Greater Geelong Planning Scheme Proposed Planning Scheme Amendment C253 PLANNING SUBMISSION prepared for Bunnings Group Ltd by SJB Planning Pty Ltd Level 1, Building D 80 Dorcas Street SOUTHBANK VIC 3006 Tel 03 8648 3500 Fax 03 8648 3599 ACN 007 427 554 August 2011 OUR REF: 552399R001
1.0 INTRODUCTION This planning submission has been prepared on behalf of Bunnings Group Ltd [Bunnings], which is currently developing the land at 5-19 Princes Highway, Norlane for the purposes of a Bunnings Warehouse. It supports a request for an amendment to the Greater Geelong Planning Scheme, to rezone the land at 5-19 Princes Highway and the adjacent land at 1-3 Princes Highway, Norlane from an Industrial 2 Zone to a Business 4 Zone. The proposed amendment will also remove the Development and Design Overlay Schedule 20 (DDO20) affecting the land. This planning submission describes the site and surrounds, identifies the relevant planning controls and policies, outlines why the amendment is required and provides a strategic assessment of the rezoning and its planning merits. 2.0 THE SITE AND SURROUNDS 2.1 The Site The amendment will affect land located at the north-west corner of the Princes Highway and The Boulevard, in Norlane. The subject land comprises two properties. The larger of the two, 5-9 Princes Highway, comprises one large lot (Lot 1 on TP320799) and two smaller lots which front The Boulevard (Lots 143 and 144 on LP12021). The smaller property of 1-3 Princes Highway is a single parcel of land, legally described as Lot 1 on TP224350. The subject land has a total area of approximately 3.5 hectares. It is irregular in shape (but generally rectangular) with a frontage to the Princes Highway of approximately 200 metres and sides to Arunga Avenue (approximately 168 metres) and The Boulevard (approximately 200 metres). The Site Figure 1 Location of the subject site SJB Planning Pty Ltd Page 1
Figure 2 Lot configuration For many years, 5-19 Princes Highway was owned and used by Ford Australia as part of its car manufacturing activities in Geelong. The company s main plant is located diagonally opposite the site to the south-east (refer to Figure 1). The site was no longer required for Ford s activities in Geelong and it was put to the market and sold to Bunnings in 2009. Bunnings subsequently pursued and obtained Planning Permit 1191/2009 (issued on 19 April 2010) which allows use and development of the land for trade supplies, the display of advertising signage, alterations of an access to a Road Zone Category 1 and a partial waiver of bicycle facilities requirements of the planning scheme. Site preparation works for a new Bunnings store are well underway. Bunnings plans to complete the store over the next 12 months and commence trading in 2012. A copy of the site plan endorsed as part of Planning Permit 1191/2009 is provided at Figure 3. To avoid leaving a small remnant parcel of industrial land at the corner of the Princes Highway and The Boulevard, the rezoning proposal also includes 1-3 Princes Highway which is occupied by the Dunlop Norlane Tyre Service Centre. SJB Planning Pty Ltd Page 2
Dunlop Norlane Tyre Service Centre Figure 3 Plan of the permitted Bunnings development 2.2 Surrounding Area The surrounding land uses comprise a mix of residential, commercial, industrial and community uses (refer to Figure 4), located within various zones shown Figure 5. Residential Community Subject Land Commercial Industrial Commercial Industrial Figure 4 Aerial Photo SJB Planning Pty Ltd Page 3
Bunnings Dunlop Norlane Tyre Service Centre Figure 5 Zoning Map To the north of the subject site (in a Residential 1 Zone), on the opposite side of Arunga Avenue, are dwellings which are part of an estate developed by the former Victorian Housing Commission, in about the 1950s. To the east, on the opposite side of the Princes Highway are a number of uses. At the northern end is a funeral parlour and at the southern end is the Norlane Hotel and Tabaret at the intersection with The Boulevard. The intervening land is occupied by variety of dwellings. To the south (in a Business 4 Zone) is a number of homemaker-style retailers including Godfreys Superstore, Freedom Furniture and Adairs, along with other uses including a Pitstop 24hr Car Wash and Barwon Computer Solutions. Further to the south along Princes Highway, are a number of fast food outlets including Hungry Jacks, Red Rooster, Subway, KFC and McDonalds, also within the Business 4 Zone. Further south beyond Weir Deppeler Park, the Business 4 Zoning continues and accommodates other restricted retail uses such as Dick Smith and Rays Outdoors. This section of the Princes Highway between Separation Street and The Boulevard is collectively known and referred to as the North Geelong Homemaker Centre. To the south-west are uses located within an Industrial 1 Zone, including the Geelong Coachworks. To the west, is Council owned land (in a Residential 1 Zone) which hosts a variety of buildings for community uses, known as the DW Hope Community Activities Centre. SJB Planning Pty Ltd Page 4
3.0 EXISTING PLANNING CONTROLS 3.1 Zoning The subject land is presently located within an Industrial 2 Zone (IN2Z). Pursuant to Clause 33.02 of the Greater Geelong Planning Scheme, the purpose of the Industrial 2 Zone is: To implement the State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies. To provide for manufacturing industry, the storage and distribution of goods and associated facilities in a manner which does not affect the safety and amenity of local communities. To promote manufacturing industries and storage facilities that require a substantial threshold distance within the core of the zone. To keep the core of the zone free of uses which are suitable for location elsewhere so as to be available for manufacturing industries and storage facilities that require a substantial threshold distance as the need for these arises. 3.2 Overlays The site is affected by Design and Development Overlay Schedule 20 (DDO20). This overlay outlines design objectives for development within the Industrial 1, 2 and 3 Zones. 4.0 THE AMENDMENT REQUEST The amendment seeks to: rezone the subject land from an Industrial 2 Zone to a Business 4 Zone; and remove the Development and Design Overlay Schedule 20 (DDO20) affecting the land because it would have no relevance to land in a Business 4 Zone. The specific objectives of the Business 4 Zone (B4Z zone) are: To implement the State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies. To encourage the development of a mix of bulky goods retailing and manufacturing industry and their associated business services. There are many elements of the Business 4 Zone and the Industrial 2 Zone provisions which are comparable but a key difference is in relation to land use the former nominating restricted retail premises as a Section 1 permit no required use. Trade supplies is similarly nominated as a Section 1 use. SJB Planning Pty Ltd Page 5
4.1 Why is the amendment required? The suitability of the site for trade supplies (a form of retail premises) has been established with the granting of a planning permit for the construction of a Bunnings Warehouse in 2010. The proposed rezoning to Business 4 Zone will allow the sale of restricted retail goods from the site (i.e. a use that is prohibited in an Industrial 2 Zone), which Bunnings intends to include in its retail offer nationwide. While not wishing to change the fundamentals of its business, Bunnings plans to offer some bulky goods to enable it to compete within the ever changing home improvement market. The amendment will facilitate an in-store expansion of the retail offer at Bunnings Norlane store, notably in the form of white goods which are complementary of the kitchen, laundry and bathroom kits which have long been part of the Bunnings offer. The site is well located for these products, serving both the residents and construction businesses of the northern suburbs of Geelong. To avoid a small parcel of remnant industrial land, the land at 1-3 Princes Highway is also included in the proposed rezoning. Defined as motor vehicle repairs, this use would not be prohibited in a Business 4 and on rezoning would become a legally established existing use. 5.0 RELEVANT STRATEGIC PLANNING POLICY 5.1 State Planning Policy Framework In preparing a Planning Scheme amendment, a planning authority must have regard to whether the form of the amendment will achieve the objectives of the State Planning Framework (SPPF). Those sections most relevant to this request include: Clause 10 Operation of the State Planning Policy Framework states that the primary objective of planning in Victoria is to provide for the fair, orderly, economic and sustainable use and development of land. Clause 11.03-1: Settlement which states that planning should anticipate and respond to the needs of existing and future communities through provision of zoned and serviced land for housing, employment, recreation and open space, commercial and community facilities and infrastructure. Clause 11.04-3: Activity Centres seeks to build up activity centres as a focus for highquality development, activity and living for the whole community by developing a network of activity centres. This is to be implemented through strategies that, among other things: - Comprise a range of centres that differ in size and function to give clear direction in relation to preferred locations for investment; - Reduce the number of private motorised trips by concentrating activities that generate high numbers of (non-freight) trips in highly accessible activity centres; - Provide a focus for business, shopping, working, leisure and community facilities; - Improve the social, economic and environmental performance and amenity of the centre; and - Encourage economic activity and business synergies. Clause 17 Economic Development seeks encourage developments which meet communities needs for retail, entertainment, office and other commercial services and provides net community benefit in relation to accessibility, efficient infrastructure use and the aggregation and sustainability of commercial facilities. A key strategy in this clause is to locate commercial facilities in existing or planned activity centres. SJB Planning Pty Ltd Page 6
5.2 Local Planning Policy Framework The Municipal Strategic Statement (MSS) provides a profile of the municipality, and identifies the key social, economic, and environmental issues faced by the community. The MSS also identifies the vision, objectives and implementation strategies in relation to managing future land use and development within the municipality. The following provision is relevant to this proposal: Clause 21.07 Economic Development and Employment seeks to facilitate the development of vibrant and viable retail activity centres in accordance with the Geelong Retail Activity Centre Hierarchy included at Clause 21.07-8 and ensure all major retail developments, and out of centre developments, provide a clear net community benefit. Relevant strategies include the following: Ensure that new retail development is directed to activity centres and is consistent with the role and function described in the Retail Activity Centre Hierarchy at Clause 21.07-8; Ensure Central Geelong remains the primary retail activity centre in the G21 Region and the focus of retail activity in the G21 Region. Direct restricted retail (bulky goods) use and development to Central Geelong, the nominated homemaker precinct at Waurn Ponds, the Corio homemaker precinct subject to appropriate rezoning, and other homemaker precincts and activity centres as detailed in Clause 21.07-8 (which includes the North Geelong Homemaker Precinct). Discourage restricted retail (bulky goods) development in industrial areas. Require that applications for new centres establish the retail need for such use and development and demonstrate that there are no adverse impacts on the operation of the retail activity centres hierarch. Figure 6 Greater Geelong Planning Scheme Retail Activity Centre Hierarchy Map SJB Planning Pty Ltd Page 7
Figure 7 Greater Geelong Retail Activity Centre Hierarchy Table The Business 4 Zoning to the immediate south of the site is identified as the North Geelong Homemaker Precinct in Clause 21.07-8. The type of retail tenancies encouraged in this retail centre is large restricted retail format stores. Local Planning Policy at Clause 22.03 applies to permit applications or planning scheme amendments which propose new retail floor space. The policy is aimed at testing the worthiness of proposals which contemplate more than 2000 square metres of new floor space. SJB Planning Pty Ltd Page 8
The objectives for the policy are to establish the need and demand for the proposed use, and to examine the effects of the development on the operation of the retail activity centres hierarchy. The assessment is to be undertaken in the context of ensuring that all major retail use and developments provide clear net community benefits. 6.0 PLANNING CONSIDERATIONS The proposed amendment must be assessed against the Minister s Strategic Assessment Guidelines for Planning Scheme Amendments and the State and Local Planning Policy Frameworks. These and other planning issues are addressed in the following sections of this report. 6.1 Ministerial Direction No. 11- Strategic Assessment of Amendments The general practice note Strategic Assessment Guidelines for Planning Scheme Amendments (DSE) sets out matters to be addressed in the preparation of a planning scheme amendment. An assessment of the proposed amendment against these guidelines is provided in the Explanatory Report that has been prepared for the Amendment and accompanies this Planning Submission. The form of the proposed amendment is considered to be an appropriate use of the VPPs. The Business 4 Zone will better recognise the approved use and development presently being established at the site (a Bunnings store) and is the most appropriate zoning to facilitate the proposed land uses on the site (restricted retail premises). 6.2 Consistency with the SPPF The State planning policies outlined in the section above, underpin the key objectives of the Planning & Environment Act 1987 and are fundamental considerations in the administration of land use and development planning across Victoria. They inform the preparation and implementation of local planning policy objectives and the introduction of zone and overlay controls. It is therefore necessary that planning scheme amendments and planning permit applications build on and achieve these important policy objectives. To this extent, the proposed amendment will directly achieve many of these important State planning policy objectives. The proposed re-zoning: Will ensure a more appropriate and compatible land use for a site that is surrounded by residentially zoned land. The site is not ideally located for continued industrial uses, particularly uses encouraged by the Industrial 2 Zoning (being the core industrial use zone), as the site is surrounded by sensitive land uses on three sides. The site will provide an appropriate buffer from the industrial land to the south-east and south-west to the residential and community uses to the north and west. The rezoning accords with the orderly planning of the area. Will be a timely and logical extension of the Business 4 Zone to the south. This zone already hosts restricted retail uses and the rezoning will serve to extend and strengthen the viability of the established North Geelong Homemaker Precinct. Will provide additional Business 4 land that is located on Princes Highway, which is an appropriate location to accommodate retail uses which serve regional catchments. It is also well located to effectively provide the local residential and business community access to high quality hardware retailing and trade supplies. SJB Planning Pty Ltd Page 9
Assist in providing community benefits, not only in terms of greater hardware and nursery choices at competitive prices, and some restricted retail product in due course, but also in terms of employment opportunities. The company staffs its store from the local community and, in a time when unskilled jobs are generally not on the increase in areas like Geelong, Bunnings will be offering more unskilled jobs for people of all ages over and above the skilled jobs generated during the construction period. Bunnings $3.5 million payroll will also have direct benefits for other businesses in the municipality and positive indirect flowon effects through the local and regional economies. The rezoning will underpin this contribution and can therefore be said to be consistent with policies aimed at increasing community wealth and prosperity. The rezoning of the land from an industrial zone would not undermine the availability of industrial land for port related uses. In the Panel Report for the former Hometown Geelong proposal (Amendment C98), it was identified that land east of the Princes Highway was land identified as the port industrial precinct. The subject land is on the western side of the Princes Highway and therefore outside the area identified as port sensitive uses in the Amendment C98 panel report. The land is also outside the Port Area of Interest identified in the Port of Geelong: Port Land Use Strategy 2009 document. Having regard to the above considerations, the proposed re-zoning and subsequent development will make an important contribution to achieving the objectives of the State Planning Policy Framework. 6.3 Consistency with LPPF It is considered that the proposed amendment is consistent with the strategies, objectives and policies of the Local Planning Policy Framework. Key points in this regard are: The subject site is located immediately adjacent to an existing Business 4 Zone, and is therefore considered as an edge-of-centre development, representing the extension of the identified North Geelong homemaker retail centre. Existing sites that are located in Business 4 Zones were not large enough to accommodate a Bunnings store and, being located immediate adjacent to other Business 4 Zoned land it will serve to strengthen the viability of the Homemaker Precinct. The site is well located for ease of accessibility by residents and trade business customers in the northern suburbs of Geelong. The accompanying Economic Assessment prepared by Essential Economics concludes that the proposal is supported in terms of market demand, would not adversely affect the operation of the retail activity centres hierarchy. This has already been established through a planning permit process in 2009 /2010. The accompanying Economic Assessment prepared by Essential Economics also concludes that a net community benefit will be generated in terms of project investment, employment and contribution to retail choice and convenience. SJB Planning Pty Ltd Page 10
7.0 GEELONG RETAIL STRATEGY 2006 The City of Greater Geelong Retail Strategy 2006 supports the aggregation of restricted retail uses at appropriate locations and identifies the North Geelong Homemaker Precinct as such a location. This Precinct is also identified in the Retail Activity Centre Hierarchy included within the Planning Scheme (at Clause 21.07-8) as a location where restricted retail uses should be directed. Whilst the subject land is just outside the Homemaker Centre Precinct (because of Ford s occupation of the land at that time), it is immediately adjacent to it and there is policy support for new or expanded homemaker development on the edge of a centre if there are no available sites within the centre; no adverse impact on the operation of the retail activity centres hierarchy results; and there is a net community benefit. There the suitability of the site for the development of a Bunnings has already been established in the granting of the planning permit in 2010. The accompanying economic assessment by Essential Economics demonstrates that there will be no adverse impact on the viability of the retail activity centre hierarchy. Community benefits will be generated from project investment, employment and contribution to retail choice and convenience. 8.0 CONCLUSION This proposed rezoning to a Business 4 Zone is an appropriate zone for a Bunnings store and is compatible with the surrounding zoning and land uses. To avoid a small parcel of remnant industrial land, the land at 1-3 Princes Highway is also included in the proposed rezoning. Defined as motor vehicle repairs, this use would not be prohibited in a Business 4 and on rezoning would become a legally established existing use. The proposed rezoning represents an edge-of-centre rezoning and will provide a logical extension of the Business 4 Zone (the North Geelong Homemaker Precinct) to the south. The proposal makes appropriate use of the VPPs. The proposed amendment contributes to to the achievement of State and local planning strategies, will not result in any adverse impact on the viability of the retail activity centre hierarchy, and will deliver associated benefits to the local community. For these reasons, it is considered that the proposed development comprehensively responds to the planning strategies and policies that affect the land and to the context of the site. SJB Planning Pty Ltd Page 11