title: Dowling Forest Equine Precinct council: ballarat state: vic category: precinct status: adopted last_compiled: 2026-04-13 source_docs:
- dowling-forest-precinct-master-plan.txt
- implementation-of-dowling-forest-precinct-master-plan_april-2011_keaney-planning.txt
- dowling-forest-precinct-planning-controls-review.txt
Dowling Forest Equine Precinct
The Dowling Forest Equine Precinct is located on the northern edge of the Miners Rest township, centred on the Dowling Forest Racecourse — one of Victoria’s premier thoroughbred racing and training facilities, training more than 500 horses. The original Dowling Forest Precinct Master Plan (Coffey Commercial Advisory, 2011) and implementation plan (Keaney Planning, April 2011) established the precinct’s planning controls via Amendment C149. A comprehensive planning controls review was completed by Spiirem in June 2020.
Background
The precinct covers approximately 667 hectares across four zone types (SUZ7, SUZ13, FZ Area A, FZ Area B). Amendment C149 introduced the current controls based on the 2011 Master Plan, which established the SUZ13 with highly restrictive provisions requiring dwellings to be occupied by licensed horse trainers (Section 173 agreements). The SUZ13 was modelled on zones introduced into the Cardinia Planning Scheme for the relocated Pakenham Racecourse, but unlike that situation, Dowling Forest land was in multiple private ownerships with existing dwellings. (Source: dowling-forest-precinct-planning-controls-review.txt, §4.2.1)
Planning Controls Review (Spiirem, June 2020)
Key Findings
The review found the SUZ13 had not achieved its intended purpose:
- No uptake: Development of training facilities by trainers occurred almost exclusively on the racecourse itself, not on surrounding SUZ13 land. No freehold properties were taken up by new trainers. (Source: dowling-forest-precinct-planning-controls-review.txt, §4.1.2)
- Oversupply: The HillPDA Property Market Review confirmed a demonstrated oversupply of land strictly allocated for thoroughbred training via SUZ13. (Source: dowling-forest-precinct-planning-controls-review.txt, §5.2)
- Landowner impacts: The restrictive controls caused significant difficulties for landowners selling or financing properties, compounded by community confusion and stigma about the SUZ13 provisions. (Source: dowling-forest-precinct-planning-controls-review.txt, §4.5)
- Access constraints: Since BTC banned walking access to the track, only properties with direct racecourse access or formal BTC arrangements have a functional advantage — undermining the rationale for applying SUZ13 broadly. (Source: dowling-forest-precinct-planning-controls-review.txt, §4.1.2)
Eight Key Issues Identified
- Confusion and compounding stigma associated with SUZ13
- Use of four different planning controls
- Land supply and demand mismatch
- Exclusivity and restrictiveness of controls
- Land prices, financing and saleability impacts
- Perceived bias for BTC interests
- Rural living pressure
- Roads, access and safety
Recommendations (Option B+C: Relax and Change Controls)
| Zone | Change | Min. Lot Size |
|---|---|---|
| SUZ7 (Racecourse, 180ha) | No change | N/A |
| SUZ13 (reduced area) | Apply criteria-based test; allow 100sqm outbuildings without permit (up from 50sqm) | 2ha |
| SUZ19 (new — former SUZ13 land) | New schedule for broader equine uses; less restrictive than SUZ13 | 2ha |
| SUZ17 (replaces FZ Area B, 142ha) | New schedule consistent with SUZ19 | 10ha |
| SUZ18 (replaces FZ Area A, 129ha) | New schedule consistent with SUZ19 | 4ha |
| FZ (3 parcels on Mt Pisgah Rd) | Retained as Farming Zone; included in precinct via local policy only | Unchanged |
(Source: dowling-forest-precinct-planning-controls-review.txt, §6.1, §6.5)
SUZ13 application criteria — apply to land meeting at least two of: (1) directly adjoins the racecourse; (2) is within close proximity; (3) can gain direct access to the racecourse; (4) has formal access arrangement with BTC; (5) has significant opportunity for intensification. (Source: dowling-forest-precinct-planning-controls-review.txt, §6.4.2)
Precinct purpose (recommended): To protect the operations of the Dowling Forest Racecourse; retain core thoroughbred training land in SUZ7/SUZ13; provide land for horse training, breeding and boarding in SUZ17/18/19; allow supporting uses (vet, farrier, feed, saddlery); and provide a buffer between the racecourse and surrounding residential/agricultural land. (Source: dowling-forest-precinct-planning-controls-review.txt, §6.2)
Local policy: Recommended replacement of Clause 21.07-6 Racing Industry with a strengthened policy defining the “Dowling Forest Equine Precinct” with purpose statement, precinct boundary map, and decision guidelines. (Source: dowling-forest-precinct-planning-controls-review.txt, §6.3, Appendix F)
Precinct boundary: Retention of all existing precinct land plus addition of 6 parcels along Midas Road and 3 properties on Mount Pisgah Road (68, 147, 168) that interface directly with the racecourse. (Source: dowling-forest-precinct-planning-controls-review.txt, §6.2)
Recommended Schedule Details (Appendices B–E)
The recommended SUZ17, SUZ18, and SUZ19 schedules share identical purpose statements:
- To retain land within the Dowling Forest Equine Precinct for possible future demand by the horse racing industry based at the Dowling Forest Racecourse.
- To support use and development associated with horse training or related industry within the Dowling Forest Equine Precinct.
- To buffer the operation of the Ballarat Turf Club from surrounding Farming Zone land by limiting conflicting uses and associated amenity impacts.
- To ensure land used and developed for dwellings is in conjunction with specified horse husbandry uses.
(Source: dowling-forest-precinct-planning-controls-review.txt, Appendices C–E)
Section 1 (permit not required) uses in SUZ17/18/19 include: agriculture (excl. intensive), animal husbandry (≤5 animals excl. horse husbandry), bed and breakfast (≤6 guests), dependent person’s unit, dwelling (one per lot), horse husbandry, home occupation, informal outdoor recreation, and veterinary centre. (Source: dowling-forest-precinct-planning-controls-review.txt, Appendix C §1.0)
Subdivision conditions for SUZ17/18/19: a permit may only be granted if the minimum lot size is met (10ha/4ha/2ha respectively), effluent disposal fields are nominated where no reticulated sewerage exists, and a Section 173 agreement is entered requiring land be used for horse training, horse breeding, or horse boarding. (Source: dowling-forest-precinct-planning-controls-review.txt, Appendix C §2.0)
SUZ13 setback requirements (Appendix B): 50m from Road Zone Category 1/PAO land; 20m from any other road; 5m from any boundary or non-owned dwelling; 100m from a waterway, wetland, or designated flood plain. Extensions/outbuildings up to 100sqm (increased from 50sqm) permitted without a planning permit. (Source: dowling-forest-precinct-planning-controls-review.txt, Appendix B §4.0)
Section 173 agreement removal: Existing Section 173 agreements on land where previous planning controls no longer apply can be removed via the standard statutory process between landowners and Council. (Source: dowling-forest-precinct-planning-controls-review.txt, §5.2)
Non-Statutory Follow-Up Actions (§6.7)
The review also recommended actions outside the planning scheme amendment:
- Strategic review of land south of Sharpes Road to determine future land use following the Growth Corridors Study and Miners Rest Township Strategy outcomes. (Source: dowling-forest-precinct-planning-controls-review.txt, §6.7)
- BTC access along Midas Road: Encourage BTC to establish legal rights of access into the racecourse along Midas Road for safe horse movement. (Source: dowling-forest-precinct-planning-controls-review.txt, §6.7)
- Public road connections: Discuss with BTC the opportunity to establish road connections through Lyrebird Court and Branchline Court directly to the racecourse. (Source: dowling-forest-precinct-planning-controls-review.txt, §6.7)
- Precinct relaunch: Marketing, property industry workshops, and publicly available brochures to address community confusion about the planning controls. (Source: dowling-forest-precinct-planning-controls-review.txt, §6.7)
Industry Trends
The review found equine industry trends are leaning towards larger property sizes than the precinct’s 2ha minimum, and the majority of SUZ13 land is already used for equine purposes and/or cannot be further subdivided. No additional subdivision capacity beyond existing provisions was recommended. No evidence was found that non-thoroughbred equine activities cause conflicts detrimental to the racecourse, supporting the shift from “thoroughbred” to broader “equine” terminology. (Source: dowling-forest-precinct-planning-controls-review.txt, §5.2)
Implementation
Amendment C220ball sought authorisation in October 2019 to implement the precinct planning controls changes. (Source: _gaps.md amendments table)
Relationships
- Related: miners-rest (township interface — precinct serves as buffer to Miners Rest urban growth)
- Related: Ballarat Airport (proximity constraints)
- Related: Amendment C149 (introduced existing SUZ13 controls)
- Related: Amendment C220ball (implements review recommendations)
- Context: Ballarat Rural Land Use Strategy 2010, HillPDA Property Market Review
Gaps
Dowling Forest Precinct Planning Controls Review (Spiirem, October 2019)— RESOLVED, now in corpus- Amendment C220ball status and final gazetted provisions — not in corpus
- Engagement and Conversation Report (Spiirem) — referenced but not in corpus
- HillPDA Property Market Review and Options Analysis — referenced but not in corpus