or are no longer able to drive, this includes the young, disabled, elderly etc., frequency and access to services is critical. As highlighted in Suburbs in Time analysis (2000), Older people are less likely to drive a car because of a concern about their ability to drive However, over time, more suburbs will have an aged population away from the traditional public transport infrastructure. These suburbs include Bulleen, Doncaster There may be serious implications for people who have always used cars, but can no longer drive. Page 14 of 91

15 6. RESIDENTIAL DEVELOPMENT ACTIVITY AND TRENDS 6.1. Demand for diversity in housing stock In Manningham the people born in the late 1950 s and early 1960 s are now arriving at the post child rearing and early retirement stage of their lives. This trend paves the way for a demand for different housing types in the municipality. 93% of dwellings in the municipality are detached dwellings (1996 ABS Census). Since the early 1990 s there has been an increase in dual occupancies, town houses, villa units and some apartment blocks indicating a demand for a greater range of housing types. It is recognised that this type of housing is not necessarily affordable, however, its growth is an expression of demand for greater diversity by those who can afford this option in the established suburbs of Melbourne (Housing Ourselves, The Storey Behind Housing In Victoria, DoI, 2000) Houses are getting larger Consistent with the trend across Victoria, new houses in Manningham are becoming larger. As household size is decreasing in Manningham, this highlights the trend for fewer people to consume more space. In 1985 the average floor area of a new house in Victoria was 169m2, this grew to 223m2 in In 1999 some of the highest average floor areas for new houses in the State were built in municipalities, such as Manningham (288m2), Stonnington (284m2) and Boroondara (275m2). Plans suggest that a lot of this increased space is being used as home offices, studies, computer rooms and for general living areas Housing Ourselves, The Storey Behind Housing In Victoria, DoI, 2000). It is estimated that home-based businesses in Manningham account for over 50% of all businesses in the municipality New housing in Manningham The demand for new dwellings in Manningham is generally met by infill development. This means land in established residential areas is re-used for new housing and typically takes the form of a house demolition and replacement with one or more dwellings. Manningham has been one of Melbourne s main growth areas over the past 20 years. Manningham s supply of broad hectare land is almost exhausted. Any future residential growth will be based on the consolidation of existing urban areas, in particular, identified Activity Centre areas. The State Government, in its report Housing Melbourne Residential Forecast 2000, highlighted that Manningham would account for 24% of east Metropolitan Melbourne s housing development activity over the next 10 years. Manningham generally attracts a third and fourth homebuyers market, comprising mature families, to areas such as Bulleen, Templestowe, Doncaster, Donvale and Park Orchards. The low density and non-urban areas of the municipality generally attract younger families. Page 15 of 91

16 6.4. Emerging Trends Retirement Accommodation Notably, a significant number of retirement villages are located in the middle/outer eastern region (i.e. Doncaster, Donvale and Templestowe). Recent development is servicing the large empty nester market from within the municipality. Three recent major applications account for approximately 700 new retirement units within the municipality comprising independent living units, self care apartments and serviced apartments for retirees. In mid 1999, listed property and retail investor Gandel Group (through Retirement Enterprises) paid $14.75 million for the 9.56 ha former Telstra Training Services and Linesmen s School in Tram Road, Doncaster, for the development of a retirement village. High Rise Accommodation The Sovereign Point residential apartment tower was constructed in the mid 1990 s. The 7 storey complex located in Williamsons Road, Doncaster, comprises 39 apartments and was the first building in Manningham to offer apartment style living. The product was well received by the market. Notably, the average selling price of $385,000 exceeds the median sale price of all suburbs in the municipality. The Crest, adjacent to Sovereign Point Towers is currently being constructed. The Draft Doncaster Hill Strategy, prepared by Manningham City Council, is a response to meeting the community s need for more appropriate housing for an ageing population, an increasing demand for medium or high rise development and the community s desire to see less unit development across the municipality. The Doncaster Hill Precinct (refer to Map 5 on page 27) will be the focus for higher residential densities and high rise development within the municipality. The development will promote a range of retail, commercial and community facilities accommodating up to 8,300 residents and providing 10,000 new jobs. Council has recently approved an 11 storey complex (13 levels including a basement and carpark) at 632 Doncaster Road, Doncaster within the Doncaster Hill precinct. This apartment tower will comprise 77 dwellings and includes offices and restricted retail in the Doncaster Hill precinct Manningham Residential Development Analysis The Manningham Residential Development Analysis was undertaken by Competitive Service Strategies (2000) to examine residential development trends in Manningham between 1987 mid Figures were derived using building approval data from the Australian Bureau of Statistics and Council records. Due to the differences in record keeping between the ABS and Council s building approval data, each approval record Page 16 of 91

17 was assessed individually to develop an accurate assessment of building activity. Accordingly, the data should be regarded as only an estimate of building activity. Nevertheless, the data provides a profile of the existing residential stock in Manningham and emerging trends regarding the location and form of residential development occurring in the municipality. Table 1: Manningham Change in Dwelling Types, Type Year % Year % Separate house 31, , Semi-detached, row etc. 1, , Flat, unit, apartment , Other dwellings Not stated Total 34,243-36,396 Source:Manningham Residential Development Analysis (Competitive Service Strategies 2000). Table 1 highlights that there has been more than a three-fold increase in medium density development in the municipality between 1991 and The location of these approved developments have been divided into neighbourhood character areas (neighbourhood character areas are based on Council s Draft Neighbourhood Character Study 1999, refer to Map 2 on page 17). These are summarised below: 44% in the Traditional Grid areas; 37%in the Modern Curvilinear areas; 14% in Larger Lots; and the remaining 5% was in the Non Urban and Warrandyte areas. Main findings of the analysis include: South of Doncaster Road and Bulleen were the major precincts where building approvals were given. About 16% of all dwellings approved in the municipality were in Bulleen and 13% South of Doncaster Road. In , approvals in these areas constituted a third of all dwelling approvals. Approvals for multi-dwelling units have been proportionally greater in the Traditional Grid areas of the municipality. In the analysis period, high rates of approvals were recorded in Templestowe, Donvale and the area south of Doncaster Road. The Traditional Grid and Modern Curvilinear character areas consistently contributed about 60% and 30% respectively, to the municipal total of multi-unit development. Approximately 80% of all dual occupancy approvals were located in the Traditional Grid areas. The precincts of South Doncaster Road and Bulleen contributed about 30% each to the municipal total in each of the last three years of the analysis period. Page 17 of 91

18 In both 1991 and 1996, separate houses comprise the largest proportion of the total housing stock. In 1996, detached dwellings constituted 89% of the stock. The analysed data indicates that this stock increased by 935 dwellings or 3% between the censuses. It is anticipated that the Traditional Grid areas will continue to experience considerable redevelopment because of the combination of relatively affordable land values, access to shopping facilities and transport infrastructure. Map 3, (refer to Map 3 on page 19), shows the spatial distribution of multi-dwellings in the municipality. In particular, it highlights that the municipality s largest Activity Centre (Westfield Shoppingtown, Doncaster Hill precinct), has been subject to limited multi dwelling development in comparison to other Activity Centre areas such as Doncaster East Village, Jackson Court, Tunstall Square and Templestowe Village. The Pines sub-regional shopping centre located in Doncaster East also has limited multi-dwelling development. Generally, this area has limited redevelopment opportunities as a large proportion of the housing stock is less than 25 years old and comprises larger modern brick homes in the prestige sector of the housing market. This is in contrast to the older weatherboard housing stock located in Bulleen or in the area south of Doncaster Road. The majority of multi-dwellings mapped in Map 2 are classified as own your own strata units or subdivided units. 84% of multi-dwellings occur within an 800 metre radius of Activity Centres. The majority of multi-dwelling development occurring outside of these areas (821 dwellings or 16% of all multi-dwellings), are located in the area south of Doncaster Road, in parts of Bulleen and Templestowe. Page 18 of 91

19 MAP 2 MANNINGHAM S NEIGHBOURHOOD CHARACTER AREAS Page 19 of 91

20 MAP 3. - SPATIAL DISTRIBUTION OF MULTI-DWELLINGS IN THE MUNICIPALITY. Page 20 of 91

21 7. EXISTING PLANNING POLICY FRAMEWORK The Manningham Planning Scheme outlines policies and requirements for the use, development and protection of land. Issues relating to the provision of housing and residential development are included in the State and Local Planning Policy Frameworks. The State Planning Policy Framework (SPPF) covers strategic issues of State importance. The Local Planning Policy Framework (LPPF) contains the Municipal Strategic Statement (MSS) and local planning policies for a municipality State Planning Policy Framework (SPPF) The SPPF identifies various land use and development planning policies to meet the objectives of planning in Victoria as set out in Section 4 of the Planning and Environment Act The policies integrate relevant environmental, social and economic factors in the interest of net community benefit and sustainable development. The SPPF identifies the principles of land use and development planning. They include: Settlement: Providing appropriately zoned and serviced land for housing, employment, recreation and open space, commercial and community facilities and infrastructure. Environment: Adopting best practice in environmental and resource management. Management of Resources: Conserving and maximising the use of natural resources. Infrastructure: Planning for development of urban physical and community infrastructure in a way that is efficient, equitable and accessible. Economic Well-Being: Fostering economic growth and development. Social Needs: Recognising social needs by providing land for a range of community services. Regional Co-Operation: Identifying the potential for regional co-operation when planning for the effective and efficient use of resources and achieving sustainable development Municipal Strategic Statement (MSS) The MSS provides strategic direction for future land use and development within the municipality. It provides a future vision for the municipality and identifies the issues that need to be considered when making land use decisions. Importantly, the MSS Page 21 of 91

22 provides the basis for land use zonings, overlays and local planning policies included in a planning scheme. The Manningham MSS provides policy direction on a range of issues including residential design and development issues. In summary, the MSS identifies that residential development should: Provide housing choice to meet community needs; Be focussed in areas well serviced by physical and community facilities, including shopping centres, schools, medical facilities, public transport etc; Protect the neighbourhood character of existing residential areas, and create a sense of place; Protect areas of environmental and visual sensitivity; Respond to the topographic, land capability characteristics in areas of environmental sensitivity; and Be environmentally sustainable Council Reference Documents In addition to the MSS Council policy documents have been prepared to help assess residential applications. Two key documents include the Draft Neighbourhood Character Study (1999) and Building Bulk Guidelines (2000). Draft Neighbourhood Character Study (1999) The municipality comprises a range of residential character areas that collectively form an intricate and interesting residential fabric. The Draft Neighbourhood Character Study identifies the inter-relationship of various elements that contributes to the character and appearance of an area, and contributes to its sense of place. The Study divides the municipality into five (5) broad neighbourhood character precincts (Refer to Map 2 on page 18), including: Traditional Grid; Modern Curvilinear; Larger Lots urban and natural landscape areas; Warrandyte; and Non-Urban. Part B of the strategy will examine the municipality s neighbourhood character areas in greater detail. Building Bulk Guidelines (July 2000) Council s Municipal Strategic Statement makes reference to encouraging development that creates a high quality built form which contributes positively to the neighbourhood character and responds to the landform. Page 22 of 91

23 The guidelines examine ways in which the built form can be designed to give consideration to its environs, and be visually interesting. The design elements examined include: roof form articulation colour materials responding to landform one and two-storey dwellings front setback vegetation. Page 23 of 91

24 PART B: THE RESIDENTIAL STRATEGY The Residential Strategy examines a range of issues (themes) and recommendations to improve the form, design and construction of residential buildings over the next 10 years. Each chapter has an introduction, followed by a discussion of issues and concluded with recommendations. The recommendations identify a series of actions and the preparation of various planning policies to achieve residential developments that are more socially responsive, environmentally sustainable, protect neighbourhood character and produce a net community benefit. The Strategy examines the following issues: Diverse Housing Opportunities; Neighbourhood Character and Amenity; Sustainable Development; Land Capability and Infrastructure; Safety and Accessibility; and Affordable Housing. Page 24 of 91

25 CHAPTER 1: DIVERSE HOUSING OPPORTUNITIES Chapter 1 examines the theme DIVERSE HOUSING OPPORTUNITIES. The issues explored in this chapter include: Opportunities for Increased Residential Densities; Single Storey Dwellings vs Double Storey Dwellings; and Older Person Housing in Manningham. 1. INTRODUCTION To meet the changing demographic trends and achieve the residential targets identified by Council there is a need to provide a greater diversity of dwelling types. Whilst single detached housing will remain the predominant housing type in the municipality, the changing household and demographic trends show that over the next decade there will be a greater need for medium and high density housing, retirement villages, special accommodation houses and associated forms of housing. The challenge for the Residential Strategy is to provide a range of dwelling and tenure types to meet the needs of the traditional nuclear family, the ageing population, lone person households and the diverse cultural needs of the population Defining low, medium and high density residential development High and medium-density housing densities will be encouraged within identified Activity Centre areas. The urban village concept is at the heart of the new vision for Doncaster Hill. Higher density housing in the Doncaster Hill precinct will range from a minimum of two storeys to a maximum of 11 storeys (including roof structures). Medium density development in the remaining identified Activity Centres will be guided by future strategic work, including the preparation of plans and policies that include density parameters for the Activity Centres of Bulleen Village, Templestowe Village, Macedon Square/Plaza, Doncaster East Village, Jackson Court, Tunstall Square, Doncaster East and The Pines. Residential development outside of identified Activity Centre areas will be the focus for low density, detached housing development. These areas, including areas of transition at the periphery of identified Activity Centre areas, will be subject to further strategic work with respect to limiting medium and high density development, for example encouraging single storey dwellings and multi-unit dwellings in these areas. 2. OPPORTUNITIES FOR INCREASED RESIDENTIAL DENSITIES 2.1. High Rise Development at Doncaster Hill Council s MSS encourages increased housing densities in locations close to activity centres and public transport networks. The MSS states: Page 25 of 91

26 To encourage higher housing densities which achieve a more efficient use of urban infrastructure in locations close to activity centres and major public transport routes and which stabilises population levels in the municipality. The Doncaster Activity Centre being a regional activity centre has been identified as a focus for high density residential development. The remaining activity centres are identified as areas where medium density development is encouraged. Map 4 and 5 show the location of Doncaster Hill and the remaining local activity centres. In an attempt to alleviate some of the community concern over the impact medium density development has on established residential areas, Council has developed the Doncaster Hill Strategy It proposes establishing a high rise residential precinct with associated community facilities including restaurants, clubs, and entertainment facilities along parts of Doncaster Road and Williamsons Road in the vicinity of Doncaster Shopping Town. It is envisaged that this area will become an urban village where an extensive range of land uses, including residential, commercial and retail are serviced by a comprehensive transport network. Urban villages contain a mixture of residential, commercial and industrial developments; encourage the use of cycling and public transportation and have a high enough density to encourage local activity and maintain a sense of place. (pg 1 Urban Village Project Encouraging Sustainable Urban Form Summary Report: Energy Victoria). Macroplan Pty Ltd has indicated a market demand within a 20 year timeframe for over 8000 residents (Source: Doncaster Hill Strategy Demand and Supply Analysis, May 2001). The Doncaster Hill Strategy represents an exciting opportunity to develop an integrated, mixed use precinct, incorporating medium and high density residential development. Apart from its proximity to an extensive range of services and facilities, the Doncaster Hill Precinct is an ideal residential location for high density development as it has panoramic views of the Melbourne skyline. It also offers housing choice by providing apartment living. To ensure the success of Doncaster Hill, high density residential development should be directed to the areas designated in the Doncaster Hill Strategy. RECOMMENDATIONS 1. Amend the Manningham Planning Scheme to focus high density residential development in the Doncaster Hill precinct consistent with the recommendations of the Draft Doncaster Hill Strategy 2021, December 2000 and working papers. Page 26 of 91

27 MAP 4 LOCATION OF ACTIVITY CENTRES Page 27 of 91

28 MAP 5 DONCASTER HILL PRECINCT 2.2. Page 28 of 91

29 Increased Housing Densities Around Existing Activity Centres Templestowe Village is considered a successful example of an Urban Village in Manningham, with medium density development as well as single detached housing being focussed around a local activity centre incorporating shops, cafes, restaurants, offices, community facilities and a bus line. Urban design features including paving, lighting, landscaping and signage contribute to the attractive setting. The synergy between residential and commercial facilities creates a sense of place and encourages social interaction during the day and night. Given that Manningham has an ageing population and the household size is becoming smaller (with a significant increase in smaller households, including lone person, mature family, retirees, one parent and couples without children) an ideal opportunity exists to significantly increase the residential density around existing activity centres. An opportunity also exists to provide accommodation above shops in the existing activity centres. Medium density development is to be encouraged in the local activity centres of Bulleen Village, Macedon Square / Plaza, Doncaster East Village, Jackson Court, Tunstall Square, Doncaster East and The Pines. By providing more medium density housing in close proximity to, and preferably within walking distance of, commercial centres, would provide a range of social, environmental and economic benefits including: encouraging a range of household and dwelling types around activity centres; improving the commercial viability of businesses in an activity centre; giving people the choice to walk, drive or catch public transport to a centre, rather than relying on the car; enabling people of all ages and socio-economic groups access to shopping and community facilities this would be particularly beneficial for people in advanced years to maintain their independence; providing an incentive for each centre to undertake urban design improvements to make it more attractive and physically accessible by all sectors of the community; and promoting social interaction and giving each centre a sense of place during the day and night. Medium density development in these centres will be guided by future strategic work. Parameters need to be set identifying the extent to which increased housing densities could occur around existing activity centres. To achieve this, core and secondary areas need to be identified. It is envisaged that the core area would provide a higher density compared to the secondary area. The secondary area would be at a density that would serve as a transitional interface between the higher density in the core area and the lower density in the traditional lower density residential areas. Page 29 of 91

30 RECOMMENDATIONS 2. Identify the primary and secondary areas where increased residential densities could occur around existing activity centres including Doncaster Hill (including Westfield Shoppingtown), Bulleen Plaza, Macedon Square / Macedon Plaza, Templestowe Village, Jackson Court, Doncaster East Village, Tunstall Square, Doncaster East, the Pines. 3. Prepare policies and guidelines for each Activity Centre identifying medium density housing design parameters. These structure plans would address: density; the interface between the secondary residential areas and the adjoining traditional residential areas (i.e. areas of transition at the periphery of identified Activity Centre areas); where single and double storey dwellings should occur; frontage and side setbacks; building scale and form including roof form, façade articulation, building materials, colours; front fence treatments; pedestrian networks between residential areas and Activity Centres; and footpath widths and treatments. 4. Prepare a policy and / or guidelines encouraging single storey detached dwellings and single storey multi-unit dwellings in areas outside identified activity centre precincts so that they remain the focus for low density residential development. 5. Prepare a local planning policy addressing residential development covering the design and siting of single houses and medium density development in the municipality. 6. Identify residential opportunities above shops in the existing Activity Centres. 3. SINGLE STOREY DWELLINGS VS DOUBLE STOREY DWELLINGS It is estimated that approximately 60% of Manningham s residential housing stock comprises double storey dwellings. Interestingly, in the last five years approximately 80% of houses approved have been double storey. It is likely that this has been influenced by the socio-economic status of the community and the land values of the municipality. Given Manningham has an ageing population and household sizes are becoming smaller it is questionable whether a double storey development is totally appropriate in meeting people s needs. It also raises the question whether there is sufficient housing choice provided in the municipality. Whilst double storey dwellings are appropriate for many households, particularly traditional households and smaller households seeking a more spacious living environment, a greater number of single storey dwellings need to be provided to offer more choice for existing residents, as well as people wanting to move to Manningham. Page 30 of 91

31 The challenge is to encourage developers to build more single storey dwellings in the municipality. ResCode addresses the issue of housing diversity in Clause , however, it relates to developments of ten or more dwellings. The standard states: Developments of ten or more dwellings should provide a range of dwelling sizes and types, including: dwellings with a different number of bedrooms; and at least one dwelling that contains a kitchen, bath or shower, and a toilet and wash basin at ground level. The inclusion of housing diversity in ResCode is positive, however, it seems that the provision has limited application in Manningham, as it would only be applicable in a few circumstances where an integrated development occurred on consecutive blocks. It also does not mention whether a certain percentage of the development needs to be single storey. ResCode allows for the preparation of local variations. To achieve housing diversity in Manningham there is a need to investigate the options available so that housing diversity is provided in developments comprising less than ten dwellings. A provision should be included requiring that a certain percentage of a medium density development needs to be single storey. There is also a need to investigate a package of planning incentives to encourage developers to build more single storey dwellings. For example, the private open space provisions for a single storey dwelling may be less than a double storey dwelling, whilst the site coverage may be higher. Assessment of planning permit applications could be reviewed to fast-track medium density housing applications that include at least one single storey dwelling at the rear of a property, and therefore could be dealt with under delegation. Other policy initiatives for medium density housing applications may be to encourage a double storey dwelling to include a master bedroom and ensuite at ground level. RECOMMENDATIONS 7. Investigate preparing a local variation to Clause of ResCode, or other measure that addresses housing diversity. Whilst the local variation should address dwelling size and type, as stated in ResCode, it should also include the need to provide single storey dwellings. 8. Investigate a range of planning incentives to encourage more single storey dwellings in medium density housing developments. These may include reducing the amount of private open space, increasing the permitted site coverage and determining under delegation a planning application for a multi unit development that includes a single storey dwelling at the rear of a property. Page 31 of 91

32 4. OLDER PERSON HOUSING IN MANNINGHAM An ageing population coupled with the trend toward smaller family structures will increase the demand for smaller houses, single storey multi-unit development, retirement villages, special accommodation and nursing homes. Although Manningham City Council has continued to encourage single storey multi-unit dwellings, particularly at the rear of sites, the most common form of housing being constructed is large two storey dwellings. As described earlier, this is leading to an imbalance between the housing needs of the population and the actual housing stock available. Population projections indicate that there is a considerable demand for dwellings specifically targeted at people aged 60+. Apart from the Ministry of Housing and private retirement village operators, there are few developments which include design features addressing the needs of this growing age group. Generally these opportunities would be accommodated best on larger sites through the consolidation of a number of properties or within multi-unit development containing a mix of housing. Currently, Council considers that relatively flat sites near transport routes that are in close proximity to shopping centres provide the best opportunities for older person accommodation. Council has developed preliminary draft guidelines titled Older Person Housing in Manningham. The guidelines highlight that the need of older person housing are not necessarily reflected in the housing standards specified in VicCode 1 and the Good Design Guide. For example, car parking and open space requirements do not generally represent actual demand. The guidelines state that specific features that address access and mobility in residential development proposals would be very desirable. Although ResCode provisions apply, Council may consider variations including higher densities on sites exceeding 1,500 square metres and contributions towards open space may not be required when development complies with standards specified in the guidelines Older Person Housing in the Non Urban Areas The Report of the Panel and Advisory Committee on the new format Manningham Planning Scheme (Jan 1999) made a number of comments concerning a lack of suitable housing for the elderly in Warrandyte and the non-urban area of the municipality. These comments were made particularly in the context of the controls on subdivision, dual occupancy and medium density housing in these areas and the ageing of the population. The ageing of the non-urban community and the accompanying claims of difficulties maintaining larger properties is a key housing issue. The significance of the issue is increased in the context of the numerous studies that have indicated the desirability of providing alternative housing in close proximity to people wishing to move from larger properties to maintain social and cultural networks. The challenge is to provide suitable housing opportunities in appropriate locations, to reduce pressure for residential development in more sensitive locations, and in a manner that respects the character and amenity valued by existing residents. Page 32 of 91

33 It is considered probable that the Doncaster Hill project will attract a proportion of its new resident population from the non-urban areas of the municipality. RECOMMENDATIONS 9. Further develop the draft guidelines Older Person Housing in Mannningham to encourage residential developments suitable for older residents. The guidelines should include locational criteria, exterior and interior design requirements, site analysis requirements and other relevant design issues. Page 33 of 91

34 CHAPTER 2: ISSUES NEIGHBOURHOOD CHARACTER & AMENITY Chapter 2 examines the theme NEIGHBOURHOOD CHARACTER AND AMENITY ISSUES. The issues explored in this chapter include: Overview of Manningham s Neighbourhood Character Areas; Neighbourhood Character Positive and Negative Influences; Current Planning Framework; and Vegetation Protection. 1. INTRODUCTION Increasing pressure to redevelop and consolidate residential areas with medium to highdensity housing development raises issues about how these changes affect the character and amenity of our local neighbourhoods. Redeveloping residential areas with single detached, or medium density housing, requires a balance to be achieved between meeting the needs of the developer, or prospective homeowner and respecting the neighbourhood character of an area and the residential amenity of adjoining property owners. Much of the criticism by residents of residential development in the municipality relates to loss of character. Through the residential workshops, surveys and media it is recognised that there is substantial community concern over the scale and character of new residential development that in instances bears no relationship to the established streetscape. In meeting future housing needs, the challenge is to provide for site responsive residential development in appropriate locations, that respects the residential character and amenity valued by existing residents. Surveys undertaken within the municipality indicate that what residents liked most about their local neighbourhood or street included that it was quiet/peaceful, a friendly community, close to shopping facilities and had a natural, leafy feel. Residents identified that the most important housing issues for Council to address included: the need to maintain the character and feel of streets and local neighbourhoods; the protection of trees and natural environment; and the provision of more appropriate housing types. 2. OVERVIEW OF MANNINGHAM S NEIGHBOURHOOD CHARACTER Manningham is a diverse municipality that can be divided into two broad character areas. The land east of Mullum Mullum Creek may be described as non-urban, with its distinctive semi-rural character. The eastern area comprises undulating terrain dissected by ridge and drainage gullies, with a good cover of indigenous trees over much of the area. The area west of Mullum Mullum Creek is urbanised. The Draft Neighbourhood Character Study (Manningham City Council, March 1999) outlines five broad character areas within the municipality including Traditional Grid; Page 34 of 91

35 Modern Curvilinear; Larger Lots; Warrandyte;and Non-Urban. A map of the character areas is shown in Map 2 (refer to Map 2, page 18). A description of each neighbourhood character area is summarised as follows: 2.1. Traditional Grid These are the older more established areas of Manningham developed between the Post War period to the 1960 s. These areas have a uniform street grid pattern regardless of terrain, homogenous building style with tree canopy provided by larger trees in private gardens. Housing stock in Traditional Grid areas varies from weatherboard dwellings in the older suburbs through to larger modern brick homes in the prestige sector of the housing market. Older housing stock is generally located in the suburbs of Bulleen, Templestowe and Doncaster. Areas of newer housing and infill developments are occurring in these areas Modern Curvilinear This precinct includes the suburbs of Doncaster East and Templestowe and comprise the new subdivisions of the 1970s to the present day. These areas feature more curvilinear road patterns, with courts being a predominant feature. Building styles are mixed, although construction is predominantly of brick and tiled hip and valley roofs. Lot sizes are generally larger than that for the traditional grid areas, generally around 785m2. Vegetation in these areas is generally of a native/exotic mix, with established native trees and isolated groups of remnant pine trees, reflecting this area s orcharding past Larger Lots The larger lot subdivisions have a different residential style to the Traditional Grid and Modern Curvilinear character areas. Although houses are generally much larger, they are usually able to be visually absorbed in the open space settings. The character is variable, depending on the presence of indigenous and pine remnants in the surrounding landscape, the width of roads, the setback from front boundaries and the dominance of built structures. Residential development occurring from the late 80 s and early 90 s are generally more prominent. Areas recently developed including Templestowe and parts of Warrandyte, feature large brick houses generally on 1 acre lots,. They comprise a mix of featuristic revivals including Colonial, Tudor, Mediterranean, Classical and Georgian, which are rendered in pastel colours and often have high front fences. Private gardens form a significant part of the character of these areas. Page 35 of 91

36 Larger Lot (low density) development is characteristic of housing in the township of Wonga Park, areas of Park Orchards and Donvale, which have allotments generally no smaller than 0.2ha. Warrandyte The township of Warrandyte consists of smaller allotments ranging from 750m2 to 1,250m2. There is a range of building styles dating from the 19th Century in the township area. Generally, the area has an informal rustic character. Non-Urban The non-urban area (approximately 3090ha) includes the suburbs of Park Orchards, Warrandyte and Wonga Park. Housing in these areas is generally substantial on rural-residential allotments ranging from 3ha to 40 ha. This area provides a semirural lifestyle choice with significant landscape and environmental values. Major land uses include rural-residential living, conservation and limited agriculture (viticulture and grazing). Remnant vegetation of varying significance occurs throughout the nonurban area, contributing to the bush character. Page 36 of 91

37 3. NEIGHBOURHOOD CHARACTER POSITIVE AND NEGATIVE INFLUENCES Residential development has moved incrementally from the more established areas south of, and around Doncaster Road and Manningham Road, towards the north. Building styles largely correspond to the period of development. In recent years, there has been a change to a more eclectic mix of various reproduction styles Colonial, Tudor, Mediterranean, Classical and Georgian, mixed with variations of previous more simple styles and various modernist and post modern styles. Inspection of residential areas show that generally, housing types and the increase in dwelling size has impacted on the neighbourhood character of precincts within the municipality. Following is a series of annotated images of residential developments that has occurred recently within the five neighbourhood character precincts. These examples show how residential development has or has not responded to site and neighbourhood characteristics such as built form, vegetation topography and other related features Traditional Grid areas A review of recent residential developments in the Traditional Grid areas of the municipality identify some design and development issues that can impact on the neighbourhood character of an area. Building Form and Scale Insufficient setbacks from site boundaries make a house appear as an overdevelopment of a site. Buildings that are of a scale that are substantially greater than the prevailing built form. Blank walls facing driveways and sheer walls contribute to a house appearing bulky. Rendered surfaces do not always complement the existing buildings in the streetscape. Rendered fences can be out of character in particular neighbourhoods; A gun barrel driveway in a unit development accentuates the amount of hard surface in a development. A lack of design features including eaves, verandas, and pergolas makes a house appear visually uninteresting and not particularly energy efficient. Streetscape Multi-unit or two or more storey developments can be dominating in a neighbourhood where there is a predominance of single storey houses. Flat roofs sometimes appear out of character in areas where hip and valley roofs are dominant. A repetitive house design in a unit development appears dominant in a streetscape. Garages located at the front of a property tend to dominate the streetscape. Page 37 of 91

38 Vegetation The removal of mature trees in private gardens prior to redevelopment accentuates the scale and bulk of a new development in a streetscape. A substantial site coverage enables no, or minimal opportunity for planting trees capable of growing to a substantial height (ie above the roofline of a house) at maturity. This overall form of medium density development is dominating, extending to the depth of the block. There is insufficient space to include canopy trees on the site. Housing grain is too dense and the large rendered buildings do not complement the adjoining brick veneer housing. The development does not incorporate eaves, pergolas or verandas. The gun barrel driveway contributes to the building bulk. The scale, bulk and roof form of the new development reflects the surrounding built form, which generally has a horizontal character. The development has retained canopy trees. The landscaping does not include obtrusive high front fencing. Page 38 of 91

39 A high site coverage provides no capacity for canopy trees or substantial landscaping. Front garages dominate the street frontage. A single dwelling can have just as much impact on neighbourhood character as multi-dwelling developments. The rendered high front fence, dense housing grain and lack of front landscaping and canopy trees do not complement the surrounding built form and can impact on the streetscape. An inconsistent front setback and a dominating development with sheer walls can impact on the streetscape and neighbouring properties. Page 39 of 91

40 Although the horizontal form of this development is sizeable, the use of transparent front fencing, varied materials and the stepping back of upper floors assist in reducing the building bulk. Although there is provision for some landscaping, there is no opportunity for canopy trees. Retention of mature canopy trees and a diversity of dwelling size (a mix of single storey and double storey) help to reduce visual bulk and makes the development compatible with the surrounding neighbourhood Modern Curvilinear Areas A review of recent residential developments in the Modern Curvilinear areas of the municipality identify some design and development issues that can impact on the neighbourhood character of an area. Building Form and Scale Buildings that are of a scale that are substantially greater than the prevailing built form. A unit development with insufficient front, side and rear setbacks results in an overdevelopment of a site. Streetscape The construction of front fences in areas where there are no fences, has a significant visual impact on the streetscape. The use of stark colours in areas that are elevated makes a house visually prominent. Vegetation The removal of mature trees in private gardens prior to redevelopment accentuates the scale and bulk of a new development in a streetscape. A high site coverage enables no, or minimal opportunity for planting trees capable of growing to a substantial height (ie above the roofline of a house) at maturity. Page 40 of 91

41 Many of the issues raised in relation to built form in the Traditional Grid areas also apply to the Modern Curvilinear Areas. Building bulk, scale, building envelope and reflective colour tonings sometimes do not complement the existing built form. Built form generally dominates over landscape values. Garages are not integrated into the main building form. Insignificant tree cover contributes little to the streetscape character. Built form can dominate over landscape values. Threats in this area include: the loss of vegetation and tree cover in private gardens, and the construction of solid, high front fences. A unit development with inadequate front and side setbacks and a high site coverage result in an inability to provide canopy trees which impacts on streetscape and neighbourhood character. Page 41 of 91

42 Trees and garden landscaping soften development. Multi unit development that use muted colours and non-materials blend in more effectively with the surrounding built form. A low site coverage allows for larger private gardens and landscaping. Page 42 of 91

43 3.3. Larger Lots A review of recent residential developments in the Larger Lot areas of the municipality identifies some design and development issues that can impact on the neighbourhood character of an area. Building Form and Scale Buildings that do not respond to the topographic features of a site often result in extensive cut and fill. The use of dominant, reproduction style homes which are incompatible with the prevailing low scale built form of an existing area. Streetscape The construction of front fences in areas where there are no fences has a significant visual impact on the streetscape. The use of stark colours in prominent locations makes a house visually obtrusive. Vegetation A high site coverage and reduced front setbacks provides minimal opportunity for planting trees that are capable of growing to a substantial height (ie above the roofline of a house) at maturity. Landscaping/planting that does not complement existing vegetation. Some sites have all existing mature vegetation removed before redevelopment which detracts from the streetscape character and makes a new house visually dominant in the streetscape. Page 43 of 91

44 Extensive cut and fill is occurring in these areas. The existing slope of the land does not influence the built form. The removal of indigenous vegetation and planting of exotic species is prevalent. The effect of high fences reduces the openness to the street whilst large, stark buildings in reflective colours can be visually dominant in a streetscape. Page 44 of 91

45 These developments retain and enhance the low density, environmental landscape character of the area. A low, horizontal built form in muted colours has been adopted. Indigenous plantings and the lack of front fencing complement the environmental landscape character of the area. The location of the tennis court has avoided extensive cut and fill. The built form retains openness to the street. Page 45 of 91

46 3.4. Warrandyte A review of recent residential developments in Warrandyte identifies some design and development issues that can impact on the neighbourhood character of an area. Building Form and Scale Buildings that do not respond to the topographic features of a site result in extensive cut and fill. Streetscape Buildings that use stark and reflective tones and materials are incompatible with the surrounding bushland setting. Vegetation Removal of existing mature tree canopy and indigenous vegetation detract from the environmental character of the area and reduce the habitat for fauna. Developments in Warrandyte (as pictured above) generally nestle into the landscape. They are often single storey, and use a variety of materials including brick and timber in muted tones. Although the minimum lot size in the area is 650m 2, vegetation has been retained which enhances the informal rustic character and bush setting. Design is generally of a scale and form that is sympathetic with the bushland setting. This form of development is inconsistent with the typical built form found in Warrandyte. The overall height, sheer blank walls and building bulk is dominant in the area. This style of house may be more suited to the Larger Lots or Modern Curvilinear areas of the municipality. Page 46 of 91

47 3.5. Non-Urban A review of recent residential developments in the Non-Urban area identifies some design and development issues that can impact on the neighbourhood character of an area. Building Form and Scale Buildings that are of a scale that are substantially greater than the prevailing built form; Buildings that do not respond to the topographic features of a site result in extensive cut and fill. Streetscape Buildings that use stark, reflective tones and materials are obtrusive and incompatible with the surrounding environmental setting. Vegetation Buildings that result in the extensive removal of existing mature trees and native vegetation detract from the bushland character of the surrounding area and reduce the habitat for fauna; The planting of exotic species is inappropriate in many instances in the non-urban area. This development is sympathetic with the environmental character of the area. A site responsive design, the retention of existing vegetation, together with the use of muted colours makes this development nestle into the landscape and bushland setting. Page 47 of 91

48 Removal of indigenous tree canopy, including middle and understorey vegetation and extensive earthworks are key threats in the non-urban areas. Page 48 of 91

49 4. CURRENT PLANNING FRAMEWORK ISSUES AND RECOMMENDATIONS RELATING TO NEIGHBOURHOOD CHARACTER 4.1. Res Code Over the years there has been considerable public opposition to the impact single and medium density housing has had on the urban character of an area, and the adverse impacts they have had on neighbouring properties, particularly in terms of overlooking, overshadowing, building bulk etc. Mounting community pressure has resulted in the State Government to replace Vic Code 1 (which relates to single dwellings on a block) and The Good Design Guide for Medium Density Housing with a single housing code entitled ResCode. The new Code comes into effect in August ResCode brings all housing provisions into two documents, the planning scheme and the Building Regulations. It applies to the construction or extension of one or more houses on a lot, and to the subdivision of land in residential zones. The Code proposes to introduce improved standards for houses and subdivision. Amenity standards that apply to all dwellings include: building height setbacks overlooking overshadowing access to daylight; and private open space. New single houses that require only a building permit must meet the 14 standards. These standards are in the Building Regulations and address design and siting issues including: Street setback Building height Site coverage Side and rear setbacks Daylight to new and existing windows Overshadowing of open space Overlooking Private open space Front fences A mandatory neighbourhood character analysis and site description are the starting point for considering all applications for a planning permit for residential development, including single houses, one or more houses on a lot and a residential subdivision. This provision requires the features of a site and neighbourhood to be graphically shown. It is to be accompanied by a written explanation identifying how Page 49 of 91

50 any proposed design responds to the characteristics of a site and the surrounding area. Res Code also introduces a schedule to the Residential 1 Zone, Residential 2 Zone, Mixed Use Zone and Township Zone that allows a Council to: Specify that a planning permit is required to construct or extend one dwelling on a lot of less than 500m2. If not requirement is specified in the schedule, the default lot size is 300m2. Specify certain design and siting requirements including: building height, setbacks from streets, side and rear setbacks, site coverage, private open space and front fence height. This provision enables a Council to specify siting requirements to reflect local characteristics, or to achieve its long term planning objectives for an area. Res Code also introduces a Neighbourhood Character Overlay. This overlay will include a range of controls that can be used to retain an existing character or achieve a preferred character. Councils can use the Neighbourhood Character Overlay to: Require a planning permit for one house; Change most of the design and siting requirements relating to single or multiple houses to make them more locally responsive; and Require a planning permit for tree removal and / or the demolition of a building. The Neighbourhood Character Overlay will only be applicable to areas where specific neighbourhood character outcomes can only be achieved with these extra requirements. The introduction of Res Code provides Manningham with an opportunity to introduce planning controls to ensure that future residential development is sympathetic with areas of identified, or preferred character and protects areas of visual and environmental values. 5. MANNINGHAM DRAFT NEIGHBOURHOOD CHARACTER STUDY 5.1. Introduction The Manningham draft Neighbourhood Character Study (1999) (referenced in the Manningham Planning Scheme) identifies the municipality s unique natural attributes that make it a special place within Melbourne s Metropolitan area as well as at a local level. The Study: Outlines the predominant neighbourhood characteristics of identified precincts within Manningham; Provides descriptions of the existing neighbourhood character areas; Identifies threats to the neighbourhood character; and Page 50 of 91

51 Outlines the desired future character. The study outlines five broad character areas within the municipality including: Traditional Grid, Modern Curvilinear, Larger Lots, Warrandyte and Non-Urban that are then broken down into 25 smaller precincts. The study focuses on the key neighbourhood characteristics, including: residential grain (lot size and density); subdivision pattern; built form; building setbacks; vegetation; topography; orientation; road construction; and waterways Issues Whilst the draft study identifies important neighbourhood character issues it provides limited guidance regarding the desired future character for different areas of the municipality, including appropriate design techniques or suggestions. Importantly, it provides a limited description on the preferred future character. This is a considerable limitation as the preferred future character is a key determinant in managing any change in the municipality. The desired future character statements contained within the draft study do not provide enough guidance on the issues of setbacks, degree of change and what significant elements should be maintained. The draft study needs to provide a clearer framework identifying varying degrees of residential change appropriate for different character areas of the municipality. For example: Where does development need to be more carefully managed? Where are the areas that need to be preserved in their current form? Where may significant change be expected? and Are there any emerging character areas? The draft study describes the current situation but does not identify what is special or significant about these areas. Special features, values or elements that require consideration when addressing new development proposals are not specifically stated ie. the feature/element that must be retained. Additionally, landscape, environmental or heritage values of areas are not clearly defined or identified. The link to land use in neighbourhood character areas is not defined, for example proximity to, Activity Centre areas, or open space areas. The study highlights threats within the five broad and 25 smaller neighbourhood character precincts, for example, large rendered buildings would detract from the character in Hill Crest character area. However, the threats identified are not specifically linked to existing neighbourhood characteristics or elements. Issues including the location and design of garages and driveways, and how they should be incorporated into a residential design are not specifically addressed in the Study. Page 51 of 91

52 Given that Res Code provides an opportunity to vary certain development standards to reflect local circumstances and / or achieve local policy objectives, there is a need for Council to have a well researched and informative Character Study that clearly explains how future development throughout the municipality should be managed. Once a detailed policy is established addressing the form and style of development that will be encouraged in each of the character precincts of the municipality, then Council is in a position to determine whether preparing a local variation(s) to the schedule of the Residential 1 Zone, is warranted. The review of the draft Neighbourhood Character Study would also form the basis of preparing any local planning policy relating to residential design and development and provide justification for introducing any Neighbourhood Character Overlay into the Manningham Planning Scheme. RECOMMENDATIONS 10. Review the draft Neighbourhood Character Study providing clear guidance on the preferred future character of each character precinct in the municipality. The preferred future character should include appropriate urban design principles, design techniques and suggestions. This may include: incorporating photos or images of different architectural styles and discussing in what type of character area they may be appropriate; and incorporating urban design principles for different parts of the municipality to guide built form and urban context. 11. a) Investigate the appropriateness of applying the Neighbourhood Character Overlay in certain areas of the municipality; b) Investigate the suitability of requiring a planning permit for one dwelling on a lot less than 500m2; and c) Investigate the requirement for amending the residential zones schedule(s) to specify: building height; setbacks from streets; side and rear setbacks; site coverage; private open space; front fence height; and permeability. 6. DRAFT BUILDING BULK GUIDELINES (1999) 6.1. Introduction In recent years the design and size of many new dwellings has often resulted in excessive visual bulk. A development which is well designed and respectful of neighbouring properties should appear compatible in the streetscape. Page 52 of 91

53 The Draft Building Bulk Guidelines (referenced in the Manningham Planning Scheme) has been prepared to achieve better residential design outcomes. The guidelines assist in the assessment of planning permit applications. They are not intended as a neighbourhood character guide. The guidelines establish a set of design elements that can minimise building bulk. They include: incorporating a roof form that is consistent with the surrounding neighbourhood; responding sensitively to landform; incorporating appropriate colours/materials; minimising the double storey area of a dwelling; ensuring a variety of one and two storey buildings; using adequate and varied set backs; minimising wall area; incorporating trees and tall shrubs; ensuring an interesting built form; and integrating garages with the building form Issues The guidelines are broad and do not vary the responses according to the character assessment, predominant neighbourhood characteristics, threats or desired future character as outlined in the Draft Neighbourhood Character Study. An example is that is does not guide how residential development should respond to landform or colours and materials in significantly varying neighbourhood character areas. Neighbourhood character elements are very important at a street/neighbourhood level and the suggested solutions may vary. Appropriate design techniques and suggestions should be tuned into the varying neighbourhood characteristics of the municipality. RECOMMENDATIONS 12. Review the Building Bulk Guidelines so that the design suggestions are more specific to the different neighbourhood character areas of Manningham. If appropriate, these Guidelines may be incorporated into the re-write of Council s Neighbourhood Character Study, or otherwise remain as a separate document. 13. Review and update Council s Municipal Strategic Statement (MSS) and local planning policy framework. 7. Vegetation Protection The diminution of the landscape and treed character of residential areas in the municipality is a key issue. New residential development, both single detached and multi-dwelling units often fail to retain, or provide for canopy trees and understorey vegetation on a site. Vegetation has been highlighted by Council and residents as one of the most important factors that contribute to neighbourhood character. Landscaping often defines the difference between a high quality development that blends into the streetscape/neighbourhood character and a development with poor Page 53 of 91

54 amenity that dominates the streetscape. The retention of trees significantly improves the visual quality of the overall development. The redevelopment of sites, particularly in the Residential 1 Zones, of the municipality, where there are no tree controls, sometimes results in the loss of mature trees. Apart from these trees providing an important tree canopy in the streetscape, they may also be of heritage or botanical significance. To ensure that future residential development does not unreasonably compromise environmental or botanical values there is a need for a Study to identify vegetation of environmental or botanical significance west of Mullum Mullum Creek. There is also a need to undertake a significant tree study of the entire municipality. Such studies would provide guidance to the community and developers. RECOMMENDATIONS 14. Undertake a significant vegetation study for the land west of Mullum Mullum Creek. 15. Undertake a significant tree study of the entire municipality. 16. Investigate the most appropriate mechanism i.e. local policy, overlay etc. to ensure that identified significant vegetation located in the Residential 1 Zone is protected under the Manningham Planning Scheme. Page 54 of 91

55 CHAPTER 3 SUSTAINABLE DEVELOPMENT Chapter 3 examines the theme of Sustainable Development. The issues explored in this chapter include: Energy Efficiency; Passive Solar Design; Water Usage; Waste; Protection of Indigenous Vegetation; and Transport. 1. INTRODUCTION Most of us are aware of the environmental problems caused by our modern lifestyles. The suburbs and cities in which the majority of us live place tremendous strain on our natural eco-systems, producing great amounts of solid and liquid waste, using vast quantities of water and drawing significant finite resources from the ground. Our reliance on current transport systems means getting around our cities adds pollution to the atmosphere. Ecological Sustainability can be defined as using, conserving and enhancing the community s resources so that ecological processes on which life depends are maintained, and the total quality of life now and in the future can be increased (GreenPrint, 1998,9). One of the key challenges is to reduce the impact our residential housing stock has on natural systems. This can be achieved in two ways minimising the impact of the built form (materials, fittings, design, etc), and minimising the impact of its occupants (the way in which residents use the building). The benefits of overcoming these challenges bodes well for the natural environment but also for residents, who can save on running costs and enjoy a more healthy indoor and outdoor environment. As a municipality, by making our own lifestyles and homes more sustainable, we can move towards significantly decreasing our ecological footprint on the earth and ultimately ensuring that Manningham becomes a better place to live, visit and work for all present and future residents. Through environmentally sustainable and occupant-focussed design, we can significantly reduce the high levels of greenhouse gases our homes emit, produce far less liquid and solid waste, and save money on household running costs. Well-planned and designed homes also have the added benefit of retaining high re-sale values. 2. ISSUES 2.1. Energy Efficiency Clause of the Manningham Planning Scheme relates to Energy Efficiency. The policy outlines Council s commitment to land use and development proposals that use energy efficiently, decrease greenhouse gases, use renewable energy and employ passive solar design principles Page 55 of 91

56 In terms of energy efficiency, Manningham s current housing stock rates poorly. The residential community of Manningham uses the greatest amount of energy and is, of any sector, the most significant greenhouse gas contributor within the municipality. Greenhouse gas emissions from homes make up 40% of the overall total of emissions released in Manningham every year. Based on the last ABS Census, resident emissions of greenhouse gases were measured at 377,886 tonnes of eco2 per year, compared with transport emissions of 282,393 tonnes, and 223,700 tonnes of eco2 for the commercial sector (LAP, 2001). Residents of Manningham consume 20% more gas and electricity than the Melbourne average. There is a significant correlation between the size of dwellings in Manningham and the level of energy consumption, the larger the house size, the more energy being consumed. There is also some link to higher energy consumption patterns and number of residents per household as well as household income, with larger and more affluent households using greater amounts of energy (Home Energy Conservation A Role for Local Council, 1997, 15). A significant number of homes in Manningham still use electricity rather than gas, which is more energy efficient, for uses such as water, home heating and cooking. These uses make up around 50% of all residential electricity use in the municipality. Furthermore, few homes in Manningham have installed energy saving devices like solar panels to heat water or generate electricity for other household running needs. In the long term, these devices not only benefit the environment in terms of reduction in greenhouse gasses, but also can save households over $1,000 per year in energy costs (Home Energy Conservation A Role for Local Council, 1997) ResCode ResCode introduces a new standard, B10/A7, Energy Efficiency/Energy Protection, which will require that all multi-unit development applications achieve a minimum four-star rating under the Sustainable Energy Authority s First Rate System, or equivalent. This new standard can be varied by the use of a Neighbourhood Character Overlay. The standard will also ensure that the impact of the new development is considered in terms of the energy efficiency of existing dwellings and that new dwellings are sited and designed to maximise opportunities for energy conservation. Although ResCode introduces a minimum four star energy rating for medium-density dwellings, it does not address the fact that the large majority of housing falls outside of the planning system, and therefore does not have to be assessed by ResCode. About 70% of new homes are built without the need for a planning permit, only requiring a building permit. Under the Building Code of Australia (Victoria) 1996, the minimum energy efficiency standard required for new residential dwellings in Victoria is a three star rating. However, in accordance with the deemed to satisfy provisions in the Code, it is Page 56 of 91

57 possible for the energy rating to be reduced further. The energy efficiency standard under ResCode can be varied with the use of a Neighbourhood Character Overlay. The minimum four-star energy efficiency rating set by ResCode may be setting the benchmark lower than what could be achieved. A four-star energy rating is arguably quite easy to achieve both practically and economically using today s technology and knowledge. By setting a prescriptive energy efficiency rating, developers are not necessarily encouraged to try to achieve the highest rating possible for a particular site. RECOMMENDATIONS 17. Ensure that adequate technical training is given to planners and building surveyors in terms of assessing the energy efficiency rating of developments, (using the First Rate or equivalent software) together with the ability to provide advice on how to maximise energy efficiency in the home. 18. Investigate with the Department of Infrastructure the most appropriate planning mechanism to ensure that all new residential dwellings meet standards and objectives outlined in a Best Practice Environmental Design Guideline for Dwellings. 19. Amend the planning scheme to allow Council the discretion to require new developments to be independently assessed and rated using the First Rate House Energy Efficiency Rating Software (2000) as part of the permit application process. 20. Introduce a local variation to the Manningham Planning Scheme, or another appropriate measure to ensure that all new residential dwellings meet a set of Best Practice Environmental Design Guidelines for Dwellings. Standards and objectives would encourage energy efficient design, the installation of water tanks, grey water recycling systems, on-site waste treatment systems, worm farms and compost bins etc. 21. To investigate preparing a list of operators that recycle building materials Passive Solar Design Passive solar design is achieved by planting deciduous vegetation around areas of a home where people spend a considerable amount of time. These include living areas, the kitchen and bedrooms. It means that vegetation can provide shade during the summer months, whilst allow the penetration of sunlight during the winter months. Addressing passive solar design issues at the design stage can mean a saving on the running costs of a home and provide added enjoyment and comfort to an occupant throughout the year. Page 57 of 91

58 2.4. Water Usage Like the rest of Australia, Manningham s residents consume vast amounts of water per person per year. Yarra Valley Water, the suppliers of water to Manningham residents, report that domestic water consumption is increasing by 2.8% per year. We use millions of litres of our dwindling supply of fresh drinking water not only for consumption, but to flush our toilets, wash our clothes, clean our paving and water our gardens. In the metropolitan area, residents are able to collect water for purposes other than consumption. Water for washing, gardening and flushing the toilet can be collected through the installation of rainwater tanks. Very few homes in Manningham have installed water tanks to collect and use rainwater, particularly in the urban areas of the municipality. Even fewer Manningham households use a system to recycle grey water, or, household water that has not been mixed with toilet discharge, for such uses as toilet flushing, clothes washing and irrigation of gardens. In addition to rainwater collection devices, such as tanks, it is possible to install in the home a number of water-saving devices. Approximately 70% of household water is consumed doing the washing, taking a shower and flushing the toilet, and significant water savings can be made in these areas of the home. Devices such as dual-flush toilets can save as much as 72% more water than standard single flush models. Similarly, water-efficient showerheads save 52% of water over standard shower roses. Front loading washing machines use approximately 40% less water than top loading models. In the garden, drip irrigation systems, the use of mulch, and the choice of suitable plant species can all reduce water consumption. In Australian gardens up to 50% of water is used on lawns. Minimising the amount of lawn that homes have and keeping that lawn free of weeds can reduce water consumption enormously Waste For the last number of years in Manningham, the introduction of the three-bin curbside collection system for residences (i.e., for hard waste, recyclable and green waste) has helped reduce waste going to landfill by 50%. Even with this reduction, we are still generating large amounts of commercial and domestic waste going to landfill. Each year, Manningham residences generate approximately 19,200 tonnes of waste to landfill, in addition to 12,680 tonnes of garden waste and 10, 835 tonnes of recyclables. In terms of sustainability, as a municipality, we have set a long-term goal of zero waste to landfill. As stated in the City of Manningham s GreenPrint for a Sustainable City, ultimately, systems should be closed cycle so that no material goes to landfill, all of it being used within the cycle once again (GreenPrint, 1998, 8). This is an Page 58 of 91

59 ambitious and exciting goal that can only be achieved through an innovative and creative approach to the way all residents think about waste. A growing number of Manningham households are using compost bins and worm farms to dispose of biodegradable kitchen waste, but few are using devices such as on-site treatment systems, like the Dowmus wastewater system, to recycle household waste, converting not only biodegradable waste, but paper, cardboard and even sewage into recycled non-potable water Protection of Indigenous Vegetation The removal of indigenous vegetation has been an ongoing issue in the municipality. Council has identified the retention of indigenous vegetation as a key part of its Zero Extinction stretch goal. Retaining indigenous vegetation is necessary in protecting threatened flora, and providing habitat for fauna. It is also important in reducing greenhouse gasses in the atmosphere. Presently the Department of Natural Resources and Environment is surveying remnant indigenous vegetation in the municipality and surrounding areas. This information will be useful in managing where future residential development should occur, and also protecting the remaining remnant vegetation Transport Manningham City Council residents have the second highest car ownership rate in Victoria, only just below that for the City of Casey residents. Due to a poor public transport system, Manningham s residents are strongly dependent upon car usage. 42% of Manningham s households own two vehicles, with around a quarter owning three or more vehicles. In 1996, 34,981 residents used cars to commute to work daily, whilst only 2,403 stated that they used public transport as their daily method of travel to work. Only 299 stated that they walked or rode a bicycle to work. Our reliance on cars as the primary mode of transport has had a detrimental impact on air quality, with the significant release of high levels of carbon monoxide, nitrogen dioxide, sulphur dioxide, and visibility reducing particles into the atmosphere. The draft Residential Strategy promotes high residential density around Doncaster Hill, and medium density development around the existing local activity centres. Focussing increased residential densities around the existing retail and community facilities and public transport networks provide people with an option to walk to nearby shops and associated facilities rather than being totally dependent on the car. Page 59 of 91

60 CHAPTER 4 LAND CAPABILITY AND INFRASTRUCTURE Chapter 4 examines the theme of Land Capability and Infrastructure. The issues explored in this chapter include: Extensive earthworks and its implications, including site responsiveness; Education; Enforcement; Integrated planning processes; Flooding; Domestic Wastewater; Waterway Quality; and Wildfire Management 1. INTRODUCTION The natural environment forms an important part of life in Manningham. It provides habitat for flora and fauna and supports complex ecological processes; its visual values significantly contribute to Manningham s character; and provides a lifestyle opportunity for people who wish to live in a bushland setting. Urbanisation places increasing pressure on the visual characteristics and biological processes of the natural environment. At face value individual actions may not appear to have an immediate detrimental impact on the environment, however the cumulative effect can disturb the delicate balance that exists within complex environmental systems. When planning for the present and future residential needs of the community, the protection of the natural environment should be of primary importance. If the integrity of environmentally sensitive areas is compromised it will threaten biodiversity, the visual characteristics and lifestyle opportunities which attract people to live in Manningham. 2. EXTENSIVE EARTHWORKS AND ITS IMPLICATIONS A planning permit is required for buildings and works in the low density residential areas of parts of Donvale, Doncaster East, and Templestowe, together with the non-urban areas of Park Orchards, Warrandyte and Wonga Park. These areas are visually and environmentally significant given the vegetation cover, the slope of the land, which generally ranges between 5 and 25%, and the proximity of the land to waterways. Map 6 highlights gradients/slope within the municipality and Map 7 highlights environmentally sensitive areas within the municipality. An issue associated with the development of these areas is the extensive cut and fill that has occurred to accommodate a dwelling and associated outbuildings, pools and tennis courts. Over time the residential development that has occurred in areas of environmental sensitivity has significantly altered the natural landform, and resulted in changing the natural drainage lines of the area. The implications of this is significant, as it impacts on water flow and velocity, which often results in extensive erosion and sediment run-off into Page 60 of 91

61 nearby streams and waterways. Furthermore, extensive earthworks can often lead to the significant loss of vegetation communities, which threaten faunal habitats and existing biosystems. Any change to the natural drainage flow will often lead to the loss of native vegetation and the invasion of weeds, whilst extensive disturbance to soil in the vicinity of a mature tree can lead to soil compaction around the base of a tree, which restricts air and water infiltration. Council s Site Design Guide for Residential Development on Bushland Fringes in the City of Manningham (1995) provides suggestions on how individual property owners can site a dwelling in response to the characteristics of the site, and minimise the extent of cut and fill of a property. Importantly, the Guide requires all development applications to be accompanied by a site analysis plan identifying development opportunities and constraints, including contours, slope, orientation, microclimate, vegetation, viewlines and any other notable features. Whilst the Guide has been useful in identifying design issues that need to be considered when developing sites in areas that have topographical and environmental constraints, the Guide needs to be updated to reflect the zoning changes included as part of the introduction of the Manningham Planning Scheme. Furthermore, incorporating illustrations of good and inappropriate forms of development would also be useful. RECOMMENDATIONS 22. Review the Site Design Guide for Residential Development on Bushland Fringes in the City of Manningham (1995). Page 61 of 91

62 MAP 6: LAND SLOPE Page 62 of 91

63 MAP 7: ENVIRONMENTAL FEATURES IN MANNINGHAM Page 63 of 91