APPENDIX C
Town Planning Report
Preston Market
Planning Scheme Amendment C143
Prepared on behalf of Preston Market Developments Pty Ltd
June 2014
Reference: 0177232_RP02_Final
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FINAL REPORT
Town Planning Report
Preston Market - Planning
Scheme Amendment C143
Prepared on behalf
Developments Pty Ltd
of
Preston
Market
June 2014
Reference: 0177232_RP02_Final
Environmental Resources Management
Australia
Level 3, Tower 3 (WTC)
18-38 Siddeley Street, DOCKLANDS VIC 3005
AUSTRALIA
Telephone +61 3 9696 8011
Facsimile +61 3 9696 8022
www.erm.com
CONTENTS
1
INTRODUCTION
2
SUBJECT SITE AND SURROUNDS
3
PLANNING SCHEME AMENDMENT PROPOSAL
3.1
3.2
3.3
3.4
FRAMEWORK PLAN
BUILDING HEIGHT
OBJECTIVES & PRINCIPLES
CONSEQUENTIAL CHANGES
4
EXISTING DAREBIN PLANNING SCHEME
4.1
4.2
4.3
4.4
4.5
4.6
4.7
4.8
4.9
ZONING
OVERLAYS
GENERAL AND PARTICULAR PROVISIONS
STATE PLANNING POLICY FRAMEWORK
LOCAL PLANNING POLICY FRAMEWORK
REFERENCE DOCUMENTS
INCORPORATED DOCUMENTS
OTHER DOCUMENTS
DAREBIN PLANNING SCHEME AMENDMENTS
5
ASSESSMENT
5.1
5.2
5.3
5.4
WHY IS THE AMENDMENT REQUIRED?
STRATEGIC & POLICY JUSTIFICATION FOR THE AMENDMENT
LAND USE AND DESIGN CONSIDERATIONS
TECHNICAL CONSIDERATIONS
6
CONCLUSION
8
9
10
11
14
15
18
18
20
25
27
28
29
35
35
42
46
1
INTRODUCTION
This report has been prepared by Environmental Resources Management Pty
Ltd on behalf of Preston Market Developments Pty Ltd. The amendment
applies to land known as the ‘Preston Market’, bounded by Murray Road,
Crammer Street, the South Morang railway corridor and the rear of retail
premises fronting High Street.
This report accompanies a request to amend the Darebin Planning Scheme to
enable revisions to the Preston Market Incorporated Plan (March 2007). This
Plan was introduced into the Scheme by Amendment C67 on 7 June 2007 at
Clause 37.06 ‘Priority Development Zone – Schedule 1 (Preston Market)’.
This planning report sets down background information including a
description of the subject site and its surrounds, an outline of the zoning and
overlay controls and relevant State and local planning policies affecting the
site. The report then explains the proposed planning scheme amendment and
provides a strategic assessment of its merits, having regard to the Planning
Practice Note No. 46 ‘Strategic Assessment Guidelines: for preparing and
evaluating planning scheme amendments’ (October 2013).
This planning report should be read in conjunction with the Preston Market
Masterplan: Urban Design Principles report prepared by NH Architecture,
Transport Impact Assessment prepared by GTA Consultants, and suite of
amendment documentation.
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2
SUBJECT SITE AND SURROUNDS
The subject site is known as ‘Preston Market’, which is bounded by Murray
Road to the north, Cramer Street to the south, the railway corridor to the west,
and the rear of shops with High Street frontage to the east. The subject site is
irregular in shape, comprising an overall area of approximately 4.2 hectares.
The site is provided multiple street frontages of approximately 128m to
Murray Road, 180m to Cramer Street, and 250m to the railway corridor.
Refer overleaf to Figures 1 and 2 for locality and aerial maps of the subject site.
It is noted that the Preston Market Developments Pty Ltd own the entire
subject site except four properties (located internally throughout the site),
which are formally known as, Vol 8545 Fol 057, Vol 8515 Fol 059,
Vol 10050 Fol 256-263, and Vol 8545 Fol 071.
The site is relatively flat and is predominately occupied by a ‘T’ shaped
shed/building used for the purpose of the market stalls. The market building
is surrounded by large areas of at-grade car parking. Other built form on site
comprises a newly constructed two storey ‘CentreLink’ building and an ‘Aldi’
supermarket fronting Murray Road and Cramer Street, respectively. Internal
to the site with frontage to Cook Street is a small cluster of restaurants. The
site provides numerous vehicle access points along its street frontages.
Built form in the immediate area is generally commercial in nature and
comprises one to two storeys. The immediate surrounds of the site includes
the following:

To the west is the South Morang railway line running in a north-south
alignment. The Preston Railway Station is located centrally to the
immediate west of the site. To the western side of the railway is a pocket
of Priority Development Zoned land (Schedule 2), bounded by St Georges
Road to the west, which is occupied by a large three storey residential
building and at-grade car parking areas.

To the north on the northern side of Murray Road are a variety of
commercial uses, namely Budget car hire premises, Safeway petrol station,
and a Woolworth’s supermarket. Further north is residential land.

To the south, opposite the subject site, is Cramer Park which includes a
sports oval and small grandstand structure. To the east of the Park with
frontage to Cramer Street are commercial land uses, including a drive-thru
liquor store, Cramer’s Hotel and office buildings.

To the east, adjacent to the subject site are ‘back of house’ retail premises
with frontage to High Street. A number of the retail stores provide
pedestrian access through their stores to High Street. High Street is a
typical retail strip, comprising a range of retail, office and restaurant/cafes
uses. Built form comprises single to two storeys with awnings over the
footpath.
Photographs of the site and surrounds are provided overleaf.
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N
Approximate Site Boundary
Figure 1
Source: www.landchannel.vic.gov.au
Locality Map
N
Approximate Site Boundary
Figure 2
Source: www.nearmap.com
Aerial Map
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Photo 1
View north-east along Murray Road
Photo 2
View south across Murray Road to subject site (to Mary Street)
Photo 3
View south along Mary Street
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Photo 4
View east from Mary Street towards shops with High Street frontage
Photo 5
View east from Mary Street to Cook Street
Photo 6
Internal market stalls
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Photo 7
View south to Cramer Street
Photo 8
View north-east from Cramer Street to subject site
Photo 9
View north-west from Cramer Street to subject site
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Photo 10 View along High Street
Photo 11 View north-east from Station Avenue to subject site
Photo 12 View east from Preston Railway Station towards subject site
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3
PLANNING SCHEME AMENDMENT PROPOSAL
It is proposed to revise the Preston Market Incorporated Plan, March 2007.
The revisions seek to replace the diagrams in the appendices – the
‘Framework Plan: Preston Market’ and the ‘Preston Market Preferred Building
Height’ - and make associated changes to the objectives and principles
outlined in the body of the Plan.
These changes are discussed in turn below.
3.1
FRAMEWORK PLAN
The proposed replacement Framework Plan provides a more streamlined
“breakdown” of the subject site. The previously approved 16 precincts have
been amalgamated to 9 parcels, with only two land uses classifications,
‘Market’ and ‘Mixed Use’. Specifically the eastern portion of the site (to the
east of Mary Street) is identified as ‘Market’, while the balance of the site is
‘Mixed Use’.
Key features of the proposed Plan are outlined below.
 ‘Station Plaza’ is proposed to the immediate east of the Preston Railway
Station.
 Two internal market plazas are proposed at the intersections of Mary
Street-Centreway (known as ‘Centreway Piazza’) and Mary Street-Cramer
Street (known as ‘Mary Forecourt’).
 Mary Street, a north-south ‘primary pedestrian connections with active
edges’ is to run to the immediate west of the market use area.
 Centreway, an east-west ‘primary pedestrian connections with active
edges’ is to run from Preston Railway Station to High Street (with a “dogleg” at Mary Street).
 Various ‘secondary pedestrian connections with active edges’ are proposed
throughout the site to provide internal connections to the existing street
network.
 A series of east-west ‘future connections’ are proposed to connect the site
to High Street.
Refer to the proposed Framework Plan at Figure 3 overleaf.
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Figure 3
3.2
Proposed Framework Plan prepared by NH Architecture
BUILDING HEIGHT
The proposed replacement Building Height Diagram provides four building
height classifications, as follows:
 Up to 8 storeys
 Up to 10 storeys
 Up to 15 storeys
 28 storeys (including a 3 storey podium)
These classifications are applied to the subject site as follows:
 The eastern parcel of land (to the east of Mary Street) is predominately
identified for ‘up to 8 storeys’, bookended by parcels of ‘up to 15 storeys’.
 The remainder of the site is marked for ’28 storeys (including a 3 storey
podium)’, except for a parcel of land with frontage to Cramer Street which
is classified ‘up to 10 storeys’.
Refer to the proposed Building Heights Plan at Figure 4 overleaf.
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Figure 4
3.3
Proposed Building Heights Plan by NH Architecture
OBJECTIVES & PRINCIPLES
Where required the body of text of the Incorporated Plan is proposed to be
updated to reflect:

The relocation of the two ‘internal market plazas’ from reference to
‘Hawkers Market Piazza and Cook/Mary Street Piazza’ to ‘Centre Piazza
and Mary Forecourt’.

The focus of active, pedestrian focused edges generally along primary
pathways.

The revised suite of building heights.

The removal of reference to the breakdown of Precincts 1-6 in the
Framework Plan and to provide for two land use allocations – mixed use
and market.

The provision of reduced residential car parking rates (a more detailed
discussion regarding car parking is undertaken in the accompanying
report prepared by GTA).
In addition, a number of changes are proposed to the diagrams and
photographs included in the Plan, these changes are intended to encapsulate
the revised design aesthetic for the site.
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3.4
CONSEQUENTIAL CHANGES
3.4.1
Darebin Planning Scheme
The above-mentioned changes require a revision to the Incorporated Plan,
and consequently the date of the Incorporated Document referenced in the
Darebin Planning Scheme will need to be updated. Specific details of such
technical changes (ie. specific Clauses) are outlined as follows:
3.4.2

In Local Planning Policy Framework – amend Clause 21.05 to reference
the replacement of the Preston Market Incorporated Plan 2007 with a new
plan, Preston Market Incorporated Plan 2014, and update the Preston Central
Framework Plan map, to refer to a Precinct C ‘preferred character’ of ‘up to
28 storeys’ and delete reference to ‘4-10 storeys’.

In Zones – Clause 37.06 ‘Priority Development Zone’, amend Schedule 1 to
reference the replacement of the Preston Market Incorporated Plan 2007 with
a new plan, Preston Market Incorporated Plan 2014.

In Incorporated Documents – Clause 81.01, amend Schedule 1 to reference
the replacement of the Preston Market Incorporated Plan 2007 with a new
plan, Preston Market Incorporated Plan 2014.
Preston Central Structure Plan
The Preston Central Structure Plan is a reference document in the Darebin
Planning Scheme. An addendum to the Structure Plan has been prepared to
outline changes to Precinct C ‘Market’, to provide consistency between the
proposed revised Incorporated Plan (Amendment C143) and the Structure
Plan. However, it is noted that ministerial approval of the addendum to the
Structure Plan is not sought via this amendment.
A list of changes to the Structure Plan is outlined below.
Section 3.7 – The Structure Plan

Page 97 At ‘Figure 3.7 – The Structure Plan – Preferred Future Character
of Preston Central’, amend reference to Precinct C ‘Core Retail with
apartments or offices above / 4-10 storeys’, and replace with ‘Core Retail with
apartments or offices above / up to 28 storeys’.
Section 4.0 – The Precincts

Page 100 At ‘Figure 4.0 – The Precincts’ replace reference to ‘C(10)’ to
read ‘C(28)’, to indicate a maximum building height of 28 storeys to the
Preston Market site (Precinct C).
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Section 4.3 - Precinct C: Market

Page 119 ‘Vision’ preamble amended to read ‘Buildings of up to ten storeys
are envisages, stepping down towards high Street and Clinch Avenue to protect
their character and amenity’ ‘Buildings at a range of heights are envisaged
across the site, as shown on the Preston Market Incorporated Plan, 2014.
Building heights to step down towards Clinch Avenue to protect its
character and amenity.

Page 119 ‘Preferred Future Role and Character’ remove reference to
‘Medium-high rise buildings (generally up to 10 storeys) containing large-format
shops with parking, apartment and/or offices above (except on the footprint of the
existing fresh food market which may remain as a single storey building if deemed
necessary to protect the ambience of the Market and 3-storey residential
development only facing Clinch Avenue)’ and replace with ‘Medium-high rise
buildings (up to 28 storeys, as shown on the Preston Market Incorporated
Plan 2014) containing mixed land uses with active ground floor frontages
along primary and secondary pathways and 3 storey residential
development only facing Clinch Avenue’.

Page 119 Policy 4.3.1 delete reference to ‘… on the footprint of the existing
fresh food Market building may remain as a single storey building if deemed
necessary to protect the ambience of the Market’.

Page 119 Policy 4.3.2 amended to read as follows, ‘Except for that within
30 metres of Clinch Avenue, development should generally be no less than 4
storeys high (up to 28 storeys in height) and in the form of a podium of 3-4
storeys with towers above rising to a total height of up to 10 storeys, provide a
diverse built form containing retail uses at ground floor (including large format
shops), and offices, apartments or car parking at upper levels, in accordance with
the Design Guidelines and Urban Design Framework and Preston Central Urban
Design Guidelines and Character Guidelines (refer to section 6). Towers must
have a maximum plan dimension of 24 metres (including balcony/articulation
zone) and be separated by at least 12 metres Tower overall depths should not
exceed 24 metres and the primary orientation should be separated from
each other by at least 10 metres up to 30 metres above ground floor level
and by at least 20 metres above that.’

Page 127 Strategy 6.2, delete third dot point, ‘Residential uses only at
‘domestic’ scale on northern edge of precinct.’

Page 129 Design Guideline 4 to be replaced as follows, ‘New development
should generally be no less than 4 storeys high and no more than the maximum
height shown in the Urban Design Framework. It should take the form of a
‘podium’ built to and for the full width of the front boundary up to 3-4 storeys
high, and ‘towers’ set back at least 5 metres from the front boundary above that.
The towers should not exceed 24 metres in either plan dimension, including the
balcony/ articulation zone, and should be separated from each other by at least 12
metres up to 30 metres above ground level and by at least 24 metres above that.
The towers should have contrasting architectural form, materials and/or colours
from the podium. The existing fresh food Market building may remain as a single
storey building if deemed necessary to protect the ambience of the Market.
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‘New development should generally be no less than 4 storeys high and no
more than the maximum height (of up to 28 storeys) as shown in the
Preston Market Incorporated Plan 2014. It should provide a diverse built
form, generally built to the front street interface at lower levels, taller
elements above can vary including setbacks and zero lot line buildings at
key site corners. Tower overall floor depths should not exceed 24 metres
and the primary orientation should be separated from each other by at
least 10 metres up to 30 metres above ground level and by at least 20
metres above that. The towers should have high quality architectural
expression.’

Page 133 Figure 4.3.2 ‘Market Urban Design Framework’ amended to be
consistent with the Preston Market Incorporated Plan 2014. In particular,
the Framework diagram should reflect:
-
The proposed revised building heights across the site.
-
The proposed internal pedestrian routes.
-
The proposed location of the Preston Market.
-
The proposed locations of public squares/plazas.
-
General reference to mixed use development across the site.
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4
EXISTING DAREBIN PLANNING SCHEME
4.1
ZONING
The subject site is located within the Priority Development Zone – Schedule 1
‘Preston Market’ (PDZ1) at Clause 37.06 of the Darebin Planning Scheme. An
extract from the relevant Zoning Map is provided at Figure 5, overleaf.
The purposes of the 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 recognise or provide for the use and development of land for projects and areas
of regional or State significance.
 To provide for a range of uses and the development of land in accordance with a
plan incorporated in this scheme.’
Pursuant to the provisions of Clause 37.06:

Clause 37.06-1 the ‘Table of Uses’ defers to the land uses outlined in the
schedule to this zone.

A permit is required for buildings and works, unless the schedule to the
zone specifies otherwise at Clause 37.06-4.

An application which is ‘generally in accordance with the incorporated plan is
exempt from’ notice and review requirements of the Act at Clause 37.06-6.
Schedule 1 of this zone refers to the ‘Preston Market Incorporated Plan, 2007,
Urbis JHD’. This schedule applies to land known as the Preston Market, as
shown on Map 1 of the schedule.
The Objectives of the schedule are:

‘To implement the use and development objectives and design principles of the
Preston Market Incorporated Plan (2007).

To encourage intensive development and use of the land for retail, residential,
office, entertainment, community and civic activity.

To encourage high quality urban design that is responsive to the site's environs,
improves local accessibility and permeability through the site, and provides active
edges throughout the site.

To provide opportunities for sustainable travel and increased use of public
transport.’
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The schedule outlines a range of provisions relating to (amongst others): land
use, buildings and works, application requirements, integrate transport plan,
environmental plan, exemption from notice and review, and decision
guidelines. The schedule states at Clause 4.0 ‘A permit may be granted to
construct a building or to construct or carry out works which exceed the preferred
building heights identified within the incorporated plan’.
Reference documents to this Schedule are the ‘Preston Central Structure Plan
2006 and the ‘Guidelines for the Application and Implementation of Travel
Plans, City of Darebin, 2005’.
N
Approximate Site Boundary
Figure 5
Source: www.dpcd.vic.gov.au
Extract from Zoning Map
4.2
OVERLAYS
4.2.1
Special Building Overlay
Part of the subject site is affected by the Special Building Overlay (SBO) at
Clause 44.05 of the Scheme.
Pursuant to the provisions of Clause 44.05:

A permit is required for buildings and works.
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
If a local floodplain development has been developed for the area and has
been incorporated into this scheme, an application must be consistent with
the plan.

An application under this overlay is exempt from notice and review
requfirements.

An application must be referred to the relevant floodplain management
authority under Section 55 of the Act.
We are advised that Preston Market Developments Pty Ltd has been in
contact with Melbourne Water with regards to overland flows being piped
down Mary Street and Station Avenue. This approach would allow for the
progressive development of the site in a staged arrangement.
An extract from the relevant SBO Map is provided at Figure 6, below.
Approximate Site Boundary
Figure 6
4.2.2
Source: www.dpcd.vic.gov.au
Extract from SBO Map
Environmental Audit Overlay
The land is also affected by the Environmental Audit Overlay which requires,
pursuant to Clause 45.03-1 that an environmental audit or certificate be
provided prior to the use of the site for a ‘sensitive’ use, such as residential or
childcare.
An extract from the relevant EAO Map is provided at Figure 7, overleaf.
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Approximate Site Boundary
Figure 7
4.2.3
Source: www.dpcd.vic.gov.au
Extract from EAO Map
Development Contributions Plan Overlay
The City of Darebin is affected by the Development Contributions Plan
Overlay (DCPO1) at Clause 45.06. A permit must be consistent with the
provisions of the relevant contributions plan and must include any conditions
required to give effect to any contributions set out in the schedule to this
overlay. An extract from the relevant DCPO Map is provided at Figure 8.
Approximate Site Boundary
Figure 8
Source: www.dpcd.vic.gov.au
Extract from DCPO Map
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4.3
GENERAL AND PARTICULAR PROVISIONS
The following list of general and particular provisions are relevant a the
planning permit application for the subject site (amongst others):
Clause 52.01 ‘Public open space contribution and subdivison’
Clause 52.05 ‘Advertising Signs’
Clause 52.06 ‘Car parking’
Clause 52.07 ‘Loading and Unloading of vehicles’
Clause 52.10 ‘Uses with adverse amenity potential’
Clause 52.34 ‘Bicycle Parking’
Clause 52.35 ‘Urban context report and Design response for Residential
Development of four or more storeys’
Clause 52.36 ‘Integrated Transport Planning’
Clause 65 ‘Decision Guidelines’
4.4
STATE PLANNING POLICY FRAMEWORK
The State Planning Policy Framework comprises general provisions that
elaborate upon the objectives of planning in Victoria. The policies relevant to
the proposal are outlined as follows:
Clause 10 refers to the ‘Operation of the State Planning Policy Framework’.
The purpose of the State policy is ‘to inform planning authorities and responsible
authorities of those aspects of State planning policy which they are to take into
account and give effect to in planning and administering their respective areas. The
State Planning Policy Framework provides a context for spatial planning and
decision making by planning and responsible authorities.’
Clause 11.01-2 ‘Activity centre planning’ encourages the concentration of
(amongst others) major retail, residential and commercial developments into
activity centres which provide a variety of land uses and are highly accessible
to the community.
Clause 11.02-1 ‘Supply of urban land’ seeks to ensure land is available for a
range of land uses including residential, commercial and industrial uses.
Clause 11.03-1 ‘Open space planning’ aims to assist in the ‘creation of a diverse
and integrated network of public open space commensurate with the needs of the
community.’
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Clause 11.04-2 ‘Activity Centre Hierarchy’ creates a network of activity
centres. This Clause seeks to development Principal and Major Activity
Centres to ‘accommodate ongoing investment and change in retail, office, service and
residential markets.’ The subject site is located within of the Preston Central
Principal Activity Centre.
Clause 13.02-1 ‘Floodplain Management’ seeks to ensure that life and
property are protected from inundation by floodwater. The land is affected in
part by a Special Building Overlay.
Clause 13.03-1 ‘Use of Contaminated and Potentially Contaminated Land’ has
the objective to ‘ensure that potentially contaminated land is suitable for its
intended future use and development, and that contaminated land is used safely.’ An
Environmental Audit Overlay affects the subject site.
Clause 15.01-1 relates to ‘Urban Design’ and seeks ‘to create urban environments
that are safe, functional and provide good quality environments with a sense of place
and cultural identity.’ Urban Design Principles are set out at Clause 15.01-2
relating to context, public realm, landmarks, and energy efficient (amongst
others). This clause states that planning must consider (as relevant) the
‘Design Guidelines for Higher Density Residential Development DSE, 2004’
and the ‘Activity Centre Design Guidelines DSE, 2005’.
Clause 15.01-2 ‘Energy and resource efficiency’ encourages land use and
development based on environmentally sustainable practices.
Clause 15.01-4 ‘Design for safety’ aims to improve community safety and
encourage neighbourhood design that makes people feel safe.
Clause 15.01-5 aims to recognize and protect ‘cultural identifity and
neighbourhood character’.
Clause 16 relates to ‘Housing’. In particular, Clause 16.01-2 ‘Location of
residential development’ has the objective ‘to locate new housing in or close to
activity centres and employment corridors and at other strategic redevelopment sites
that offer good access to services and transport.’ This is to be achieved through
increasing the proportion of housing in Metropolitan Melbourne to be
developed within the established urban area, particularly at activity centres
and other strategic sites.
Clause 16.01-3 outlines criteria for identifying strategic redevelopment sites
for large residential development in Metropolitan Melbourne.
Clause 17.01-1 ‘Business‘ seeks to encourage development which caters for
community needs including ‘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’.
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Clause 18.01-1 ‘Land use and transport planning’ seeks the creation of a ‘safe
and sustainable transport system by integrating land-use and transport’ while
Clause 18.01-2 ‘Transport system’ aims to ‘coordinate development of all
transport modes to provide a comprehensive transport system’.
Clause 18.02-3 ‘Principle Public Transport Network’ outlines the objective to
upgrade and development the Principle Public Transport Network to connect
activity centres and link activities in employment corridors.
Clause 18.02-5 ‘Car Parking’ encourages an adequate supply of car parking
that is adequately designed and located and Clause 18.02-2 ‘Cycling’ seeks to
integrate planning for cycle with land use and development.
Clause 19 ‘Infrastructure’ requires that ‘Planning for development of social and
physical infrastructure should enable it to be provided in a way that is efficient,
equitable, accessible and timely’ and is to provide for a range of ‘accessible
community resources, such as education, cultural, health and community support
(mental health, aged care, disability, youth and family services) facilities’ as well as
the ‘setting aside of land for the construction of future transport routes’. The
Clause identifies the use of Development Contributions Plans as a means of
facilitating the timely provision of infrastructure to communities.
Clause 19.02-3 ‘Cultural facilities’ seeks to development a ‘develop a strong
cultural environment and increase access to arts, recreation and other cultural
facilities’ at Principal and Major Activity Centres.
4.5
LOCAL PLANNING POLICY FRAMEWORK
4.5.1
Municipal Strategic Statement
The Municipal Strategic Statement (MSS) is set out at Clause 21 of the Darebin
Planning Scheme and provides a series of directions for the future use and
development of the municipality. The policies of most relevance are set down
below.
Clause 21.01 ‘Introduction’ explains the MSS’s “precinct approach” to
planning. The City has been broken into seven precints nased on geographic
areas. The subject site is located wihtin the Preston East Precinct, as shown on
the Key Features map included in this clause.
Clause 21.02 ‘Municipal Profile’ discusses a range of elements that affect
“Darebin Today” including (but not limited to), location, regional context,
people, housing and employment. Specific to the subject site, Preston Market
is identified as playing a ‘a sub-regional retail role for fresh food and vegetables’.
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At Clause 21.02-14 descriptive snapshots of each precinct within the City is
provided. As previously noted, the subject site is located within ‘Preston
East’ which described as being located wihtin the centre of Darebin,
comprising a mostly residential area ‘dotted with substantial industrial and
commercial land’, including the Northland PAC. Housing is characterised by
inter-war through to post-war housing styles on medium sized blocks. The
Precinct includes a significant amount of public housing.
Clause 21.03 outlines the ‘key influences and issues’ facing the City. Topics
relate to: changing demographics, sustainability, housing diversity, urban
character and heritage, employment, cultural diversity, transport and
infrastructure.
Clause 21.04 relates to ‘Darebin Tomorrow – Our Vision’, in particualr the
Framework Plan at Clause 21.04-3 seeks to indicate and influence the
direction of growth and change in the City. Pursuant to the Plan, the subject
site is identified within the Preston Central Principal Activity Centre.
Associated key features of the Plan outline that ‘Principal and Major Activity
Centre within and around which Melbourne 2030 advocates conventraing residential
development.’
Clause 21.05 ‘Objectives – Strategies – Implementation provides an analysis of
nine elements affecting the City. Of relevance to the proposal are the
following objectives and strategies:
Objectives

‘Give effect to Council’s strong commitment to ecological, social and economic
sustainability.’ (Element 1: Sustainability)

‘Ensure housing provision meets the diverse needs of the Darebin community’.
(Element 2: Housing)

‘Encourage ecologically sustainable housing and facilitate where possible’.
(Element 2: Housing)

‘Ensure that housing contributes positively to the functioning of Darebin’s retail
and employment centres.’ (Element 2: Housing)

‘Ensure that development in Darebin exhibits urban design excellence.’ (Element
3: Urban Design)

‘Promote safety and encourage participation in community life through welldesigned and maintained urban environments.’ (Element 3: Urban Design)

‘Ensure that the development of activity centres promotes an urban scale and
character that is appropriate to the role and function of the centre.’ (Element 3:
Urban Design)

‘A responsive and diverse local economy which is responsive to external economic
change.’ (Element 5: Economic Development)

‘Promote and enhance the range of environmental, cultural and recreational
facilities in the City to encourage people from outside the area to visit Darebin’.
(Element 5: Economic Development)
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
‘Consolidate retail, business, employment, community and leisure facilities and
higher density housing in and around identified activity centres’. (Element 6:
Activity Centres)

‘Ensure that land use development is integrated with transport infrastructure so
that activity centres are well served by public transport, have safe and pleasant
pedestrian and cycle access and use of the car is minimised’. (Element 6: Activity
Centres)

‘Ensure open space is adequately funded and maintained.’ (Element 8: Open
Space and Recreation)

‘Encourage more walking and cycling, and improve access, safety and quality of
environment for walkers, cyclists and the disabled.’ (Element 9: Transport and
Access)

‘Improve the operation, safety and attractiveness of public transport.’ (Element 9:
Transport and Access)
Strategies

‘Ensure Preston Central Activity Centre is a leading example of achieving an
accessible and permeable urban environment that will support intensive
development and use for retail, residential, office, entertainment, community and
civic activity, and increase opportunities for public transport use’. (Element 1:
Sustainability)

‘Promote mixed use development with residential development at higher densities
predominantly above ground floor level in …, Precinct C (Market), …, in
accordance with the Preston Central Structure Plan (2006).’ (Element 2:
Housing)

‘Promote Preston Central as the pre-eminent Principal Activity Centre in the
City of Darebin and strengthen its role as the major focus and attractor for
business, shopping, community, government, recreational and cultural activities
for the northern suburbs of Melbourne’. (Element 5: Economic Development)

‘Encourage the following in the Preston Central Activity Centre:[as relevant to
the proposal]
 …multi-level mixed use development comprising office, retail, leisure and
entertainment, residential and civic uses that facilitate day and evening
activity predominantly in Precinct B (High Street Central), Precinct C
(Market), and Precinct D (Mary Street);
 the retention and the redevelopment of the Preston Fresh Food Market;
 the concentration of core retail and entertainment uses in Precinct B (High
Street Central) and Precinct C (Market)…’ (Element 6: Activity Centres)

‘Encourage the integration of the Preston Railway Station with the Preston
Central Activity Centre.’ (Element 6: Activity Centres)
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
‘Facilitate the creation of an east-west pedestrian thoroughfare connecting the
Preston Railway Station, Preston Fresh Food Market, High Street and Preston
Library, generally aligned with The Centreway.’ (Element 6: Activity Centres)

‘Advocate and facilitate the upgrade of Preston Station and the associated
improvements to the public realm, including the development of the new Station
Square, design of Station Avenue, streetscape enhancements, and new signalised
crossings to improve pedestrian amenity.’ (Element 9: Transport and Access)
It is also noted:

At Element 2: Housing, ‘Residential or mixed use development of four or more
storeys will generally be supported on sites displaying the following
characteristics [as relevant]:
 sites of a size, shape, location and orientation where the potential for
overshadowing and overlooking of neighbouring residential property is
minimised
 sites within comfortable walking distance (400 metres) of a railway station or a
major or principal activity centre
 selected sites identified in the Preston Central Structure Plan (2006).’
4.5.2

‘The potential of Preston Central Activity Centre lies in the Centre’s ability to
retain and enhance the key attractors; increase the amount of retail, office,
entertainment, community and civic activities; and to encourage more residential
development and improve housing choice’. (Element 6: Activity Centres)

Pursuant to the Preston Central Framework Plan map, the subject site is
identifies in an area of ‘substantial change’, with a preferred future
character of ‘Core retail with apartments or offices above / 4-10 storeys’.
Local Policies
The relevant Local Policies contained at Clause 22 of the Darebin Planning
Scheme are set down below.
Clause 22.03 ‘Activity Centres Policy’ applies to land in activity centres
identified in the Activity Centres Framework Plan. The Objectives of this
clause seek (amongst others) to support and enhance existing activity centres,
support the development of non-retail uses (such as residential) and a wide
mix of activities in Activity Centres, and encourage innovative, high quality
urban design.
At Clause 22.03-3 it is policy to (as relevant to the proposal):
In all Retail Activity Centres

‘Ensure that development occurring within activity centres demonstrates an
ability to complement and strengthen the role and function of the activity centre.
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
Encourage residential uses above or to the rear of retail uses that complement the
retail function of the centre and do not adversely impact upon the amenity of the
retail function.

Ensure that development addresses environmental concerns including potential
interface issues with surrounding sensitive land uses. Residential uses in retail
centres will incorporate noise attenuation measures to protect the residential
amenity of the dwellings from the surrounding commercial uses.

Encourage development that contributes to the vibrancy and vitality of the
centres.

Ensure that centres provide amenable urban environments that represent vibrant
focal points for local communities through improved public and private
investment.’
Principal Activity Centres

‘Encourage greater intensification of activity including appropriate expansion of
retail and commercial development, consolidation of car parking and
redevelopment of underutilised sites.

Encourage intensive housing development to locate in or in close proximity to the
Centre, particularly Preston Central.

Promote the different roles of the Principal Activity Centres encouraging the
development of Preston Central as a multi-functional centre…’
Clause 22.09 ‘Residential and mixed use development of less than four storeys
in Business 1, Business 2, and Priority Development Zones 1 & 2’ and Clause
22.10 ‘Residential and mixed use development of four of more storeys’, both
build on the design and built form objectives of the SPPF. These policicies
provide (respective) objectives and design guidelines associated with 12
design elements, as follows:

Sustainability

Design and materials

Building heights

Setbacks

Dwelling diversity

Car parking and vehicular access

Street address

Amenity impacts

On-site amenity and facilities

Waste management
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4.6

Equitable access

Utility services
REFERENCE DOCUMENTS
The following State-wide reference documents are also considered relevant to
the proposal:
 Melbourne Metropolitan Strategy, Melbourne 2030, DSE, 2002.
 Melbourne @ 5 Million, Update of the Metropolitan Strategy, 2008.
 Higher Density Design Guidelines, DSE 2004.
 Activity Centre Design Guidelines, DSE, 2005.
Specific to the Darebin Planning Scheme are the following relevant reference
documents, listed at Clause 21.05:
4.6.1
Preston Central Structure Plan, including Preston Central Urban Design
Framework and Guidelines
The Preston Central Structure Plan 2006, including Preston Central Urban
Design Framework and Guidelines, was prepared by Darebin City Council &
David Lock Associates, September 2006 (Version 2).
The Preston Central Structure Plan applies to the activity centre itself and the
area immediately around it. The Preston Market and Preston Station are key
“attractors” of Preston Central.
The Structure Plan discusses six key themes affecting Preston Central and
then provides detailed initiatives for the various Precincts within the Centre.
The subject site comprises “Precinct C: Market”.
The following are key features of “Precinct C: Market”:
 It sits west of the core “main street” retail of Preston Central (High Street
Central Precinct).
 It contains the Preston Station, all major retail ‘anchors’ and Cramer Hotel.
 There is one main owner of the Market, (however several shops are
privately owned).
 It has ‘virtually no residential neighbours – the only exception being those on the
northern side of Clinch Avenue and the new apartment west of the station.’
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The Preferred Future Character of Preston Central at Figure 3.7 of the Plan
identifies Precinct C as an area for ‘Substantial Change’, including various
pedestrian links and landmark locations.
The following are Precinct C specific policies of relevance to the proposal:
 ‘Development is in the form of medium-rise buildings containing large format
shops with parking, apartments and/or offices above, except residential only facing
Clinch Avenue and on the footprint of the existing fresh food Market building may
remain as a single storey building if deemed necessary to protect the ambience of
the Market.
 Except for that within 30 metres of Clinch Avenue, development should generally
be no less than 4 storeys high and in the form of a podium of 3- 4 storeys with
towers above rising to a total height of up to 10 storeys containing retail uses at
ground floor (including large format shops), and offices, apartments or car parking
at upper levels, in accordance with the Design Guidelines and Urban Design
Framework below and Preston Central Urban Design Guidelines and Character
Guidelines (refer to section 6). Towers must have a maximum plan dimension of
24 metres (including balcony/articulation zone) and be separated by at least 12
metres.
 The primary east-west and north-south pedestrian routes must be retained and
enhanced.
 Pedestrian links / routes through Preston Market from east to west between the
Preston Station and High Street (generally aligned with The Centreway), and
north to south between Murray Road and Cramer Street (generally aligned with
Mary Street south of Cramer Street) must be retained and enhanced.
 The preferred size of Station Square is 1000 square metres. The Square must be
located adjacent to, and be integrated with, the open space area in Station Avenue,
opposite the Preston Station and located on the eastwest pedestrian link.’
The Urban Design Framework for the Market Precinct outlines a range of
Development Principles, Design Guidelines and a Framework Plan. With
regards to matters of building heights, the Framework Plan indicates
maximum building heights of generally 10 storeys across the balance of the
site. To this end the Design Guidelines state,

‘New development should generally be no less than 4 storeys high and no more
than the maximum height shown in the Urban Design Framework. It should take
the form of a ‘podium’ built to and for the full width of the front boundary up to
3-4 storeys high, and ‘towers’ set back at least 5 metres from the front boundary
above that. The towers should not exceed 24 metres in either plan dimension,
including the balcony/ articulation zone, and should be separated from each other
by at least 12 metres up to 30 metres above ground level and by at least 24 metres
above that. The towers should have contrasting architectural form, materials
and/or colours from the podium.’

‘The existing fresh food Market building may remain as a single storey building if
deemed necessary to protect the ambience of the Market.’
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As stated previously in the Proposal section of this report, a list of changes to
the Structure Plan has been prepared to reflect the proposed amendment, in
particular building heights. We note that the Preston Market Incorporated
Plan postdates the approval of the Structure Plan, and pursuant to the current
controls that apply to the site, a permit may be granted for greater building
heights than those outlined in the Structure Plan and Incorporated Plan.
4.6.2
Retail Activity Centres Strategy
The Retail Activity Centres Strategy was prepared in 2005 by Essential
Economics. This Strategy has informed the above-mentioned local policy at
Clause 22.03. The Strategy outlines the Vision for the Retail Activity Centre
Development of the City of Darebin, which seeks a network of vibrant and
sustainable activity centres, to be developed through appropriate land use
planning and centre management policies. Specific to the subject site, Preston
Central is identified as a Principal Activity Centre (multi-functional centre).
4.7
INCORPORATED DOCUMENTS
4.7.1
The Preston Market Incorporated Plan
The Preston Market Incorporated Plan was prepared by Urbis JHD, dated
March 2007.
The Incorporated Plan is a generally broad principle based document which
provides use and development objectives and design principles for the
Preston Market area. The Plan also includes diagrammatic plans as
appendices, namely, Framework Plan – Preston Market and Preferred
Building Height.
The ‘Framework Plan’ shows:

The location of various land use precincts (typically relating to ground
level activity).

A strong cross east-west axis through the centre of the site identified as
‘Centreway’

‘Future connections’ to the east of the Market through to High Street
(aligned with the Centreway).

Indicative location of ‘Station Square’ at the western end of ‘Centreway’
adjoining Preston Railway Station. The design principle for this square
seeks an area of approximately 500m2.

‘Primary pedestrian connection with active edges’ in a north-south
direction, known as ‘Mary Street’, with indicative location of two ‘internal
market plazas’ (to the north and south of its intersection with Centreway.)
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
Future north-south Station Avenue – public road (Victrack land).

Various areas nominated as ‘opportunity for future medium rise development’.

‘Opportunities for future high rise development’ are limited to the south west
corner of the site adjoining Cramer Street.

‘Active edges’ along Murray Road, Station Avenue and Cramer Street.
The ‘Preferred Building Height Plan’ shows:

Substantial central areas of ‘up to 10 storeys’ between Mary Street and
Station Avenue and Murray Road and Cramer Street.

Areas of ‘up to 8 storeys’ east of Mary Street, divided by central areas of
single storey development.
We note that pursuant to the Priority Development Zone – Schedule 1, a
permit may be granted to exceed the above-mentioned heights.
Other relevant Design Principles: Built Form and Design include:

Development ‘up to 4 storeys’ at street frontages.

Buildings to comprise visually distinguishable podium levels, by setbacks
at upper levels of 5 metres.
4.8
OTHER DOCUMENTS
4.8.1
Plan Melbourne
Plan Melbourne is the new Metropolitan Planning Strategy for Melbourne. Of
relevance are the following outcomes and objectives which form the basis of
the Strategy:

‘Delivering Jobs and Investment - create a city structure that drives
productivity, supports investment through certainty and creates more
jobs’ which includes Direction 1.1 ‘Define a new city structure to deliver an
integrated land use and transport strategy for Melbourne’s changing economy’
and Direction 1.5 ‘Plan for jobs closer to where people live’.

Initiative 1.5.1 relates to the development of National Employment
Clusters. These clusters are defined as ‘knowledge-based business that locate
close to each other because of the productivity and economic gains from colocation… They will continue to evolve into vibrant diverse locations well-served
by public transport’. One of the three identified ‘emerging’ clusters is La
Trobe which includes La Trobe University, Austin Biomedical Alliance
Precinct and other health and medical facilities, as well as Activity Centres
at Northland and Heidelberg. Given the proximity between the subject
site and the La Trobe employment cluster it is considered that economic
and recreational synergies will develop between these activity hubs,
thereby further enhancing the vitality and attraction of the City.
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
‘Housing Choice and Affordability - provide a diversity of housing in
defined locations that cater for different households and are close to jobs
and services’, which includes Direction 1.1 ‘Understand and plan for expected
housing needs’ and Direction 2.2 ‘Reduce the cost of living by increasing
housing supply near services and public transport’.

‘A More Connected Melbourne – provide an integrated transport system
connecting people to jobs and services, and good to market’.

‘Liveable Communities and Neighbourhoods - create healthy and active
neighbourhoods and maintain Melbourne’s identity as one of the world’s
most liveable cities’, which includes the following directions:
 Direction 4.1 ‘Create a city of 20-minute neighbourhoods’.
 Direction 4.2 ‘Protect Melbourne and its suburbs from inappropriate
development’.
 Direction 4.6 ‘Create more great public places throughout Melbourne’.
 Direction 4.7 ‘Respect our heritage as we build for the future’.
 Direction 4.8 ‘Achieve and Promote Design Excellence’.
Pursuant to Map 32 ‘Northern Subregion’ the subject site is identified within
the Preston-High Street Activity Centre (existing).
4.9
DAREBIN PLANNING SCHEME AMENDMENTS
4.9.1
Amendment C138
Darebin Planning Scheme Amendment C138 applies to all land in the City
and seeks to replace the existing Municpal Strategic Statement (MSS) with a
new format MSS; delete local policies 22.01, 33.03 and 22.06; and amend/re
number remaining local policies. In addition, the Amendment seeks to the
implementation of the Darebin Housing Strategy 2013-2033, the Darebin
Economic Land Use Strategy 2013, and the Reservoir Manjor Activities Area
Structure Plan, 2012. At the time of writing this report, the Amendment had
undergone public exhibition, a Panel Hearing had been undertaken, and a
Panel report is expected to be released in the coming months.
Below is a summary of the exhibited policies and strategic documents, as
relevant to the proposal.
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MSS
Clause 21.01 ‘Introduction’ outlines key influences and key issues for the
future affecting the City. It also provides a Strategic Framework Plan which
identifies the subject site within the Preston Central Principal Activity Centre.
Preston Central is described as one of the largest ‘traditional multidimensional’ principal activity centres in northern Melbourne and a major
focus for business, shopping, community and recreation. Land use and
development is guided by the Preston Central Structure Plan.
Clause 21.02 ‘Environment’ discusses objectives, strategies and
implementation provisions associated with the ‘natural’ and ‘built’
environments of the City. The following objectives are relevant to the
proposal.
Objectives
 To ensure development in Darebin exhibits good urban design and provides
distinctive, attractive and engaging places in which to reside, visit or work.
(Clause 21.02-3 Built Environment)
 To promote safety through well designed and maintained urban environments.
(Clause 21.02-3)
 To promote and facilitate development which incorporates best practice
environmentally sustainable design and promotes sustainable living and business
practices. (Clause 21.02-3)
 To provide a safe, accessible and high quality open space network that is equitably
distributed across the municipality. (Clause 21.02-5 Open Space)
 To ensure appropriate development in areas prone to environmental risk. (Clause
21.02-6 Environmental Risk)
Strategies
 Ensure that important public views and vistas, where identified in a strategy or
guideline adopted by Council, are recognised, protected and enhanced. (Clause
21.02-3 Built Environment)
 Promote land use and development in activities areas, strategic corridors and
strategic development precincts in accordance with adopted Structure Plans,
precinct plans or strategies. (Clause 21.02-3)
 Encourage designs that incorporate elements which promote safety such as clear
sightlines, safe movement, passive surveillance, good connections, good access,
mixed use and activities that promote public use. (Clause 21.02-3)
 Ensure that public spaces, access routes and areas in the vicinity are attractive,
safe, uncluttered and work effectively for all. (Clause 21.02-3)
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Clause 21.03 ‘Housing’ provides a Housing Framework Plan which is
informed by the Darebin Housing Strategy (2013).
Pursuant to the
Framework Plan, the subject site is located within a ‘Substantial Housing
Change Area’, this area is defined as:
‘Residential, commercial and designated activities areas that have the capacity to
accommodate substantial residential development over time. Substantial Change
Areas will support increased residential densities and increased housing diversity. It
is expected that the character of these areas will change substantially in the future.’
The following objectives and strategies are relevant to the proposal:
Objectives

‘To facilitate housing development that has an appropriate scale and intensity in
locations across the municipality.’ (Clause 21.03-2 ‘Housing Development’)

‘To achieve higher density housing outcomes in identified locations to
accommodate Darebin’s projected population growth’. (Clause 21.03-2)

‘To facilitate residential and mixed use developments which display a high
standard of design, limit off-site amenity impacts and provide appropriate
internal amenity for residents’. (Clause 21.03-2)

‘To ensure that housing diversity is increased to better meet the needs of the local
community and reflect demographic changes and trends.’ (Clause 21.03-3
‘Housing Diversity and equity’)
Strategies

‘In Substantial Housing Change Areas, encourage a variety of housing typologies
at increased densities and to discourage underdevelopment, with the scale of
development appropriate to precinct characteristics and context as identified by a
structure plan or adopted policy of Council’. (Clause 21.03-2 ‘Housing
Development’)

‘Generally encourage residential or mixed use development of four or more
storeys on:
 Sites containing existing buildings of a height and bulk substantially greater
than the prevailing height and bulk in the immediate locality;
 Sites of a size, shape, location and orientation where potential for
overshadowing and overlooking of neighbouring residential property is
minimised;
 Sites located on a Road Zone Category 1 or 2; and
 Sites within walking distance of a railway station or a Principal or Major
Activities Centre’. (Clause 21.03-2)
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Clause 21.04 ‘Economic Development’ porivdes an Economic Development
Framework Plan for the City. Pursuant to the Plan the subject site is located
wihtin an ‘Activites Area – Based Retail/Commercial’. The following
objectives and strategies included in this clause are relevant to the proposal:
Objectives

‘To strengthen the established retail centres hierarchy in Darebin and the roles of
the various activities areas and strategic development precincts in
accommodating diverse and appropriate retail activities.’ (Clause 21.04-3 Retail
and Commercial Activity)

‘To facilitate the development of a commercial office market in Darebin’. (Clause
21.04-3)

‘To encourage and facilitate economic activities that generate local employment
opportunities’. (Clause 21.04-3)
Strategies

‘Retain the established retail hierarchy of activities areas as identified in the
Darebin Economic Land Use Strategy’. Clause 21.04-3 Retail and Commercial
Activity)

‘Promote Preston Central Principal Activities Area as the pre-eminent activities
area in Darebin, supporting a higher intensity and scale of development and
accommodating a mix of commercial, civic, community, and housing activity.’
(Clause 21.04-3)
Clause 21.05 ‘Transport and Infrastructure’ provides a Transoirt Framework
Plan which highlights the key transport priorities for the City to ensure a
liveable and sustainable future. Pursuant to the Plan, the subject site is in
proximity of an existing railway station and a network of road, cycling, and
multi-model connections/routes. This clause outlines the following relevant
objectives, as follows:
Objectives

‘To facilitate an integrated approach to transport and land use planning’. (Clause
21.05-1 ‘Integrated and Sustainable Transport’)

‘To improve access, safety and quality of environment for walkers, cyclists and
people with limited mobility’. (Clause 21.05-1)

‘To manage the provision of car parking and congestion of car parking in Darebin
and encourage use of sustainable transport modes to reduce car parking demand.’
(Clause 21.05-1)

‘To ensure the provision and planning for physical and community infrastructure
meets existing and future needs of the community’. (Clause 21.05-2 ‘Physical and
Community Infrastructure’)
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Local Policies
The following proposed Local Policies are considered relevant to the proposal.
Clause 22.02 ‘Neighbourhood Character’ applies to land affected by the
Residential 1 Zone or covered by the Neighbourhood Character precinct plan.
The subject site does not form part of the Neighbourhood Character precinct
plan and is not affected by the R1Z, therefore is not relevant.
Clause 22.06 ‘Residential and Mixed Use Development of less than Four
storeys in Commercial 1 and Priority Development Zones 1 & 2’ and Clause
22.07 ‘Residential and Mixed Use Development of Four of more storeys’
provide the same overall ‘Policy Objective’ which seek:
‘To facilitate residential and mixed use development which promotes housing choice,
displays a high standard of urban design, limits off-site amenity impacts, and
provides appropriate on-site amenity for residents’.
Both clauses provide respective objectives and design guidelines to the
following sub-headings:
 Sustainability
 Design and materials
 Building heights
 Dwelling diversity
 Car parking & vehicular access
 Street address
 Amenity impacts, including Overshadowing and Overlooking
 On-site amenity and facilities, including Private Open Space
 Waste management
 Equitable access
Clause 22.09 ‘Preston Central’ does not apply to the subject site.
Reference Documents
Darebin Housing Strategy 2013-2033
The Strategy was prepared to provide greater certainty over the housing
change envisaged across the City and identify a clear hierarchy of ‘Housing
Change Areas’ being: Substantial. Incremental and Minimal. The Strategy
also seeks to provide a balance between housing growth and heritage
preservation.
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Pursuant to the Preston Housing Capacity Profile, the subject site is marked
for ‘Substantial change’. The associated future housing directions (amongst
others) encourages residential intensification in the Preston area in accordance
with the Preston Central Structure Plan.
Darebin Economic Land Use Strategy 2013
The Darebin Economic Land Use Strategy provides a strategic framework for
Industrial and Commercial precincts and sites within the City. The Strategy
recognises the key influences and changes affecting industrial and commercial
land uses within the City, and seeks to provide greater certainity regarding
the future preferred land use directions of these sectors.
Specific to the subject site, the Strategy includes a City of Darebin Retail
Activity Centre Hierarchy Map which classifies Preston Central as a ‘Principal
– multi-use precinct’ which is ranked No. 2 in the overall City’s hierarchy
(after Northland Shopping Centre). Provisions relating to Preston Central
note the following:
‘The future direction and form of development of the Preston Central Principal
Activity Area is guided by the Preston Central Structure Plan. The Structure Plan
area is expansive with business activity including the Town Hall precinct located in
the Priority Development Zone. The Structure Plan and Local Policy envisages an
intensification of development within the Preston Central Structure Plan area with a
mix of uses including retail, commercial and residential. In reviewing the direction of
economic activity in the Preston Principal Activity Area…’ (page 42-43).
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5
ASSESSMENT
The assessment below has taken into account the key questions outlined in
Practice Note No. 46 ‘Strategic Assessment Guidelines: for preparing and
evaluating planning scheme amendments’.
5.1
WHY IS THE AMENDMENT REQUIRED?
The amendment proposes a revised strategic approach to the redevelopment
of Preston Market, resulting in changes to the Preston Market Incorporated
Plan, March 2007. The amendment is aimed at facilitating the revitalisation of
the centre and is based on sound planning principles.
It is recognised that pursuant to Schedule 1 to the Priority Development Zone
(current zoning control of the subject site) a permit may now be granted for
buildings that exceed the preferred heights outlined in the Incorporated Plan.
However, rather than pursing the path of “ad-hoc” planning applications
seeking increased building heights, this amendment provides a strategic
approach for reviewing the preferred heights across the site. This approach
also allows for Council and public involvement at the front end of the process
which encourages greater liaison between all stakeholders.
We note that the degree of the proposed amendment is limited in scope. The
amendment seeks greater flexibility in building heights, minor changes to the
layout of land uses, and consequential changes to some text in the current
version of the Incorporated Plan and how the Plan is referenced in the
Darebin Planning Scheme (ie. date change).
5.2
STRATEGIC & POLICY JUSTIFICATION FOR THE AMENDMENT
5.2.1
State Planning Policy Framework (SPPF)
The proposed planning scheme amendment is consistent with the previously
listed relevant State planning policies in that, in general terms:

The proposal presents a strategic approach to the redevelopment of the
site to more adequately plan for the intensification of mixed uses in a
manner that will be highly accessible to the community and surrounds
(Clauses 11.01-2 and 11.02-1).

Given the subject site’s location within a Principal Activity Centre,
relevant strategies seek to ensure such centres have a mix of land uses, are
well served by public transport, attract activities that meet the City’s
needs and have the potential to grow and support intensive housing
developments without conflicting with surrounding land uses (Clause
11.04-2).
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5.2.2

The proposed increase in building heights within the Preston Central
Principal Activity Centre is appropriate and will ‘accommodate ongoing
investment and change in retail, office, service and residential markets’ (Clause
11.04-2).

The proposed massing and building heights will provide an urban
environment that is functional, safe, pedestrian focused and sustainable,
in accordance with the urban design principles at Clause 15.01-2. Matters
of built form and design will be discussed in detail at a later section of this
report.

The proposal to increase the density and diversity of housing is
appropriate given that the subject site meets ‘strategic redevelopment
sites’ criteria, given its proximity to the Preston Railway Station, location
within a PAC, and ability to provide a wide range of housing (Clause
16.01-2 and 16.01-3).

The amendment seeks to enhance upon the future land use and transport
vision for the site, retaining the approved links to Preston Railway Station
and primary pedestrian/cycling connections through the site to the
surrounding road network (Clause 18.01).
Local Planning Policy Framework (LPPF)
The proposed amendment seeks to enhance Preston Market’s ‘sub-regional
retail role for fresh food and vegetables’ and to influence the future land use and
development of the site in a manner fitting of its Principal Activity Centre
status, in accordance with the broad MSS objectives for the area.
Pursuant to the Framework Plan at Clause 21.04, the site is classified as a
Principal Activity Centre, adjacent to a train station.
The proposed
redevelopment of the Preston Market for mixed uses (including residential
above active ground floor or podium levels), at increased buildings heights
(up to 28 storeys), is considered to respond to a key feature of the Framework
Plan which ‘advocates concentrating residential development’ around Principal
and Major Activity Centres.
In particular, the proposal responds to the objectives and strategies outlined at
Clause 21.05, as follows.

The proposed increased building height will enable above ground
floor/podium residential tower development, which will respond to the
forecasted population growth of the municipality, and will provide
greater housing diversity and housing sustainability for the area. This
planning approach will also contribute to on-site consolidation of land
uses and activities.

The proposed building heights greater than four storeys is generally
supported given the location of the site away from residential hinterland,
thereby minimising off-site amenity impacts, the site’s immediate
proximity to Preston Station and the site classification for ‘Substantial
Change’ pursuant to the Preston Central Structure Plan.
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
The proposed Staging Plan will ensure the on-going operation of the
market through the redevelopment of the remainder of the site.

The proposed design principles (to be discussed in more detail in the next
section of this report) promote design excellence, permeability, and
pedestrian safety.

The proposed vision for Preston Market seeks to provide a range of land
uses and services, including an enhancement of the market itself and
introduction of three public space nodes throughout the site which will
contribute to the recreational and cultural appeal of the area for future
residents and visitors.

The amendment retains a key feature of the previously approved Plan,
which provides ‘Station Square’ a public realm gathering point within the
site, adjacent to Preston Station’.

The provision of multiple connector routes (including a main east-west
link) through the site focusing on pedestrian travel will encourage more
walking and cycling and integration of sustainable modes of the transport
in the area.
Furthermore, the ‘Preston Central Framework Plan Precincts’ map at Clause
21.05, identifies the subject site within ‘Precinct C’, in an area of ‘Substantial
change’, with a preferred future character of ‘Core retail with apartments or
offices above / 4-10 storeys’. As part of the amendment it is proposed to amend
the Preston Central Framework Plan Precincts’ map at Clause 21.05 to reflect
the proposed increase in heights of the Incorporated Plan (to ensure
consistency between strategic policies).
The revised strategic development approach for the site is considered to
respond to the objective of Clause 22.03 ‘Activity Centres Policy’ which
encourages innovation, a mix of activities, and high quality urban design.
Specifically, the proposed strategic vision for the Preston Market (as outlined
in the proposed Incorporated Plan) addresses Principal Activity Centre
policies at Clause 22.03 which, ‘encourage greater intensification of activities
including appropriate expansion of retail and commercial development, consolidation
of car parking and redevelopment of underutilised sites’ and ‘encourage housing
development to locate in or in close proximity to the Centre…’. Overall, the
combination of the retained market function, proposed new retail, office, and
high density residential above, is considered to promote Preston Central as a
‘multi-functional centre’.
The City of Darebin Retail Activity Centres Strategy, 2005 is a reference
document at Clause 22.03. The Strategy, which promotes a network of vibrant
and sustainable activity centres, has informed the above-mentioned policies at
Clause 22.03. The proposed Incorporated Plan, which is underpinned by a
mix of land uses, public plazas, and the retained Market, is considered to
address the description/role of Preston Central as a ‘Wide mix of retail, office,
civic and community functions, with key opportunity to develop as a multi functional
precinct.’
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Clauses 22.09 and 22.10 provide design objectives and guidelines which are
divided between development under and over four storeys. These design
elements will be considered at Section 5.3 of this report. Suffice to say, the
revised strategic approach to the site is underscored by strong design
principles, as outlined in the accompanying report prepared by NH
Architecture.
5.2.3
Strategic Documents
Preston Central Structure Plan 2006
The Preston Central Structure Plan identifies the site as Precinct C: Market for
‘Substantial Change’. The Structure Plan includes Precinct specific policies
relating to building heights, as listed below.

‘… development should generally be no less than 4 storeys high and in the form of
a podium of 3- 4 storeys with towers above rising to a total height of up to 10
storeys … ‘
The current proposal seeks to introduce new building heights across the site,
by identifying areas for heights up to 8, 10, 15 and 28 storeys (the 28 storeys
includes a podium of 3 storeys). While the proposed heights exceed the
recommended 10 storey maximum outlined in the Structure Plan, the increase
in heights is considered a more “up to date” strategic approach to the site’s
land use and development. It is also noted that the Plan states that
justification is required for development that is less than 4 storeys to ensure it
is ‘not impeding future redevelopment at higher density in accord with Melbourne
2030 objectives’. The proposed increases in heights are merely implementing
the vision of Melbourne 2030 and the newly released Plan Melbourne.
Pursuant to the current planning controls a permit may be granted to exceed
that Structure Plan and Incorporated Plan’s building heights.
Specifically the appropriateness of the site’s designated heights is discussed in
more detail in the next section of this report.
Notwithstanding, the proposed scheme addresses the Structure Plan’s policies
and principles relating to (amongst others):
 Upgrade and continued operation of the fresh food market on the site.
 Redevelopment of currently underutilised land.
 Increased opportunity for mixed use areas.
 Integration of Preston Railway Station with the Preston Market and High
Street.
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 Provision of an east-west link from the Station to High Street, amongst
other pedestrian routes within the site with opportunities to connect to the
site’s surrounds.
 Creation of a various area of public open space/plazas within the site,
including an area adjacent to the Preston Station, to the north, central
section of the subject land.
A list of changes to the Structure Plan has been prepared and is outlined in
this report to reflect the proposed heights and urban design response across
the site.
Plan Melbourne
The revised strategic approach to Preston Market is also consistent with the
new Metropolitan Strategy – Plan Melbourne. The revised approach is
strongly underscored by increasing the intensity of development of a prime
underutilised inner city site, in immediate proximity of a railway station. The
revised vision for Preston Market is expected to further drive investment of
the Centre, with the combination of the existing market and a new large
supermarket to act a retail “anchor”.
The proposal to increase built form will enable greater housing
opportunities/choice and diversity, enabling an integration of land uses and
activities. Furthermore, the development and enhancement of Preston Market
is expected to attract business and people which in turn will support the
nearby La Trobe Employment Hub. The Preston Market precinct is
underscored by strong urban design principles which aim to provide a safe,
permeable and liveable neighbourhood and community.
5.2.4
Darebin Planning Scheme Amendment C138
The proposed revision to the land use and development approach to the
Preston Market site (after its initial conception in 2007) fittingly corresponds
with the review of Darebin’s Local Planning Policy Framework. The
proposed amendment addresses the relevant objectives and strategies
outlined in the exhibited MMS and Local Policies, as outlined below.

The proposal has been based upon sound urban design and built form
principles, as outlined in the accompanying report prepared by NH
Architecture. These principles are focused on developing an attractive
and engaging activity centre hub, in which to reside, visit or work (Clause
21.02-3).

The proposed scheme for the site promotes increased safety and provides
for an improved pedestrian experience by way of active street frontages
and passive surveillance along the designated new pedestrian
connectivity routes through the site and public plazas (Clause 21.02-3).
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
The proposed increased building heights (generally between 8 to 28
storeys) appropriately respond to the site’s classification within an
‘Substantial Housing Change Area’, which encourage a ‘diversity of
housing typologies at increased densities and to discourage
underdevelopment’, subject to an appropriate design response to the site’s
characteristics (Clause 21.03-2).

The subject site is identified as a Principal Activity Centre, is an area
marked for ‘Substantial Housing Change’, and benefits from its proximity
away from residential hinterland. Accordingly, the site presents as an
excellent location to accommodate Darebin’s projected population growth.
Moreover, the proposal’s vision for contemporary, mixed used, medium to
high density developments will assist in achieving such growth, in a
manner that will contribute positively to the image of Darebin (Clause
21.03-2).

The future housing development of the site, including specifics such
housing typologies, sizes and building designs, will be subject to
assessment with respect to the provisions contained in the Housing
Framework Plan and any other relevant policies, as part of the planning
permit application process. Suffice to say, the proposed vision for the
Preston Market site seeks to provide housing which meets the needs of the
local community (Clause 21.03-3).

The proposed increased building heights and general level of intensity of
development across the site appropriately responds to the site’s location
within the Preston Central Principal Activity Centre and overall hierarchy
of retail centres in Darebin (Clause 21.04-3).

The proposal seeks to enhance the desirability of the Centre as a mixeduse hub for commercial, retail and residential activity, which in turn seeks
to generate local employment and greater economic vitality the wider
City. Importantly, the proposed redevelopment seeks to retain the
ongoing operation of market, thereby ensuring minimal disruption to
traders and customers (Clause 21.04-3).

The proposal upholds the previous scheme’s key feature – integration of
the Preston Railway Station with the Preston Market site. The revised
proposal provides for a public square adjacent to the station that is
connected to a central east-west pedestrian link through the site
(ultimately leading to High Street). Thereby providing greater
permeability through the site and increasing pedestrian accessibility to the
station (Clause 21.05-1).

The proposed increase in density and land use activity is supported due to
the site’s close proximity (within 400m) to the Preston train station and its
identification as an activity centre (Clause 21.05-1).
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As previously stated, the exhibited local policies of relevance to the proposal
are Clauses 22.06 and 22.07, relating to residential and mixed use
development of less than four, and four or more storeys, respectively. The
exhibited policies propose a number of minor changes to the current policies.
Key changes include the deletion of reference to Setbacks and Utility Services
and minor wording changes to the other design elements. We note that these
provisions will be used to assess any future planning permit application on
the site. Notwithstanding this, it is considered the design principles prepared
by NH Architecture together with the design considerations at Section 5.3 of
this report adequately address the exhibited design objectives and guidelines.
Darebin Housing Strategy 2013-2033 and Darebin Economic Land Use Strategy
2013 are proposed reference documents to the Planning Scheme under
Amendment C138. The proposal is considered to respond to the overarching
strategic vision outlined in these Strategies (which is underpinned by the
Preston Central Structure Plan), and generally encourage the intensification of
development/mixed uses within the Preston Principle Activity Centre and to
identify opportunities for increased residential development, in appropriate
locations.
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5.3
LAND USE AND DESIGN CONSIDERATIONS
5.3.1
Greater Flexibility
The current Preston Market Incorporated Document was released in 2007.
Since that time (7 years) we have seen the release of an update to Melbourne
2030 – Melbourne @ 5 million, a new Metropolitan Strategy (Plan Melbourne),
the exhibition of an amended Darebin LPPF, and experienced economic and
demographic shifts across Melbourne. In this changed policy context it is
considered reasonable to review the land use and development vision for a
significant and strategic parcel of land in inner city Melbourne.
As evident in the release of the above-mentioned Metropolitan Strategy
updates, Melbourne is experiencing population growth and therefore
residential densities need to increase in strategic locations to cater for the
future housing demand. The Preston Market site is located within a Principal
Activity Centre, adjacent to a train station, on a large underutilised parcel of
land. This combination makes it highly desirable and appropriate for
residential development at medium to high densities.
Furthermore, the location of the Preston Market is considered the primary
opportunity to provide for the increased heights proposed in a municipal
context, given its high ranking within the Darebin activity centre hierarchy,
and its limited external amenity constrains, compared to other Centres within
the City (to be discussed in more detail in the next section of this report).
The revised scheme also seeks to create greater certainty for on-going market
operation. The proposed scheme seeks to relocate the market to the eastern
portion of the site in one “linear parcel”. This will ensure that the
construction program for the site can commence with the market relocation
(while the existing market is still operational) and then the balance of the site
can be developed in due course (while the new market is operational). The
previous scheme did not allow for such clear separation of construction
phases and the operation of the market would have been disrupted.
5.3.2
Design Principles
The proposed increase in heights in considered acceptable having regards to
the site specific characteristics, examples of other Activity Centre heights, and
the range of supporting design principles prepared by NH Architecture.
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The subject site is relatively isolated from nearby sensitive land uses, in
particular the residential hinterland. As such, external amenity impacts
relating to overshadowing, visual bulk and overlooking of residential land are
not relevant considerations for future development. It is considered that the
proposed increased height will not result in unreasonable overshadowing of
public open spaces, given the “tapering down” of building heights towards
Cramer Street to avoid overshadowing of Cramer Oval (refer to Figure 15 in
the NH Architecture report). Furthermore, built form will provide responsive
and engaging interfaces with public streets as demonstrated at Figures 9-12 of
the NH Architecture report).
With regards to future on-site amenity between towers, the Urban Design
Principles prepared by NH Architecture states ‘For buildings above 8 levels,
provide a minimum of 20m separation for primary orientation’. This is considered
to provide for high amenity outcomes for future residents. These principles
would need to be considered when preparing and assessing any future permit
applications for the site.
The proposed heights for the site are also considered to reflect heights evident
in other Activity Centres across Melbourne that display similar site
characteristics, as discussed below.
Forrest Hill Precinct in South Yarra is located on the edge of the PrahranSouth Yarra Principal Activity Centre, with the western boundary aligning
with a railway corridor and nearby train station. The Precinct is targeted for
ground floor activities with residential or office above. The preferred heights
for this Precinct provide 76m adjacent to the railway corridor, 27m to Toorak
Road (a main commercial strip) and 50m within the centre of the Precinct. It
is considered that the proposed Preston Market scheme has been developed
on similar principles. The greatest heights are sited towards the railway
corridor, the lowest heights are adjacent to the rear of the retail properties
fronting High Street (a commercial strip), and medium heights are provided
at strategic locations to avoid undue amenity impacts.
Similarly, the Footscray and Box Hill Central Activities Districts provide
useful examples of preferred heights and land use development in activity
centres. It is recognised that Footscray and Box Hill relate to Central Activity
Districts however, these two centres present similarities to the subject site in
terms of proximity to public transport and envisaged mix of retail activity and
housing development. Footscray proposes various height ranges across the
site, reaching a maximum of 25 storeys at strategic locations. Box Hill
identifies area of greater sensitivity and associated low to medium heights,
however on balance the centre is marked for major development with “taller
buildings permitted”, but must not cause overshadowing of ley open spaces
and residential areas beyond the centre.
The proposed scheme for Preston Market has taken a similar approach to the
above examples. The scheme identifies varied height ranges across the site,
with higher densities marked for strategic locations that avoid overshadowing
of public open spaces and any nearby residential land.
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An Activity Centre comparison has also been undertaken in a municipal
context. The Centres include Northland Principle Activity Centre, Northcote
Major Activity Centre, and Reservoir Major Activity Centre. The key points
of difference between the subject site (Preston Central Principle Activity
Centre) and the other centres are:

The linear layout of Northcote and Reservoir, compared to the clearly
defined large parcel of land at the subject site.

The combination of Council, VicTrack, and privately owned sites,
scattered throughout the Northcote and Reservoir Centres, compared to
the largely sole private ownership of Preston Market.

The immediate interfaces between commercial and fine-grained
residential land along the linear form of the Northcote and Reservoir
Centres, compared to Preston Market’s “isolation” from any residential
interfaces, with the closest residential hinterland approximately 150m to
the west of the site (over the railway corridor).

All Centres are located in proximity to a range of public transport modes,
however Preston Central and Reservoir are sited immediately adjacent to
a railway station.
In light of the above broad observations, together with the acknowledgement
that population growth in Darebin is expected to increase in the future, it is
submitted that the Preston Market site is the most appropriate location for
redevelopment at the heights proposed (up to 28 storeys). As previously
mentioned, the site benefits from excellent access to public transport, limited
external amenity impacts due to its relative isolation from residential
hinterland, sole private ownership, large site configuration (not linear form),
and strong strategic policy support for its continued growth. No other centre
within Darebin provides the same broad range of characteristics and therefore
do not warrant heights greater than 2 to 10 storeys, as envisaged in their
respective structure plans or strategic policies.
The land use layout of the site and configuration of land parcels has been
slightly altered, the key changes relate to the shift of the market to the eastern
portion of the site, and the introduction of an area for a potential supermarket
to the south of Centreway. Notwithstanding this, the overall permeability of
the site has been improved by removing the connection routes leading to
“dead ends”.
In particular, the secondary pedestrian connection at Cook Street has been
extended to connect to Murray Road to the north. The connections to the
south of Centreway have been redesigned to provide permeability through
the future retail arcade and the surroundings. Two new east-west ‘future’
connections are proposed from Mary Street to High Street. The proposal also
revises the locations of numerous vehicle access points to the site to provide
greater efficiency and vehicle moveability.
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In essence the basis behind the previously approved permeability scheme has
merely been enhanced.
The clear central north-south and east-west
connections with active edges, together with a combination of secondary
pedestrian routes will provide for a high degree of safe and practical
connections through the site, to the train station and to the surrounding road
network.
The design elements for developments of four or more storeys, outlined at
Clause 22.10, are generally addressed in the accompanying Urban Design
Principles prepared by NH Architecture.
The objectives and design
guidelines raised are more relevant to the planning application process (ie.
building-specific design measures). Therefore, from a high-level masterplan
perspective it is suffice to say:
 The revised scheme is underpinned by sustainable design measures,
including solar access to the public realm and apartments.
 Building height classifications have been carefully allocated to respond to
its urban context and protect sunlight access to public spaces.
 The proposal seeks a diversity of on-site built form and in turn, a wide
range of dwelling sizes and types.
 The revised scheme provides for convenient vehicle access and car parking
for residents and visitors, whilst also providing for an efficient and active
pedestrian environment.

Ground floor active frontages are encouraged generally to primary
pathways through the site.
Moreover, any new application for development of the subject site will
require approval by Council and will assessed by a range of available
planning policies. Specifically, any new built form will be subject to
consideration of the Urban Design Principles at Clause 15.01-2 of the SPPF
which relate to a broad range of principle such as, context, public realm,
safety, views, pedestrian spaces, environmental efficiency, and architectural
quality (amongst others). In addition, built form will also be subject to
strategic provisions prepared DSE, namely, the High Density Guidelines and
the Activity Centre Guidelines. As previously noted, Darebin’s LPPF also
includes policies at Clause 21.05 ‘Objectives – Strategies – Implementation’
and Clause 22.10 relating to ‘Residential and mixed use development of four
or more storeys’ (amended versions of these policies are included as part the
exhibited LPPF via Amendment C138).
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The Schedule to the Priority Development Zone also includes a range of
Decision Guidelines relating to (amongst others), the design of the proposed
building and their relationship to the streetscape, pedestrian amenity within
and around the site, amenity of residential properties, and any comments
from Melbourne Water and Vic Roads. Moreover, the proposed Preston
Market Incorporated Plan is to be supported by the background ‘Urban
Design Principles’ report prepared by NH Architecture, which provides
another level of urban design guidance and principles for new development.
In light of the above myriad of strategic and local planning policies that are at
the disposal of the Responsible Authority when considering any new
planning permit application for the site, no additional Decision Guidelines are
considered necessary as part of this Amendment.
5.4
TECHNICAL CONSIDERATIONS
5.4.1
Environmental, social, and economic effects
Section 12(2)(c) of the Planning and Environment Act states that, in preparing
a planning scheme amendment, a planning authority ‘may take into account its
social effects and economic effects’. Overall it is considered that the proposed
amendment will generate net community benefits, these benefits will include
(but are not necessarily limited to):
 Facilitating redevelopment which provides for a higher and better use for
the currently underutilised centrally located large parcel of land.
 Facilitating preferred built form and high quality urban design outcomes
and improvements to the public realm.
 Providing new pedestrian links, vehicle access and key public spaces.
 Creating employment in the construction of future development.
 Encouraging a greater mix of land uses which will cumulatively improve
the economic profile and function of the Preston Central Principal Activity
Centre. Land uses and activities to include housing, business, retail,
community, and cultural.
 Providing the opportunity to contribute to the diversity and range of
housing within the area.
 Facilitating redevelopment that will encourage sustainable travel
behaviour including walking, cycling and increased patronage of public
transport (in particular to Preston Railway Station).
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5.4.2
Ministerial Directions
Under Section 12(2)(a) of the Planning and Environment Act 1987, a planning
authority must have regard to the Minister’s directions. The amendment is
consistent with the Ministerial Direction on the Form and Content of Planning
Schemes under Section 7(5) of the Act, as follows:
Direction No. 1 ‘Potentially Contaminated Land’
The purpose of this Direction is to ensure that potentially contaminated land
(that is land with a history of industrial use) is suitable to be used for a
sensitive land use (ie. residential). As previously noted, that the proposal
seeks to revise the incorporated framework plan to provide a greater focus on
mixed use tower development within the site, including residential uses
above ground floor level.
The existing planning controls that affect the site already include an
Environmental Audit Overlay which requires that an environmental audit or
certificate be provided prior to the use of the site for a ‘sensitive’ use.
Therefore the provisions of this Direction are already satisfied.
Direction No. 9 ‘Metropolitan Strategy’
The purpose of Direction 9 is to ensure that planning scheme amendment
have regard to the Metropolitan Strategy. Plan Melbourne is the State
Government’s recently adopted Metropolitan Strategy. This document
provides the Government’s vision for the city to 2050.
The Strategy contains seven key strategic ‘Outcomes and Objectives’, each of
which is expanded upon by a series of ‘Directions’. In response to the
provisions outlined by Plan Melbourne, on a broad level the proposed
revisions to the Preston Market Incorporated Plan will:
 Respond to the expected demand for increased housing in strategic
locations (Direction 2.1).
 Allow for a diversity of housing stock in close proximity to an established
railway station (Direction 2.2).
 Contribute to an existing Activity Centre that provides a range of services
(retail, commercial, government) to a local and regional population base
(Direction 4.1).
 Provide a greater diversity of retail and commercial opportunities to
strengthen the economic base and increase accessibility to local
employment opportunities within an existing Activity Centre (Direction
1.5).
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 Promote design excellence, improved public open spaces, and pedestrian
focused environments (Direction 4.6 and 4.8).
 Integrate land use and development with various modes of public
transport, including the Preston railway station and cycle routes (Direction
1.1 and 3.2).
Direction No. 11 ‘Strategic Assessment of Amendments’
The purpose of Minister’s Direction No. 11 is to ensure that planning scheme
amendments have been thoroughly evaluated.
It requires that the
explanatory report include a discussion of why the amendment is required,
how it is compliant with planning controls and strategic policies. This report
together with the accompanying Explanatory Report are considered to satisfy
the requirements of this Direction.
5.4.3
Use of the VPP’s
The amendment utilises the existing VPP tools that already apply to the
subject site. Specifically, the amendment seeks to revise the Preston Market
Incorporated Plan, March 2007 which was implemented into the Darebin
Planning Scheme by Amendment C67, pursuant to Schedule 1 to the Priority
Development Zone.
5.4.4
Transport Integration Act 2010
The Transport Integration Act provides a framework with six transport
system objectives (what we are aiming for) and eight decision-making
principles (how we deliver this aim). Decision makers must have regard to all
these objectives and principles.
The proposed approach to Preston Market is strongly influenced by
integration land use and transport principles, in particular the integration of
Preston railway station with the future development of the site, in accordance
with requirements of the Act.
Key land use and transport features of the previously approved Plan are
retained, namely ‘Station Plaza’ and east-east pedestrian connector route,
‘Centreway’. These features will increase accessibility to the station from the
subject site (and Market) and surrounding neighbourhood, in a safe and
attractive urban environment, as outlined in the Preston Central Structure
Plan. The anticipated wide range of activities and land uses will create
vibrancy in the area, throughout the day and night, thereby providing passive
surveillance of the station, making it a safer mode of after-hours transport.
The revised scheme will also retain to strong focus on pedestrian and cycling
links through the site, which will contribute to integrated modes of
sustainable travel.
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6
CONCLUSION
In conclusion it is submitted that the proposed planning scheme amendment
should be supported for the following reasons:
 The amendment is minor is nature and is consistent with the strategic
policy directions of the State and Local Planning Policy Framework, and in
particular supports the classification for ‘Substantial Change’ as identified
in the Preston Central Structure Plan.
 The revised strategic approach to the site is based on sound planning
principles and an improved urban design framework.
 The increase in building heights will implement State and Local planning
objectives to provide for increased housing densities in strategic locations.
 The revised scheme and staging plan ensures the on-going operation of the
market throughout the development of the remainder of the site.
 The permeability and public spaces within the site have been retained and
enhanced where possible. Similarly, the key principle of integration of the
site with the Preston Railway Station has been maintained.
 The revised scheme will not cause unreasonable impact on the amenity of
its surrounds.
ENVIRONMENTAL RESOURCES MANAGEMENT AUSTRALIA
0177232_RP02/FINAL/JUNE 2014
49
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