Planning Report Midfield Meats Cold Store Development

Combined Planning Permit and Amendment Request under Section 96A

of the P&E Act 1987

17 & 19 Scott Street & 26 Strong Street, Warrnambool,

Prepared by Tract Consultants

for Midfield Group Pty Ltd

13 June 2014 2/226 Latrobe Street, GEELONG WEST 3218

Phone: (03) 5221 0105 www.tract.com.au

0313-0670

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Executive Summary

Background

Applicant/Owner Midfield Group Pty Ltd C/- Tract Consultants

Address 17 & 19 Scott Street & 26 Strong Street, Warrnambool

Lot Description Lot 12 on LP128276, Lot 23 on LP132203 & Lot 27 on LP132203

Relevant Planning Controls

State Planning Policy Framework

- Clause 17 – Economic Development

Local Planning Policy Framework - Clause 21.07 – Economic Development - Clause 22.03 – Economic Development

Zone - Clause 33.01 – Industrial 1 Zone

- Clause 36.01 – Public Use Zone (Schedule 6)

Overlays

- Not applicable.

Particular Provisions

- Clause 52.06 – Car Parking - Clause 52.10 – Uses with adverse amenity potential

- Clause 52.34 – Bicycle parking

Permit Application Details

Description of proposal

Use & Development of land for Freezing and Cool Storage and Reduction of Car Parking Requirements

Permit requirement - Use of land for Freezing and Cool Storage - Clause 33.01-1 and 36.01-1. - Development of land for Freezing and Cool Storage - Clause 33.01-4 and

36.01-2. - Reduction of Car Parking Requirements - Clause 52.06-3

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1 Introduction 2

1.1 Background 2 1.2 Vision and Community Benefit 2 1.3 Surrounding Development 2 1.4 Proposal 2

2 Urban Context Review 3

2.1 The Site 3 2.2 Local Context 5

3 Opportunities and Constraints 6

3.1 Opportunities 6 3.2 Constraints 6

4 The Proposal 7

4.1 Planning Scheme Amendment 7 4.2 Planning Permit Application 7

5 Planning Framework 11

5.1 Ministerial Directions 11 5.2 State Planning Policy Framework 11 5.3 Local Planning Policy Framework (including MSS) 11 5.4 Response to State Planning Policy Framework & Local Planning Policy

Framework (including MSS) 13 5.5 Clause 33.01 – Industrial 1 Zone 15 5.6 Particular Provisions 17

6 Planning Assessment 18

6.1 Planning Scheme Amendment 18 6.2 Planning Permit Application 20

7 Key Considerations 21

7.1 Visual Impact 21 7.2 Clause 52.10 & Amenity Impacts 21 7.3 Cultural Heritage Management Plan (CHMP) 22

8 Conclusion 23

8.1 Conclusion 23

Appendices

Appendix 1 – Technical Reports

Appendix 2 – Planning Scheme Amendment Documentation

Appendix 3 – Title

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1 INTRODUCTION

1.1 Background

This planning report has been prepared by Tract Consultants on behalf of Midfield Group Pty Ltd, to

support a request to amend the Warrnambool Planning Scheme and a concurrent planning permit

application.

The planning application is for the Use & Development of land for Freezing and Cool Storage and

Reduction of Car Parking Requirements.

The proposed rezoning will correct an anomaly in the Warrnambool Planning Scheme that incorrectly

identifies part of the site as being for public purposes. As detailed in this report, the proposal is consistent

with relevant State and Local Planning Policies and meets the objectives of the relevant particular

provision of the Warrnambool Planning Scheme.

We seek Council’s support for the proposal and respectfully request approval of this combined planning

permit application and Planning Scheme Amendment request under Section 96A of the Planning and

Environment Act 1987.

1.2 Vision and Community Benefit

The proposed development will enhance the established Midfield Meat operations which are based in

Scott St, Warrnambool. Midfields Meat is a significant local employer and the proposal will diversify the

service and production opportunities available from the site, which will in turn provide substantial

economic benefits for the local economy.

1.3 Surrounding Development

The surrounding environment of the subject site is an established industrial area that has contributed to

local employment for a significant period. This includes the Midfield Meat retail store located at 21 Scott

Street and the Midfield Meat abattoir which is located across the road on the corner of McMeekin Road

and Scott Street. Adjoining the site to the south is a residential area comprising a mix of traditional ad

medium density residential dwellings.

Other industrial complexes in the nearby area include multiple food production outlets, fabrication

warehouses, storage facilities, timber yard and the Warrnambool Council Depot located on the opposite

side of Scott Street.

1.4 Proposal

A new 1820m2 freezing and cool storage facility is proposed. Operations at the facility will involve the

transportation of meat to the site and subsequent freezing and storage of the products until such time as

they are required to be transported away from the site. The building will operate 24 hours a day, 7 days a

week with a maximum of nine staff on the site at any one time. 10 additional car parking spaces are

proposed as part of the development. The use will operate in conjunction with the Midfield Meat Retail

store on the adjacent site at 21 Scott Street.

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2 URBAN CONTEXT REVIEW

2.1 The Site

The subject site comprises of 17 & 19 Scott Street & 26 Strong Street, Warrnambool. The proposed

rezoning affects 19 Scott Street.

The existing site conditions of the proposal are:

• The existing Midfield Meats retail outlet; and

• Associated car parking.

Figure 1 – Site Context Plan

2.1.1 Description

The property is currently owned by Midfield Group Pty Ltd, the subject site comprises three properties, as

follows:

• Lot 12 on LP 128276 (17 Scott St);

• Lot 23 on PS132203 (19 Scott St); and

• Lot 27 on PS132203 (26 Strong St).

The site is irregular in shape with a 47m frontage to Scott Street and a 26.6m frontage to Strong Street,

equating to an approximate site area of 5617 square metres.

The site contains three existing single storey industrial buildings which will be demolished to make way for

the proposed development. These buildings are used by The Midfield Group for storage and fabrication

operating 6:00am – 6:00pm weekdays whilst the building fronting Scott Street is used for waste collection.

The remainder of the site is surfaced with a mixture of concrete and gravel and is used for car parking,

driveways and storage. There are currently 37 on-site car parking spaces, accessed from Scott Sreett,

located on the Meat Barn land.

Midfield Meats

Retail outlet

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There is no existing vegetation present on site and there is a 2 metre wide easement running along the

rear boundary of 26 Strong Street. The land is not subject to any restrictive covenants or Section 173

Agreements.

17 Scott Street and 26 Strong Street are located within the Industrial 1 Zone while 19 Scott Street is located

within the Public Use Zone (Schedule 6) - Refer Figure 2 – Zone Plan. The subject land is not affected by

any planning overlays.

2.1.2 Landscape and Vegetation

The existing landscape and vegetation within the site area comprises of grassed nature strips and existing

small medium buffer planting located on Scott Street and Strong Street. A landscape plan has been

prepared and forms part of this application.

2.1.3 Topography and Views

The subject site is marginally higher than its surroundings having fall towards Scott Street and Strong

Street at both ends of the site. There are no significant view lines from the site. Visual montages have been

prepared and accompany this planning report.

2.1.1 Interfaces

The site is located on the west side of Scott Street next to the existing meat barn owned by Midfield Meat.

The Midfield abattoir which is located opposite the site on Scott Street operates 24 hours a day on

weekends. The west boundary of the site faces a storage yard located in the Industrial 3 Zone on Strong

Street - refer to Figure 1 - Site Context Plan.

2.1.2 Land Use and Development

The site incorporates 3 land parcels and extends between Scott Street and Strong Street. A building of

approximately 480sqm floor area fronting Scott Street and another building centrally within the site of

approximately 175sqm floor area are used for storage and fabrication with 6 employees operating

weekdays. Another building of approximately 230sqm floor area fronting Strong Street has been used for a

waste collection business. The Meat Barn premise (Midfield’s retail outlet) is located immediately to the

north of the site and its car park and loading bay are located partly within the site land. The floor area of all

existing buildings located on-site total approximately 885sqm.

2.1.3 Existing Planning Controls

Most of the subject site is within the Industrial 1 Zone. A portion of the land (19 Scott Street) is located

within the Public Use Zone Schedule 6 that regulates the use of land to local government. There are no

overlays currently affecting the subject land.

2.1.4 Infrastructure Connectivity

As shown in Figure 2 – Locality Plan, the subject site is located between Scott and Strong Street on the

southern periphery of the West Warrnambool Industrial Precinct which is located approximately 1.5

kilometres west of Warrnambool’s CBD.

There are a variety of zones within the immediate surrounding area including further Public Use Zone land

(Schedules 1, 2 & 6), Industrial 3 Zone, Public Park & Recreation Zone along with residentially zoned land

located approximately 80m to the west of the subject.

Scott & Strong Street both run south off McMeekin Road which is designated as a Road Zone, Category 2.

Scott Street.

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2.2 Local Context

2.2.1 Built Form and Heritage Character

The Warrnambool Railway Line is located approximately 135m east from the subject site.

The land is surrounded by

industrial operations. It adjoins

the Warrnambool Meat Barn

(Midfield’s retail outlet), and a

self-storage facility to the north.

Midfield Meat Transport depots

are located to the south of the

site.

The Midfield Meat occupy the

large landholding to the east of

the site, over Scott Street and to

the south (across Strong St)

accommodates a number of

industrial uses including a

fibreglass sales and repairs

business. There are a variety of

zones within the immediate

surrounding area including

further Public Use Zone land

(Schedules 1, 2 & 6), Industrial 1

Zone, Industrial 3 Zone, Public

Park & Recreation Zone.

2.2.2 Landscape Character

The existing character of the site

and area is heavily industrial

mostly comprising of small

buildings enclosed with metal

sheeting. There are multiple

storage facilities and operational

buildings currently used on the

site. Existing car parking is

available on the site as well as

Strong Street and Scott Street.

2.2.3 Pedestrian Network

Footpaths are generally not provided along nearby roads except for footpaths on McMeekin Road

adjacent the Albert Street and Koroit Street signalised intersections.

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3 OPPORTUNITIES AND CONSTRAINTS

3.1 Opportunities

The site is located within a strong industrial area and is in a prime location for further industrial

development. The site presents a key opportunity for increased meat production and the storage

processed at the abattoir located directly opposite the site. The site can be accessed via Scott Street or

Strong Street creating efficient truck movements through the area.

Gravel and small areas of concrete are the common materials found on the land allowing for a relatively

smooth transformation of the site terrain. The 3 existing buildings on the land are all constructed of steel

and metal sheeting making the demolition process considerably efficient.

3.2 Constraints

The interfaces with adjoining sites have been considered in detail. The facility will incorporate 4 truck

loading bays located at the front of the site which reflects existing access arrangements.

Truck movements to and from the site have been considered. A transport assessment report is included

with this submission addressing any increase in truck movements and occupants resulting from the

proposed development.

The site has been selected to achieve operational efficiencies through proximity to the existing abattoir.

The size of the cold storage building has been maximised within the available site area to be of a sufficient

size to fulfil the operational requirements of the Midfield business.

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4 THE PROPOSAL

4.1 Planning Scheme Amendment

4.1.1 Summary

An amendment to the Warrnambool Planning Scheme is sought to rezone part of the subject land from

the Public Use Zone (PUZ6) to the Industrial 1 Zone (IN1Z).

This amendment will address an anomaly that restricts the use of the land for the proposed operations.

The land is currently zoned for public (government) purposes. Given the private ownership of the land, the

zone is inappropriate and does not reflect the current or future use and development of the land.

4.2 Planning Permit Application

4.2.1 Summary

Proposal

The land use proposed sites a freezing and cool storage facility that will operate under the ownership of

Midfield Meat. Located directly opposite the abattoir meat will be transported to the site freezing the

products and storing them until the produce is required to be transported away from site. The operational

hours of the facility will be 24 hours a day, 7 days a week and will run in conjunction with the Midfield

Meat Retail store on the adjacent site at 21 Scott Street.

A maximum of nine staff will be operating from the site at any one time and an additional 10 car parking

spaces will be provided as part of the development.

The building comprises three key zones:

Freezer area:

This is the largest component of the building and occupies a floor area of approximately 980sqm. This

area will have an internal ceiling height of approximately 27m. This part of the building provides the

freezing and storage functions of the operation. Frozen pallets of meat will be stored and stacked within

this space using a system of pallet racks. Because of the extremely low temperatures in this area, under

normal operations this area will not be accessible to personnel or visitors. The pallets will be stored and

retrieved using automated equipment that operates from roof-mounted suspended track.

Internal Dispatch Area:

The internal dispatch area occupies the eastern part of the building and is used to manage the incoming

pallets and labelling of outgoing consignments. The space has an area of approximately 530sqm and is

designed to accommodate both semi-trailers and B-double vehicles. Outgoing product is dispatched to

for both local supply and international exports.

It is anticipated that there will be approximately 10 trucks delivering product to the facility per day,

although this will vary in line with client orders.

Plant

An enclosed plant area is provided at first floor level on the eastern extent of the building. The building

includes both internal and external areas. The un-roofed external plant is contained behind walls so that it

appears as part of the main cold store building.

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4.2.2 Design Philosophy

Built form

The proposed building will have a total floor area of 1820m2. The freezer section of the building makes up

two thirds of the floor space at 66.4m long and 15.2m wide and will have an overall height of 27.3m. The

front third of the building is of a more modest scale at 8m or 12.5m in height.

The proposed building has a varied setback from the Strong Street boundary, with a minimum setback of

1m. The building is setback 3.2m from the southern boundary line. The proposed building will be setback

m from the Scott Street boundary and approximately 10m from the northern boundary line.

A selection of exterior colours and materials are limited for this type of structure, which will be clad in pre-

fabricated insulated panels. The panels are available in standard Colorbond colours. To tie in with the

existing Midfield plant, the proposed colour scheme will comprise a combination of ‘Colorbond Surfmist’

and ‘Pale Eucalypt’. The selection of these neutral tones will minimise the impacts of the built form within

the streetscape and broader view lines.

Landscaping

A detailed landscaping plan proposes a mix of native and indigenous plants within these designated

landscaping areas. An appropriate and site responsive mix of plants has been considered and an

indicative schedule of planting is provided as follows:

A detailed landscaping plan and planting schedule can be provided as a condition of planning permit,

should this be required by Council.

Emissions / Industry Regulations

Neither an EPA Works Approval nor Waste Discharge License is required and no consideration of matters

under the Occupational Health and Safety (Major Hazard Facilities) Regulations 2000, the Dangerous

Goods Act 1985 or the Dangerous Goods (Storage and Handling) Regulations 2000 are required.

4.2.3 Demolition

The proposed development incorporates demolition of existing site buildings including the 480sqm

building fronting Scott Street, the 175sqm building centrally located within the site and the 230sqm

building fronting Strong Street.

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4.2.4 Buildings and Works

The proposed works include the construction of a new building approximately 1,820sqm providing a cold

storage facility to be used to store meat processed at the abattoir. The facility will incorporate 4 truck

loading bays at the front, a goods receiving and dispatch handling area and a cold store room at the rear

that uses a pallet racking storage system.

4.2.5 Commercial Component

The proposed development is consistent with State Planning Policy & Local Planning Policy including MSS.

The response to the objectives and strategies provided in the development adhere to the focus of

increasing Warrnambool’s primary production and food processing industry influencing the employment

base of the community.

The establishment of the cold storage facility will significantly service the abattoir located opposite the site

increasing production whilst meeting the requirements for the cold storage of meat.

4.2.6 Common Areas

Sufficient common areas will be provided for employees and visitors to the site.

4.2.7 Waste Collection

Standard waste collection is expected to continue from the site as well as the proper measures required

for the disposal of any product waste throughout the operation of the cold storage facility.

4.2.8 Access

Existing driveways to Scott Street and Strong Street will remain to provide access to/from the site with

some widening modifications proposed. The Meat Barn loading bay is to be accessed through the site as

per current arrangements subject to some proposed widening of the splayed entry to the loading bay.

4.2.9 Car Parking

A total of 10 additional car parking spaces are provided as part of the proposal. A traffic engineering

assessment, including an assessment of car parking provision, has been prepared by ESR Transport

Planning. The traffic engineering report identified that the proposed use and development generates a

statutory car parking requirement for 27 car spaces, however a waiver of car parking spaces is justified on

the basis of the shared uses, operational requirements and the quantity of existing car parking spaces on

the subject land.

Further discussion and justification of the car parking waiver is provided later in this report.

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Figure 3 - Proposed Zones (IN1Z)

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5 PLANNING FRAMEWORK

5.1 Ministerial Directions

A Planning Scheme Amendment must respond to any relevant Ministerial Direction.

The amendment is consistent with the Ministerial Direction on the Form and Content of Planning

Schemes under section 7(5) of the Act.

The following Ministerial Directions are relevant to this amendment:

5.1.1 Ministerial Direction No. 11

The purpose of Ministerial Direction 11 is to ensure a comprehensive strategic evaluation of a planning

scheme amendment and the outcomes it produces.” the overall strategic objectives are achieved once the

correct zoning is applied.

5.1.2 Ministerial Direction No. 12

The amendment is consistent with the Ministerial Direction on the Form and Content of Planning

Schemes under section 7(5) of the Act.

5.1.3 Planning Practice Note – Public Land zone (October 2013)

The Practice Note states that land can only be in a Public Use Zone, a Public Park and Recreation Zone or a

Public Conservation and Resource Zone if the land is Crown land, or is owned by, vested in or controlled

by a Minister, government department, public authority or municipal council. Following the sale of the

land will now be in private ownership and should no longer be in a Public Use Zone.

5.2 State Planning Policy Framework

The following objectives of the revised SPPF are relevant to this application:

5.2.1 Clause 17 – Economic Development

The objective of 17.02-2 is to “facilitate the sustainable development and operation of industry and research

and development activity.”

Strategies

- Ensure that industrial activities requiring substantial threshold distances are located in the core of

industrial areas.

- Encourage activities with minimal threshold requirements to locate towards the perimeter of the

industrial area.

- Minimise inter-industry conflict and encourage like industries to locate within the same area.

- Provide adequate separation and buffer areas between sensitive uses and offensive or dangerous

industries and quarries to ensure that residents are not affected by adverse environmental effects,

nuisance or exposure to hazards.

- Encourage manufacturing and storage industries that generate significant volumes of freight to locate

close to air, rail and road freight terminals.

5.3 Local Planning Policy Framework (including MSS)

5.3.1 Clause 21.07 –Economic Development

Relevant Objectives

- To develop Warrnambool as a major food and dairy processing centre for Victoria.

- To encourage well planned industrial development with high standards of amenity, siting and design

especially along major routes.

- To protect the amenity of residential areas from the effects of industrial activity, while not impeding the

productivity of industrial enterprises.

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Relevant Strategies

- Enhance all industrial areas through the development and maintenance of a high standard of

landscaping.

- Manage the interface between industrial and residential activities, particularly in regard to heavy

vehicle traffic, industrial emissions, noise and visual setting.

5.3.2 Clause 22.03 – Economic Development

The objective of 22.03-1 is to “encourage well planned industrial development throughout the municipality

setting out clear requirements for industrial development and dealing efficiently with proposals that meet these

requirements.”

Relevant Performance Standards

Buildings

- Buildings should not occupy more than 50% of the site. Applications for buildings that do occupy

more than 50% of the site should show how matters such as car parking can be satisfactorily

addressed.

- Buildings should be constructed in materials that are visually attractive such as brick, masonry or

Colorbond metal.

Setbacks

- Setbacks may vary depending on the nature of the site, existing development and the need to ensure

safe traffic circulation.

- Frontage setbacks - To ensure active and vibrant road frontages and to generate a sense of

containment within industrial development, front setbacks should be reduced and consistent, with

minimal car parking located in the front setback. Car parking should be located along the side and rear.

Car Parking

- On site car parking must be provided according to the rate prescribed in the planning scheme unless a

proposed use warrants a reduction.

- Vehicle loading and unloading should be designed to occur totally within the site.

- Common parking areas should be considered as part of any integrated development.

Advertising

- Advertising signs should identify the name of the business occupying the premises and the service

offered.

- Above roof signs are discouraged.

- Integrated projects involving a number of lots and buildings should include a directory sign indicating

business names and services offered.

Landscaping

- Landscaping on each site will be encouraged to:

� Retain existing vegetation where practical.

� Use locally indigenous vegetation.

� Screen areas where visibility for safety is not essential.

� Define areas of pedestrian and vehicular movement.

� Provide landscaping that minimises maintenance requirements.

� Allow appropriate maintenance and landscaping of areas where future building may occur.

� Use landscaping instead of fencing in areas such as the frontage of the site.

� Avoid fencing at the site frontage unless the applicant demonstrates fencing is required for security

reasons.

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5.4 Response to State Planning Policy Framework & Local Planning Policy Framework

(including MSS)

The proposal is consistent with the objectives and strategies of Clause 17.02-2 as:

- Although the proposed use is an industrial activity requiring a 150m threshold under Clause 52.10 it is

not a “substantial” threshold distance and therefore it is appropriate that the proposed use locate

towards the perimeter of the industrial area.

- The proposal will minimise inter-industry conflict as the freezing and cool storage will operate in

conjunction with other Midfield Meats sites adjacent and directly opposite the subject site.

- The site is well positioned within the local road network for an industry that requires moderate delivery

and dispatch movements. The site has convenient access to higher order roads such as McMeekin

Road, Albert Street & Walsh Road which are all designated Category 2 roads under the Road Zone and

provide direct access to the Princes Highway which is designated as a Category 1 road under the Road

Zone. The site is also well positioned to access the Warrnambool-Melbourne Railway line should the

ability or need to utilise rail freight arise in the future.

The proposal is consistent with the objectives and strategies of Clause 21.07 as:

- The development and maintenance of a high standard of landscaping will be provided as part of this

development, however as stated previously in this report it is requested that a landscape plan be

requested via a condition of a planning permit.

- The proposed use and development will ensure the interface between industrial and residential

activities is maintained to the extent that there will be no loss of amenity as a result of heavy vehicle

traffic, industrial emissions, noise and visual setting. Further discussion regarding amenity is provided in

Section 5 of this report.

The proposal is consistent with the performance standards of 22.03-1. The following comments are

provided:

Buildings:

With a total site area of approximately 5,600 sqm and a proposed floor area of 1,550 sqm the building will

not occupy more than 50% of the site.

The building is proposed to be constructed of Colorbond metal to ensure an attractive aesthetic is

provided.

Setbacks:

The proposed building setbacks are considered to be appropriate and not inconsistent with development

within the vicinity of the subject site. The building has been sited to ensure safe traffic circulation. The

swept path diagrams contained in the traffic engineering report indicate that a generous setback to Scott

Street is required in order to achieve single direction manoeuvre truck movements on the site. This

requirement is paramount, as reducing the number of truck movements or multi-on site movements

lowers occupational health and safety risks for personnel on the site.

Although the front setback is considerable, it does not include car parking areas, and will therefore provide

a streetscape interface with acceptable visual amenity.

Car Parking:

A waiver of 19 car parking spaces is sought. Further discussion on this matter is provided later in this report

and within the attached Traffic Assessment Report prepared by ESR Transport Planning.

An appropriate amount of car parking will be provided on site having due regard for staff and customer

numbers, parking provided on the adjoining site in the same ownership and the availability of on-street

parking. Further assessment and justification is provided in the attached Transport Assessment Report

prepared by ESR Transport Planning.

Common parking areas have been considered with car parking areas on the subject site and the adjacent

Midfield Meat retail store to provide a consolidated parking area.

Vehicle loading and unloading has been designed to occur entirely within the site. The facility will

incorporate 4 truck loading bays at the front, a goods receiving and dispatch handling area and cold store

room at the rear that uses a pallet racking storage system.

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Advertising:

The proposal includes Business Identification in accordance with the requirements of Clause because:

• Advertising signs that identify the name of the business occupying the premises and the service

offered are proposed; and

• No above roof signs are proposed.

Landscaping:

It is requested that a landscape plan be required via a condition of the planning permit.

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5.5 Clause 33.01 – Industrial 1 Zone

As shown in the zone plan to the right,

the subject land is currently within the

Industrial 1 Zone and the Public Use

Zone (Schedule 6).

The purpose of the Industrial 1 Zone is to

“provide for manufacturing industry, the

storage and distribution of goods and

associated uses in a manner which does not

affect the safety and amenity of local

communities.”

Comment:

The proposed use and development

accords with the purpose of the zone as

it will provide for a goods storage and

distribution facility which will directly

support the food processing industry in

Warrnambool and will not affect the

safety and amenity of local residents.

The proposed use is defined in the

Warrnambool Planning Scheme as

‘freezing and cool storage’ which is nested

under the broader land use term:

‘Warehouse’. Under the Industrial 1 Zone,

a planning permit is required to use land

for a warehouse if it does not meet the

threshold distance at Clause 52.10 of the

Scheme.

It is noted that the proposed use is listed

in Clause 52.10 and has a required threshold buffer of 150m from land within a residential zone. There is

residential land approximately 80m west of the site and does not satisfy the threshold distance at Clause

52.10. Accordingly, a planning permit is required for the use of the subject land. Under the Industrial I

Zone, a planning permit is also required for the buildings and works proposed as part of the development.

Accordingly, the application will be referred to the EPA pursuant to Clause 66.02-7. It is considered that

the EPA’s comments will provide some evidence that the proposal will not impact nearby residents.

Further discussion regarding amenity is provided in Section 5 of this report.

The below comments are provided in response to the decision guidelines for both use and development

within the Industrial 1 Zone:

The effect that the use may have on nearby existing or proposed residential areas or other uses which are

sensitive to industrial off-site effects, having regard to any comments or directions of the referral

authorities.

The proposal will not affect the safety and amenity of local residents. The insulated nature of the building

will mitigate noise impacts. The traffic report provided by ESR Transport Planning confirms that trucks

entering and exiting the premises will not be required to enter the residential road network in order to

access higher order roads. There are no odour emissions associated with the proposed use and

development.

The effect that nearby industries may have on the proposed use

The proposal will not unreasonably impact on nearby industry. It is noted that there is a substantial food

production sites within the vicinity of the subject land.

The drainage of the land

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The proposal will not inappropriately impact on drainage because minimal regrading of land will be

required as part of the development proposal. Further, the proposal does not include expansive areas of

hardstand.

The availability of and connection to services

Connection to services is available within this established industrial precinct.

The effect of traffic to be generated on roads

The traffic report prepared by ESR Transport Planning confirms that traffic generated by the proposed use

and development can be adequately accommodated within the surrounding road network.

Any natural or cultural values on or near the land

There are no natural values on or near the site however the site and the surrounding area is identified as an

aboriginal cultural sensitive area. Please refer to Section 5 of this report for further discussion relating to

culturally sensitive land.

The interim use of those parts of the land not required for the proposed use

The proposed development occupies most of the subject land. Any balance land will be landscaped or

used for vehicular movements, and kept in an orderly state.

Streetscape character / Built form / Landscape treatment.

The proposal is considered to provide an acceptable outcome in terms of streetscape character and built

form, with the landscape treatment requested to be deferred and required via a condition of the planning

permit.

The proposed building is of a significant scale, however is appropriate within its surrounding residential

context. Three dimensional photographic montages have been prepared, in order to evaluate the impact

of the proposed built form. The viewing locations have been identified by Council as key public viewing

points point.

These views analysis shows the proposed development will be visible from a number of view lines in

Warrnambool. The use of muted tonings will soften the visual impact of the development.

The proposed external colours have been selected to minimise impacts of the building on the streetscape

and with the consideration of views of the building from the broader site context.

Interface with non-industrial areas.

Not applicable.

Parking and site access.

A total of 10 spaces have been provided which does not meet the statutory requirement of 27 as per

Clause 52.06. Further discussion and justification for this waiver is provided elsewhere in this report.

Loading and service areas

Appropriate loading areas have been provided in accordance with Clause 52.07.

Outdoor storage

No outdoor storage areas are proposed as part of this application.

Lighting

Lighting has not been proposed at this stage although it is certainly intended to do so. It is requested that

lighting details be required through a landscape plan condition on the planning permit.

Stormwater discharge

The legal point of discharge for this site has been nominated as an existing side entry pit located in Scott

Street (in line with the southern boundary of the site). The site has moderate fall towards this pit. The

existing drainage system in Scott Street has been designed to cater for an industrial site (co-efficient of

runoff = 0.9, 20year ARI) and this development will not exceed this.

A detailed internal drainage design which captures all runoff from the site during a 20year ARI event will

be submitted to council for approval as part of a planning permit condition. Aspects of Water Sensitive

Design and water reuse will be considered in this detailed design.

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5.6 Particular Provisions

5.6.1 Clause 52.06 – Car Parking

The purpose of Clause 52.06 is:

- To ensure the provision of an appropriate number of car parking spaces having regard to the demand

likely to be generated, the activities on the land and the nature of the locality.

- To support sustainable transport alternatives to the motor car.

- To promote the efficient use of car parking spaces through the consolidation of car parking facilities.

- To ensure that car parking does not adversely affect the amenity of the locality.

- To ensure that the design and location of car parking is of a high standard, creates a safe environment

for users and enables easy and efficient use.

Comments:

Under the Warrnambool Planning Scheme, 1.5 car parking spaces are required for each 100sqm of net

floor area for a cold store. The proposed floor area of approximately 1820 sqm therefore generates a

statutory requirement for 27 car parking spaces. A permit can be granted to waive or reduce this

requirement.

A total of 10 spaces have been provided on site therefore a waiver of 17 spaces is sought.

As detailed in the attached Transport Assessment Report prepared by ESR Transport Planning, this waiver

is justified because:

• An empirical assessment suggests that only eight car parking spaces will be required for the

anticipated 9-10 staff on site at any one time.

• Car parking efficiencies will be achieved through the sharing of spaces across the various Midfield

operations.

• There is sufficient on-street car parking available within the vicinity of the site which will be

supplemented by a further 80 additional spaces (approximately) which will be provided through

Council improvements.

• Any additional demand can be accommodated through informal parking on site.

5.6.2 Clause 52.34 Bicycle Facilities

Under the Warrnambool Planning Scheme, the proposed development generates a requirement for 2

bicycle spaces. Storage areas within the proposed development will provide suitable bicycle parking

opportunities to satisfy this requirement.

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6 PLANNING ASSESSMENT

6.1 Planning Scheme Amendment

This section of the planning report has been prepared in response to Section 3.1 of Ministerial Direction

No. 11 under Section 12 (2)(a) of the Planning and Environment Act 1987. The purpose of the Strategic

Assessment Guidelines is to provide a consistent framework for the evaluation of a proposed planning

scheme amendment and the outcomes it produces. The Guidelines address a number of matters which

are outlined below:

6.1.1 Why is an amendment required?

The subject land has been identified as an appropriate location for a cooling and storage through the

strategic planning for the township of Warrnambool.

It is proposed to rezone the site to an Industrial 1 Zone. The schedule caters specifically to provide for

manufacturing industry, the storage and distribution of goods and associated uses in a manner which

does not affect the safety and amenity of local communities.

The proposed Zone allows the subject site to be developed and used for the purposes envisaged through

the Warrnambool Planning Scheme.

6.1.2 How does the amendment implement the objectives of planning in Victoria?

The amendment implements the objectives of planning in Victoria, contained in Section 4 of the Planning

and Environment Act 1987, in the following ways:

− Provides for the fair, orderly, economic and sustainable use and development of land as it facilitates

a coordinated development in a strategically identified location and in a responsible manner

through the implementation of appropriate zone and overlay controls.

− Provides for the protection of natural resources by introducing controls that require that future

development proposals address environmental, biodiversity, ESD and WSUD considerations and

the maintenance of ecological processes and genetic diversity.

− Secure and provide a pleasant and safe recreational environment for all Victorians and visitors to

Warrnambool.

− Seeks to balance the present and future interests of all Victorians by facilitating capital investment

in the Warrnambool region and facilitating a high quality industrial development.

6.1.3 How does the amendment address the environmental effects and any relevant social and

economic effects?

Environmental Effects

The proposal is not expected to have any significant adverse environmental effects. The Site is used for

storage.

The Industrial 1 Zone will guide the development of the land in a manner that takes into account local

environmental considerations.

The removal of vegetation is not proposed as part of this amendment.

Social Effects

The proposed amendment accords with the guiding Victoria Planning Provisions – Principles of Land Use

and Development, and is expected to deliver positive economic and social effects for the area through:

− Opportunity to provide new employment within close proximity to Warrnambool township.

− Consolidating the site for supporting community infrastructure.

− Contributing to strong growth in the industrial sector and developing Warrnambool as a major

food and dairy processing centre for Victoria as outlined in Clause 21.07 Economic Development of

the Warrnambool Planning Scheme.

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Economic Effects

The amendment will lead to the following economic benefits:

− Construction facilitated through the amendment will result in the creation of direct and indirect

employment opportunities.

− Enhancing the sites industrial potential given its location

− Midfield is already an established local business with the proposed development enhancing the

service and production opportunities for the site and community.

6.1.4 Does the amendment comply with the requirements of any other Minister’s Direction

applicable to the amendment?

The amendment is consistent with the Ministerial Direction on the Form and Content of Planning

Schemes under Section 7(5) of the Planning and Environment Act 1987 and meets the requirements of

relevant Ministerial Direction No. 1.

Ministerial Direction 1: Potentially Contaminated Land Section 12 (2)(a) of the Planning and Environment

Act 1987. The subject land has previously been used exclusively for grazing and the land is not anticipated

to be affected by contamination. As mentioned, this notion is based on an assessment of the Department

of Planning and Community Development’s General Practice Note for Potentially Contaminated Land

(June 2005).

6.1.5 How does the amendment support or implement the State Planning Policy Framework?

The amendment supports a number of key policy directions within the SPPF. These include:

− Ensure wherever possible, that there is suitable separation between land uses that reduce amenity

and sensitive land uses.

− Provide for the protection of and conservation of pre and post contact Aboriginal cultural heritage

places.

− Provide outlets of trade related goods or services directly serving or ancillary to industry and which

have adequate on site car parking.

− Protect and carefully plan existing industrial areas to, where possible, facilitate further industrial

development

− Identify land for industrial development in urban growth areas where good access for employees,

freight and road transport is available.

6.1.6 Does the amendment support or implement the LPPF? If not, how is the LPPF proposed to

change?

The amendment supports the key policy directions within the LPPF. These include:

− Developing Warrnambool as a major food and dairy processing centre for Victoria

− To encourage well planned industrial development with high standards of amenity, siting and

design especially along major routes.

− Vehicle loading and unloading should be designed to occur totally within the site.

− Common parking areas should be considered as part of any integrated development.

− Encouraging a high quality built environment enhancing the surrounding natural environment and

landscape values.

− To identify areas of aboriginal cultural heritage sensitivity.

6.1.7 Does the amendment make proper use of the Victoria Planning Provisions?

The proposed amendment makes appropriate use of the Victoria Planning Provisions through the use of

land being utilized for the purpose of a milk processing facility. A setback has been provided for the

location of the building on site to protect the neighbourhood from effects of noise levels and air-borne

emissions on residential dwellings.

The application of the Zone will support the future use of the land in an appropriate manner, and facilitate

industrial development.

6.1.8 How does the amendment address the views of any relevant agency?

The amendment will be formally referred to all relevant agencies as part of the public exhibition process.

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6.1.9 Does the amendment address the requirements of the Transport Integration Act 2010?

Given the site’s regional location, the requirements of the Transport Integration Act are not directly

relevant to the amendment.

6.1.10 What impact will the new planning provisions have on the resource and administrative

costs of the responsible authority?

The amendment is unlikely to have a significant impact on the resources and administration costs of the

responsible authority.

6.2 Planning Permit Application

An assessment of the proposed development requires an analysis of the following considerations:

6.2.1 Is the proposal consistent with the Warrnambool Planning Scheme?

The proposal seeks to amend an anomaly in the Warrnambool Planning Scheme that has incorrectly

zoned part of the subject site in the Public Use Zone (PUZ6). This proposal will amend the current zone to

the Industrial 1 Zone to facilitate the proposed development of a Freezing & Cool Storage Facility. The

proposal is consistent with the Industrial 1 Zone and particular provisions of the Warrnambool Planning

Scheme.

6.2.2 Is the proposal a satisfactory site-responsive design?

The proposal will appropriately locate a freezing & cool storage facility in an existing industrial area

effectively responding to the nature of the subject sites surroundings. The site abuts another of the

Midfield Groups industrial facilities in the area being the Midfield Meat retail store. The Midfield Meat

Abattoir is located directly opposite the site making the proposal an ideal location capable of servicing the

abattoir complex efficiently.

6.2.3 Does the proposal create any unreasonable amenity impacts on the surrounding area?

The proposal includes the development of a building not exceeding 30m in height providing the

appropriate setback from the site boundary facing Scott Street. Car parking is located on each side of the

facility with the appropriate setbacks provided as outlined in Clause 54.04-1 of the Warrnambool Planning

Scheme. The proposal will not have any unreasonable amenity impacts on the surrounding area for the

determined use.

6.2.4 Is the internal amenity of the proposal satisfactory?

The internal amenity of the proposal responds to the proposed use of the site allowing for trucks to

comfortably enter, unload/load and exit the site. The materials used in the building design will respond to

the materials used by existing buildings located in the industrial area.

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7 KEY CONSIDERATIONS

7.1 Visual Impact

3D photographic montages have been prepared in order to assess the visual impacts associated with the

development. These images confirm that the proposal is appropriate to the location and context of the

subject site. Refer to Attachment.

7.2 Clause 52.10 & Amenity Impacts

Clause 52.10

It is noted that the proposed use is listed in Clause 52.10 with a required threshold buffer of 150m which is

not achieved given the residential zoned land approximately 80m west of the site. Accordingly, the

application will require a referral to the EPA pursuant to Clause 66.02-7. The EPA’s assessment is

anticipated to confirm that the proposal will not adversely impact nearby residents.

Heavy vehicle traffic

The traffic impact assessment notes:

Midfield Meat currently processes in excess of 2 million beef and small stock annually, the majority of which is transported to cold storage facilities, predominately in Melbourne. The proposed cold storage facility will provide a nearby location to store this product that currently is transported elsewhere. Accordingly, the development proposal it not expected to generate new truck movements but rather redirect truck movements that are already occurring in the precinct.

Truck movements to the cold storage facility will likely be on a regular basis as product is processed and then delivered to the facility for storage. Trucks used are predominately semi-trailers, with the occasional B-double used. Trucks may have their trailer detached from the prime mover at the loading bays while product is loaded / unloaded. In the order of 10 trucks a day are expected to be delivering product to the facility.

Product will also be delivered to the meat barn loading bay through the site as per existing conditions.

Truck movements from the site will be in accordance with client orders and will vary in terms of number and frequency. Typically, trucks are delivering to clients on a daily basis while at times of peak demand (eg. large export order), the number of trucks delivering product from the facility may be in the order of 15 a day.

Proposed local truck movements are described in the traffic impact report as follows:

The proposed development has been designed to accommodate truck entry from Strong Street and egress to Scott Street. Trucks delivering product from the abattoir will access the site by travelling south along Scott Street, turning right into Strong Street and right from Strong Street into the site. The alternative access route using McMeekin Road will not be adopted given potential delays for vehicles entering McMeekin Road and also because the site access is better suited to right turn entry given its width. Also, the Scott Street - Strong Street route is expected to easily accommodate anticipated truck movements given the lower traffic volumes on these roads.

As product is taken from the site, trucks will egress to Scott Street and use McMeekin Road and Koroit Street to exit the precinct as per existing conditions.

The site is well positioned in terms of access to higher order roads such as McMeekin Road which is a

designated Category 2 road under the Road Zone.

Heavy vehicles will be able to utilise higher order roads to gain direct access to the Princes Highway which

is designated as a Category 1 road under the Road Zone.

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Importantly, the route via McMeekin Road ensures that heavy vehicles are not travelling through

residential areas and therefore will not impact upon the amenity of those areas through traffic congestion

or noise.

Industrial Emissions & Noise

The proposed use is not anticipated to generate emissions that would unreasonably impact upon the

amenity of nearby residential land. Odour noise or dust emissions beyond current levels are not

anticipated to be emitted from the site.

Heavy vehicles could use the McMeekin Road/Albert Street/Walsh Road route to provide access between

the site and the Princes Highway and therefore avoid any residential areas to prevent and nullify any issues

relating to vehicle noise.

As for noise from site operations these would be minimal as the only noises sources would be vehicles on

the site such as forklifts and trucks or machinery within the building. It is noted that the site’s operations

would need to meet EPA requirements in terms of noise emissions from the site.

7.3 Cultural Heritage Management Plan (CHMP)

The permit applicant has confirmed that the subject land has been subject to significant previous

disturbance and for this reason a CHMP is not required. The attached report confirms that a mandatory

CHMP is not required under these circumstances.

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8 CONCLUSION

8.1 Conclusion

This report has detailed the context and design response for the proposal at 17-19 Scott Street and 26

Strong Street in Warrnambool. The proposal is appropriate to the location and context of the subject site

and should be supported by Council for the following reasons:

− It is consistent with the relevant State and Local planning policy referenced in the report; and

− It is consistent with objectives and decision guidelines of the applicable Particular Provisions.

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APPENDIX 1 – TECHNICAL REPORTS

The Master Plan for the site has been influenced and informed by a number of specialist technical reports

and assessments. These reports have considered the future development proposal in the context of the

existing site and environmental conditions.

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APPENDIX 2 – PLANNING SCHEME AMENDMENT

DOCUMENTATION

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APPENDIX 3 – TITLE