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P L A N N I N G C O M M I T T E E R E P O R T Agenda Item 5.9 6 February 2007 APPLICATION REFERRED BY THE MINISTER FOR PLANNING: DEVELOPMENT OF NON-CORE LAND AT ROYAL MELBOURNE SHOWGROUNDS, 350 EPSOM ROAD, FLEMINGTON

Division Statutory Services

Presenter Con Livanos, Manager Development Planning

Purpose

1. To inform the Planning Committee of a proposal submitted to the Minister for Planning for development of the ‘non-core land’ within the Royal Melbourne Showgrounds and details of Council Officers objection to the proposal.

2. The Minister for Planning is the Responsible Authority for this application. Council has the opportunity to provide comments to the Department of Sustainability and Environment (DSE) for consideration.

3. This application has been presented to the Planning Committee at the request of Cr Brindley and Cr Shanahan.

Summary

Application Number: TPM-2006-45

Proposal: To construct and carry out works to buildings; to reduce the number of car parking spaces required; to alter access to Epsom Road and display business identification signage.

Applicant: Meredith Withers and Associates Pty Ltd, on behalf of Showgrounds Retail Developments Pty Ltd C/- Babcock and Brown Pty Ltd.

Zoning: Special Use Zone – Schedule 2 (Royal Melbourne Showgrounds)

Overlay: Heritage Overlay – 221

Existing Use: The area of the site contains predominately at grade car parking, the old dog pavilion and the Woodfull Pavillion.

Number of Objections: Nil (exempt from notice and appeal requirements).

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Recommendation from Management

4. That the Planning Committee note Council officers’ objection to the Minister for Planning in regards to the proposal. A copy of the letter from the Manager Development Planning is at Attachment 1.

5. Any further considerations from the Planning Committee on the proposal to be forwarded to the Minister for Planning in a separate letter.

Key Issues

6. The following key issues have been identified which form the basis of Council officers’ objection to the Minister for Planning:

6.1. the proposal to situate an open lot car park at the frontage of the site does not activate the Epsom Road frontage as envisaged by the Incorporated Document to the Melbourne Planning Scheme “Royal Melbourne Showgrounds Redevelopment Master Plan – December 2004”;

6.2. the proposal does not provide a pedestrian or visual link between the non-core land and the core land of the Showgrounds as envisaged by the Incorporated Document to the Melbourne Planning Scheme “Royal Melbourne Showgrounds Redevelopment Master Plan – December 2004”;

6.3. the design of the car park requires further resolution, especially with regards to pedestrian amenity and safety;

6.4. the proposal seeks a reduction in car parking requirements from those specifically required for the non-core land within the Royal Melbourne Showgrounds;

6.5. the loading areas provided for all uses on the site are not considered to be adequate and require further resolution;

6.6. no details have been provided in regards to rubbish storage areas for any of the uses proposed on the site;

6.7. the proposal will generate a large volume of traffic into and out of the site and further analysis is required to ensure the new Epson Road intersection associated with the site is sufficient to handle evening and weekend traffic volumes in addition to the weekday afternoon peak; and

6.8. the proposal has insufficient bicycle parking and associated facilities.

7. The letter from the Manager Development Planning (Attachment 1) provides more detailed comments regarding the above key issues, as well as other more general comments.

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8. Attachment 2 contains a site plan showing the context of the site and Attachment 3 contains relevant plans submitted with the proposal. Please note that drawing numbers TP13 and TP14 relate to a proposed ‘future proofing’ of the site, showing a row shops along the Epsom Road frontage with a basement car parking level. It is not intended to develop the site in accordance with these plans, however the ‘future proofing’ concept was formulated as a possible future option following concerns raised by Council officers during the pre-application stage of the proposal, especially with regards to the location of the car park.

Relation to Council Policy (including Municipal Strategic Statement)

State Planning Policy Framework

9. Clause 12 – Metropolitan Development aims to ensure that land use, transport planning and investment always contribute to economic, social and environmental goals. The sections of the Clause most relevant to inner urban development is based on the Melbourne 2030 document.

10. Clause 12.01-2 seeks to facilitate and concentrate development within activity centres as identified in Melbourne 2030. The Royal Melbourne Showgrounds is not a defined activity centre, however it is located in close proximity to two Major Activity Centres within the City of Moonee Valley, namely Union Road, Ascot Vale and Racecourse Road, Flemington. The location of these activity centres in relation to the Showgrounds site is shown on Attachment 4.

11. The Clause seeks to ensure:

“…that out-of-centre proposals are only considered where the proposed use or development is of net benefit to the community in the region served by the proposal”.

12. The Clause also outlines objectives and strategies in relation to matters such as urban design, neighbourhood character, safety, energy, water use and the public transport and road networks.

13. While the site is not located within an activity centre, it is considered that the guidance given by Melbourne 2030 at Figure 18 – ‘Making car based centres work better’ is relevant in this case. A typical car based centre, as currently proposed for the non-core land, is discouraged due to its poor interface with surrounding land and problems that arise in regard to pedestrian safety. The recommendations to improve car based centres includes incorporating car parking underneath the existing car based supermarkets and providing active frontages to public transport links.

Municipal Strategic Statement

14. Council’s Municipal Strategic Statement (MSS) recognises the state significance of the Royal Melbourne Showgrounds and seeks to support its ongoing operation and further growth while insuring that the interface with nearby residential and mixed use zones is appropriately managed.

15. The MSS does not anticipate, or make reference to, any commercial development within the Royal Melbourne Showgrounds. The only development which is explicitly supported is the revitalisation of the Royal Melbourne Showgrounds to enhance its capacity as a recreation facility.

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Local Planning Policy Framework

16. The following Local Policies are of relevance when considering the proposal:

16.1. Clause 22.05 – Heritage Places outside the Capital City Zone;

16.2. Clause 22.07 – Advertising Signs;

16.3. Clause 22.17 – Urban Design outside the Capital City Zone; and

16.4. Clause 22.19 – Environmentally Sustainable Office Buildings.

17. It is considered that the proposal is generally consistent with the provisions of the above mentioned Local Policies, with the exception of Clause 22.17 – Urban Design outside the Capital City Zone. The proposal does not achieve the outcomes encouraged by this policy with specific regard to large and prominent sites, street level frontages, fronts and backs of buildings, visible facades and blank walls, pedestrian connections and vehicle access.

Particular Car Parking Provisions

18. The parking requirements for the Royal Melbourne Showgrounds are within the Schedule to Clause 52.06-6, listed as an Incorporated Parking Precinct Plan. The Schedule lists the required rates for the uses envisaged by the Master Plan.

19. The proposal seeks to reduce the requirement of the Schedule. Generally, the proposed reduction, or intended rate for those uses not listed within the Schedule, are considered acceptable. However there are concerns in regards to the reduction of parking for the shop within the Woodfull Pavillion (58 spaces proposed, however Council’s traffic engineers have concerns with this rate) and for the Tavern use (35 spaces proposed; 122 required).

Incorporated Document – Royal Melbourne Showgrounds Redevelopment Master Plan – December 2004

20. The Incorporated Document “Royal Melbourne Showgrounds Redevelopment Master Plan – December 2004” was developed by the State Government and provides a framework for the overall development of the Showgrounds Site.

21. The Master Plan divides the site into two types of land:

21.1. “Core Land” - land required for the staging of the annual Royal Melbourne Show and available for other events and activities during the rest of the year; and

21.2. “Non-Core Land” – land that is not required for the staging of the annual Royal Melbourne Show and is available for the development that will contribute to the viability of the new buildings and facilities proposed on the Core land.

22. The subject proposal relates to a section of Non-Core land in the south eastern corner of the site, abutting Epsom Road and the railway line. The plans at Attachment 3 shows the intended uses and development scale of the Non-Core land.

23. Generally , the Master Plan seeks to facilitate the development of the Non-Core land utilising a design concept for the site which connects and integrates a mixed use development into the Royal Melbourne Showgrounds’ broader Master Plan and the wider neighbourhood precinct.

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24. The Master Plan provides objectives for the development of the Non-Core land of which the proposal is generally consistent, with the exemption of those objectives relating to activation of the Epsom Road frontage, linkages between the Core and Non-Core land.

25. In addition to the inconsistencies with the objectives of the Master Plan, the proposal also seeks to vary the uses, built form and floor area originally envisaged.

26. Details of the current proposal, compared with the intended use, are as follows:

APPROVED USE DETAILS PROPOSED USE DETAILS

Retail/Mixed Use (NC1a)

2 levels above ground – 2,000m2 gross area.

Supermarket Ground level - 3,404m2

Retail Centre – Epsom Road (NC1b)

Ground and level 1 - 6,000 m2 gross area of retail floor space.

At grade car parking and specially shops

Ground level shops - 2,057 m2 with car park – 353 spaces, 9,975 m2 (approx.)

Woodfull Pavillion (NC2) no use specified

Ground floor and mezzanine - 2,500 m2 gross area.

Shop and office Ground floor and mezzanine with the following break-up: - shop 1,450 m2 - office 800 m2

Commercial Office Building (NC3)

6 levels above ground plus basement parking - 16,300 m2 gross area with the following break-up: -car park 7,300m2 -office 8,200m2 -foyer 800 m2

Childcare centre and medical centre

Ground floor with childcare – 120 children, 1,200 m2 and Medical Centre – 5 practitioners, 317 m2

Tavern (NC4) 2 levels above ground - 1,000 m2 gross area.

Tavern Ground floor - 621m2

Time Frame

27. The referral from the Department of Sustainability and Environment on behalf of the Minister for Planning was received by Council on the 22 December 2006 allowing 28 days to provide comment. Due to the Christmas period an extension to this time was requested with an addition week allowed for comment. Comments were therefore due by the 25 January 2007 and Council officer comments were provided on the 29 January 2007 (the following business day).

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Attachments: 1. Letter of Objection 2. Site Plan 3. Proposed Development Plans 4. Map Indicating Surrounding Retail Centres

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Consultation

28. No public consultation has been undertaken in regards to this development. The proposal is exempt from the notice and appeal requirements of the Planning and Environment Act 1987 subject to the provisions of the Zone. However, the application has also been referred to Moonee Valley Council.

Finance

29. There are no direct financial implications associated with the recommendations contained in this report.

Legal

30. The Minister for Planning is the Responsible Authority for this application. In making its decision, the Planning and Environment Act 1987 requires the Responsible Authority to consider all objections and other submissions which it has received. The recommendations of the report are within the objectives and functions of Council.

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gavatt

Attachment 1 Agenda Item 5.9 Planning Committee 6 February 2007

SITE PLAN

ROYAL MELBOURNE SHOWGROUNDS, 350 EPSOM ROAD, FLEMINGTON

Subject Site

Royal Melbourne Showgrounds

Flemington Racecourse

Attachment 2Agenda Item 5.9

Planning Committee6 February 2007

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gavatt

Attachment 3 Agenda Item 5.9 Planning Committee 6 February 2007

Subject Site

Other retail centres in close proximity to the Subject Site (Melbourne 2030 – Major Activity Centres)

SURROUNDING RETAIL CENTRE LOCATION IN RELATIONSHIP TO THE SUBJECT SITE

Attachment 4Agenda Item 5.9

Planning Committee6 February 2007

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Agenda Item 5.9 Planning Committee

6 February 2007

FINANCE ATTACHMENT

APPLICATION REFERRED BY THE MINISTER FOR PLANNING: DEVELOPMENT OF NON-CORE LAND AT ROYAL MELBOURNE SHOWGROUNDS, 350 EPSOM ROAD, FLEMINGTON

There are no direct financial implications associated with the recommendations contained in this report.

Joe Groher Manager Financial Services

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Agenda Item 5.9 Planning Committee

6 February 2007

LEGAL ATTACHMENT

APPLICATION REFERRED BY THE MINISTER FOR PLANNING: DEVELOPMENT OF NON-CORE LAND AT ROYAL MELBOURNE SHOWGROUNDS, 350 EPSOM ROAD, FLEMINGTON

The Minister for Planning is the Responsible Authority for this application.

In making its decision, section 60(1)(c) of the Planning and Environment Act 1987 (“the Act”) requires the Responsible Authority to consider, amongst other things, all objections and other submissions which it has received, which have not been withdrawn.

Section 60(1A) further provides that:

“Before deciding on an application, the responsible authority, if the circumstances appear to so require, may consider –

(g) any other strategic plan, policy statement, code or guideline which has been adopted by a Minister, government department, public authority or municipal council;”

Section 64 of the Act sets out the procedure to be followed by the Responsible Authority in circumstances where objections are received.

Kim Wood Manager Legal Services

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