I

Brimbank City Council

APRIL 2024 (REVISED JULY 2024)

II

III

Council respectfully acknowledges and recognises the Kulin Nation, including

the Wurundjeri, Bunurong and Boon Wurrung Peoples, as the Traditional

Owners of the land in the City of Brimbank, and pays respect to Elders past,

present and future. For the Traditional Owners, the lands in the City of

Brimbank have always been a significant trading and meeting place.

I

The City of Brimbank (Brimbank) is a growing and

changing municipality. By 2041, there will be an

additional 34,000 residents, and at least 14,000

new homes will be needed to accommodate this

growth. Brimbank’s population is not only increasing,

but it is also ageing and becoming more diverse

bringing changes to household structures and

housing needs. While families will continue to

make up the majority of households, single person

households and households with people over 65

will increase significantly over the next 20 years.

Brimbank’s community is one of the most socio

economically disadvantaged in metropolitan

Melbourne and has the highest instance of people

experiencing homelessness in Greater Melbourne’s

west. Like other major cities around Australia,

housing in Brimbank is becoming increasingly

unaffordable, and this threatens the security and

well-being of current and future residents.

These are significant challenges to address.

Brimbank needs more housing, and it needs

to be diverse, affordable and well-located.

Currently, Brimbank’s housing stock is relatively

homogenous—comprising over 80% separate

housing—and it will not meet the needs of

the future population. Units and townhouses

are gradually emerging, yet the feasibility of

apartment developments remains hindered by

site conditions, market preferences and economic

considerations. Even as the demand for separate

houses persists, the limited availability of greenfield

land precludes detached housing as an option for

accommodating the anticipated population growth.

The Sunshine Metropolitan Activity Centre (MeAC)

and St Albans Major Activity Centre (MAC) have

the capacity to accommodate a significant portion

of Brimbank’s new apartment developments and

housing growth. Sunshine MeAC in particular is set

to transform, with Council anticipating significant

infrastructure enhancements and higher density

housing as a result of significant State government

investment in infrastructure and planning and

Council’s own Transforming Brimbank agenda.

Outside of these areas, in established

neighbourhoods, Council needs a plan to

accommodate a pipeline of new housing. This needs

to include a mix of detached homes, townhouses,

apartments and other diverse forms of housing.

There also needs to be a mix of tenures (owned

and rented) and affordable housing, including social

housing and other low-cost options. The location

and design of new housing needs to enhance

sustainability and liveability, offer convenient access

to services and infrastructure and contribute to the

valued character of Brimbank’s local neighbourhoods.

The purpose of this Housing and Neighbourhood

Character Strategy is to establish a long-term,

shared vision for the future of housing in

Brimbank and to set out a plan to realise it.

The City of Brimbank is growing and changing.

A new approach to planning for housing is needed.

I

II

The community-developed housing

vision for Brimbank is:

To accomplish this vision, the Strategy recommends

denser housing of up to four storeys in transport

rich locations, particularly within and around activity

centres. Development will contribute to a new

character in these areas and feature high quality,

sustainably designed contemporary buildings.

Outside these areas, development will transition to

lower-scale townhouses and apartments of up to

three storeys within walking distance of transport,

shops, and services. This housing will offer high

quality alternatives to a variety of household

structures, including singles, couples and families,

freeing up existing separate housing across

Brimbank for those that have the greatest need for

more space, such as large and multigenerational

families. While development will respect existing

character, it will also bring changes, including more

diverse housing options, enhanced landscaping, tree

planting and high quality development. Facilitating

affordable housing supply will be a priority in these

areas, given their proximity to transport and services.

In most of Brimbank’s remaining residential areas,

change will be incremental and of a lower scale.

This will include units and townhouses of up to

two storeys, designed to respect the preferred

character of Brimbank’s diverse neighbourhoods.

This housing is anticipated to meet the needs of

the majority of Brimbank’s family households.

Some parts of Brimbank will experience development

at a slower pace, due to constraints such as

airport noise or other environmental factors. Other

parts of the municipality will evolve gradually

because of heritage values. Development in

these areas will still be possible, but it will occur

at a scale and intensity that celebrates and

enhances Brimbank’s history and character.

Planning for housing is complex and challenging,

and Federal and State governments hold many

of the levers that affect housing supply and

affordability. However, Councils have a significant

role to play in planning for housing through

the application of residential zones, overlays

and policies. State government provides clear

direction on how to use these tools in order to

create certainty about development outcomes

in each zone and liveable neighbourhoods .

This Strategy aligns with those directions

and lays the groundwork for a local planning

framework to deliver the housing growth

and diversity Brimbank needs.

Brings together and analyses demographic

and development information, including

forecast population growth and current and

projected housing supply and demand. In

this Strategy, this report is referred to as the

Urban Enterprise Background Analysis.

Outlines Brimbank’s residential context, analyses

housing opportunities and constraints, and

presents emerging neighbourhood character

precincts. In this Strategy, this report is

referred to as the Mesh Background Report.

Detail key characteristics of each suburb in Brimbank

and the main contributors and threats to their

neighbourhood character. These are contained within

the Appendices of the Mesh Background Report.

In addition to the above, guidance has been

provided by Echelon, Hodyl & Co and Six Degrees

Architects in relation to development outcomes in

proposed Residential Growth Zone (RGZ) areas.

5

The Strategy is being prepared in four key phases:

The focus of this project is residentially zoned land,

excluding zones for mixed uses, other specialised

development areas, the area surrounding St

Albans MAC that is part of the St Albans Activity

Centre Structure Plan

1

and the River Valley

Estate, which is currently under development and

subject to an existing planning framework.

2

This project has also had regard for parts of the

municipality that will accommodate substantial

housing growth (e.g., the Sunshine Priority

Precinct and Watergardens Major Activity Centre),

in terms of the likely effects on development

and population growth. State plans for the

development of Sunshine and associated public

infrastructure upgrades have been taken into

consideration in assessing the suitability of different

building heights for nearby residential areas.

While MUZ areas are not a focus of this

Strategy, the Mesh Background Report

provided a ‘stocktake’ of these sites, and

the Strategy (refer to the ‘Growth’ theme)

recommends investigation of a comprehensive

strategy for MUZ zones across Brimbank.

Strategy process

INITIAL

PROJECT

SETUP

REVIEW OF

PREVIOUSLY

PREPARED

URBAN

ENTERPRISE

BACKGROUND

ANALYSIS

TARGETED ENGAGEMENT

WITH STAKEHOLDERS

COMMUNITY VOICE PANEL

UPDATES TO COMMUNITY

VIA ‘YOUR SAY’ WEBSITE

BROAD COMMUNITY

CONSULTATION

(SUBJECT TO COUNCIL

ENDORSEMENT)

FINALISATION

OF STRATEGY

PREPARATION OF

PLANNING SCHEME

AMENDMENT

DOCUMENTS

STATUTORY

EXHIBITION

OF PLANNING

SCHEME

AMENDMENT

PRELIMINARY

COMMUNITY

ENGAGEMENT

VIA ‘YOUR SAY’

WEBSITE

MESH DRAFT

BACKGROUND

REPORT

PREPARATION

DRAFT STRATEGY

PREPARATION

FIGURE 1. STRATEGY PROCESS

1

This project analysed the St Albans Activity Centre area and recommended zoning to facilitate the vision for St Albans to ‘develop into a

high quality, people-focused activity area, with a defined sense of place, maintaining the ‘feel’ of a local community hub’. The recommended

zoning was subsequently adopted into the Brimbank Planning Scheme.

2

The existing zones and schedules that apply to the River Valley Estate are not proposed to be amended as part of this Strategy.

RGZ – Residential Growth Zone

GRZ – General Residential Zone

NRZ – Neighbourhood Residential Zone

MUZ – Mixed Use Zone

ACZ – Activity Centre Zone

CDZ – Comprehensive Development Zone

Land within the St Albans Activity Centre

Structure Plan and the River Valley Estate (which

are subject to existing planning frameworks).

Community feedback has generally indicated

that residents are open to increased housing

diversity and welcome change in their

neighbourhoods. However, there was a desire

that new development to be high quality.

Residents expressed a desire for housing

that caters to the needs of all members of

the community, including older residents

and those with various abilities.

There was broad support for housing growth

and diverse housing types to be located

near existing infrastructure and amenities.

Participants expressed a preference for housing

to be located away from industrial areas.

There was an appreciation of a mixture of

architectural styles and housing types in

Brimbank’s neighbourhoods. There was a sense

that this architectural diversity adds to the overall

character and vibrancy of a neighbourhood.

Trees, landscaping and green spaces were

highly valued by residents, and a stronger treed

character was repeatedly raised as an aspiration.

There were concerns raised about the quality of new

housing developments, including the durability of

materials and implications for ongoing maintenance.

In high-growth areas,

3

such as in and around

activity centres and public transport, residents

were generally open to a range of housing

types, including townhouses, mixed-use

developments and apartments up to four

storeys. There was a preference against taller

apartment buildings of 10-15 storeys.

When asked about low-growth areas, residents

tended to prefer detached housing with large

backyards that cater specifically to families.

When asked about medium-growth areas,

residents tended to prefer a mix of family

homes and diverse housing. This generally

reflects a desire for variety and inclusivity

within new and existing neighbourhoods.

Balancing Framework

Inputs

4

Urban Enterprise,

2021 (updated 2022).

5

Within the current planning system structure, planning controls within zones and overlays, rather than policy statements, are the

most effective way to implement neighbourhood character objectives. This is the approach that is adopted in this Strategy.

Inputs

Data about housing supply

and needs informed the

change area designations

of the RDF and the ensuing

strategic directions of

the Strategy. According

to the Urban Enterprise

Background Analysis,

4

Brimbank has more

than enough supply under the current zoning

framework to meet housing needs. However,

greater direction is required to ensure housing

growth is appropriately directed and that the types

of new housing provided meets an ageing and

diversifying population. Housing supply and needs

are described in detail in the Urban Enterprise

Background Analysis and summarised in the Context

section under

Drivers of Housing Change.

Opportunities and constraints

to housing growth were

identified and then spatially

analysed to understand

what levels of change

would be appropriate for

each area. This process recognised that some

opportunities and constraints have greater

weight than others. Opportunities and constraints

are described in detail in the Mesh Background

Report and summarised in the Context section

under

Opportunities

and

Constraints

.

Existing neighbourhood

character was identified and

taken into account when

making decisions about levels

of change and preferred

neighbourhood character.

Neighbourhoods were grouped into precincts with

similar characteristics, derived from detailed desktop

analysis and site visits described in the Mesh

Background Report. The Character Precincts were

further reviewed and refined through preparation of

the Strategy. They are summarised in

Appendix 2.

RDF –

Change areas were identified, having

regard to the above inputs and PPNs 90 and

91. Change areas were categorised as either

substantial, increased, incremental or minimal.

The resulting RDF can be seen in the

Growth

section.

Appendix 1

provides a summary of

opportunities, constraints and neighbourhood

character considerations that informed decision

making on substantial and moderate change areas.

Preferred Character Precincts

describe what an area

will look and feel like as it grows and changes (as

guided by the RDF). The Strategy seeks to guide and

shape change in a way that positively contributes

to character of the public and the private realms,

while also facilitating appropriate development in

suitable locations. This is outlined under

Character

,

and more detail is provided in

Appendix 2

.

The RDF will form the basis

for the statutory tools used

to manage and facilitate

development, primarily through

zones and zone schedules.

5

The proposed

zones and schedules are outlined in the

Implementation

section, with supporting

detail under

Growth

and

Character

.

9

The process of developing the RDF and the

Strategy took place according to the following steps:

The Draft Housing and Neighbourhood Character

Background Report was undertaken to detail

housing supply and needs and describe existing

neighbourhood character. This report also

identified and mapped a set of opportunities and

constraints for housing growth in Brimbank.

A Draft RDF was prepared, informed by the

identification of opportunities and threats from the

Background Report and discussion between Mesh

and Council about the relative importance of major

vs. minor opportunities and threats. This provided

a framework for refinement of opportunities,

constraints, potential changes areas and precincts.

General ideas of potential change areas (minimal,

incremental and substantial), were used to target

on-site verification of existing neighbourhood

character (as defined in the Background Report),

and as a basis for workshopping to determine

proposed preferred neighbourhood character. This

step included refinement of the Draft RDF (change

area boundaries and proposed schedule precincts).

The Draft RDF was used as the basis to assess

theoretical yields and capacity from the proposed

changes areas. Housing Strategy Directions were

developed to give more detail to the housing themes

of Diversity, Amenity and Sustainability. These

were then workshopped with the Council Project

Team before preparing the Strategy documents.

The above steps resulted in a refined RDF and

Housing + Neighbourhood Character Strategy

Directions for each theme. Once these were

generally agreed with the Project Team, Mesh

drafted the text of the Strategies (originally

two separate Strategies) and prepared updated

mapping. This step also involved lot coverage and

lot frontage analysis for each Character Precinct.

A selection of residents from the Brimbank

Community Voice consultation group provided

feedback on the themes of the strategies and voiced

their desires for housing growth in Brimbank. This

was used to shape the Vision of the Strategy.

The Council Project Team Provided

comments on the Draft Strategy, and a

final Strategy was prepared by Mesh.

The Strategy will be taken to Stakeholder

and Community Consultation (in

accordance with engagement plan as

determined by Council Project Team).

Through this process, the Strategy has sought to

balance a range of strategic considerations in order

to support and encourage new housing that meets

the needs of Brimbank’s growing community.

10

A number of other factors have also influenced

the proposed zone and schedule boundaries:

• In accordance with PPN90, change is

considered relevant to its context, and the

existing built form context is the ‘starting

point’ when planning for change. Most of

Brimbank’s residential areas are single storey.

Therefore, in most instances of established,

single-storey residential neighbourhoods,

the Neighbourhood Residential Zone

(NRZ), with its maximum two-storey height

limit, represents ‘incremental change’. The

‘incremental change’ NRZ was considered

to be the most appropriate zone to achieve

housing growth and neighbourhood character

objectives in the absence of an identified

‘opportunity’ to support higher change or

‘constraint’ that required minimal change.

• Both sides of the street were placed within

the same zone wherever possible.

• Where possible, properties in the NRZ and RGZ

were configured so that they do not have a

direct interface. They have been separated by

a road, lane or a General Residential Zone (GRZ)

transition area. However, in some instances this

separation was not appropriate. For example,

in Sunshine, heritage constrains growth on

certain properties (requiring an NRZ) in areas

that are otherwise suitable for substantial

change (RGZ). Other provisions in the zones

(such as the zone purpose and decision

guidelines) will be relied upon to ensure that

appropriate consideration is given to the design

of interfaces between the RGZ and NRZ.

• Existing zoning was a consideration, but it was

not a determining factor in making decisions

about change areas or proposed zoning.

• The existing zoning of large sites used for

other purposes (such as schools) has not

been recommended to change as part of

this Strategy. Rezoning may be considered

in the future, but this is likely to require

a masterplanning (or similar) process.

• Some areas affected by specific constraints,

such as proximity to industrial land, will

have additional overlays or controls.

, .idcommunity website, 2022.

7

Brimbank City Council,

2023.

8

Urban Enterprise,

, 2021 (updated 2022).

12

(Clause 11.01-1R).

Planning authorities are required to ensure

there is at least a 15-year supply of land (Clause

11.02-1S) to accommodate projected population

growth. Brimbank already has sufficient supply,

but State policy requires a review of zoning to

consolidate existing urban areas and ensure

development contributes positively to preferred

neighbourhood character (Clause 15.01-5S) and

responds to any constraints on development,

including heritage (Clause 15.03) and land use

incompatibility (Clause 13.07-1S). In Brimbank, land

use compatibility issues include proximity of new

housing to major industry, MHFs (Clause 1307-2S)

and the Melbourne Airport (Clause 18-02-7R).

Brimbank’s current planning scheme

11

includes a

range of local policies that provide greater detail

regarding State policy. The Municipal Strategic

Statement (MSS) identifies an increasing demand for

housing, to meet the needs of an ageing population

and to accommodate smaller household sizes (Clause

21.02). This housing, as envisaged by the strategic

land use vision (Clause 21.04) and the PPF, is to be in

the form of well-designed, high quality, sustainable

development (Clause 21.07-3, 22.02) that contributes

to the desired neighbourhood character and respects

heritage and landform (Clauses 21.07-3, 21.06-1,

21.06-3). Increased residential densities are to be

in and around activity centres that are serviced by

the principal public transport network (21.08-1).

Many of these policies, as well as the current zoning

framework, were implemented as part of Brimbank’s

previous Housing Strategy,

(2014).

They are being reviewed as part of this Strategy.

Key areas of focus relate to:

• Encouraging denser and more diverse

housing typologies in preferred areas around

the Sunshine MeAC, MACs and transport,

in accordance with State policy directions,

particularly where planned State government

investment is expected to lead to residential

growth and improve the commercial

viability of higher density housing forms.

• Supporting more incremental infill

development of single dwellings, townhouses

and units in other neighbourhoods.

• Strengthening guidance around how

development should respond to neighbourhood

character (currently there is limited guidance).

12

• Ensuring zones and schedules are designed

to achieve their full growth potential

(analysis in the Mesh Background Report

demonstrates that similar development

outcomes are being delivered across broad

areas of Brimbank, regardless of zone).

Further detail on policy is provided in

the

Mesh Background Report.

10

Such as community care accommodation and residential aged care

11

For the purpose of this section, we have referred to the existing planning scheme format (the LPPF). In the Implementation section,

reference is made to the proposed new Planning Scheme format (the PPF), as it is expected that this will be gazetted by the time this

Strategy is implemented.

12

As noted in VCAT decisions—see the VCAT analysis section of the Mesh Background Report for more detail.

16

In the context of this Strategy, housing change

refers to a change in the amount and/or type

of housing provided within the municipality.

There are range of factors that are driving

housing change in Brimbank, including:

• State planning directions for housing.

• A growing and changing population profile.

• A requirement to align housing supply

with needs and market expectations.

• Declining affordability.

• Investments in infrastructure and precincts.

• Expectations for enhanced

character and sustainability.

Each of these are discussed in turn.

Changes to metropolitan population projections,

13

which see Melbourne reaching 8.4 million by 2050,

have focussed State government policy (including

14

) on accommodating more housing

within established areas like Brimbank. This,

and other factors, have driven a change in State

direction on how housing and neighbourhood

character policy should be developed and how

residential zones are to be used and implemented.

Changes to State policy direction contained within

, including those relating to major

transport infrastructure investment, the Sunshine

Precinct, and the 20-minute neighbourhood

framework (see call out box), will affect how

Brimbank plans for housing. There is now an

increased emphasis on achieving 70% of new

housing development in established suburbs,

15

meaning that more infill development will need

to occur in Brimbank, particularly in areas rich

in transport, social and other infrastructure.

is currently being reviewed

and refreshed to be a plan for all of Victoria.

A 20-minute neighbourhood is one in which

residents can access most of their daily needs

(via shops, services, parks, healthcare facilities,

etc.) within a 20-minute return walk from home.

The idea of the 20-minute neighbourhood is

to support local communities and business

with viable densities and to give people

the option to walk or cycle for transport.

contains direction to

’. Melbourne

is to become a city of connected 20-minute

neighbourhoods, with connections between

neighborhoods and the central city.

13

Victorian Government, Victoria in Future, 2019.

14

was originally released in 2017, and an addendum was released in 2019 following updated population projections.

is currently being reviewed in accordance with the 5-year review schedule.

15

Victoria State Government,

2017.

Brimbank’s population is growing and ageing, and

its household size is declining. This combination

of factors will drive Brimbank’s housing need over

the next 20 years. The population is anticipated

to grow by almost 34,000 people to 2041 creating

a demand for almost 14,000 dwellings.

16

While families are still predicted to generate the

greatest housing demand in the future, the demand

from couples (including downsizers), singles, and

groups is forecast to proportionally increase (Figure

5). Members of the community, at different stages in

their lives, will have demands for different forms of

housing. This Strategy must anticipate those needs,

whilst also accommodating a greater population.

Change in Brimbank's

household composition

over the next 20 years

Population projections

and housing needs

Dwelling Structure 2021

16

Urban Enterprise,

(updated 2022).

17

Populations and dwelling projections are based on Forecast .id scenarios, rather than VIF, given they take into

consideration the impacts of the Covid-19 pandemic and the temporary closure of Australia’s international borders.

FIGURE 4. POPULATION PROJECTIONS AND HOUSING NEEDS

FIGURE 5. CHANGE IN BRIMBANK’S HOUSEHOLD COMPOSITION OVER

THE NEXT 20 YEARS (SOURCE: URBAN ENTERPRISE, 2022)

Change in Brimbank's

household composition

over the next 20 years

56.5% 53.8%

21.6% 22.2% 18.4% 20.4%

3.4% 3.5%

FIGURE 6. DWELLING STRUCTURE IN BRIMBANK

(SOURCE: URBAN ENTERPRISE, 2022)

Dwelling Structure 2021

SEMI-DETATCHED,

TOWNHOUSE ETC

80%

14%

APARTMENT

OR FLAT

5%

OTHER DWELLING

<1%

17

Population projections

and housing needs

2021 TO 2041

PROJECTIONS

AVERAGE

33,964

1,698

AVERAGE

2021 TO 2041

13,771

689

AVERAGE

2.4

18

According to analysis undertaken by Urban

Enterprise,

18

under its current residential zoning

Brimbank has a sufficient supply of zoned land

available for housing redevelopment to accommodate

its projected population growth (capacity for more

than 63,000 homes). The Sunshine MeAC alone

is theoretically capable of accommodating all

projected population growth. However, significant

housing growth in the Sunshine MeAC is a long

term proposition that will take time to come to

market. It will also likely comprise apartment-style

development, and will therefore be unlikely to

meet the needs of all sectors of the community.

Housing in other neighbourhoods will be infill

development-development of vacant or under

utilised land in within an area that is already

largely developed. This infill development

will depend on the willingness, expertise

and financial capacity of landowners to sell

or develop, and it will also take time.

This Strategy will aid Brimbank in aligning housing

supply with the needs of the market by introducing

strategic directions and actions to support a

diverse range of housing growth across well

located areas. This will enable Council to make

the most efficient use of existing infrastructure,

to provide a higher degree of liveability, and to

ensure that housing types and forms match need.

Brimbank’s current housing supply is very

homogenous. Most dwellings are separate houses

(80%), and the Brimbank housing market remains

driven by demand for detached housing,

19

particularly

for families. As an established municipality,

Brimbank has no further greenfield land to support

substantial supply of single detached housing.

Townhouses are a secondary option for many

in Brimbank. This housing form is particularly

attractive to first home buyers and downsizers.

Apartments and other denser and more diverse

forms of housing are in lesser demand at present,

and their delivery is limited due to a combination

of market preferences and development forces.

Different household types have propensities to live

in certain dwelling types (see ‘Housing Propensity’

call-out box). However,

20

notes that many people may

make different housing choices when presented

with other benefits, such as access to transport,

employment, services and/or recreation. Given

constraints on the supply of the preferred form

of housing in Brimbank (separate/detached), this

Strategy seeks to provide alternative options

that meet the changing needs and expectations

of the community and that support the market

to deliver this supply (refer to

Growth

).

18

Urban Enterprise,

(updated 2022)

19

Urban Enterprise,

2021 (updated 2022).

20

Infrastructure Victoria,

2021.

SOURCE: URBAN ENTERPRISE, 2022

• Families, one parent families and adult couples have the greatest propensity to live in separate houses.

• Group households, single person and adult couples have the greatest propensity to live in townhouses.

• Group and single person households have the greatest propensity to live in flats and apartments.

19

Brimbank has one of the most socio-economically

disadvantaged populations in metropolitan

Melbourne, with increasing instances of people

experiencing housing stress and homelessness.

21

As of 2021, Brimbank had the second highest

instance of people experiencing homelessness

in the Melbourne’s west, after Maribyrnong.

22

Brimbank’s housing, like many areas, is becoming

less affordable, and people on lower and

middle incomes are expected to experience

increasing affordability challenges when

seeking to purchase a home in Brimbank.

In 2016, approximately 6,478 households in

Brimbank needed affordable housing. This equated

to more than 9 per cent of all dwellings. As Brimbank

only had 2,091 dedicated affordable housing

dwellings (all provided as social housing), there

was an estimated gap of approximately 4,387

affordable housing dwellings in Brimbank.

23

Well-located, affordable rental and social housing

is an urgent need, and increasing supply is critical

to supporting the social and economic well-being

of communities in Brimbank (refer to

Diversity

).

Significant investment in infrastructure and

precinct planning will provide health, well

being, employment, and housing growth

opportunities to Brimbank and will be a catalyst

for further housing growth and change.

A third of the municipality has been designated a

National Employment and Innovation Cluster (NEIC)

for employment, innovation and health-related

uses. Within the NEIC, Sunshine and surrounds

have been designated a priority precinct for urban

renewal (one of only a handful across Metropolitan

Melbourne). The Sunshine Priority Precinct includes

the Sunshine MeAC and surrounding areas such as

land around Albion Station, the Victoria University

Sunshine and St Albans campuses, and the Sunshine

and the Western Centres for Health Research

and Education. This precinct can accommodate

substantial housing growth (potentially 21,000

higher density homes), including social and

affordable housing. It will also become a hub for

health care, education and new business investment.

Planned investment in major transport infrastructure,

including the Metro Tunnel, level crossing

removals, regional train services, station upgrades

and the airport rail

24

will further enhance the

connectivity and activation of this cluster.

These investments will enhance the amenity of

key activity centres in Brimbank by providing

additional goods and services as well as housing

and transport. It is likely that this will have flow

on effects that will lead to increased demand

for housing in residential areas nearby but

not considered to be part of these centres.

21

Brimbank City Council, Brimbank Community Profile 2023, 2023.

22

Ibid.

23

Affordable Development Outcomes, Affordable Housing in the City of Brimbank: Detailed Needs Assessment, July 2020.

24

Pending further State government decisions.

seeks to introduce stronger environmentally

sustainable development (ESD) requirements for

new housing as part of its emissions reduction

target. Brimbank’s

seeks to increase canopy tree cover across

the municipality not only within the public realm,

but also within private open space. For more

information on this Strategy and a list of other

strategies in Brimbank related to sustainability

or the environment, refer to

Sustainability

.

As part of consultation for this Strategy and

others, Brimbank’s community has expressed

a strong desire to enhance the character of

its neighbourhoods through high quality new

development and increased landscaping and tree

planting (refer to

Character

). Both of these have

the potential to impact the sustainability of housing

and the climate resilience of neighbourhoods.

The Strategy will address the issues of a growing

and changing population, aligning housing supply

with needs and market expectations and declining

affordability through its recommended strategic

actions, which include additional policy guidance

and zone changes. These have been developed

with regard to State planning directions and the

likely timeline of infrastructure enhancements

and development of the Sunshine Precinct. In

relation to sustainability, it will address aspects

of sustainability and climate resilience that

planning for housing has the ability to influence.

These are further explored under the themes

of

Growth

,

Diversity

and

Sustainability

.

25

Climate Council,

, 2022.

2019.

27

A ‘pedshed’ is a term that describes the pedestrian catchment (i.e., reasonable walking distance, usually defined as 400-800m) of a location.

28

Determined through GIS analysis and site visits.

Major

Residents can access shops and services to cover all

of their daily needs within a 5–10-minute walk.

Major

Residents can access public transport that meet

their daily needs within a 5–10-minute walk.

Major

Residents can access public transport likely to meet

their daily needs within a 5–10-minute walk.

Minor

Residents live near shops and services to meet their daily needs, but

it may be difficult or unpleasant to reach these via active transport.

Minor

Residents can access some shops and services, but

these may not meet all their daily needs.

Minor

Residents can access some shops and services, but

these may not meet all their daily needs.

Minor

Residents can access public transport within a 5–10-minute

walk, but the transport may not meet their needs.

Minor

Residents can access public transport within a 5–10-minute

walk, but the transport may not meet their needs.

Major

Operations of nearby industrial uses may potentially have

adverse amenity impacts (e.g., noise, odour) on residential

amenity. Separation distances from to State significant

industrial land, and buffers areas associated with MHFs in Deer

Park (Elgas Limited and Hexion Pty Ltd) and an open landfill

(Kealba) are considered major constraint to housing growth.

Major

Areas affected by the MAEO are exposed to noise from flight

paths. Development that results in an increase of people

affected by aircraft noise is generally not possible and noise

attenuation measures are required for new development.

Major

The HO limits the ability to demolish homes and undertake

certain types of redevelopment. Intensified development

is often not possible, or difficult, in most HO areas.

Major

The LSIO designates areas prone to flooding. Design interventions

are likely not suitable or cost-effective in these areas. However, the

LSIO affects a very limited amount of residential land in Brimbank.

Major

The EAO associated with the former Sunshine landfill requires

analysis to ensure the potentially contaminated land is suitable

for sensitive uses. Depending on the outcomes of this analysis,

sensitive uses, including housing, may be permitted.

Minor

Other EAO land will need to have a further assessment of land

on a case-by-case basis. Land use constraints may be able to be

mitigated during development (subject to further assessment),

and as such, are not considered a major constraint.

Minor

The SBO identifies land liable to inundation by overland

flows from the urban drainage system. It requires an

assessment of the potential effects of flooding on

development, and vice versa, for proposed development.

Minor

Areas of ‘special’ neighbourhood character are areas that were

identified in the Mesh Background Report to exhibit intact,

consistent character-related qualities and include areas in Sunshine

West, Albion and Keilor. Intensified development in these areas

is considered undesirable (refer to

Character

for further detail).

23 TABLE 1. EXPLANATION OF MAJOR AND MINOR OPPORTUNITIES

TABLE 2. EXPLANATION OF MAJOR AND MINOR CONSTRAINTS

24

FIGURE 7. HOUSING OPPORTUNITIES AND CONSTRAINTS

25

In addition to the above opportunities and

constraints, this Strategy is being prepared in the

context of ongoing strategic planning work at

the State government level and at a time when

significant policy shift in relation to housing is

occurring. This will have an impact on planning

for housing in the future. These are expected to

include the Australian Noise Exposure Forecast

(ANEF) 2022 associated with the Melbourne

Airport Masterplan and the future planning

for the Sunshine Precinct, specifically Albion

Quarter. These areas are shown in Figure 8.

29

29

Figure 8 includes mapping of the N Contours given

they have now been made available on VicPlan.

2023.

31

When applying normal ResCode standards.

32

In fact, many areas of Brimbank already permit development of 2 or 3 storeys, yet single-storey development remains dominant.

The Strategy themes are:

Providing the right amount of housing at the

appropriate location, typology and scale to enhance

liveability and affordability within Brimbank.

Ensuring new development contributes positively

to the preferred character of Brimbank’s diverse

neighbourhoods, through better design and

enhanced landscaping in areas targeted for

growth, and by respecting and celebrating existing

valued character across other neighbourhoods.

Facilitating different forms of housing to

meet the diverse and changing needs of the

community, including housing that offers greater

choice, equity, adaptability and affordability.

Ensuring housing is sustainably designed, is located

to minimise car dependence and contributes to

the climate resilience of Brimbank’s community.

Minimising land use conflict between

existing non-residential uses and areas

identified for housing growth.

31

Providing the right amount of housing at the appropriate location, typology

and scale to enhance liveability and affordability within Brimbank.

The Change Areas Plan (Figure 9) identifies areas

for substantial change, moderate change (considered

by this Strategy to be a subset of substantial

change),

38

incremental change and minimal change.

All of these areas are expected to accommodate

a degree of housing growth. According to State

planning policy, all land can accommodate growth

unless there are major constraints preventing this.

39

The RDF (Figure 10) identifies the most appropriate

zoning to facilitate the desired levels of change.

The most intensive housing growth in Brimbank

will occur in the activity centres of Sunshine

MeAC, the Albion Quarter in the Sunshine

Priority Precinct, and in an around Sydenham/

Watergardens MAC. This will take the form of

apartment development and will be planned and

managed through other planning frameworks. This

Strategy focusses on growth in the established

residential areas outside of activity centres.

38

This has been included as a sub-designation to reflect the fact that the substantial change category includes both RGZ areas and GRZ

areas. The moderate change areas are those that are substantial change GRZ.

39

Department of Transport and Planning,

, 2023.

32

moderate change areas

Incremental change areas

Minimal change areas

Each change area will accommodate a range

of housing typologies to suit different

household structures. However, some housing

typologies will appeal to certain household

structures more than others (refer to Appendix

3). Housing typologies are therefore best

directed to change areas as follows:

Separate houses

Townhouses

Apartments

, Australian Unity website,

31 March 2023.

43

Ardeer Station area

The area surrounding Ardeer Station has access to

a train service (currently V/Line services) as well as

bus services and a cycling route along Forrest Street,

which provide connections to metropolitan train

services at Sunshine Station. Ardeer Station itself

is does not have any facilities and is surrounded by

high noise attenuation fencing. The area does not

have an activity centre, but there is the presence

of some non-residential uses, including a primary

school, a convenience store, active open space and

a community park. It also has access to linear trails

and green spaces along Kororoit Creek to the north.

These factors generally support growth and

change; however, neighbourhood character is also

a consideration. The areas north and south of the

train line exhibit markedly different character.

The area to the north contains a mix of housing

styles, with emerging 2-storey development.

The area to the south exhibits a consistent

housing style, with single-storey, brick housing

with low fencing characteristic of the area.

FIGURE 14. ARDEER SUBSTANTIAL CHANGE AREA

To encourage housing growth of 3+ storeys in areas immediately adjacent to significant and

highly accessible activity centres and train stations (substantial change areas).

To encourage development of up to 3 storeys in areas accessible to activity centres and train stations,

but where a more sensitive built form response is required (moderate change areas).

To ensure development of 2−3+ storeys provides a sensitive interface to adjoining

change areas and provides a transition to areas of lesser change.

To ensure new development is respectful of existing or preferred neighbourhood character in moderate change areas (GRZ).

To avoid underdevelopment of land in substantial change areas.

For areas where a higher density of growth is encouraged and where the form

of growth will set a new preferred character for the area:

• Zone to RGZ.

• Apply RGZ schedules that identify the scale of development and design outcomes expected.

For areas where 3 storeys is suitable and where neighbourhood character will still need to be considered:

• Zone to GRZ.

• Apply GRZ schedules that will ensure housing growth is respectful of neighbourhood character.

Incorporate provisions in policy and the RGZ and GRZ schedules to encourage development

typologies appropriate to the site and zone. This is expected to include an emphasis on

encouraging land assembly and discouraging underdevelopment of the site.

Require specific controls (e.g., DDO or DPO) for large scale sites that may redevelop

in the future, to guide preferred development outcomes.

(2014) include:

Current policy creates ambiguity about preferred

neighbourhood character in areas designated

for substantial growth. This has caused policy

conflict, and in combination with other development

and market forces, may have contributed to

underdevelopment in areas where greater density

and diversity of housing is encouraged.

Many of Brimbank’s neighbourhoods will

accommodate only incremental growth. At

present there is a lack of clear direction

about how incremental development should

respond to neighbourhood character, and

how the maximum height provisions will

impact Brimbank’s predominantly single

and double-storey built form character.

State policy now clarifies a previously ambiguous

approach to balancing heritage protection and

housing growth. Planning authorities must

now avoid conflicting policies. Heritage is

considered under to be a major constraint on

housing growth, and, as such, areas affected by

the HO are designated as minimal change.

Community engagement has indicated an

acceptance that neighbourhoods will grow

and change, but that this change should

contribute positively to the public realm, provide

more landscaping, and be high quality.

44

Lack of policy in the past has led to uncertainty

about how to balance growth and character.

Analysis of the existing character of

Brimbank’s neighbourhoods undertaken in

2019 has required updating in the context of

new State government guidance informing

policy for preferred character outcomes.

44

Landscaping and quality of development is address in more detail under

Sustainability

).

54

45

Department of Transport and Planning (DTP),

2023.

This Strategy has grouped together neighbourhoods

that share common characteristics and attributes

into six Existing Neighbourhood Character

Precincts and considered them in the context of

the opportunities for housing growth and change

identified in the RDF (refer to Figure 10). The

Appendices provide a detailed summary of each

precinct and identify valued character attributes

that have been considered when evaluating

opportunities for growth and change and

developing descriptions of preferred character.

While the existing features of neighbourhoods

have been catalogued and assessed at a moment

in time, it is normal for neighbourhood character

to evolve. For some neighbourhoods, such as

those with heritage dwellings or those areas that

have been masterplanned, this will be a slow

process. For neighbourhoods experiencing rapid

redevelopment and growth, existing character will

more quickly give way to a new character. Unless

areas are affected by a constraint that prohibits

or severely limits their ability to accommodate

growth, State guidance indicates that they should

support and allow for increased housing.

45

The Mesh Background Report identified a series of

emerging character types and precincts based on

the findings in the Suburb Profiles. These precincts

were defined based on the comparative differences

of certain areas, and it was expected that the

emerging character types and precinct boundaries

would evolve during preparation of the Strategy.

This has been the case for the Petrik Drive area in

Keilor, which was initially grouped into Precinct E. Upon

further analysis, it was considered that this discrete

area exhibited characteristics more representative of

Precinct F, and as such, it has been re-categorised.

2020.

55

Urban Enterprise, Background Housing Strategy: Background

Analysis, Brimbank City Council, 2021 (updated 2022).

affordable housing is defined as ‘…housing,

including social housing, that is appropriate for

the housing needs of any of the following:

(a) very low income households;

(b) low income households;

(c) moderate income households.’

Income ranges for these three categories are

published annually by the Victorian Government.

56

Households in Australia are considered to be in

a state of rental stress or mortgage stress when

they are in the bottom 40 per cent of Australia’s

income distribution and spending more than

30 per cent of their income on housing.

57

Increasing the supply of affordable housing is a

complex challenge that requires a coordinated

approach, involving all levels of government.

Federal and State governments have the most

significant policy influence in this area. However,

Council, as planning authority, plays a critical

role in supporting and encouraging a variety

of housing types and tenures to meet current

and future need. Council also needs to ensure

there is a sufficient supply of land for affordable

housing close to jobs, transport and services.

Brimbank’s Position Statement on Social and

Affordable Housing (2022) advocates for the

provision of social and affordable housing to capture

and share value created through development

(often referred to as inclusionary zoning).

Comprises various types of housing including

social housing and other housing initiatives and

services that provide for the housing needs

of very low to moderate income households.

Social housing includes public housing (owned

and managed by the State government) and

Community housing (owned and managed

by a not-for-profit organisation).

Affordable housing may also encompass

short-term housing, such as crisis,

emergency and transitional housing, that

include a range of specialist services

to support and help those in need.

Affordable housing strategies may also

target key workers, including those that

provide essential human services to the

community. The key worker definition may

also encompass a broader definition of

occupations who generally require an in-person

presence at their location of employment

and who earn a low to moderate income.

56

Affordable Development Outcomes,

Brimbank City Council, 2020.

57

Urban Enterprise,

2021 (updated 2022).

(2017), the State’s

strategy to guide the provision of a range of

affordable and accessible housing, states that

it is critical for new housing to be located

close to jobs, transport and services.

This is reflected in

, which

includes affordable housing options as a

component of 20-minute neighbourhoods.

68

This is currently not a mandatory planning

requirement and, as such, incentives and voluntary

agreements negotiated on a case-by-case basis

are the best mechanisms available to Council

to secure affordable housing contributions in

association with new development. In this context,

this Strategy strongly encourages affordable

housing as a discretionary component of well

located new development, and where landholders

propose rezoning of a site for higher-value

development outcomes.

58

A rezoning process

gives Council a stronger position to negotiate

for affordable housing contributions and can

provide more certainty to developers, compared to

voluntary negotiations through the planning permit

processes. To support this, Council policy guidance

59

on how to negotiate for voluntary affordable

housing contributions could assist officers and

provide clarity to the development community.

The Position Statement also directs the Strategy to

include guidance on housing need, policy objectives,

potential locations and proposed planning actions

to strengthen social and affordable housing

outcomes through the Brimbank Planning Scheme.

This Strategy influences the spatial distribution of

new housing and diversity of dwelling types through

zoning and planning policy changes. An Affordable

Housing Strategy would provide more detail about

other ways for Council to support affordable housing,

including as an owner or investor in land, assets

and funds, as a partner and facilitator, and as an

advocate-as articulated in the Position Statement.

Preferred locations for affordable housing are those

near activity centres and public transportation,

with easy access to goods and services. This aligns

with where substantial and moderate change

is indicated on the RDF. For new development

proposals in these areas, Council will seek to

negotiate a proportion of affordable housing

during the planning permit assessment.

All housing types of increased densities are

appropriate for these locations, from registered

crisis and social housing to affordable market

housing to luxury apartments. However, it is most

important for crisis housing, social housing and

affordable market housing to be located in these

areas. Locating these kinds of housing near activity

centres and transportation will enable residents

with the least amount of discretionary income to

spend on transport to take advantage of excellent

access to existing amenities and services.

In addition to zoning and policy support,

meeting Brimbank’s identified affordable

housing need will require other interventions

by all levels of government.

58

For example where a non-residential site is no longer required for its current purpose and is proposed to be rezoned for residential purposes.

59

This refers to an internal Council policy document as opposed to planning policy in the planning scheme.

To encourage new, well-located development to include affordable housing to be owned and

managed by a registered housing association or registered housing provider.

To encourage public landowners to use surplus or underutilised land for the provision of social and affordable housing.

Include local policy to extend existing State policy at 16.01-2S on affordable housing to:

• Support affordable housing near activity centres, and where there is frequent, high quality public transport.

• Encourage affordable housing as a discretionary component of new development.

• Set an expectation for engaging in voluntary negotiations for all development in substantial and moderate change areas.

Develop an internal planning policy to provide guidance on negotiating affordable housing contributions as

part of new development and rezonings that will result in a significant value uplift to landholders.

Investigate further options, such as pilot projects, to encourage affordable housing (including social housing) in Brimbank.

69

Brimbank’s population is increasingly including

couples, downsizers, empty nesters, small families

and multi-generational families—each with a

propensity for different housing types (see

Context

).

It is also growing and ageing, and household size

is declining. These trends are predicted to increase

the demand for townhouses and apartments.

Brimbank’s housing market will need to diversify

both in typology, tenure and design to enable

its population to find housing that meets their

needs, including the ability to age in place. Table

6 identifies the projected proportions of different

household structures in 2041 and the housing that

is expected to be most suitable for them. At present,

most households in Brimbank tend to preference

separate houses, regardless of structure. This may

be due to a combination of factors, including lack

of suitable alternatives that meet their needs.

Household type

+ projected % of

market in 2041

Key housing preferences

Current availability issues

Separate houses and

townhouses.

Lack of new separate house options,

declining affordability.

Separate houses, townhouse

and apartments.

Relative lack of smaller dwellings, limited

options for downsizers prevent larger,

separate houses being ‘released’ to market.

Townhouses and apartments.

Some separate houses.

Lack of smaller dwellings, declining rental

affordability, slow delivery of apartments.

Townhouses and apartments.

Some separate houses.

Lack of smaller dwellings, declining rental

affordability, slow delivery of apartments.

60

Such as share houses.

TABLE 6. HOUSEHOLD STRUCTURES AND POTENTIALLY SUITABLE HOUSING TYPES (SOURCE: URBAN ENTERPRISE, 2022).

Apartments that are able to be comfortably

lived in with a family may include flexible

spaces that can be adapted throughout the

day or over the years and more bedrooms than

standard. They are designed with safety in

mind (e.g., balcony safety), provide sufficient

storage, and often provide visible, usable and

safe outdoor play areas in communal spaces,

generous accessways and lifts for prams.

70

With no new land supply to deliver more detached

housing, the Strategy seeks to provide alternative

options for those who currently prefer to live in

detached homes, but would consider other options,

and for residents seeking to downsize or move into

aged care. Not only will this accommodate residents

looking for diverse options, but it will release

their existing detached housing to the market for

households that need more space. This will ensure

Brimbank will continue to accommodate households

such as large and multi-generational families.

Specialised housing forms, such as student and

key worker

61

housing, will likely become more

in demand as investment directed to university

and hospital precincts increases the number

of students and health workers in Brimbank.

Alternative housing forms, including temporary

portable housing (see call-out box), may be an

option for meeting certain housing needs. These

housing types will require further investigation

to determine potentially suitable sites and to

facilitate partnerships with delivery agents.

Diverse housing typologies also need to be mindful

of accommodating a range of needs. These include

diverse dwelling mixes (different numbers of

bedrooms), varied tenure options (rent or buy) and

child-friendly and pet-friendly designs. Brimbank

currently has a low proportion of one and two

bedroom dwellings (2% and 11% respectively).

62

Apartment buildings, which typically contain

one or two-bedroom apartments, should

also offer bedroom configurations suitable

for families (three plus bedrooms).

Increasing the supply of diverse housing is

also an important factor in contributing to

overall housing affordability. With an increase

in the amount of high quality, smaller housing

options on the market, renters and buyers will

be more likely to find options that meet both

their needs in terms of price and amenity.

Figure 10 presents the suitability and locational

preference for the housing typologies that

will be encouraged throughout Brimbank. This

list of housing typologies is not exhaustive,

and discussion of emerging and innovative

housing forms and designs is encouraged.

MUZ sites present some potential opportunity for

diverse housing forms. The stocktake of MUZ sites

in the Mesh Background Report noted that some

MUZ sites are occupied by a range of non-residential

uses such as commercial centres, carparks, schools,

etc. Some are undeveloped or underdeveloped, and

others have been recently developed as medium

density residential housing. There is currently no

overarching strategy to determine the potential

of these sites and whether their zoning presents

opportunities for additional growth and diversity.

61

Refer to call out box in Section 6.1 for discussion on Key Worker definitions.

62

Urban Enterprise,

2021 (updated 2022), p.41.

has

removed permit requirements for small second

dwellings. This initiative is expected to support

more of this type of housing. Other incentives

to support increased housing diversity may

include variations to car parking requirements,

addressed under the

Sustainability

theme.

Targets can be used to encourage more accessible

and adaptable housing in large developments.

Benchmark targets from other jurisdictions/

development types indicate that a 20-50%

target of accessible/adaptable housing in large

developments may be appropriate.

65

When

applied to other kinds of developments and

housing typologies, different benchmarks may be

more suitable. Further investigation is required

to identify the right targets for Brimbank.

64

Unless otherwise legislated, targets contained in policy are voluntary only and subject to discretion under the integrated decision-making

provisions of the planning scheme.

65

NSW’s Apartment Design Guidelines (20%) and Victoria’s Clause 58 (50%).

There are opportunities to explore other broader

ideas to encourage diversity outside the

planning policy framework. They may include

looking to other jurisdictions, case studies

and advocacy actions. These ideas require

further investigation, and may be adopted in

the future (where possible) if they are practical

and considered beneficial to Brimbank.

State policy changes:

Advocating to State

government for state policy changes that

give greater strength to and incentivise

affordability, diversity and universal design

requirements (such as Council’s current

advocacy for inclusionary zoning).

Government funded projects:

Advocating

to state planning and development agencies

for enhanced diversity and universal design

in State government funded projects (such

as in the Sunshine Priority Precinct)

Training + support:

Supporting Council planners to

provide active direction to applicants and agencies

to facilitate well-designed diverse housing.

Pilots:

Exploring options to partner or pilot

demonstration projects or new planning

innovations that incentivise diversity.

Education + leadership programs:

to

demonstrate the benefits of prioritising

housing diversity and universal design as part

of development proposals and the actively

take leadership on these issues through

early design processes (for example, design

excellence programs – refer to

Sustainability

).

74

To facilitate a substantial increase in the diversity of Brimbank’s housing stock, in terms

of housing typology, dwelling mix (number of bedrooms) and tenure.

Update local policy to further encourage diverse housing typologies in preferred locations, in accordance with Table 7.

Prepare local policy that strengthens guidance regarding housing mix, accessible

housing for older and less mobile people, and child-friendly housing.

Investigate use of VicSmart for straightforward application types.

Explore other ideas, case studies and advocacy actions which may contribute to improved

housing diversity outcomes and adopt any that may offer benefits to Brimbank.

Undertake a holistic review of MUZ sites and develop a comprehensive strategy for their

future planning and capacity to support growth and diverse housing typologies.

Investigate opportunities for alternative housing options, including pilot programs, within Brimbank.

Investigate needs and opportunities for specialised housing in Brimbank.

TOWNHOUSES, SUNSHINE