Preliminary Report
2015 Yarra Ranges Shire Council
Electoral Representation Review
Wednesday 30 September 2015
This page has been left intentionally blank
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Contents
1 Executive summary ................................................................................................................... 4
2 Background ............................................................................................................................... 6
2.1 Legislative basis ................................................................................................................. 6
2.2 The VEC’s approach .......................................................................................................... 6
2.3 The VEC’s principles .......................................................................................................... 8
2.4 The electoral representation review process ....................................................................... 8
3 Yarra Ranges Shire Council representation review ................................................................. 10
3.1 Background ...................................................................................................................... 10
3.2 Public information program ............................................................................................... 12
3.3 Public submissions (preliminary) ...................................................................................... 13
4 The VEC’s findings and options .............................................................................................. 18
4.1 Preliminary report findings ................................................................................................ 18
4.2 Options ............................................................................................................................. 23
5 Next steps ............................................................................................................................... 24
5.1 Response submissions ..................................................................................................... 24
5.2 Public hearing ................................................................................................................... 24
5.3 Final report ....................................................................................................................... 25
Appendix 1: List of preliminary submissions ............................................................................... 26
Appendix 2: Option maps ........................................................................................................... 27
Appendix 3: Public information program ..................................................................................... 31
Page 3 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
1 Executive summary
The Local Government Act 1989 (the Act) requires the Victorian Electoral Commission (VEC) to
conduct an electoral representation review of each municipality in Victoria before every third
council general election.
The purpose of an electoral representation review is to recommend an electoral structure that
provides fair and equitable representation for the persons who are entitled to vote at a general
election of the council. The matters considered by a review are:

the number of councillors

the electoral structure of the council (whether the council should be unsubdivided or
divided into wards and, if subdivided, the details of the wards).
The VEC conducts all reviews on the basis of three main principles:
1. ensuring the number of voters represented by each councillor is within 10 per cent of the
average number of voters per councillor for that municipality
2. taking a consistent, State-wide approach to the total number of councillors and
3. ensuring communities of interest are as fairly represented as possible.
2015 electoral representation review
The current electoral representation review for Yarra Ranges Shire Council commenced on
Wednesday 5 August 2015.
Current electoral structure
2007 representation review
The last representation review for Yarra Ranges Shire Council took place in 2007. At the time of
the review, the Shire was subdivided, with nine councillors elected from single-councillor wards.
Following the review, the VEC recommended retaining this structure and making a minor
adjustment to the boundary of Ryrie Ward and O’Shannassy Ward.
2012 subdivision review
As a result of the subdivision review, minor changes were made to the boundary between Melba
and Walling Wards, and the boundary between Billanook and Chandler Wards, to correct the
voter number imbalances.
Page 4 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Preliminary submissions
The VEC received 18 preliminary submissions by the deadline for submissions at 5.00 pm on
Wednesday 2 September. Submissions were received from a range of stakeholders including
current and former councillors, community members and groups including the Healesville Action
Group, the Proportional Representation Society of Australia and the Mount Evelyn Environment
Protection and Progress Association.
VEC options
The following options are being considered by the VEC:

Option A (preferred option)
Yarra Ranges Shire Council continue to consist of nine councillors elected from
single-councillor wards, with modified ward boundaries.

Option B (alternative option)
Yarra Ranges Shire Council consist of nine councillors elected from three
three-councillor wards.

Option C (alternative option)
Yarra Ranges Shire Council consist of nine councillors elected from one
four-councillor ward, one three-councillor ward, and one two-councillor ward.
Page 5 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
2 Background
2.1 Legislative basis
The Act requires the VEC to conduct an electoral representation review of each municipality in
Victoria before every third general council election, or earlier if gazetted by the Minister for Local
Government.
The Act specifies that the purpose of a representation review is to recommend the number of
councillors and the electoral structure that provides ‘fair and equitable representation for the
persons who are entitled to vote at a general election of the Council.’1
The Act requires the VEC to consider:

the number of councillors in a municipality and

whether a municipality should be unsubdivided or subdivided.
If a municipality should be subdivided, the VEC must ensure that the number of voters
represented by each councillor is within 10 per cent of the average number of voters per
councillor for that municipality.2 On this basis, the review must consider the:

number of wards

ward boundaries (and ward names) and

the number of councillors that should be elected for each ward.
2.2 The VEC’s approach
Deciding on the number of councillors
The Act allows for a municipality to have between 5 and 12 councillors, but does not specify how
to decide the appropriate number.3 In considering the number of councillors for a municipality,
the VEC is guided by the Victorian Parliament’s intention for fairness and equity in the local
representation of voters under the Act.
The VEC considers that there are three major factors that should be taken into account:

diversity of the population

councillors’ workloads and

the situation in similar municipalities.
1
Section 219D of the Local Government Act 1989.
ibid.
3 Section 5B(1) of the Local Government Act 1989.
2
Page 6 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Generally, those municipalities that have a larger number of voters will have a higher number of
councillors. Often large populations are more likely to be diverse, both in the nature and number
of their communities of interest and the issues of representation.
However, the VEC considers the particular situation of each municipality in regards to: the nature
and complexity of services provided by the Council; geographic size and topography; population
growth or decline; and the social diversity of the municipality, including social disadvantage and
cultural and age mix.
Deciding the electoral structure
The Act allows for a municipality ward structure to be:

unsubdivided—with all councillors elected ‘at-large’ by all voters or

subdivided into a number of wards.
If the municipality is subdivided into wards, there are a further three options available:
1. single-councillor wards
2. multi-councillor wards or
3. a combination of single-councillor and multi-councillor wards.
A subdivided municipality must have internal ward boundaries that provide for a fair and
equitable division of the municipality, and ensure that the number of voters represented by each
councillor remains within 10 per cent of the average number of voters per councillor for the
municipality.
In considering which electoral structure is most appropriate, the VEC considers the following
matters:

communities of interest, consisting of people who share a range of common concerns,
such as geographic, economic or cultural associations

the longevity of the structure, with the aim of keeping voter numbers per councillor within
the 10 per cent tolerance as long as possible

geographic factors, such as size and topography

the number of voters in potential wards, as wards with many voters often have a large
number of candidates, which can lead to an increase in the number of informal (invalid)
votes and

clear ward boundaries.
Page 7 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
2.3 The VEC’s principles
Three main principles underlie all the VEC’s work on representation reviews:
1. Ensuring the number of voters represented by each councillor is within 10 per cent
of the average number of voters per councillor for that municipality.
Over time, population changes can lead to some wards in subdivided municipalities having larger
or smaller numbers of voters. As part of the review, the VEC corrects any imbalances and also
takes into account likely population changes to ensure ward boundaries provide equitable
representation for as long as possible.
2. Taking a consistent, State-wide approach to the total number of councillors.
The VEC is guided by its comparisons of municipalities of a similar size and category to the
council under review. The VEC also considers any special circumstances that may warrant the
municipality having more or fewer councillors than similar municipalities.
3. Ensuring communities of interest are as fairly represented as possible.
Each municipality contains a number of communities of interest. Where practicable, the electoral
structure should be designed to ensure they are fairly represented, and that geographic
communities of interest are not split by ward boundaries. This allows elected councillors to be
more effective representatives of the people and interests in their particular municipality or ward.
2.4 The electoral representation review process
Developing recommendations
The VEC bases its recommendations for particular electoral structures on the following
information:

internal research specifically relating to the municipality under review, including Australian
Bureau of Statistics and .id (Informed Decisions) Pty Ltd data4; voter statistics from the
Victorian electoral roll; and other State and local government data sets

small area forecasts provided by .id (Informed Decisions) Pty Ltd

the VEC’s experience conducting previous electoral representation reviews of local
councils and similar reviews for State elections

the VEC’s expertise in mapping, demography and local government

careful consideration of all input from the public in written and verbal submissions
received during the review and
4
.id is a company specialising in population and demographic analysis that builds suburb-level
demographic information products in most jurisdictions in Australia and New Zealand.
Page 8 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review

advice from consultants with extensive experience in local government.
Public involvement
Public input is accepted by the VEC:

in preliminary submissions at the start of the review

in response submissions to the preliminary report and

in a public hearing that provides an opportunity for people who have made a response
submission to expand on this submission.
Public submissions are an important part of the process, but are not the only consideration
during a review. The VEC ensures its recommendations are in compliance with the Act and are
formed through careful consideration of public submissions, independent research, and analysis
of all relevant factors, such as the need to give representation to communities of interest.
Page 9 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
3 Yarra Ranges Shire Council representation
review
3.1 Background
Profile of Yarra Ranges Shire Council
Yarra Ranges Shire is located on the fringe of metropolitan Melbourne. Geographically, it is one
of the larger metropolitan councils, covering an area of 2,466 square kilometres. The Shire is
bordered by Nillumbik and Murrindindi Shires to the north, with the outer-urban municipalities of
Manningham, Maroondah and Knox to the west, and the municipalities of Casey, Cardinia, Baw
Baw and Mansfield to the south, east and north-east. The population of Yarra Ranges Shire is
concentrated in the western outer-urban part of the municipality, with smaller populations
dispersed throughout the centre of the Shire around the foothills of the Yarra Ranges to the east,
comprising mostly rural land and native forest.
Current population estimates in major towns and suburbs
Mooroolbark
20,689
Lilydale
15,649
Kilsyth
10,043
Mount Evelyn
9,374
Chirnside Park
9,125
Healesville
6,839
Montrose
6,732
Monbulk
3,456
Warburton
2,171
Yarra Ranges Shire has a population of just over 150,000 residents, 5 and is expected to
0F
experience a slow rate of growth (under 1 per cent per year) over the next 20 years. 6 The
1F
number of voters in the Shire is currently estimated at 113,596, with 12,622 voters per councillor.
The Shire has a population density of around 61 people per square kilometre, which is higher
than rural and regional Victoria generally.
As a municipality that is close to Melbourne’s outer-eastern urban fringe, and rural and regional
shires to the east, Yarra Ranges has a mixed social profile that reflects both urban and
non-urban characteristics. While the municipality has a similar number of older residents to that
of rural and regional Victoria, this population is slightly higher when compared to Greater
5
6
Australian Bureau of Statistics, Estimated Resident Population, 2014.
Department of Transport, Planning and Local Infrastructure, Victoria in Future 2014.
Page 10 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Melbourne. 7 The Shire has a median age of 38, which is slightly lower than other rural and
2F
regional municipalities in Victoria as a whole. By contrast, the municipality has a higher number
of residents born overseas and a slightly higher population of people aged between 18 and 49,
when compared to rural and regional Victoria. The Shire also has a relatively high workforce
participation rate and comparatively low unemployment. Yarra Ranges Shire also has a slightly
lower mobility rate than rural and regional Victoria, with up to 32 per cent of residents moving in
the five years between 2006 and 2011.
The Shire has a number of distinct natural environments in the Dandenong Ranges, Kinglake,
Yarra Ranges National Parks and local reservoirs which contribute to Melbourne’s water
supplies. As well as protected natural environments, land use includes agricultural and
wine-producing areas. Construction is one of the biggest local economic drivers (employing 13.3
per cent of the workforce) with manufacturing (12.7 per cent) and retail trade (11.3 per cent) also
significant employers.
The Yarra Ranges Shire Council has a strong focus on environmental protection and bushfire
management. 8 Many townships in the Shire were severely impacted by major fires including Ash
3F
Wednesday in 1983, and most recently the Black Saturday fires of 2009. Bushfire fuel reduction
and weed eradication has been a Council priority as part of its overall environmental
management role. 9 The priorities of Yarra Ranges Shire Council also include community
4F
engagement and infrastructure. The Wurundjeri people are recognised as the original inhabitants
of parts of the Yarra Ranges Shire Council area, 10 and cultural trails and landmarks form part of
5F
the Shire’s unique identity and features.
A significant wine-growing region, the Shire hosts some of Victoria’s most popular tourist
attractions. The Yarra River runs from the Yarra Valley through to Melbourne and Port Phillip
Bay. The Shire’s Melba and Streeton Wards are named after well-known historical figures, the
opera singer Dame Nellie Melba, who spent her childhood in Lilydale, and Australian landscape
painter Sir Arthur Streeton, who settled in the Long Acres area.
7
Profile i.d., Yarra Ranges Community Profile.
Yarra Ranges Shire Council, Annual Report 2013-14, p.12.
9 Yarra Ranges Shire Council, Annual Report 2013-14, p.8.
10 Victorian Government, Registered Aboriginal Parties in Victoria, 2013.
8
Page 11 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Current electoral structure
2007 representation review
The last representation review for Yarra Ranges Shire Council took place in 2007. At the time of
the review, the Shire was subdivided, with nine councillors elected from single-councillor wards.
Following the review, the VEC recommended retaining this structure of nine single-councillor
wards, and making a minor adjustment to the boundary of Ryrie Ward and O’Shannassy Ward,
to reflect the view expressed in submissions that all residents with access off Don Road south of
the Panton Gap should be in O’Shannassy Ward.
2012 subdivision review
A subdivision review of Yarra Ranges Shire Council took place in 2012 to address concerns that
the number of voters within Melba and Walling Wards could deviate beyond the legislative
requirement to be within 10 per cent of the average number of voters per councillor across the
municipality. The ward boundaries of Billanook Ward were also considered, as the ward’s
enrolment was projected to exceed the legislative tolerance by 2016.
As a result of the subdivision review, minor changes were made to the boundary between Melba
and Walling Wards, and the boundary between Billanook and Chandler Wards, to correct the
voter number imbalances.
3.2 Public information program
The Yarra Ranges Shire Council representation review commenced on Wednesday 5 August.
The VEC conducted a public information program to inform the community, including:

public notices printed in local and state-wide papers

a public information session to outline the review process and respond to questions from
the community

a media release announcing the commencement of the review

coverage through the municipality’s media, e.g. Council website or newsletter

a helpline and dedicated email address to answer public enquiries

ongoing information updates and publication of submissions on the VEC website and

a Guide for Submissions to explain the review process and provide background
information on the scope of the review.
See Appendix 3 for full details of the public information program.
Page 12 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
3.3 Public submissions (preliminary)
The VEC received 18 preliminary submissions by the deadline for submissions at 5.00 pm on
Wednesday 2 September. Submissions were received from a range of stakeholders including
current and former councillors; community members and groups including the Healesville Action
Group, the Proportional Representation Society of Australia (PRSA) and the Mount Evelyn
Environment Protection and Progress Association (MEEPPA). The submissions are publicly
available on the VEC website.
The matrix below provides an overview of preferences in the preliminary submissions. Detailed
analysis of the submissions follows.
Submitter wanted
fewer wards
Submitter wanted
ward number to
remain
unchanged
Submitter wanted
councillor
number to remain
unchanged
8*
5
Submitter wanted
more councillors
2*
Submitter did not
comment on
number of
councillors
1
Submitter wanted
more wards
Submitter did not
comment on
number of wards
2
1
Submitter wanted
fewer councillors
*One submission suggested either retaining the current number of nine councillors or increasing the number to 12.
Number of councillors
Almost three quarters of submissions supported retaining the current number of nine councillors.
Five of the 18 submissions supported increasing the number of councillors, with three
submissions supporting an increase to 11 councillors; one supporting an increase to 10
councillors; and one submission supporting either the status quo or increasing the number of
councillors to 12.
Retaining the current number of nine councillors
Many submissions that supported the current number of nine councillors referred to the large
geographic size of the Shire, and suggested that multiple councillors were needed in wards to
Page 13 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
cover Council business if another councillor was away and to assist councillors to cover the
greater geographic distances, particularly in Ryrie, O’Shannassy and Chandler Wards to the east
of the Shire.
In its submission, Yarra Ranges Shire Council stated that the current number of councillors is
appropriate when benchmarked against other councils in the metropolitan/rural fringe category.
The Council further submitted that increasing the number of councillors to 11 could be perceived
by the community to be too many and to involve unnecessary cost. The Council’s submission
noted that population growth is expected to be slow, and that nine wards is a good fit for
representation of the whole Shire in terms of contact points and advocacy for community
members. These sentiments were echoed in a separate submission by current councillor Mike
Clarke.
Increasing the number of councillors to 11
Three submissions supported increasing the number of councillors in the Yarra Ranges
municipality to 11. Submissions in support of increasing the number of councillors stated that the
size of the Shire warranted the increase, and that the current voter numbers and projected
population growth were also factors to be taken into account when considering councillor
numbers.
Electoral structure
A range of options were put forward by submitters regarding the electoral structure for Yarra
Ranges Shire. While many options were suggested, there were two clear preferences: a threeward model of three councillors per ward; or the existing structure of nine councillors elected
from single-councillor wards. The most commonly preferred model (put forward by eight of 18
submitters) was a three-ward model of three councillors per ward. Five submissions supported
the existing structure of nine councillors in single-councillor wards, while two submissions
supported a single-councillor structure with 11 councillors. One submission supported a model of
11 councillors with a mix of single- and multi-councillor wards; one submission favoured a
single-councillor model with 10 wards; and one submission preferred a subdivided model with
three possible wards, and did not comment on the number of councillors.
A three-ward model with three councillors per ward
Submissions in favour of the three ward model with three councillors per ward provided similar
reasons for preferring the model. Many of these submissions described the Shire as naturally
divided into three areas: the north-western urban area, including the localities of Chirnside Park,
Lilydale, Mooroolbark and Kilsyth; the Dandenong Ranges area, including Mount Dandenong,
Monbulk and Olinda; and the eastern rural end of the Shire, including the Yarra Plains,
Woori Yallock and Warburton.
Page 14 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Supporters of this model described distinct demographic and geographic communities of interest
that had unique needs. These submissions referred to differing priorities in each area such as
bushfire protection; preservation of natural environment and heritage; economic drivers such as
agricultural, tourism and wine production; and differing community attitudes to commercial
development.
Many of the submissions preferring this model also referred to the benefits of multi-councillor
wards in spreading the workload for councillors, particularly in the larger eastern part of the Shire
that could involve greater geographic distances for councillors to travel. Some of these
submissions stated that multi-councillor wards would allow council business to continue even if
one councillor was absent, and that constituents would have a range of councillors to approach
on local government matters.
The PRSA outlined the benefits of proportional representation in multi-councillor wards at council
elections, including minimising the number and percentage of ineffective votes; maximising
voters’ choice of candidates; and allowing representation for communities of interest which may
not be ‘rigidly’ demographic. The PRSA was opposed to a mix of single- and multi-councillor
wards, and suggested that the proportional representation counting method worked most
effectively in multi-councillor wards of the same number of councillors, and with odd numbers.
The Healesville Action Group referred to the different infrastructure needed in urban areas
compared to rural communities, including roads, drainage and disposal of green waste, and
suggested that there was a bias in the current single-councillor structure in favour of the urban
end of the Shire. The Group stated that the larger wards of Ryrie and O’Shannassy place a
greater burden on individual councillors due to the greater distances to be covered, and echoing
the sentiment of several submissions, suggested that this could be alleviated with more
councillors covering the area in a multi-councillor ward model.
Retaining the current structure – nine councillors in single-councillor wards
Five of the 18 submissions received supported retaining the current structure of nine councillors
in single-councillor wards. These submissions were from current or former councillors and Yarra
Ranges Shire Council itself. A number of these submissions supported the status quo while also
proposing minor boundary adjustments. The most common reasons these submissions
supported retaining the current model of nine single-councillor wards was that the structure
suitably reflected the diverse communities of interest within the Shire, and conveyed a concern
that this could be diluted if wards were any larger.
Yarra Ranges Shire Council stated that under the current structure, representation was spread
throughout the Shire, and the current number of single-councillor wards accommodated the
many unique communities of interest within the Shire, also allowing councillors to gain in-depth
Page 15 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
knowledge of local issues. In the Council’s view, travel distances and campaigning costs were
reduced with smaller geographic wards, and voting blocs that might occur in multi-councillor or
unsubdivided wards could be avoided. The Council proposed a number of adjustments to the
current boundaries of Lyster, Streeton, Walling, Chandler and Billanook Wards, aiming to
address the potential voter-to-councillor imbalances which could occur in these wards due to
projected population growth.
Three current councillors and one former councillor supported the existing structure. Councillors
Jim Child and Mike Clarke stated that the current structure allowed councillors to gain a strong
knowledge of the area they represent. Cr Clarke concurred with the views put forward by the
Council that the nine-councillor model was a good fit for the Shire’s communities of interest;
reducing travel time and campaigning costs; avoiding voting blocs which may occur in
multi-councillor wards; and spreading representation across the Shire. Cr Clarke suggested that
the single-councillor model also allowed councillors to work as a unified collective when issues
impacted on more than one ward. Former councillor Dianne Moore suggested that the structure
was appropriate for Yarra Ranges as an interface council that ‘brings the city to the country and
the country to the city’.
While current Councillor Jason Callanan supported the existing electoral structure, he suggested
that the Monbulk Aquatic Centre be included within the Chandler Ward by realigning the
boundary between Chandler and Lyster Wards. Cr Callanan also proposed that the suburb of
Wandin be encompassed within the Chandler Ward and that the Olinda Pool be located within
Streeton Ward. Other boundary adjustments proposed by Cr Clarke were: encompassing the
locality of Montrose within Walling Ward; including Upwey in a consolidated Lyster Ward; and
consolidating the forested ‘top of the ranges’ area within one ward to be known as Streeton
Ward. Cr Child raised concerns that introducing multi-councillor wards could combine areas that
have little in common, such as Healesville and Warburton (currently located in the Ryrie and
O’Shannassy Wards respectively).
Eleven councillors in single-councillor wards
Two submissions supported a single-councillor structure with 11 councillors. These submissions
emphasised the benefits of single-councillor wards, including the ability of councillors to strongly
represent their local communities and the capacity of single-councillor wards to represent the
highly diverse communities of interest that exist within the Shire.
The Mount Evelyn Environment Protection and Progress Association (MEEPPA) submitted that
Yarra Ranges Shire Council had more in common with larger regional centres such as the City of
Greater Shepparton and the Rural City of Benalla. MEEPPA stated that some environmental,
heritage and culturally significant areas needed local stewardship, such as the Mount Evelyn owl
sanctuary. The Association argued against multi-councillor wards, suggesting that the higher
Page 16 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
population density in the western part of the Shire could distort representation under a
multi-councillor model, and that representation should be determined based on voter numbers.
The organisation suggested that the greater Mount Evelyn area be preserved and not separated
by ward boundaries.
Page 17 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
4 The VEC’s findings and options
4.1 Preliminary report findings
The VEC has taken into account the key themes expressed in highly detailed submissions to the
representation review, as well as internal research and analysis to develop three options for
further consultation. The options put forward by the VEC comply with the legislative equality
requirement, take into account the structures of similar municipalities in Victoria, and
acknowledge communities of interest where possible. The models also largely reflect the most
common options put forward in submissions, comprising a nine single-councillor option similar to
the existing structure with slightly modified boundaries, and two multi-councillor models reflecting
the three main geographic areas of the Shire.
Number of councillors
The three models put forward by the VEC for further consultation retain the current number of
nine councillors. The factors considered by the VEC in determining councillor numbers include
the projected population growth, geographic size, and social profile of the municipality, including
any distinct communities of interest that may warrant specific council representation.
Population growth
While there is some growth projected for Yarra Ranges Shire, it is not expected to occur evenly
throughout the municipality and is not predicted to be at a rate that would warrant increasing the
number of councillors. In 2014, the average annual rate of growth in the Yarra Ranges Shire was
expected to be 0.6 per cent per annum through to 2031.11 This figure has recently been revised
up to 0.7 per cent per annum, a marginal adjustment that is not statistically significant enough to
justify increasing the number of councillors in the Shire.12
As shown in Table 1, Yarra Ranges Shire sits at the top of the group of Victorian municipalities
with nine councillors in the metropolitan/rural fringe category. The municipalities with 11
councillors in this range include the Cities of Hume, Whittlesea, and Wyndham. The first council
in the table with 11 councillors, the City of Hume, has almost 10,000 more voters than the Yarra
Ranges Shire. The City of Whittlesea has over 14,000 more voters than the Yarra Ranges Shire.
At the other end of the spectrum, Cardinia Shire has nine councillors despite a significantly lower
population than Yarra Ranges. However, the average annual rate of growth in Cardinia is
expected to be over six times the rate of growth in the Yarra Ranges.13 At the time of the
representation review of Cardinia Shire in 2012, the VEC determined that increasing the number
of councillors to nine was appropriate to accommodate the projected growth in that Shire.
11
Victorian Government, Victoria in Future: Yarra Ranges Profile, 2014.
Victorian Government, Victoria in Future: Yarra Ranges Profile, 2015.
13 Victorian Government, Victoria in Future: Cardinia Profile, 2015.
12
Page 18 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
According to both the current voter numbers and projected population growth, the VEC is
satisfied Yarra Ranges Shire is well served by the current number of nine councillors.
Table 1: metropolitan/rural fringe councils comparable to Yarra Ranges Shire Council
Population
(2011
Census)
Number of
voters at last
review
Current
estimate of
voters#
Number of
councillors
Number of
voters per
councillor
Casey
252,382
165,057
183,392
11
16,672
Mornington
Peninsula
144,608
144,733
150,891
11
13,717
Wyndham
161,575
104,278
128,254
11
11,659
Whittlesea
154,880
110,011
128,052
11
11,641
Hume
167,562
112,157
123,512
11
11,228
Yarra Ranges*
144,541
103,926
113,596
9
12,622
Melton*
109,259
60,054
84,699
7
12,100
Cardinia
74,176
53,794
63,201
9
7,022
Nillumbik
60,342
45,659
47,068
7
6,724
Municipality
* The municipality is currently undergoing an electoral representation review by the VEC during 2015–16.
# Voter estimate calculated after the January 2015 merge of the State electoral roll and Council-only electors as at the
2012 council elections.
Geographic size
Yarra Ranges Shire Council is a large interface council connecting rural, agricultural,
wine-production and regional tourist areas of eastern Victoria with the outer fringe of metropolitan
Melbourne. The VEC recognises that the geographic size of a municipality can have an impact
on councillor workloads where there are long distances to travel; and that the needs of urban and
rural communities place different demands on council in terms of community engagement,
infrastructure needs and service delivery.
Under the proposed Option A, which reflects the existing structure in the Shire and is discussed
below, Ryrie and O’Shannassy Wards are comparatively large geographically. However, the
majority of the eastern end of O’Shannassy Ward includes part of the Yarra Ranges National
Park. While Ryrie Ward also includes some National Park areas, it is a much larger ward than
many of the others within the Shire that have a similar number of voters—this is undoubtedly a
complicating factor. Although submissions suggested increasing the number of councillors in
rural areas based on their size, this is not considered a sufficient reason in itself. An increase in
the number of councillors would place an additional cost on the Council, and in this case, as the
voter numbers are roughly equivalent to those of other wards, could risk non-compliance with the
voter-to-councillor equality requirements. It could also result in over-representation of this part of
Page 19 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
the Shire at the expense of the more densely populated urban areas where growth (albeit low) is
predicted to occur.
Under both Options B and C, discussed below, the larger geographic wards would be combined
and the number of councillors representing these areas would be increased. These multicouncillor models essentially increase the representation for this large geographic area in
recognition of the distances involved and the impact on councillor workloads.
The VEC notes that while many of the submissions to the representation review referred to the
large geographic size of the Shire, the majority of submissions supported retaining the current
number of nine councillors. Considering evidence raised in submissions that the current number
of councillors is sufficient and trends in population data, there are no compelling reasons to put
forward models with more than the current number of nine councillors.
Socio-demographic profile
The Yarra Ranges Shire is a culturally diverse municipality. According to 2011 Census data,
17 per cent of the municipality’s population were born overseas.14 The proportion of people living
in Yarra Ranges Shire who were born overseas is higher than the average number of people
born overseas in rural and regional Victoria generally.15 While the Shire is culturally diverse, it
does not have concentrated culturally diverse communities such as those within the Cities of
Whittlesea and Wyndham. The VEC does not consider the socio-demographic profile of the
community warrants an increase in the number of councillors.
In relation to socio-economic profile, the Shire has a mix of high- and low-income earners.
According to the most recent Census data, the Shire has a slightly higher proportion of high
income earners when compared to rural and regional Victoria as a whole, and a very high
workforce participation rate compared to rural and regional Victoria generally.16 The proportion of
low-income earners is slightly lower than rural and regional Victoria as a whole. While there are
some areas of social disadvantage, the socio-economic profile of the ward does not indicate a
need for additional councillors.
Electoral structure
The VEC has put forward three models for further consultation. Option A reflects the status quo
of nine councillors elected from single-councillor wards. Option B reflects the strong message in
submissions that a three ward model of three councillors in each would be the best way to
represent the three major geographic communities of the municipality. Option C, a
multi-councillor model with one four-councillor ward, one three-councillor ward and one
two-councillor ward, also reflects submissions preferring multiple councillors as well as providing
14
Australian Bureau of Statistics, Census of population and housing, 2011.
Australian Bureau of Statistics, Census of population and housing, 2011.
16 Victorian Electoral Commision, Guide for Submissions: Yarra Ranges Shire Council, 2015.
15
Page 20 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
strong and easily identifiable boundaries that minimise splitting townships between separate
wards. The advantages and potential limitations of these models are outlined below.
Option A: Nine councillors elected from single-councillor wards
The VEC has put forward a preferred option reflecting the existing structure of nine councillors
elected from single-councillor wards, based on the strong support expressed in submissions for
retaining the current number of councillors; evidence in submissions that the current model is
providing fair and equitable representation; and the VEC’s preference for minimal change if there
are no special circumstances to warrant major changes.
The model brings with it the positive features of single-councillor wards, including accessibility of
councillors who can directly represent specific geographic areas with awareness of local issues.
Supporters of single-councillor wards suggest that the structure is easier for voters to
understand, with only one councillor to be selected by voters in each ward at election time. The
model reflects the strong sentiment in submissions that Yarra Ranges Shire is characterised by
many communities of interest, ranging from the urban areas of Lilydale, Chirnside Park, Kilsyth
and Mooroolbark to the communities around the Dandenong Ranges and rural plains in the east.
However, placing boundaries around nine single-councillor wards necessarily involves division of
localities. This will definitely occur in Yarra Ranges Shire, as it does in the existing structure,
particularly at the densely populated western end of the municipality around the suburbs of
Montrose, Mount Evelyn and Mooroolbark.
In relation to the specific boundary adjustments put forward in councillors’ submissions, many
are not suitable under the single-councillor model due to the flow-on effect such adjustments
would have to the overall voter numbers in the wards affected. The suggestions to encapsulate
all of Montrose in Walling Ward or transfer Upwey to Lyster Ward, for example, are not viable.
Another suggestion put forward by a councillor that the Monbulk Aquatic Centre be transferred
from Lyster Ward to Chandler Ward was also considered by the VEC. While such a boundary
alignment would arguably unite the community using the facilities, the boundary proposed by the
VEC running along Sassafras Creek is considered to be a clear and easily identifiable boundary.
As outlined in the VEC’s Guide for Submissions, Lyster Ward at the south-eastern end of the
municipality is close to the 10 per cent tolerance for compliance with the legislative
voter-to-councillor equality requirements.17 Under Option A, the VEC has slightly adjusted
existing ward boundaries in the nine single-councillor ward model put forward, in order to bring
the voter numbers into better alignment and minimise the need for subdivision reviews to occur
before the next representation review is due. Under this option, part of the Lyster Ward boundary
17
Victorian Electoral Commission, Guide for Submissions: 2015 Yarra Ranges Shire Council Electoral
Representation Review, vec.vic.gov.au/files/YarraRangesGuideForSubmissions2015.pdf
Page 21 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
moves north to Ferny Creek. Streeton and Walling Wards are divided by Canterbury Road, and
part of the boundary between Chandler and Billanook Wards moves from the Mount Evelyn
locality boundary to Olinda Creek. A section of Lilydale between Billanook and Melba Wards
moves from Queen Road to Olinda Creek, while the boundaries of Chirnside Ward and the other
wards remain unchanged. Under this option (retaining the existing structure with some boundary
modifications) 4,491 electors throughout the municipality would be transferred to a different ward.
Option B: nine councillors elected from three three-councillor wards
Many submissions supported a multi-councillor model of three wards with three councillors per
ward. The model put forward by the VEC in Option B captures the sentiment expressed in many
of these submissions, which described the natural formation of three distinct areas: the densely
populated urban area of the metropolitan fringe; the south-western area around the Dandenong
Ranges; and the rural communities and natural environments to the east of the municipality.
Option B has strong and clearly identifiable ward boundaries reflecting these communities of
interest. The option combines the larger wards of O’Shannassy, Ryrie and part of Chandler.
Parts of the inner western wards of Streeton and Lyster are combined; with sections of the
Walling, Melba and Billanook Wards also merged to form one larger multi-councillor ward. The
boundaries avoid splitting localities as far as possible, and of all the options, preserving localities
is achieved most effectively by this model. While the new O’Shannassy Ward is much larger in
geographic area, the model increases the representation for voters in the ward by providing more
councillors.
This model brings with it the benefits of the proportional representation counting method, and
provides voters with a greater number of candidates to choose from at election time. Once in
office, there are more councillors for constituents to approach on matters of concern in each
ward. One of the limitations of multi-councillor wards is that the capacity for councillors to be
familiar with all local issues can be reduced due to the larger size of the wards. With three
councillors per ward, however, there is an opportunity for sharing the workload between
councillors. Fair and equitable representation is still able to be achieved, and is arguably
improved, with multiple councillors per ward.
Option C: nine councillors elected from one four-councillor ward, one three-councillor
ward, and one two-councillor ward
Option C also responds to the distinct communities of interest described by submitters with
wards for the urban area in the west; the Dandenong Ranges and semi-rural area in the
centre/west; and the large rural, regional and agricultural areas to the east, and in this model, the
north of the municipality including Healesville.
Page 22 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
The boundaries are slightly different to those of Option B and include smaller wards in the more
densely populated area at the western edge of the municipality. The very large O’Shannassy
Ward of Option B is reduced by placing the localities of Mount Evelyn, Silvan, Seville, Wandin
North and Wandin East into one central ward of Chandler. The localities of Chirnside Park,
Lilydale and Mooroolbark also form part of the proposed Chandler Ward. The more densely
populated communities on the urban fringe are separated into two wards (rather than four as in
the single-councillor ward option). The model also preserves localities within one ward where
possible, and achieves this to a greater extent than the single-councillor ward option.
As with Option B, the model has the benefits of the proportional representation counting method,
offering greater choice of candidates for voters. The model responds to the majority of
submissions that preferred multi-councillor wards for the Yarra Ranges Shire.
The limitations of proportional representation also apply to this model, where large wards exist
and councillors are expected to be familiar with more issues over a larger geographic area.
Although O’Shannassy Ward is not as large as that of Option B, the capacity for more direct local
representation may still be challenged by the size of the ward. Unlike Option B, this model only
has two rather than three councillors to cover the large O’Shannassy Ward. The differing
numbers of councillors per ward under this option may give rise to perceptions of inequality of
representation for voters throughout the Shire. To this extent it is less preferable than Option B.
4.2 Options
The VEC is required by the Act to include a preferred option and may include one or more
alternative options for the electoral structure in the preliminary report. The VEC considers that all
the options outlined below offer fair and equitable representation for voters in the municipality.
Please see Appendix 2 for detailed maps of these options.
Option A (preferred option)
Yarra Ranges Shire Council continue to consist of nine councillors elected from
single-councillor wards, with modified ward boundaries.
Option B (alternative option)
Yarra Ranges Shire Council consist of nine councillors elected from three three-councillor
wards.
Option C (alternative option)
Yarra Ranges Shire Council consist of nine councillors elected from one four-councillor
ward, one three-councillor ward, and one two-councillor ward.
Page 23 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
5 Next steps
5.1 Response submissions
Any person or group, including the Council, can make a submission to the VEC in response to
the options contained in this report. Response submissions to the preliminary report should
address the models proposed by the VEC within this report. Response submissions must be
received by the VEC by 5.00 pm on Wednesday 28 October. Late submissions will not be
accepted.
Submissions must include the full name, address and contact telephone number of the submitter.
Submissions without this information cannot be accepted.
Submission methods
Submissions can be made via:

the online submission form at vec.vic.gov.au

email at yarraranges.review@vec.vic.gov.au

post to: Victorian Electoral Commission
Level 11, 530 Collins Street
Melbourne VIC 3000

fax to (03) 9629 8632
Public access to submissions
To ensure transparency in the electoral representation review process, all submissions will be
available for public inspection at:

the VEC website at vec.vic.gov.au and

the VEC office at Level 11, 530 Collins Street, Melbourne.
The VEC will remove personal information such as address, phone number, and signature, if
applicable, from all public copies. However, the full name and locality of submitters will be
displayed.
5.2 Public hearing
There is an opportunity for people or organisations who have made a response submission to
speak about their submission at the public hearing. The public hearing is scheduled to be held at
7.00 pm on Thursday 5 November at the Yarra Ranges Shire Council Offices, 15 Anderson
Street, Lilydale. If you wish to speak at the public hearing, you must indicate this on your
response submission. If there are no requests to speak at the hearing, it will not be held.
Page 24 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
5.3 Final report
Following the public hearing, the VEC considers all the evidence it has gathered and publishes a
final report for the Minister for Local Government containing a recommended electoral structure.
The report is scheduled to be published on Wednesday 25 November. Any changes resulting
from the final report will apply at the October 2016 general election.
The final report will be available from the VEC by visiting vec.vic.gov.au or calling 131 832 and
also for inspection at the offices of Yarra Ranges Shire Council.
Page 25 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Appendix 1: List of preliminary submissions
Preliminary submissions were received from:
Jason Callanan
Jim Child
Mike Clarke
Samantha Dunn
Carolyn Ebdon
Albia Fulvia-Inserra
Kate Gustke
Linda Hamilton
Gary McCarten
Dianne Moore
David Rose
Francis Smith
Ross Whitford
Roger Willsher
Healesville Action Group
Mount Evelyn Environment Protection and Progress Association
Proportional Representation Society of Australia (Victoria-Tasmania) Inc
Yarra Ranges Shire Council
Page 26 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Appendix 2: Option maps
The following maps are included in this report:
Map
Page
Option A (preferred option)
28
Option B (alternative option)
29
Option C (alternative option)
30
Page 27 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Page 28 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Page 29 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Page 30 of 32
Preliminary Report: 2015 Yarra Ranges Shire Council Electoral Representation Review
Appendix 3: Public information program
Advertising
In accordance with the Act,18 a public notice of review was placed in the following newspapers:

Herald Sun, Wednesday 15 July

Free Press Leader, Tuesday 4 August

Mount Evelyn Mail, Tuesday 4 August

Ranges Trader Mail, Tuesday 4 August

Mountain Views Mail, Tuesday 4 August

Ferntree Gully Belgrave Mail, Tuesday 4 August

Lilydale Yarra Valley Leader, Tuesday 4 August

The Age, Tuesday 4 August
Media release
A media release was prepared and distributed to local media at the commencement of the review on
Wednesday 5 August.
Public information sessions
Public information sessions for people interested in the review process were held on:

Monday 10 August at the Yarra Ranges Shire Council Offices, 15 Anderson Street, Lilydale

Wednesday 12 August at The Memo, 235 Maroondah Highway, Healesville

Thursday 13 August at the Monbulk Community Link, 21 Main Road, Monbulk
Helpline and email address
A telephone helpline and dedicated email address were established to assist members of the public
with enquiries about the review process.
VEC website
The VEC website delivered up-to-date information to provide transparency and facilitate public
participation during the first stages of the review process. An online submission tool was made
available and all public submissions were posted on the website.
Guide for Submissions
A Guide for Submissions was developed and distributed to those interested in making submissions.
Copies of the Guide were available on the VEC website, in hardcopy on request and provided to
Council.
Council website and newsletter
Information about the review was provided to Council for publication in council media, e.g. website
and newsletter.
18
Section 219F(4) of the Local Government Act 1989.
Page 31 of 32
Victorian Electoral Commission
Level 11, 530 Collins Street
Melbourne VIC 3000
131 832
yarraranges.review@vec.vic.gov.au