Shire Of Nillumbik - Landscape Character Assessment
For The Protection And Management Of Nillumbik’s Green Wedge Landscapes
Final Report
December 2009
Acknowledgements
Council Team
Shire of Nillumbik
Jackie Donkin Senior Strategic Planner: Project Manager
Internal Working Group
Chad Griffiths Coordinator Strategic Planning
Pat Vaughan Manager Environment & Strategic Planning
Jeremy Livingston Coordinator Statutory Planning
Consultant Study Team
Planisphere Urban Strategy Planners
Mike Scott, Director Project Director
Helen Knight , Senior Planner / Urban Designer
Project Manager, Planning Assistance, Report Author
Kate Pleban, Planner / Urban Designer Project Management, Survey, Mapping, Report Author
Chantal Delcourt, Student Planner Survey, Mapping
Sub Consultant Advice
Aspect Studios
Kirsten Bauer Landscape Architect
Foreword
The Nillumbik Green Wedge Landscape Character Assessment looks at the Green Wedge landscapes (or ‘non-urban’ areas) of the Shire and its built environment. It provides guidance in relation to the design, siting and style of new development so that the existing character and visual amenity of the Green Wedge is not diminished by new development, but is preserved and strengthened for future generations.
For many planning permits, this study will require applicants to ensure that their building fits into its existing setting and complements the character of the immediate area. It is envisaged that the Landscape Character Assessment will result in improved protection of the Nillumbik Green Wedge landscapes through better targeted, more effective planning controls.
1 Introduction
1.1 Background
The Shire of Nillumbik includes a diverse range of landscapes, ranging from the open rolling agricultural pastures in the west, to the dense bushland surrounding the Kinglake National Park to the east. The municipality is valued for its high environmental and landscape qualities associated with the Kinglake National Park, Yarra and Plenty Rivers, Diamond Creek and Metropolitan water storages, such as Sugarloaf Reservoir. The areas high scenic quality, combined with its proximity to Melbourne, makes Nillumbik a popular place to live and visit.
There are many different types of agricultural or horticultural uses within the Shire which are important to the local and regional economies and integral to its distinct landscape character. One of the core purposes of Melbourne’s ‘Green Wedges’ is to protect agricultural uses, while preserving Melbourne’s scenic landscapes and open space networks and providing opportunities for enhanced tourism and recreation.
Project Scope and Aim
The project brief required a Landscape Character Assessment to be undertaken to input to the Council’s Green Wedge Management Plan.
The purpose and objectives of the Landscape Assessment are to:
· Identify, map and assess the existing distinctive landscape elements and features within the Nillumbik Green Wedge;
· Undertake a detailed landscape character assessment and provide commentary as to the appropriate level of protection required;
· Capture and build on existing values and important associations to the landscape identified through secondary sources;
· Provide recommendations which will assist in conserving the character of the Nillumbik Green Wedge for future generations by guiding the design, siting and style of new development so that the visual amenity of the Nillumbik Green Wedge is not diminished by new development, but is enhanced by it;
· Provide advice as to the form of planning controls appropriate for inclusion in a Planning Scheme Amendment to implement the findings and conclusions.
It is envisaged that the study will help to achieve Council’s objective to make informed decisions regarding the management of landscapes in the Green Wedge, while protecting the landscape character of the Shire.
Study Area
The Study Area comprises land in the Shire of Nillumbik denoted ‘Green Wedge Land’ (refer to map on the following page). Green Wedge Land refers to the non-urban areas of the Shire; including land outside of the Urban Growth Boundary within the Green Wedge, Rural Conservation, and Low Density Residential Zones. The Study also considers the contribution that Green Wedge townships (within the Township Zone) and small rural settlements attribute to the landscape character of the Green Wedge.
Existing Urban Residential Areas have not been included as part of the Landscape Character Assessment Study Area as these areas have been individually assessed through the Neighbourhood Character Study undertaken in 2000, and the Residential Design Guidelines, 2001 (amended 2003); however the existing character of the Urban Residential Areas was taken into account when considering the Shire’s character as a whole.
Public Land, including all land within the Public Conservation and Resource, Public Use and Public Park and Recreation Zones, was beyond the scope of recommendations for this Study. However, areas of public land were taken into account when assessing the overall character and significance of the landscape. Landscape Management Objectives for areas adjoining public land, as identified in this Study, aim to be consistent with the landscape priorities of public land and National Parks.
1.2 Study Process
The study was undertaken in six stages:
Stage 1: Inception comprised the initial gathering of information, process and contact with the Council’s project Working Group to confirm the overall approach.
Stage 2: Preliminary Analysis commenced with desk research and established the policy context for the project. A field survey of the entire study area was then conducted to provide an overview of landscape character and highlight areas or places of potential significance for further investigation. Following the survey, analysis mapping of the study area was undertaken, preliminary character areas were drafted and a photo library collated.
Stage 3: The Values Consultation stage of the project was postponed due to the bushfires of 7th February, 2009. It was resolved to defer this stage of the project to a later date, to be confirmed.
Stage 4: Final Analysis included a detailed desktop study to confirm the boundaries of the identified character areas and preliminary areas of landscape significance. Following the desktop study, a Team Workshop and Working Group reviewed the study team’s conclusions.
Stage 5: Draft Report comprised preparation of a Draft Report suitable for stakeholder consultation. Meetings with adjoining councils and internal council staff discussed values in relation to landscape character and significance and gathered feedback on the outputs from Stage 2: Draft Character Area Analysis Papers and Implementation Recommendations. The Public Consultation component of this stage was postponed until further notice due to the bushfires of 7th February, 2009.
Stage 6: Final Report & Implementation reviewed the comments received in stage 5 and prepared a Final Report and Implementation Framework. Meetings with the project Working Group, comprising Council officers, project manager and the consultant study team were held at key milestones throughout the project. The Consultation components within Stages 3 & 5 of the project are postponed until Council deem necessary. Further consultation will include Focus Group(s) to check on/reveal community values about landscape character and significance in Nillumbik. Public and stakeholder comment on the project will be invited through the distribution of a Community Bulletin before the study is adopted within the Nillumbik Planning Scheme.
1.3 Communication & Consultation
Community Values
Consultation with the community about landscape values has not yet been carried out specifically for this project. It was initially envisaged that The Nillumbik Landscape Character Assessment was to be prepared with community input. A thorough consultation strategy included focus group workshops, information boards and community bulletins, at key stages throughout the study to inform residents and land owners of the project and to provide them with the opportunity to contribute. After the severe bushfires of February 7, 2009 that resulted in significant loss of life and property throughout Nillumbik, it was considered that community consultation should be postponed until Council deem necessary.
Ideas about how the community might value certain landscapes have been drawn from:
· Existing Nillumbik Shire Council landscape strategies/ studies that involved considerable community engagement.
· Desk research and field observations provided insight into the value that the local and broader community places upon certain areas through marketing (brochures etc) or signage for example.
It is envisaged that a broad consultation process will be undertaken with the community in 2010/11.
Neighbouring Councils
The brief required that neighbouring Councils including Manningham, Whittlesea, Banyule and Yarra Ranges be involved in the study process to allow the study team to gain a thorough understanding of existing landscape management measures that are occurring across the wider context. Meetings with adjoining Councils occurred at key stages of the study process, providing opportunity for them to contribute to the study. Where cross-boundary viewsheds were identified, adjoining Councils were asked to cooperate and consider protection of its landscapes visible from within Nillumbik.
1.4 Background References & Policy Context
A detailed analysis of the policy and statutory context of the study has been carried out to inform the implementation steps required. This has included a comprehensive review of the State and Local Planning Policy Frameworks and the provisions of zone and overlay controls within the study area.
A number of other studies, strategies and policies have informed the development of the Landscape Character Assessment. These references are detailed in Appendix C1: Existing Policy Context.
1.5 Summary of Implementation Recommendations
The Landscape Character Assessment recommends that Council adopt six implementation strategies:
Statutory implementation strategies include:
· Augment the MSS (Municipal Strategic Statement)
· Include reference to the Study within Local Policy
· Upgrade Planning Scheme Overlays*
Non-Statutory implementation strategies include:
· Raise Community Awareness
· Improve Planning Application Processes
· Improve Council Procedures
The main study product is the Character Area Analysis Papers (Appendix A), which divide the Nillumbik Green Wedge into seven different Landscape Character Areas and present Landscape Management Objectives and Guidelines for each. It is envisaged that the Character Area Analysis Papers and associated Management Objectives and Guidelines will form the basis of 7 new schedules to the Significant Landscape Overlay.
Further details regarding Implementation Recommendations are contained in Chapter 5: Implementation.
Abbreviations used in this Report
Abbreviations / Meaning /RCZ / Rural Conservation Zone
GWZ / Green Wedge Zone
PCRZ / Public Conservation and Resource Zone
LDRZ / Low Density Residential Zone
TZ / Township Zone
PPRZ / Public Park and Recreation Zone
SUZ / Special Use Zone
SLO / Significant Landscape Overlay
ESO / Environmental Significance Overlay
DCPD / Department of Planning and Community Development
2 Defining Landscape Character
2.1 The evolution of the Shire’s landscape
The Shire of Nillumbik covers approximately 430 square kilometres, extending from the Plenty River in the west, to the Yarra escarpment in the east. The Yarra River forms the southern boundary and extends 29 kilometres to the Kinglake National Park in the north. Located less than 25 kilometres from the centre of Melbourne, the Shire has both urban and rural areas.
The Shire of Nillumbik’s total population is approximately 63,0001. According to estimates based on the Australian Bureau of Statistics (ABS) 2006 Census data, the population of the Green Wedge is approximately 17,750 with 10,450 people in the rural areas and 7,300 in the towns.
The Municipal Strategic Statement describes the Shire of Nillumbik as an area of ‘high landscape value which plays a regional role for metropolitan Melbourne as an accessible area of natural landscape beauty. The rural areas provide vistas of agricultural land, treed bushland, hills and watercourses with minimal urban intrusion. In the urban areas spacious development of buildings has allowed the retention and regeneration of tree canopies and vistas that are not dominated by buildings. Indigenous vegetation is predominant in landscapes throughout the Shire’.
There are many influences, both natural and cultural, that have shaped the Shire of Nillumbik over the centuries.
The Nillumbik ‘Green Wedge’
‘Green wedges are the open landscapes that were set aside, more than 30 years ago, to conserve rural activities and significant natural features and resources between the growth areas of metropolitan Melbourne as they spread out along major roads and rail links.’ (Melbourne 2030)
The identity of the Shire of Nillumbik is deeply connected to the environment and landscapes of the Green Wedge which cover some 90% of the total Shire area. Topography, dense bushland, open spaces, rivers and streams, and diverse townships form the unique character of the Green Wedge landscapes within Nillumbik.
Historically, the Green Wedge areas were first designated by the Melbourne Metropolitan Planning Scheme in 1971 and a strong commitment to the green wedge strategy has been supported by governments ever since.
The Municipal Strategic Statement states that ‘as a result of its high amenity value and close proximity to metropolitan Melbourne, there is strong demand to use and develop the Nillumbik Green Wedge for rural-residential use’2. However, the elements that make up the character of a landscape such as vegetation, topography, geology, views, water quality, habitat and biodiversity values are often undermined by the continued development of dwellings and associated infrastructure within the Green Wedge. It is therefore vital that considerable measures are put in place to preserve the character of the Shires highly valued Green Wedge landscapes for generations to come.
The Natural Landscape
Steep, soaring ridges and gently sloping hills enclosing plains and flats make up Nillumbik’s characteristic landscape. The south is dominated by lowland hills and alluvial plains with low ridgelines. Further north, landform is steeper and comprises upland hills with ridgelines of over 200m. The Shire's northern boundary is framed by the Kinglake Ranges with elevations typically over 400m.
The Nillumbik Green Wedge is recognised for its high conservation value. Key regional environmental reserves include Kinglake National Park, Warrandyte State Park and the Yarra Valley parklands. Nillumbik’s Green Wedge is in the catchment for the Yarra River and is bounded by the Plenty River in the west and the Yarra River in the south and south-east. Diamond Creek, Watsons Creek and Arthurs Creek all traverse the Shire.
While much of the Shire’s native vegetation was cleared by European settlers for agriculture, Nillumbik still retains large areas of native vegetation on both public and private land, particularly in the north and east of the Shire. Areas of intact native flora provide a high level of significant habitat and support a wide range of native animals. Extensive areas of the Nillumbik Green Wedge are of habitat or faunal importance and 61% of the Green Wedge is covered by the Environmental Significance Overlay to protect these values.