title: Amendment C88 - Ballan Strategic Directions council: moorabool state: vic category: amendment classification: MAJOR status: unknown last_compiled: 2026-05-31 source_docs:
- moorabool-c88-panel-report.pdf
- 10.2.2a-ballan-strategic-directions-part-a.pdf
- 10.2.2a-ballan-strategic-directions-part-b.pdf
Amendment C88 - Ballan Strategic Directions
Amendment C88 was the statutory mechanism used to translate the Ballan Strategic Directions into the Moorabool Planning Scheme, but the Panel narrowed how much of the strategy could operate as binding policy. (Source: moorabool-c88-panel-report.pdf, p.1) The practical effect is that Ballan’s growth framework was supported in principle, while several detailed controls for gateways, rural interfaces, river open space, growth sequencing and industrial expansion were pushed back to later rezoning and development-plan processes. (Source: moorabool-c88-panel-report.pdf, pp.15-23; Source: moorabool-c88-panel-report.pdf, pp.25-33; Source: moorabool-c88-panel-report.pdf, pp.47-52)
Background
Ballan is positioned between Melbourne, Bacchus Marsh and Ballarat, with access by the Western Freeway and the Melbourne-Ballarat rail corridor shaping its role as a peri-urban service and commuter town. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) The Ballan Strategic Directions report recorded a 2015 population of 2,967 people, a projected 2016 population of 3,010 people and a projected 2041 population of 5,910 people. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) The growth task identified in the strategy was approximately 2,943 additional residents to 2041, or about 117 residents per year. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) Using an assumed household size of 2.6 persons, the strategy translated this into about 45 dwellings per year and about 1,125 additional dwellings to 2041. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) At a regional greenfield density of 10 to 15 dwellings per hectare, the strategy estimated that about 125 hectares of developable residential land would be required to 2041. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
The policy setting was not simply growth promotion. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) The strategy treated Ballan’s country-town character, historic core, 30 metre road reserves, Werribee River corridor, gateways, rural edges and rail access as the main structuring elements for future development. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) Community feedback recorded support for some growth, including greenfield growth south of the railway line, but also raised concern about the form and scale of new residential development and the need for roads, drainage, schools and sporting grounds to keep pace. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf)
As exhibited, Amendment C88 proposed to amend Clause 21.08 and the Ballan Framework Plan, change residential zones and schedules across Ballan, rezone the Ballan Industrial Estate from Industrial 2 Zone to Industrial 1 Zone, and rezone part of the Ballan Golf Course from General Residential Zone to Special Use Zone Schedule 3. (Source: moorabool-c88-panel-report.pdf, p.1) The amendment was authorised on 20 July 2018 and exhibited from 30 August to 11 October 2018. (Source: moorabool-c88-panel-report.pdf) Council received 42 submissions, including three late submissions, and 35 submissions objected to or sought changes to the amendment. (Source: moorabool-c88-panel-report.pdf)
Analysis
Statutory effect and limits of the strategy
The Panel’s central statutory finding was that Amendment C88 was generally well-founded, but that policy should not depend too heavily on an external background document. (Source: moorabool-c88-panel-report.pdf) The exhibited amendment relied on the Ballan Strategic Directions to explain growth types, precinct preconditions, design objectives and the Framework Plan. (Source: moorabool-c88-panel-report.pdf, p.1; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The Panel recommended removing all references to the Ballan Strategic Directions from policy and leaving it as a background document. (Source: moorabool-c88-panel-report.pdf, p.15)
That recommendation changes the way the system works. (Source: moorabool-c88-panel-report.pdf, p.15) If the strategy is only background material, its maps and precinct preconditions inform decision-making but do not operate like incorporated statutory text. (Source: moorabool-c88-panel-report.pdf, p.15) The binding levers become the revised Clause 21.08 wording, the Ballan Framework Plan, applied zones, zone schedules, future Development Plan Overlays, future Section 173 agreements and future development contributions mechanisms. (Source: moorabool-c88-panel-report.pdf, p.15; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
The strategy itself anticipated that most growth precincts would need later rezoning processes before development. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) It also anticipated that precinct-specific Development Plan Overlays would carry the detailed preconditions for larger greenfield areas. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The Panel’s position therefore keeps the amendment as a strategic settlement-boundary and zoning reset, rather than a final precinct delivery instrument. (Source: moorabool-c88-panel-report.pdf, p.15; Source: moorabool-c88-panel-report.pdf, pp.47-50)
Land supply mechanism
The land supply issue turned on timing, not just total yield. (Source: moorabool-c88-panel-report.pdf, pp.15-17) Council’s updated land supply evidence identified about 360 potential lots in established areas and about 1,100 potential lots in identified growth precincts. (Source: moorabool-c88-panel-report.pdf, p.16) On that evidence, the amendment would provide about 27 years of supply. (Source: moorabool-c88-panel-report.pdf, p.16) The Panel split that 27 years into 6.7 years of established-area supply and 20.3 years of growth-precinct supply. (Source: moorabool-c88-panel-report.pdf, p.16)
The mechanism is important. (Source: moorabool-c88-panel-report.pdf, pp.16-17) A 20.3 year greenfield supply is not equivalent to a 20.3 year stock of ready-to-subdivide land, because future growth precincts still require rezoning, design, servicing and approval lead times. (Source: moorabool-c88-panel-report.pdf, pp.16-17) The Panel reasoned that if supply was exhausted in 2041, then the 15-year minimum supply threshold would be reached in 2026, and rezoning would need to begin around 2021 to allow for approval and design lead times. (Source: moorabool-c88-panel-report.pdf, p.16) The Panel therefore recommended changing Clause 21.08-2 so the township boundary is maintained until land supply approaches 15 years, rather than until the planned level of growth is nearing completion and demand for further growth is demonstrated. (Source: moorabool-c88-panel-report.pdf, p.23)
This is the main cause-and-effect shift in Amendment C88. (Source: moorabool-c88-panel-report.pdf, pp.15-17) Council’s approach treated the boundary as a long-term containment tool that protected Ballan’s rural and landscape setting. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) The Panel’s approach treated the boundary as a managed land-supply tool that must be reviewed before the 15-year supply floor is reached. (Source: moorabool-c88-panel-report.pdf, pp.16-17) That makes future rezoning decisions more sensitive to rolling supply calculations, infrastructure readiness and whether precinct land can actually be delivered. (Source: moorabool-c88-panel-report.pdf, pp.16-17)
Growth precinct sequencing
The strategy identified Precinct 5, the Western Growth Precinct, as the priority greenfield area, subject to preconditions including servicing, a modified grid, wide road reserves, Werribee River open space, gateway treatment and a diverse range of lot sizes. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The strategy recorded that Precinct 5 was bounded by the Western Freeway, Old Melbourne Road, the Werribee River valley and Geelong-Ballan Road, with cleared paddocks in the west and river valley and floodplain in the east. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The Panel noted an active development proposal for Precinct 5 and accepted that this made Precinct 5 likely to proceed ahead of Precinct 6. (Source: moorabool-c88-panel-report.pdf, p.19)
Precinct 6 created the main sequencing dispute. (Source: moorabool-c88-panel-report.pdf, pp.17-19) Submitters argued that land south of the railway line should be prioritised because of its proximity to the railway station, town services and recreation facilities. (Source: moorabool-c88-panel-report.pdf, pp.17-18) The Panel accepted that Precincts 5 and 6 are both about 400 metres from the Ballan Activity Centre at their closest points, but that Precinct 6 is much closer to the railway station. (Source: moorabool-c88-panel-report.pdf, p.18) Central Highlands Water advised that bringing Precinct 6 forward would not be supported and could require substantial developer investment in water and sewerage infrastructure. (Source: moorabool-c88-panel-report.pdf, p.18) Transport for Victoria had also maintained concerns about existing or additional rail crossings. (Source: moorabool-c88-panel-report.pdf, p.18)
The Panel did not direct Precinct 6 to replace Precinct 5 as the first growth area. (Source: moorabool-c88-panel-report.pdf, p.19) Instead, it found that earlier development south of the railway line may have merit, but that any such shift depends on landowner cooperation, rail crossing analysis, infrastructure funding, supply-and-demand evidence and servicing discussions. (Source: moorabool-c88-panel-report.pdf, p.19) In practical terms, Precinct 6 is more accessible to rail but more dependent on agency agreement and infrastructure resolution. (Source: moorabool-c88-panel-report.pdf, p.18; Source: moorabool-c88-panel-report.pdf, p.19)
Precincts 7, 8 and 9 were the larger boundary question. (Source: moorabool-c88-panel-report.pdf, pp.19-23) As exhibited, Precinct 7 was outside the township boundary, and Precincts 8 and 9 were outside the township boundary but identified as future investigation areas. (Source: moorabool-c88-panel-report.pdf, p.19) Council later supported including Precinct 7 in the township boundary as a Residential Expansion Precinct. (Source: moorabool-c88-panel-report.pdf, p.19) The Panel went further and recommended including Precincts 8 and 9 in the township boundary. (Source: moorabool-c88-panel-report.pdf, p.23) Its reasoning was that these precincts were strategically supported, well located for future expansion, not subject to insurmountable environmental or infrastructure constraints on the evidence presented, and administratively better handled inside the boundary while future rezoning controls manage sequencing. (Source: moorabool-c88-panel-report.pdf, pp.22-23)
Werribee River, open space and environmental constraints
The Werribee River is both a physical constraint and the main open-space spine for Ballan. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) The strategy recorded that the river traverses Ballan, divides residential areas north and south of the river, floods at times and provides habitat for native flora and fauna. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) The Panel recorded Melbourne Water’s evidence that the river channel and floodplain in Ballan were in good geomorphic condition and supported native fauna and flora, including listed and notable species observations. (Source: moorabool-c88-panel-report.pdf, p.26)
The amendment sought public land reserves associated with the Werribee River in new developments, retention of tributaries in growth precincts, Melbourne Water buffers and stormwater controls to minimise impacts on the river and tributaries. (Source: moorabool-c88-panel-report.pdf, p.25) The strategy also proposed a structural loop of linear open spaces and street-based links, with the Werribee River as the primary corridor. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) That open-space mechanism means river land is not only a constraint on developable area; it is also the route by which new growth precincts connect back into the town’s movement and recreation network. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
The Panel accepted the river-corridor objective but resisted fixing final open-space boundaries in the Framework Plan. (Source: moorabool-c88-panel-report.pdf, pp.25-27) In Precinct 2, the landowners said 65 percent of the precinct, or 12.4 hectares, was shown as open space, with only 35 percent, or 6.6 hectares, shown as developable land. (Source: moorabool-c88-panel-report.pdf, p.26) The Panel found that the boundary between residential development and open space in Precincts 1, 2 and 5 should be determined during later rezoning, after detailed concept planning addresses the Werribee River, tributaries, 1 percent AEP flood extent and environmental values. (Source: moorabool-c88-panel-report.pdf, p.26) It also found that undeveloped river-valley land within the township boundary should move to open space or conservation purposes rather than remain in farming use. (Source: moorabool-c88-panel-report.pdf, p.27)
Residential zones, density and character controls
Amendment C88 used different residential zones and minimum lot sizes to translate the settlement framework into statutory controls. (Source: moorabool-c88-panel-report.pdf, p.3) The exhibited framework included GRZ4 for existing and proposed greenfield general residential areas, NRZ7 with an 800 square metre minimum lot size, NRZ6 with a 1,400 square metre minimum lot size, LDRZ with 2,000 square metre and 4,000 square metre outcomes depending on context, and RLZ-style lower-density outcomes for some transition areas. (Source: moorabool-c88-panel-report.pdf, p.3)
The Panel supported the broad use of the Neighbourhood Residential Zone where it responded to low-density character, poor connectivity or river-related constraints. (Source: moorabool-c88-panel-report.pdf, pp.27-29) The Panel accepted the 1,400 square metre NRZ6 minimum lot size for areas with larger-lot character north of the Werribee River, noting Council’s lot-size analysis found a current median lot size of 1,800 square metres in the proposed NRZ6 area. (Source: moorabool-c88-panel-report.pdf, pp.36-37) The Panel also supported retaining 800 square metres as the NRZ7 minimum lot size in areas where recent development and varied lot patterns made a lower-density but not rural-scale control appropriate. (Source: moorabool-c88-panel-report.pdf, pp.37-42)
The lower-density controls are not a simple anti-growth measure. (Source: moorabool-c88-panel-report.pdf, pp.27-29) The mechanism is to focus conventional growth in preferred greenfield precincts and accessible established areas, while using larger lots north of the river and at sensitive edges to manage landscape character, infrastructure limits and rural interfaces. (Source: moorabool-c88-panel-report.pdf, pp.27-29; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The risk is that large minimum lots can reduce deliverable yield if applied without evidence about what interface or gateway outcome is actually needed. (Source: moorabool-c88-panel-report.pdf, pp.29-33)
Gateways and rural interfaces
The strategy proposed larger lots and lower densities at entrances to Ballan, along rural edges and near the Western Freeway. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The Panel accepted that some transition treatment may be needed, but found that the specific lot sizes proposed for urban-rural interfaces and gateways were not justified by detailed visual, landscape or design analysis. (Source: moorabool-c88-panel-report.pdf, pp.29-33) The Panel observed that larger lots do not automatically produce a landscaped rural-edge outcome, because large lots can be developed as manicured estates, treed lots or storage-heavy domestic properties depending on later controls. (Source: moorabool-c88-panel-report.pdf, pp.30-31)
The Panel therefore recommended replacing specific Rural Living 10,000 square metre minimum notations in Precincts 4 and 5 with a more general proposed lower densities notation. (Source: moorabool-c88-panel-report.pdf, p.31) It also recommended replacing specific Old Melbourne Road lot-size notations, including number 462, with a general proposed larger residential allotments notation. (Source: moorabool-c88-panel-report.pdf, p.33) The effect is that gateway and interface design remains a live question for later precinct planning, rather than a fixed yield reduction imposed at the strategic amendment stage. (Source: moorabool-c88-panel-report.pdf, pp.29-33)
Infrastructure, servicing and contributions
The strategy identified drainage and servicing as a binding delivery issue for Ballan’s growth. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) Existing areas were described as generally well serviced, but larger developments had often delivered utilities and drainage on a site-specific basis without a coordinated township approach. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) Melbourne Water had prepared Development Services Schemes for Ballan to coordinate drainage infrastructure and water-quality treatment for future urban development, although those schemes did not resolve pre-existing flooding. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
The key authorities identified in the strategy were Melbourne Water for waterway, regional drainage and floodplain management; Moorabool Shire Council for local drainage; Central Highlands Water for sewer, recycled water and potable water; Powercor for electricity; SP AusNet for gas; and Telstra for telecommunications. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The strategy also identified a high-pressure gas transmission pipeline south of town on Gillespies Lane, with sensitive land-use buffers likely to be required. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
The strategy’s action plan required Council to identify infrastructure requirements with a nexus to growth precincts before development or rezoning, so contributions could be secured through a Section 173 agreement or a Development Contributions Plan. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The supplied documents do not include a DCP, levy schedule or itemised infrastructure cost plan, so this page cannot quantify per-hectare or per-lot contribution exposure. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf; Source: moorabool-c88-panel-report.pdf)
Employment land and town-centre role
The strategy identified two main employment nodes: the Ballan Town Centre, including community and health services, and the Ballan Industrial Estate. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The town centre was described as the only substantial retail centre in Moorabool outside Bacchus Marsh, anchored by an IGA supermarket of about 950 square metres. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The strategy cited retail analysis indicating that Ballan could support about 8,000 to 9,000 square metres of retail floorspace in the town centre by 2041, and that about 12,000 square metres of vacant town-centre land could potentially accommodate that floorspace. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
The Ballan Industrial Precinct was recorded as 19.5 hectares, with a 17 percent vacancy rate in the Industrial Strategy and about 106 full-time-equivalent employees. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The strategy treated the industrial precinct as suitable for population-serving industries, but also noted buffer issues because dwellings exist within a one kilometre radius. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The Panel supported the exhibited rezoning of the existing industrial estate from Industrial 2 Zone to Industrial 1 Zone and recommended adding 164 Kerrins Lane, Ballan, Lot 2 on PS802215, to the Industrial 1 Zone. (Source: moorabool-c88-panel-report.pdf, pp.50-52) The Panel’s reasoning was that delayed rezoning could cause industrial activity and jobs to be lost elsewhere because bespoke industrial subdivision would be impractical if every request first required a separate rezoning. (Source: moorabool-c88-panel-report.pdf, p.51)
Current Status
The supplied corpus establishes that the Panel report was dated 4 July 2019 and recommended that Amendment C88 be adopted subject to Council’s post-exhibition version and Panel changes. (Source: moorabool-c88-panel-report.pdf) The supplied corpus does not include Council adoption minutes, Ministerial approval material or a Victoria Government Gazette notice confirming the final approved form of Amendment C88. (Source: moorabool-c88-panel-report.pdf; Source: 10.2.2a-ballan-strategic-directions-part-a.pdf; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) The current statutory status is therefore unknown from the supplied documents, and any later gazettal or planning-scheme translation should be checked before relying on this page for current controls. (Source: moorabool-c88-panel-report.pdf)
Dependencies
- Blocks: Future residential rezoning in Ballan depends on the settlement-boundary, growth-precinct and zone framework established through Amendment C88, with later precinct amendments required for most greenfield areas. (Source: moorabool-c88-panel-report.pdf, pp.15-23; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
- Blocked by: Detailed delivery depends on servicing capacity, drainage schemes, Werribee River and tributary constraints, rail crossing resolution for southern growth, landowner coordination, development-plan preparation and infrastructure funding mechanisms. (Source: moorabool-c88-panel-report.pdf, pp.18-19; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
- Informed by: The amendment was informed by the Ballan Strategic Directions, land-supply evidence, community submissions, Central Highlands Water input, Transport for Victoria input, Melbourne Water evidence, and precinct-level technical material referenced in the Panel process. (Source: moorabool-c88-panel-report.pdf, pp.15-23; Source: moorabool-c88-panel-report.pdf, p.26)
- Implements: The amendment implements the strategic direction that Ballan should accommodate peri-urban growth while protecting rural character, environmental assets, heritage character, the town centre and the industrial precinct. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf; Source: moorabool-c88-panel-report.pdf, p.1)
- Conflicts with: The main tension is between a character-led containment model and a rolling land-supply model that requires earlier action to avoid falling below a 15-year supply threshold. (Source: moorabool-c88-panel-report.pdf, pp.15-17)
Cross-Jurisdictional Links
Ballan’s growth role is linked to the Central Highlands Regional Growth Plan, which identified Ballan as a town that should support growth while respecting rural character and environmental attributes. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) The strategy also linked Ballan’s future demand to its accessibility to Melbourne, Ballarat, Bacchus Marsh and Geelong, with the Western Freeway and rail corridor shaping both commuting and settlement pressure. (Source: 10.2.2a-ballan-strategic-directions-part-a.pdf) Infrastructure dependencies extend beyond Council because Melbourne Water, Central Highlands Water, Powercor, SP AusNet, Telstra and transport agencies control or influence drainage, water, sewer, energy, telecommunications and rail-crossing outcomes. (Source: 10.2.2a-ballan-strategic-directions-part-b.pdf; Source: moorabool-c88-panel-report.pdf, p.18)
Gaps in This Analysis
This analysis is limited by missing post-Panel statutory material. (Source: moorabool-c88-panel-report.pdf) The corpus does not include Council adoption minutes, the final approved amendment documents, the gazettal notice, or the current Clause 21.08 translation after Amendment C88. (Source: moorabool-c88-panel-report.pdf)
The corpus also omits several technical inputs referenced by the Panel or strategy. (Source: moorabool-c88-panel-report.pdf; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) Missing material includes the Essential Economics or Ethos Urban land-supply assessment, Central Highlands Water servicing maps, Transport for Victoria rail-crossing advice, Melbourne Water Development Services Schemes, the Ballan Recreation Reserve Masterplan 2018, detailed submissions, and any later precinct-specific rezoning or Development Plan Overlay material. (Source: moorabool-c88-panel-report.pdf, pp.16-19; Source: moorabool-c88-panel-report.pdf, pp.47-49; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf) These gaps prevent quantified analysis of final yield, trunk infrastructure cost, contribution rates, rail-crossing cost, drainage land take and current statutory controls. (Source: moorabool-c88-panel-report.pdf; Source: 10.2.2a-ballan-strategic-directions-part-b.pdf)
Current-Status Guardrail
This is a material planning-signal page, but production legal-status advice requires the final approval, gazette, EES/assessment or adopted implementation record to be cited on the page. Until that evidence is present, use this page for mechanism and dependency intelligence rather than final operative-law status.