Grange Planning Brain

title: “Ballarat Strategy 2040: Today, Tomorrow, Together” council: ballarat state: vic category: strategy classification: MAJOR status: adopted last_compiled: 2026-04-16 source_docs:

  • ballarat-strategy-2040.txt
  • housing-strategy-2041.txt
  • ballarats-future-housing-2021-2041-housing-needs-analysis-sgs-2023.txt
  • ballarat-infill-uptake-analysis-sgs-2024.txt
  • ballarat-growth-areas-framework-plan-2024.txt
  • growth-areas-framework-plan-western-and-north-western-growth-areas_august-2024.txt
  • ballarat-municipal-housing-capacity-assessment-tract-2022-extracted.txt
  • council-plan-2025-2029.txt
  • council-plan-2021-2025.txt
  • ballarat-economic-program-2015-19.txt
  • neighbourhood-character-study.txt
  • social-and-affordable-housing-action-plan-july-2024.txt
  • affordable-housing-position-statement-final-2022.txt
  • making-ballarat-central-the-cbd-strategy-2011.txt
  • ballarat-activity-centres-strategy-final-december_2012_part-1.txt
  • ballarat-activity-centres-strategy-final-december_2012_part-2.txt
  • ballarat-rural-land-use-strategy.txt
  • ballarat-cbd-draft-urban-design-framework-2021.txt
  • ballarat-heritage-plan-2017-30.txt
  • community-vision-2025-2035-1.txt
  • community-vision-2031_lr.txt

Ballarat Strategy 2040: Today, Tomorrow, Together

The Ballarat Strategy is the municipality’s overarching 25-year spatial strategy, adopted in July 2015 with a horizon to 2040. It is the foundational policy document from which virtually all subsequent strategic planning work in Ballarat derives — the housing-strategy-2041, the growth-areas-framework-plan, the neighbourhood-character-study, the ballarat-activity-centres-strategy, the cbd-strategy, the industrial-land-strategy, the heritage-plan, and the growth area precinct structure plans (including the live ballarat-north-psp) all trace their mandate to this document. Its central policy proposition — a 50% infill / 50% greenfield split for new housing between 2020 and 2040 (Initiative 3.1) — has become the defining, and most contested, planning question in Ballarat. A decade after adoption, the target has not been met: actual development runs at 70% greenfield / 30% infill (Source: ballarat-infill-uptake-analysis-sgs-2024.txt, Table 8), the exact inverse of the Victorian Government’s statewide 70% infill aspiration in the Housing Statement 2023. The Strategy is flagged for update to align with the Housing Strategy 2041 and the Growth Areas Framework Plan 2024, but its spatial logic — the ‘10 Minute City’ platform, the ‘8km arc’, the ‘City in the Landscape’ framework, and the nine greenfield assessment criteria in Initiative 3.7 — remain the governing mental model for Ballarat’s growth management and are embedded in every PSP, local area plan, and amendment decision made since 2015.

Background

Pre-Strategy Conditions (1990s–2014)

In the early 1990s, Ballarat was stagnating. The recession was biting hard; growth rates were slow; and reluctantly, many of Ballarat’s best and brightest were forced to leave in search of opportunities (Source: ballarat-strategy-2040.txt, Foreword). Population movement was net-outward, the mining legacy left physical and regulatory encumbrances across the municipality, and the four main highways radiating from the city (Western, Midland, Glenelg, and Sunraysia) served a primarily agricultural and manufacturing economy still adjusting to the tariff reforms of the Hawke–Keating period.

By 2014, the city had transformed. Population had grown from approximately 76,000 in 1996 to around 100,000 (Source: ballarat-strategy-2040.txt, p.21, citing Context 2013). The 1868 historical peak of approximately 64,000 — reached at the apex of the gold rush before the mining recession of the 1870s — had been comprehensively exceeded. Economic output had expanded from 7.8 billion to 10.3 billion between 2007 and 2014, an average annual growth rate of 3.4% (Source: ballarat-strategy-2040.txt; ballarat-economic-program-2015-19.txt). Almost 2.2 million tourists visited in 2013/14, and the Ballarat West Employment Zone (BWEZ) — a 623-hectare precinct west of the Ring Road and Learmonth Road — was coming online as a once-in-a-generation opportunity for jobs and investment in advanced manufacturing, freight, logistics, and aviation (Source: ballarat-strategy-2040.txt, p.58). The BWEZ was forecast to support over 9,000 new jobs once constructed, with a 16-hectare Intermodal Freight Hub included in the master plan.

The pattern of recent growth had also shifted. Post-war growth had concentrated in Ballarat North and Wendouree (1950s–1970s). By the 1990s–2010s, growth was heavily concentrated in the inner north (particularly Alfredton) and areas south of the City Centre such as Delacombe, with more recent expansion in Lake Gardens, Miners Rest, Sebastopol, and the Ballarat West Growth Area (Source: ballarat-strategy-2040.txt, p.21). This pattern of peripheral growth — “filling in” around a fixed urban core — framed the central planning question the Strategy sought to resolve.

Ballarat Imagine: The Community Conversation

Against this backdrop of rapid growth after a long recession, Council launched “Ballarat Imagine” — the city’s largest-ever community conversation. Over an 18-month consultation process, Ballarat Imagine generated more than 6,000 ideas and suggestions from the community (Source: ballarat-strategy-2040.txt, Foreword; About the Ballarat Strategy). The consultation was deliberately open-ended: rather than testing a pre-cooked plan, Council asked the community what it valued, what it wanted preserved, and how it wanted change managed. The themes that emerged became the Strategy’s architecture:

  • Preservation of heritage character and rural landscape — particularly the historic CBD, Sturt Street boulevard, Lake Wendouree, the Botanical Gardens, and the rural hinterland;
  • Concern about urban sprawl — specifically the infrastructure cost and car-dependency implications of continued westward expansion;
  • Desire for liveable neighbourhoods — parks within 10 minutes’ walk, safe streets, local shops;
  • Recognition of Aboriginal connection to country — Wadawurrung and Dja Dja Wurrung traditional owners, with songlines and storylines across the landscape (Source: ballarat-strategy-2040.txt, p.20–21);
  • Support for economic transition — away from traditional manufacturing and agriculture towards health, education, knowledge services, and advanced manufacturing.

The resulting Strategy, adopted under Mayor Cr John Philips and CEO Anthony Schinck in July 2015, was explicitly designed not as a detailed implementation plan but as a high-level spatial framework: setting long-term direction, establishing key principles, and flagging an “ambitious work program” of subsequent local plans and investigations (Source: ballarat-strategy-2040.txt, Foreword; p.3). This is a critical interpretive point. The Strategy deliberately left many detailed questions unanswered; it instead named the further work that would resolve them. Each of the subsequent strategic documents on the Ballarat wiki — the housing-strategy-2041, the growth-areas-framework-plan, the neighbourhood-character-study, the industrial-land-strategy, the open-space-strategy, the [[herit

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Analysis

1. The 25-Year Spatial Vision: Two Platforms in Detail

The Strategy’s spatial logic is organised around two platforms that underpin all policy directions. Understanding these platforms is essential to reading the Strategy correctly, because every subsequent policy initiative (1.1 through 5.x) is either a mechanism that enacts one of the platforms, or a constraint that the platforms impose on development.

Platform 1: The ‘10 Minute City’ — Five Mechanisms

The ‘10 Minute City’ concept seeks to maintain existing levels of access to destinations and services as the city grows. At adoption, Ballarat was already a “10 Minute City” in practical terms — at non-peak times, most areas were reachable from the centre within a 10-minute drive by car, and access to local shops, schools, services and facilities was very good (Source: ballarat-strategy-2040.txt, p.107). The challenge identified by the Strategy was to maintain this level of access as the population swelled by over 60,000 people and congestion increased, even with upgrades to existing infrastructure.

The concept is enacted through five mechanisms:

Mechanism 1 — Land Use Decisions for a Compact City. Four specific tools are identified (Source: ballarat-strategy-2040.txt, p.8, p.108):

  • CBD intensification. The CBD has the highest levels of access to public transport, jobs and services, but at adoption contained fewer than 300 residents (updated to 465 in the core, 239 west of Peel Street, per 2011 Census data cited in the CBD Revitalisation initiative at p.78). A “step-change in inner city housing” was identified as offering “enormous potential for significantly more people to live in this prime location.”
  • Infill within 400m of public transport — embedded in Initiatives 3.1–3.3.
  • Convenience Living Corridors within 200m of future frequent public transport corridors — a new concept in Ballarat, applying to five identified corridors: Sturt Street, Wendouree (Northern Corridor), Geelong Road (Southern Corridor), Sebastopol, and Latrobe Street (Source: ballarat-strategy-2040.txt, p.124, p.130).
  • Greenfield criteria — adopted to consider future applications for greenfield development, ensuring access to key services, compact form, transport accessibility, and the opportunity to develop complete neighbourhoods. These become the nine criteria in Initiative 3.7 (see detailed analysis below).

Mechanism 2 — Developing a Network of Complete Local Neighbourhoods. A “complete neighbourhood” in Ballarat has the following characteristics (Source: ballarat-strategy-2040.txt, p.9):

  • A discernible centre
  • Most houses within a 10-minute walk of the centre
  • A variety of housing types
  • A variety of shops and offices providing daily needs, including incidental food shopping
  • A primary school close enough that most children can walk to school
  • Small playgrounds or open space accessible within 10-minute walk (or less) of all homes
  • Streets within the neighbourhood as a logical, safe, legible and connected network
  • People-focused places with high amenity, trees and gardens
  • Space for neighbourhood meeting places, community centres or places for public events
  • Access to transport

The complete neighbourhood standard is operationalised through the ballarat-activity-centres-strategy (2011, updated 2012), which establishes a five-tier activity centre hierarchy: Principal Activity Centre (Ballarat CBD), Major Activity Centre (Wendouree), Large Neighbourhood Activity Centre (Glenelg Highway proposed, Sebastopol, Midvale, Buninyong), Neighbourhood Activity Centre (Lucas, Carngham Road proposed, Sebastopol South, Redan, Alfredton East, Northway, Miners Rest, Pleasant Park), and Bulky Goods Retail Centre (Wendouree) (Source: ballarat-strategy-2040.txt, p.62–63). Structure planning for six of these centres — Wendouree, Sebastopol, Midvale, Buninyong, Alfredton East, and Miners Rest — is identified as a medium-term action (Source: ballarat-strategy-2040.txt, p.65). A decade on, the majority of these structure plans have not been completed, representing a significant gap between the Strategy’s complete-neighbourhood aspiration and its delivery.

Mechanism 3 — Recognising Key Precincts for Urban Renewal and Convenience Living. Eight local urban renewal opportunities are identified (Source: ballarat-strategy-2040.txt, p.66):

  • Ballarat CBD (significant mixed use development)
  • Scott Parade Precinct (inner city mixed use)
  • Creswick Road Preci

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Current Status

Adopted July 2015. Remains the primary overarching spatial strategy referenced in the Ballarat Planning Scheme’s Municipal Planning Strategy. Flagged for update to align with the housing-strategy-2041 (adopted) and growth-areas-framework-plan (2024). No public timeline for the update has been identified in the corpus, though the Growth Areas Framework Plan (2024) explicitly references the planned update.

Key live planning activities that implement or test the 2040 Strategy’s framework:

  • Amendment C256ball — Ballarat North PSP, before a Standing Advisory Committee (see ballarat-north-psp)
  • Housing Strategy 2041 — adopted; awaits Scheme implementation via a future Amendment
  • Growth Areas Framework Plan 2024 — adopted; identifies Northern, Western, North Western growth areas
  • Neighbourhood Character Study — completed; provides preferred character statements
  • Industrial Land Strategy (draft 2024) — updates Productive Ballarat framework
  • Affordable Housing Action Plan (July 2024) — implements Initiative 3.12
  • CBD Urban Design Framework (draft 2021) — implements CBD renewal directions

Dependencies

  • Blocks: Update of the Municipal Planning Strategy in the Ballarat Planning Scheme — the MPS references the 2040 Strategy as the foundational spatial document. Application of Change Areas framework. Delivery of Convenience Living Corridor controls. Implementation of the Housing Strategy 2041 through the Scheme.
  • Blocked by: Nothing — the Strategy is adopted and operative; the update is blocked by resourcing and the need to align with the Housing Strategy and Growth Areas Framework Plan, both of which are now adopted. Political resolution of the 50:50 target recalibration question.
  • Informed by: Ballarat Imagine community consultation (2014), Central Highlands Regional Growth Plan (2014), Plan Melbourne, Options for Supporting the Supply of Infill Housing in Ballarat (2015), infrastructure cost analysis, SGS Ballarat Housing Needs Assessment (2014), Aurecon Ballarat Residential Infill Opportunities Study (BRIOS, 2009–2010)
  • Implements: Central Highlands Regional Growth Plan 2014, Plan Melbourne’s regional city growth framework
  • Conflicts with: Victorian Housing Statement’s 70% infill target (Ballarat’s actual 70/30 greenfield/infill split is the inverse); the Strategy’s own 50:50 target conflicts with observed market outcomes; potential tension with Plan Victoria’s draft 46,900-dwelling target
  • central-highlands-regional-growth-plan (2014) — the regional framework within which the Strategy sits; identifies Ballarat as the regional city with the greatest growth capacity in western Victoria
  • victorian-planning-authority — VPA-led PSPs for ballarat-north-psp and future growth areas implement the Strategy’s growth area identification; VPA confirmed sufficient greenfield supply for ~20 years during Housing Strategy consultation
  • central-highlands-water — water and sewer servicing capacity is the binding constraint on growth area sequencing; the Strategy’s growth trajectory depends on CHW capital works alignment
  • plan-victoria / victorian-housing-statement — state policy now sets housing targets (46,900 additional homes by 2051) and infill aspirations (70%) that significantly exceed the Strategy’s parameters
  • moorabool-shire — eastern boundary; Western Freeway corridor; Ballan growth area interactions
  • hepburn-shire — northern boundary; Midland Highway corridor; Creswick growth pressure
  • golden-plains-shire — southern boundary; shared Rural Living supply (Smythesdale, Scarsdale, Newtown, Ross Creek, Napoleons)
  • pyrenees-shire — western boundary; Western Highway corridor
  • department-transport-planning (DTP) — state transport infrastructure; V/Line services; Western Freeway; Midland Highway upgrades
  • deeca — Environmental Significance Overlays, biodiversity, native vegetation offsets; Canadian Valley regional park
  • corangamite-cma — Burrumbeet Creek and Yarrowee River flood modelling
  • ausnet-powercor — energy servicing; zone substation capacity
  • g21-regional-alliance — regional coordination for Geelong-Ballarat-Western Victoria economic region

Gaps in This Analysis

  • Ballarat Imagine consultation outcomes (2014) — the community engagement that generated 6,000+ ideas is referenced but the full consultation report is not in the corpus. Impact: cannot verify whether specific policy directions (particularly the 50:50 target) emerged directly from community input or were overlaid by Council/consultant analysis
  • Options for Supporting the Supply of Infill Housing in Ballarat (2015) — the technical report (SGS Economics and Planning) recommending six directions for infill supply is referenced but not in the corpus. Impact: cannot assess the specific mechanisms recommended and why they were not fully implemented
  • Aurecon Ballarat Residential Infill Opportunities Study (BRIOS) 2009–2010 — the infill opportunities study referenced in Initiative 3.2 is not in the corpus. Impact: cannot assess specific sites identified for infill
  • SGS Ballarat Housing Needs Assessment 2014 — the original housing needs assessment that underpinned the 50:50 target and social housing gap figures is not in the corpus (the updated 2023 version is present)
  • Central Highlands Regional Growth Plan 2014 — the regional plan within which the Strategy sits is not in the corpus. Impact: cannot verify the specific role Ballarat plays in the regional growth framework
  • Long Term Growth Options Investigation (2018) — the investigation that assessed future growth fronts and led to the 2022 Council resolution is not in the corpus. Impact: cannot assess the specific options considered and the assessment logic
  • Ballarat West DCP — the operative DCP referenced throughout is not available in the corpus. Impact: cannot quantify levy rates, infrastructure items funded, or cost per hectare NDA
  • Updated population forecasts post-2024 — the high-growth scenario (2.1% AAGR) was calibrated to COVID-era migration rates; whether this rate is sustained post-pandemic is unknown
  • Strategy update timeline — no public information on when the update process will commence or what scope it will take
  • Greenhill Road Conceptual Development Framework (2015) — referenced but not in corpus. Impact: cannot assess the specific options for the Greenhill Road Precinct
  • Ballarat West Growth Area Plan (Tract, 2009) — the master plan underlying the PSPs is not in the corpus
  • Ballarat West PSP (SMEC, 2012) and Alfredton West PSP (2011) — the operative PSPs are not present in the corpus
  • Public submissions to Amendment C256ball — specific submission content and numbers not available
  • Ballarat CBD Urban Design Framework (draft 2021) — the specific design framework for CBD renewal; partial content may be available
  • Regional Capital Plan (2013) — referenced for its CBD 60,000m² commercial space target; not in corpus
  • See _gaps for the full gap register

Appendix A — Landscape Character Areas (Detailed Analysis)

The Strategy’s ‘City in the Landscape’ platform rests on a detailed inventory of landscape character areas (Source: ballarat-strategy-2040.txt, pp.24–29). Understanding these areas is essential to assessing development proposals, because the character of each landscape unit operates as a constraint on what kinds of change are compatible with the Strategy’s heritage and landscape aspirations.

North of Ballarat — Four Character Areas

1. Mount Bolton Range (northern boundary). Forms a standout feature on the northern boundary of the municipality. The Ballarat community loves the history, landscape, views, bushland, native flora and fauna this area contains (Source: ballarat-strategy-2040.txt, p.24, drawing on Ballarat Imagine). The range is clothed largely with forest on the high ridges, with outcrops of granite boulders peppering the higher and steeper slopes. Large paddocks with a high proportion of rough grazing characterise the lower slopes. Remote properties are served by a network of unmade tracks that circle the mountain range. Mount Bolton forms a discrete area with a distinct character from the surrounding rural landscapes of Learmonth and Creswick to the south and west. The area includes landscape features that outline the boundary between the Wadawurrung and Dja Dja Wurrung peoples — a cultural boundary recognised in the Strategy.

Planning implication: Mount Bolton is effectively outside the 8km arc and remains under Farming Zone with Environmental Significance Overlay. It is not a candidate for urban growth. The planning focus is on rural land management, biodiversity, and Aboriginal cultural heritage protection.

2. Creswick Creek Plains. An area of flat, open pastoral land north of the Addington–Creswick Road. The Ballarat community loves the history, landscape, rural feel and views demonstrated in this area (Source: ballarat-strategy-2040.txt, p.24). The general character of this landscape continues northward over the Municipal boundary towards the settlement of Clunes, where evidence of former gold mining activity becomes more prevalent. The area includes landscape features that outline the Wadawurrung–Dja Dja Wurrung boundary.

Planning implication: Cross-boundary coordination with Hepburn Shire (Clunes is in Hepburn) on rural land management and heritage protection.

3. Learmonth Pastoral. An extensive agricultural area with standout conical hills creating an exceptional feature in the otherwise low-lying landscape. The community loves the history and heritage, tree avenues, parks, gardens and lakes, landscape, views, bushland, native flora and fauna. The historic township of Learmonth with its 19th century buildings and established exotic trees, parks and gardens stands at the centre of this well-managed pastoral landscape (Source: ballarat-strategy-2040.txt, p.24).

Planning implication: the-learmonth-plan provides the township-specific framework. Conical hills are a Significant Landscape Overlay candidate.

4. Mount Beckwith / Northern Uplands (implied). The northern boundary area transitioning from Creswick Creek Plains to the higher country toward Hepburn.

Central Ballarat — Urban Core

The urban core covers the CBD, Ballarat East, Ballarat North, Wendouree, Lake Wendouree, Victoria Park, and the historic inner suburbs. Key character elements:

  • Sturt Street — the signature boulevard, 50m wide with a central median garden, Heritage Overlay across its full length
  • Lake Wendouree and Botanical Gardens — central amenity asset, Heritage Overlay, Significant Landscape Overlay
  • Bakery Hill — elevated site with heritage significance, partially flood-affected
  • Victoria Park — former pastoral reserve, now significant open space
  • Eureka Centre — national heritage site, 2030-eureka-centre-vision provides the framework
  • Historic streetscapes — comprehensively covered by Heritage Overlay across the urban core

Planning implication: The urban core is the target of Convenience Living Corridor intensification but is comprehensively constrained by Heritage Overlay. Every infill proposal navigates this tension.

South and East — Rural Interface

The southern and eastern interfaces include:

  • Buninyong — historic township at approximately 12km south, distinctive character, elevated volcanic cone
  • Mount Helen — Federation University campus, suburban-rural interface

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Appendix B — Ballarat Activity Centres Hierarchy (Detailed Analysis)

The Activity Centre hierarchy is the spatial framework for commercial, retail, and community services. It is operative through the Ballarat Activity Centres Strategy (BACS) 2011 (Hill PDA, Hansen) and updated in 2012 (Source: ballarat-activity-centres-strategy-final-december_2012_part-1.txt).

Principal Activity Centre

Ballarat CBD. The top of the hierarchy. Intended to be the dominant retail, commercial, community, educational, cultural, and civic centre for Ballarat and the wider Central Highlands region. Strategic priorities (Source: making-ballarat-central-the-cbd-strategy-2011.txt):

  • Creating a civic heart
  • Encouraging day and evening street activity
  • Improving movement by all modes
  • Restoring heritage streetscapes
  • Environmental sustainability in buildings and streetscape
  • Adequate car parking and retail offer
  • Improved CBD entrances
  • Improved streetscapes
  • Business and investment community partnership
  • Identifying large-scale retail and office development locations
  • Restoring and enhancing Sturt Street Gardens

Major Activity Centre

Wendouree. Second-tier centre, dominated by the Stockland Wendouree shopping centre. Lacks cohesive design and built form integration with surrounding areas. Strategic direction: diversify beyond single-centre retail; introduce mixed-use; integrate with Wendouree Railway Station. Identified as an Urban Renewal Precinct.

Large Neighbourhood Activity Centres (LNACs)

  • Glenelg Highway (Proposed) — to develop into Major Activity Centre over time, staged in line with demand growth in the Ballarat West Growth Area catchment. Will serve the 40,000+ population of Ballarat West.
  • Sebastopol (formerly Sebastopol North) — established centre at the Midland Highway / Sebastopol Road intersection; subject to Sebastopol Action Plan within BACS 2011.
  • Midvale — eastern centre.
  • Buninyong — township centre, with distinct heritage character.

Neighbourhood Activity Centres

  • Lucas — new centre, intended to develop into LNAC over time
  • Carngham Road (Proposed) — new centre in the Ballarat West growth area
  • Sebastopol South (formerly Sebastopol) — established secondary centre
  • Redan (formerly MaxiFoods) — rebranded centre
  • Alfredton East — established centre
  • Northway — established centre
  • Miners Rest — township centre
  • Pleasant Park — established centre

Bulky Goods Retail Centre

  • Wendouree — bulky goods retail adjacent to the Major Activity Centre

Key Analytical Points

  1. No new centres are proposed, except those associated with Ballarat West Growth Area (Glenelg Highway, Carngham Road). This reflects the Strategy’s emphasis on diversifying existing centres rather than proliferating new ones.

  2. Structure planning is required for Wendouree, Sebastopol, Midvale, Buninyong, Alfredton East, and Miners Rest. A decade on, most of this structure planning has not been completed — a significant implementation gap.

  3. The Glenelg Highway centre is designed to scale up from LNAC to Major Activity Centre as the Ballarat West population grows, creating a second-tier centre in the western suburbs to match Wendouree in the north.

  4. The CBD’s dominance is intended to be preserved — the Strategy explicitly resists decentralisation of higher-order retail, office, and cultural functions away from the CBD.

  5. Medium density residential consolidation is explicitly flagged around activity centres (particularly Sebastopol), creating integrated mixed-use outcomes.

Appendix C — Transport and Connectivity Detail

V/Line Passenger Services

Ballarat Station is served by V/Line’s Ballarat line, with services to Melbourne via Ballan, Melton, and Sunshine. The Ballarat–Melbourne corridor was duplicated in 2017–2019, enabling service increases. Wendouree Station opened 2009 as a second station on the line. Patronage has grown significantly; the Strategy notes Wendouree Station “has experienced significant patronage growth over recent years” (Source: ballarat-strategy-2040.txt, p.57).

Planning implication: Rail-based Convenience Living Corridor density is concentrated around Ballarat Station (CBD) and Wendouree Station. Both are identified urban renewal sites.

Bus Services

Ballarat’s bus network radiates from the CBD and Wendouree, serving the residential suburbs. The Strategy notes “90% of residents are within 400m of a bus route” (Source: ballarat-strategy-2040.txt, p.130). However, frequency is limited; the Strategy’s Convenience Living Corridor vision depends on “frequent public transport corridors” which have not been substantially delivered.

Road Network

The four main highways (Western, Midland, Glenelg, Sunraysia) carry regional freight and passenger movement. The Ballarat Ring Road provides north-south circulation around the CBD. Specific road infrastructure identified:

  • Western Freeway — east–west, connecting to Melbourne
  • Ballarat Ring Road — bypass around the CBD
  • Midland Highway — to Geelong via Buninyong
  • Glenelg Highway — south-west, serving Ballarat West
  • Sunraysia Highway — north, serving Creswick/Daylesford corridor

Key infrastructure projects that have occurred or are in planning since 2015:

  • carngham-road-upgrade (Feb 2026) — serving Ballarat West growth area
  • Western Freeway/Midland Highway interchange upgrades

Cycling Network

The cycling-action-plan (2017–25) implements Initiative 4.5 — partnership with the community to develop a user-focused cycling network. Strategy notes this is identified as a “game-changing enabler to growth in cycling.” Implementation has included shared paths, on-road lanes, and signage, though a fully integrated network remains incomplete.

Freight

The BWEZ Intermodal Freight Hub (16 ha within the 623 ha BWEZ) is the primary freight infrastructure. It is designed to service the regional freight demand forecast to double in 25 years. Regional freight flows connect Ballarat to Melbourne (east), Adelaide (west via Western Highway), Geelong (south via Midland Highway), Portland (south-west via Glenelg Highway), Bendigo (north via Midland Highway), and the Mallee/Wimmera.

Appendix D — Detailed Housing Supply Analysis

Infill Capacity Analysis

The SGS Infill Uptake Analysis (2024) and Tract Municipal Housing Capacity Assessment (2022) provide detailed analysis of Ballarat’s infill capacity (Source: ballarat-infill-uptake-analysis-sgs-2024.txt; ballarat-municipal-housing-capacity-assessment-tract-2022-extracted.txt).

Key findings:

  • Theoretical infill capacity: 31,250 additional dwellings within established residential areas once Change Areas are applied. This is more than sufficient to accommodate the 50:50 aspiration against the high-growth scenario of 28,961 dwelling demand by 2041.
  • Actual delivery rate: approximately 500 infill dwellings per year (average of 2019–2024 actuals). At this rate, only approximately 8,500 infill dwellings would be delivered over the 17 years from 2024 to 2041 — far short of the 14,481 required for the 50:50 split against high-growth demand.
  • Structural constraint: the gap between theoretical capacity and actual uptake is the central infill delivery challenge. Capacity is available; uptake is lagging due to market preferences, planning control gaps, and community resistance.

Greenfield Supply Analysis

Ballarat West (Ballarat West PSP + Alfredton West PSP):

  • Total gross area: 1,717 hectares
  • Approximate dwelling yield at full build-out: 18,000
  • Remaining dwellings as of 2024: approximately 8,800
  • Implied remaining supply at current rates: approximately 8 years at peak rates, or 12+ years at moderated rates

Northern Growth Area (Ballarat North PSP):

  • See ballarat-north-psp for detailed analysis
  • Core Area approximately 567 ha; Expanded Area (contested) approximately 265 ha
  • Dwelling yield: approximately 9,740–13,940 depending on Expanded Area inclusion

Western Growth Area (Framework Plan 2024):

  • See western-growth-area
  • Part of 20,100–26,800 combined capacity with North Western Growth Area

North Western Growth Area (Framework Plan 2024):

Total greenfield capacity: approximately 8,800 (remaining Ballarat West) + approximately 9,740 (Northern Core) + approximately 20,100 (Western + NW, midpoint estimate) = approximately 38,640 dwellings. This is more than sufficient to accommodate the high-growth demand of 28,961 dwellings to 2041 even without infill uplift.

Analytical implication: Ballarat does not face an absolute supply shortage. The planning question is not “where can dwellings be accommodated?” but “how should dwellings be distributed between greenfield and infill to meet the Strategy’s compact-city objectives?” This distinguishes Ballarat from supply-constrained Melbourne metropolitan LGAs and confirms the 50:50 question is fundamentally about spatial structure, not supply numbers.

Household Composition Change (2021 baseline vs 2041 projection)

Based on SGS Housing Needs Analysis (2023):

  • Couples without children projected to remain the fastest-growing household type
  • Lone person households projected to increase significantly
  • Couples with children projected to remain largest but slowest-growing
  • One-parent families projected to grow at moderate rates

The implication is an increase in dwelling demand per capita (smaller household size) and shifting dwelling type demand toward smaller dwellings (townhouses, apartments, small-lot detached). The growth area PSPs are required to respond through lot mix (small lots, medium lots, large lots) and housing diversity provisions.

Appendix E — The Productive Ballarat Framework in Detail

Economic Transition Narrative

The Strategy positions Ballarat’s economic transition as analogous to the national transition (Source: ballarat-strategy-2040.txt, p.12):

  • A century ago, the economy was defined by wool and primary industries
  • Current transition is toward higher-value knowledge sector jobs, advanced manufacturing, and health services
  • Land use planning must continue to support the current economy with flexibility for ongoing economic growth

Regionally Significant Precincts (Initiatives 1.1–1.2)

The Strategy recognises ten Regionally Significant Precincts (Source: ballarat-strategy-2040.txt, pp.46–59):

A — Federation University Mount Helen Campus and Technology Park. University campus, Technology Park, and research capabilities. Strategic role: “Boston-style” education and innovation hub.

B — Health and Hospitals Precinct (Mair Street). Ballarat Base Hospital, Australian Catholic University Ballarat Campus, St John of God Hospital. Strategic role: regional health services hub; jobs growth centre.

C — Sturt Street Education Cluster. Ballarat Clarendon College, Ballarat Grammar, Queen’s College, Ballarat High School. Strategic role: consolidated education precinct.

D — CBD Technology Centre (Lydiard Street South). Digital economy hub. Strategic role: knowledge economy incubator.

E — Sovereign Hill / Eureka Historic Precinct. Major tourism asset; Museum of Australian Democracy at Eureka. Status — Local Area Planning yet to commence.

H — Lake Wendouree and Gardens Precinct. Includes Lake Wendouree, Botanical Gardens, Arch of Victory, Victoria Park. Status — Local Area Planning commenced 2014, not yet completed.

I — Eureka Stadium Precinct. 6,000-capacity multi-purpose stadium, AFL-ready, rail-accessible. Status — Master Plan already developed.

J — Ballarat Railway Station Precinct. CBD landmark, Victorian-era station building, gateway to Western Victoria. Status — Master Plan already developed.

K — Wendouree Station. Opened 2009; “significant renewal and development opportunity to form a new heart to Wendouree.” Status — Local Area Planning yet to commence.

L — Ballarat West Employment Zone (BWEZ). 623 ha, 9,000+ jobs, Intermodal Freight Hub, airport. Status — Master Plan already developed.

Economic Transition Framework (Initiative 1.12)

The Strategy’s economic transition framework is delivered through the Ballarat Economic Strategy 2015–2019 (subsequently renewed). Key elements:

  • Support for economic transition
  • Recognition of key economic clusters
  • Infrastructure and land supply to support growth
  • Policy and regulatory reform
  • Township economic opportunities

The Economic Strategy 2015–19 (Source: ballarat-economic-program-2015-19.txt; economic-program-2015-19.txt) provides the detailed implementation framework.

Industrial Land Analysis

The Strategy addresses industrial land across Initiatives 1.13–1.15 (Source: ballarat-strategy-2040.txt). Current industrial nodes:

  • Wendouree industrial area — established industrial
  • Mitchell Park — industrial
  • Delacombe — industrial
  • BWEZ — future advanced manufacturing, freight, logistics, aviation

Initiative 1.15 specifically addresses “transition of constrained industrial areas to less intensive uses where the long-term viability of industrial use has been compromised.” This is operationalised in the industrial-land-strategy (draft 2024). The Selkirk Precinct is the largest industrial area flagged for transition to mixed use.

Tourism Framework (Initiative 1.19)

Tourism is a key economic sector. Ballarat’s tourism assets:

  • Sovereign Hill (1.2 million+ visitors annually historically)
  • Museum of Australian Democracy at Eureka
  • Art Gallery of Ballarat
  • Ballarat Wildlife Park
  • Historic CBD and heritage buildings
  • Sturt Street boulevard
  • Lake Wendouree
  • Ballarat Botanical Gardens

Initiative 1.19 commits Council to “improve the visitor experience to Ballarat by upgrading key access corridors and providing better information about our key tourism assets.” This is implemented through the visitor-economy-strategy (2021–2024).

Airport and Freight (Initiatives 1.14, 1.15)

Ballarat Airport. Currently used for training and small aircraft. Master-planned within the BWEZ Master Plan. Strategic direction: flexibility for long-term expansion to a freight and passenger airport. Airport Environs

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Appendix F — The Sustainable Ballarat Framework in Detail

Historic Urban Landscape (HUL)

Ballarat was the first Australian city to sign up to the UNESCO HUL pilot (Source: ballarat-strategy-2040.txt, p.15; drawing on Buckley, Cooke and Fayad 2015). The HUL approach moves beyond protecting individual buildings or monuments to recognising the “complex living landscape” of the city. Implementation:

  • heritage-plan 2017–30 provides the operational framework
  • Heritage Overlay schedules have been updated with HUL considerations
  • Local area planning integrates HUL principles
  • Community mapping (Context 2013, Mapping Ballarat’s Historic Urban Landscape, Stage 1) provides the baseline character assessment

Biodiversity

The Strategy’s biodiversity framework is implemented through:

Key biodiversity priorities:

  • Waterway corridor protection (Burrumbeet Creek, Yarrowee River, Nerrina Valley, Canadian Creek)
  • Native grassland protection (Victorian Volcanic Plains ecosystem)
  • Indigenous vegetation retention in growth areas
  • Wildlife corridor maintenance

Open Space

Implemented through:

Key commitments:

  • Neighbourhood open space within 10-minute walk of all homes
  • Regional open space accessible by all modes
  • Maintenance of existing open space assets

Water

Central Highlands Water (CHW) is the servicing authority. Key assets:

  • White Swan Reservoir — primary storage
  • Wilsons Reservoir — storage
  • Ballarat South Water Treatment Plant — treatment
  • Ballarat North Sewerage Treatment Plant — servicing Northern Growth Area
  • Ballarat West Sewerage Treatment Plant — servicing Western growth

CHW’s capital works program determines the sequence in which growth areas can be unlocked.

Flooding

The Burrumbeet Creek and Yarrowee River flood investigations have been progressed in partnership between City of Ballarat and the Corangamite Catchment Management Authority (CCMA). Key finding: significant CBD flat is flood-affected (Flood Overlay, Land Subject to Inundation Overlay). Mixed use and office development opportunities must respond to flood mapping, with residential growth supported on upper floors of mixed use developments and on higher ground (Bakery Hill slopes).

The 11-waterways-flood-modelling provides the detailed flood modelling for Ballarat’s waterways. Flood mapping is now being progressively incorporated into the Scheme via specific amendments.

Agriculture

The rural-land-use-strategy (2010, Parsons Brinckerhoff) provides the detailed rural land use framework. Key principles:

  • Protection of productive agricultural land
  • Concentration of rural residential in existing Rural Living Zone areas
  • Support for agricultural diversification (viticulture, boutique food production, agritourism)
  • Coordination with adjacent shires (Hepburn, Moorabool, Golden Plains, Pyrenees)

The food-strategy (2019–22) implements urban-rural food system initiatives.

Climate Change and Sustainability

Climate policy commitments:

  • 40% canopy coverage by 2040 (urban forest target)
  • Net zero aspirations aligned with Victorian 2045 target
  • Sustainable Energy initiatives
  • sustainable-subdivision-framework (2023) for new subdivisions
  • Electric vehicle infrastructure provisions
  • Energy efficiency for new builds

The circular-economy-strategy (2024–2028) and resource-recovery-strategy (2018–22) implement the waste and resource recovery framework.

Appendix G — Implementation Status Summary Table

Strategy InitiativeStatusImplementing DocumentGap
1.1–1.2 Regionally Significant PrecinctsPartialVarious master plansLocal area planning incomplete for several
1.4–1.5 Activity CentresPartialballarat-activity-centres-strategyStructure planning incomplete for 6 centres
1.6 Urban RenewalPartialhousing-strategy-2041No structure plans for 4 key precincts
1.7–1.10 CBD RevitalisationPartialcbd-strategy, cbd-urban-design-framework (draft)Residential intensification limited
1.13–1.15 IndustrialProgressingindustrial-land-strategy (draft 2024)Not yet adopted
1.16–1.18 InfrastructureOngoingCouncil capital works programCapacity constraints remain
1.19 TourismImplementedvisitor-economy-strategyN/A
2.1 10 Minute City accessPartialVariousTransport frequency insufficient
2.2–2.6 LiveabilityPartialVarious local plansPublic realm investment ongoing
2.7–2.8 Child FriendlyImplementedmunicipal-early-years-planN/A
2.10 Cultural DiversityOngoingVariousN/A
3.1 50:50 infill/greenfieldNOT ACHIEVEDhousing-strategy-2041Zones review, Change Areas, corridor controls missing
3.2 200m public transportNot implementedNoneConvenience Living Corridor controls missing
3.3 Housing diversityPartialhousing-strategy-2041Change Areas not in Scheme
3.4 Strategic Investigation AreasPartialNone3 of 4 areas dormant
3.5–3.6 Future growth areasAchievedgrowth-areas-framework-planN/A
3.7 Greenfield criteriaAchievedPlanning Scheme MPSN/A
3.8 Development contributionsAchievedballarat-west-dcpFuture DCPs pending
3.9 Township planningPartialthe-learmonth-plan5 of 6 townships incomplete
3.10 Rural lifestyleMaintainedExisting zone provisionsN/A
3.11 Character and diversityImplementedneighbourhood-character-studyN/A
3.12 Social and affordable housingPartialaffordable-housing-position-statement, social-affordable-housing-action-planGap widened
3.13 Ageing in placePartialageing-well-strategyChange Areas pending
4.x Connected (Transport)Partialcycling-action-planPublic transport frequency insufficient
5.x Sustainable BallaratOngoingMultiple documentsVarious gaps

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