title: Ballarat West Development Contributions Plan council: ballarat state: vic category: growth-area classification: MAJOR status: adopted-by-council-awaiting-ministerial-approval last_compiled: 2026-04-16 source_docs:
- ballarat-west-dcp-version-5.1.txt
- ballarat-west-development-contribution-plan-dcp-february-2026.txt
- 11-september-2024-council-meeting-agenda-with-attachments-compressed_part1.txt
- 25-march-2026-council-meeting-agenda-with-attachments-reduced_part1.txt
- 25-march-2026-council-meeting-agenda-with-attachments-reduced_part2.txt
- 12-march-2025-planning-delegated-committee-agenda-with-attachments-part-3.txt
- financial-plan-2025-2035.txt
- ballarat-west-precinct-structure-plan-psp-february-2026.txt
- ballarat-west-psp-non-dcp-road-and-intersection-upgrades.txt
- ballarat-west-growth-area-housing-and-growth-enabling-infrastructure-bnif.txt
- ballarat-west-growth-area-new-schools_feb2026.txt
- ballarat-west-native-vegetation-precinct-plan-nvpp-amended-february-2026.txt
- ballarat-west-growth-area-growling-grass-frog-conservation-management-plan.txt
- ballarat-west-employment-zone-master-plan-part-a-2012.txt
Ballarat West Development Contributions Plan
The Ballarat West DCP is the single largest infrastructure funding mechanism in Ballarat’s planning history, with a total project cost of 514 million across 1,286 hectares and a real-world funding gap that has escalated from 51 million at inception in 2014 to 118.7 million — making it the binding financial constraint on Ballarat's western growth front. The DCP's revised levy rates under Amendment [[c234ball|C234ball]] more than double the residential DIL from 201,471 to 423,379 per net developable hectare, but even at these levels the plan cannot fund its own infrastructure because 40% of the precinct was already subdivided at the old rates, 41.6 million in community infrastructure is permanently lost to the CIL statutory cap, and the indoor recreation centre alone escalated from 13.6 million to 58 million. Council’s Financial Plan 2025–2035 projects $142.4 million in net new borrowings over ten years to bridge this and other capital shortfalls — and that projection does not yet account for the revised DCP gap or the forthcoming Ballarat North PSP DCP.
Background
Origins: From Growth Area Plan to Statutory DCP (2009–2014)
The Ballarat West Growth Area was first identified in the Ballarat West Growth Area Plan (March 2009) as the primary greenfield expansion front for western Ballarat. The Growth Area Plan identified approximately 1,290 hectares of land across what were then four sub-precincts, with Sub-Precinct 3 (Lucas/Alfredton West) subsequently progressing independently. (Source: ballarat-west-growth-area-plan-march-2009.txt)
The Ballarat West Precinct Structure Plan was prepared by SMEC Urban and incorporated into the Ballarat Planning Scheme via Amendment C158 on 1 November 2012. The PSP established the spatial framework — land use budget, road hierarchy, drainage corridors, activity centre hierarchy, community facility network, and open space provision — that the DCP was designed to fund. (Source: ballarat-west-precinct-structure-plan-psp-february-2026.txt)
The DCP itself was prepared by Urban Enterprise Pty Ltd (authors Matt Ainsaar, Paul Shipp, Jojo Chen) and approved by the Minister for Planning under Amendment C167 on 30 October 2014. It applied to three sub-precincts:
- Sub-Precinct 1 (Bonshaw Creek): 706 hectares — the largest sub-precinct, characterised by the Bonshaw Creek corridor, the MR Power Park regional open space reservation, and the Mining Park heritage-landscape reserve
- Sub-Precinct 2 (Greenhalghs Road): 294 hectares — the central sub-precinct, containing the Greenhalghs LAC (Local Activity Centre) open space, the proposed 8-court indoor recreation centre, and frontage to Glenelg Highway
- Sub-Precinct 4 (Carngham Road): 289 hectares — the southern sub-precinct, bounded by Ballarat-Carngham Road to the north and Ross Creek Road to the east, with the NAC (Neighbourhood Activity Centre) open space
(Source: ballarat-west-dcp-version-5.1.txt)
The original DCP expressed all costs in January 2012 dollars and had a 40-year lifespan from incorporation. Total infrastructure cost was 257,522,034 with a funding gap of 55,806,911. (Source: ballarat-west-dcp-version-5.1.txt)
Version 5.1 (June 2017): The CIL Cap Adjustment
Version 5.1 was a minor revision triggered by the Governor in Council Order of 11 October 2016 that raised the CIL cap from 900 to 1,150 per dwelling. The revision updated the CIL cap figure in the DCP but did not otherwise alter infrastructure scope, costings, or levy methodology. All costs remained in January 2012 dollars. (Source: ballarat-west-dcp-version-5.1.txt)
The 2021–2026 Comprehensive Review
Council commenced reviewing the existing Ballarat West PSP and DCP in 2021. The review was driven by three factors:
- The mandatory 5-year review provision in the DCP — by 2021, the DCP was seven years old and had not been comprehensively reviewed since adoption.
- Construction cost escalation that had rendered the 2012 costings obsolete — the Panel later heard evidence that construction costs had increased approximately 34% since the original DCP.
- The reality of precinct development — approximately 39% of the NDA had already received Statements of Compliance, establishing that the old levy rates were permanently locked in for a substantial portion of the precinct.
(Source: 11-september-2024-council-meeting-agenda-with-attachments-compressed_part1.txt; 25-march-2026-council-meeting-agenda-with-attachments-reduced_part1.txt)
The review produced a suite of updated technical reports:
- Community and Recreation Infrastructure Report — ASR Research, 29 May 2024
- Transport Projects Review — Milward Engineering Management, 14 February 2024
- Drainage Strategy Update — Engeny, 19 December 2024
- Land Valuation Assessments — Opteon Property Group, June 2024
- Indoor Recreation Centre Estimate Peer Review — WT Partnership, 14 July 2024
(Source: 25-march-2026-council-meeting-agenda-with-attachments-reduced_part1.txt)
Amendment C234ball: Statutory Process
The statutory amendment process followed this sequence:
| Date | Event |
|---|---|
| 11 September 2024 | Council resolved to adopt the updated PSP and DCP; applied to the Minister for Planning for authorisation of Amendment C234ball |
| 12 March 2025 | Council adopted revised PSP (February 2025) and DCP (February 2025) at the Planning Delegated Committee |
| 3 July – 4 August 2025 | Amendment C234ball formally exhibited; 22 submissions received |
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Analysis
1. Land Budget and Demand Units
The DCP’s levy structure is anchored to two demand units: hectares of Net Developable Area (NDA) for the Development Infrastructure Levy (DIL), and individual dwellings for the Community Infrastructure Levy (CIL). Understanding the land budget is therefore essential to understanding how levies are calculated and what they yield in total revenue.
Land Budget Comparison: v5.1 vs v7.4
| Land Use Category | v5.1 (ha) | v7.4 (ha) | Change (ha) |
|---|---|---|---|
| Total Area | 1,289.90 | 1,285.50 | −4.40 |
| Roads (existing reserves + DCP) | 86.29 | 84.99 | −1.30 |
| Drainage and Conservation | 108.74 | 96.96 | −11.78 |
| Sub-total Encumbrances | 195.03 | 181.95 | −13.08 |
| Gross Developable Area | 1,094.87 | 1,102.55 | +7.68 |
| Active Open Space | 57.61 | 36.48 | −21.13 |
| Passive Open Space | 58.15 | 64.59 | +6.44 |
| Community Facilities | 7.60 | 4.40 | −3.20 |
| Government Education | 20.50 | 20.56 | +0.06 |
| Non-Government Education | 3.50 | 3.50 | 0.00 |
| Sub-total OS/Community/Education | 147.36 | 129.53 | −17.83 |
| Net Developable Area (NDA) | 947.51 | 973.03 | +25.52 |
(Sources: ballarat-west-dcp-version-5.1.txt, Tables 8–9; ballarat-west-development-contribution-plan-dcp-february-2026.txt, Tables 8–9)
The NDA increase of 25.52 hectares is significant because it means more land pays the DIL, increasing total levy revenue. The increase comes primarily from:
- Reduced active open space allocation (−21.13 ha): The MR Power Park reserve was reduced from 18 ha to 4 ha in the updated PSP, and several other AOS reserves were reconfigured. Land that was previously classified as open space encumbrance has been reclassified as NDA.
- Reduced drainage and conservation land (−11.78 ha): Audited drainage corridors and conservation areas are smaller than originally estimated.
- Partially offset by increased passive open space (+6.44 ha), reflecting development that has occurred and the resulting passive open space dedications.
NDA Breakdown by Rate Type
| Rate Type | v5.1 (ha) | v7.4 (ha) | Change |
|---|---|---|---|
| Residential | 909.74 | 934.82 | +25.08 |
| Commercial/Industrial | 37.77 | 38.21 | +0.44 |
| Total NDA | 947.51 | 973.03 | +25.52 |
(Sources: ballarat-west-dcp-version-5.1.txt, Table 9; ballarat-west-development-contribution-plan-dcp-february-2026.txt, Table 9)
NDA by Sub-Precinct (v7.4)
| Sub-Precinct | Total Area (ha) | NDA (ha) | NDA as % of Total |
|---|---|---|---|
| SP1 (Bonshaw Creek) | 707 | 498.94 | 70.6% |
| SP2 (Greenhalghs Road) | 296 | 229.12 | 77.4% |
| SP4 (Carngham Road) | 287 | 243.53 | 84.9% |
| Total | 1,285.50 | 973.03 | 75.7% |
(Source: ballarat-west-precinct-structure-plan-psp-february-2026.txt)
SP4 has the highest NDA yield (84.9%) because it has fewer drainage constraints and no major regional open space reservation. SP1 has the lowest yield (70.6%) due to the MR Power Park, Mining Park, and the Bonshaw Creek/Burrumbeet Creek drainage corridors.
Dwelling Yield
| Metric | v5.1 | v7.4 | Change |
|---|---|---|---|
| Projected dwellings | 14,276 | 15,839 | +1,563 (+10.9%) |
(Sources: ballarat-west-dcp-version-5.1.txt, Table 10; ballarat-west-development-contribution-plan-dcp-february-2026.txt, Table 10)
The dwelling yield increase reflects both the expanded NDA and revised density assumptions. The PSP v7.4 establishes a housing density framework with:
- Conventional density areas: 912.45 ha at approximately 16–20 dwellings/NRHa
- Medium density areas: 20.93 ha at approximately 25 dwellings/NRHa
- Average density across PSP: 16.94 dwellings per NDHa
(Source: ballarat-west-precinct-structure-plan-psp-february-2026.txt, Table 2)
The Panel recommended a target of 20 dwellings per NDHa. Council partially accepted this, applying the target to “subdivisions on undeveloped sites” only — recognising that already-developed areas within the PSP will not be re-subdivided to meet a higher density target. (Source: 25-march-2026-council-meeting-agenda-with-attachments-reduced_part1.txt)
Dwelling yield by sub-precinct (v7.4):
| Sub-Precinct | Conventional Density (dwellings) | Medium Density (dwellings) | Total Dwellings | Density (dw/NRHa)
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Current Status
Amendment C234ball was adopted by Council on 25 March 2026 and has been submitted to the Minister for Planning for approval. The DCP v7.4 rates will take effect upon gazettal. Until then, the existing DCP rates continue to apply, and each new Statement of Compliance issued at the old rates further erodes the collectible levy base. (Source: 25-march-2026-council-meeting-agenda-with-attachments-reduced_part1.txt)
Key pending actions:
- Ministerial approval of C234ball — timing unknown
- CIL cap review — the Governor in Council may adjust the CIL cap for the 2025/26 financial year, but any increase is expected to be modest
- NVPP sunset — expires 30 December 2026; developers must secure offsets before this date
- GGF CMP review — Council must complete review of the draft 2023 Conservation Management Plan before December 2026
- Ballarat North DCP — preparation ongoing; will create second funding gap on same Council balance sheet
Dependencies
- Blocks: Delivery of community infrastructure in ballarat-west-psp area; Council must bridge the $118.7M gap through borrowings, grants, or scope reductions before infrastructure can be delivered at full specification
- Blocked by: Ministerial approval of Amendment C234ball; every month of delay means more land subdivides at old rates, widening the blended funding gap
- Informed by: ballarat-west-psp February 2026; ASR Community Needs Assessment 2024; Milward Transport Projects Review 2024; Engeny Drainage Strategy Update 2024; Opteon Land Valuations 2024; WT Partnership Indoor Recreation Centre Peer Review 2024
- Implements: ballarat-west-psp; growth-areas-framework-plan; Victorian Housing Statement (2023) housing targets
- Conflicts with: Council’s Financial Plan 2025–2035 (which has not modelled the revised DCP gap); future ballarat-north-psp DCP (which will compete for the same borrowing capacity); CIL statutory cap (which structurally underfunds community infrastructure)
Cross-Jurisdictional Links
- Central Highlands Water services the Ballarat West PSP area. Sewer augmentation (Bonshaw pump station,
4.6M) and water infrastructure (Greenhalghs Road trunk main,1.2M) are prerequisites for development staging but are funded through CHW’s capital works program and developer charges, not through the DCP. The BNIF advocacy package explicitly links CHW infrastructure delivery to housing outcomes. - Department of Transport and Planning (DTP) is the road authority for arterial roads (Ballarat-Carngham Road, Glenelg Highway). DTP’s position on intersection treatment (opposing signalisation at DI_JNC_02) directly influenced the Panel’s recommendation and the DCP’s final levy rate.
- Golden Plains Shire — the PSP area’s southern boundary adjoins Golden Plains Shire. New schools in the PSP area will “provide additional capacity to meet future regional demand from developments in the north of Golden Plains Shire.” (Source: ballarat-west-growth-area-new-schools_feb2026.txt)
- Ballarat North PSP — the forthcoming northern DCP will create a second major infrastructure funding obligation on the same Council balance sheet. The Financial Plan explicitly flags this as an unmodelled risk.
- VPA Benchmark Costings — the DI_OS_06 cost is based on VPA benchmarks, meaning comparable indoor recreation centres in other VPA-led PSPs across Victoria will face similar cost pressures. This has state-wide implications for DCP cost escalation.
- Victorian Government Housing Statement (2023) — the draft housing target of 46,900 new homes by 2051 for Ballarat places the DCP’s infrastructure funding gap in the context of a binding state policy directive. Failure to resolve the funding gap constrains the rate at which these housing targets can be met.
16. Detailed Sub-Precinct Analysis
Each of the three sub-precincts has distinct characteristics that affect DCP infrastructure delivery, levy collection, and development staging.
16.1 Sub-Precinct 1: Bonshaw Creek (707 hectares)
SP1 is the largest sub-precinct, accounting for 55% of the total PSP area and approximately 54% of the projected dwelling yield (8,590 dwellings). Its defining characteristics:
Geographic features:
- The Bonshaw Creek corridor traverses the sub-precinct, creating significant drainage constraints and the primary waterway corridor for GGF habitat
- The MR Power Park regional open space reservation (4 ha in v7.4, reduced from 18 ha in v5.1) is located in the northern portion
- The Mining Park (10.19 ha Crown Land) preserves gold mining heritage landscape
- Northern and eastern boundaries abut the existing Delacombe and Alfredton urban areas
Infrastructure concentration: SP1 contains the highest concentration of DCP infrastructure items:
- 14 of 20 drainage sub-catchments (DI_DR_AA/AB through DI_DR_CX/DC)
- 4 of 6 community facility buildings (CI_CF_1 through CI_CF_4)
- 3 AOS reserves (MR Power Park, Mining Park, MAC Reserve)
- The Delacombe Major Activity Centre — the primary commercial and community services hub
- Both heritage/geotechnical study items (DI_O_2 and DI_O_3)
Development status: SP1 is the most advanced sub-precinct, with the majority of the approximately 39% already-subdivided NDA concentrated here. Development has progressed from the north and east (adjacent to existing urban areas) moving south and west. The areas immediately around the Delacombe Town Centre are substantially developed, including the recently delivered childcare facility and combined childcare/community centre.
Key constraint: The Bonshaw sewer pump station ($4.6M, Central Highlands Water) is required for development of approximately 200 hectares in the eastern Bonshaw catchment. Without this infrastructure, 3,500 potential dwellings cannot proceed. The land is highly fragmented — over 50 separate titles — making coordinated sewer provision challenging without the pump station. (Source: ballarat-west-growth-area-housing-and-growth-enabling-infrastructure-bnif.txt)
NDA yield: 498.94 ha NDA from 707 ha total (70.6%) — the lowest NDA yield of the three sub-precincts, reflecting the drainage corridors, heritage landscapes, and open space reservations that encumber a higher proportion of land.
16.2 Sub-Precinct 2: Greenhalghs Road (296 hectares)
SP2 is the central sub-precinct, accounting for 23% of the PSP area and 24% of the projected dwelling yield (3,852 dwellings).
Geographic features:
- B
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Gaps in This Analysis
Documents Referenced but Not in Corpus
-
ASR Community and Recreation Infrastructure Report (29 May 2024) — the primary source for community facility scope, sizing, and the revised external apportionment on DI_OS_06. Referenced extensively in Panel proceedings but not available in extracted text.
-
Milward Transport Projects Review (14 February 2024) — the source for road network redesign decisions, including the DI_RD_21 upgrade to duplicated link standard and the proposed DI_JNC_02 signalisation. Referenced but not extracted.
-
Engeny Drainage Strategy Update (19 December 2024) — the updated drainage assessment that produced the revised sub-catchment costings and new retarding basin requirements. Referenced but not extracted.
-
Opteon Land Valuation Assessments (June 2024) — the source for all land acquisition cost estimates in v7.4. Critical for understanding the per-parcel land value methodology and the rural-to-urban value transformation.
-
WT Partnership Indoor Recreation Centre Estimate Peer Review (14 July 2024) — confirmed DI_OS_06 costs on the “lower end of the expected range.” Not extracted.
-
Panel Report for Amendment C234ball (29 January 2026) — the full Panel report. The corpus contains Council’s analysis of the Panel’s recommendations but not the Panel report itself.
-
Prowse Quantity Surveyors Cost Estimates (2012) — the original construction cost estimates underpinning v5.1. Referenced but not extracted.
-
Original SMEC Drainage Scheme (2012) — the baseline drainage assessment. Referenced but not extracted.
Key Facts Requiring Verification
- The exact number of Statements of Compliance issued to date and the precise hectarage of NDA already subdivided (the “approximately 39%–40%” figure needs confirmation)
- The timeline for Ministerial approval of C234ball
- The current CIL cap for 2025/26 financial year (may have been updated from the $1,450 2024/25 cap)
- Central Highlands Water’s current capital works program and the status of the Bonshaw pump station
- The status of government school funding (Cherry Flat P-6 and Ballarat West P-12)
Suggested Search Queries for Gap-Filling
"Amendment C234ball" site:planning.vic.gov.au— for gazettal status"Ballarat West" "indoor recreation centre" ASR Research— for community needs assessment"Ballarat West" drainage Engeny 2024— for updated drainage strategy"Ballarat West" Opteon valuation 2024— for land valuations"Ballarat West" WT Partnership "peer review"— for recreation centre cost reviewCentral Highlands Water "capital works" Bonshaw— for sewer infrastructure status"C234ball" Panel report ppv.vic.gov.au— for full Panel report"community infrastructure levy" cap "Governor in Council" 2025-26— for current CIL cap
Size Contract Note
This page was compacted for UI and Obsidian readability. The underlying source documents and extracted text remain in the evidence corpus.
C234ball Operative-Status Guardrail
Council adopted the revised Ballarat West PSP/DCP/C234ball package on 25 March 2026 and submitted it to the Minister. As at 31 May 2026, the corpus does not contain Ministerial approval or gazettal, so the revised February 2026 PSP/DCP package is a Council-adopted proposed/current review package rather than an operative planning-scheme control. Existing Ballarat West DCP rates continue to apply until gazettal. (Source: 25-march-2026-council-meeting-agenda-with-attachments-reduced_part1.txt; Source: ballarat-west-development-contribution-plan-dcp-february-2026.txt)