title: Bacchus Marsh Bulky Goods Strategic Assessment council: moorabool state: vic category: strategy classification: MAJOR status: unknown last_compiled: 2026-05-31 source_docs:
- final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf
Bacchus Marsh Bulky Goods Strategic Assessment
The Bacchus Marsh Bulky Goods Strategic Assessment is a site-selection and planning-controls exercise for large-format retail and associated uses in Bacchus Marsh. Its planning significance is that it tries to replace one-off rezoning proposals with a spatial framework linked to the Bacchus Marsh Urban Growth Framework, the Moorabool Retail Strategy 2041, and a future amendment to the Moorabool Planning Scheme (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3-6, 10-12, 60).
In simple terms, the issue is like deciding where a town should put a very large shed-based shopping area before individual shops start asking to build wherever they can find a vacant block. The assessment found enough long-term demand to justify a dedicated precinct, but the best long-term location was not necessarily the easiest short-term location because its usefulness depends on future population growth, future road exposure, and the broader growth framework (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.11-12, 35-36, 44-49).
Background
The assessment was commissioned after the Moorabool Shire Council Retail Strategy 2041 identified a need for an out-of-centre bulky goods component to reduce high retail expenditure leakage from the municipality (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.10, 20-21). The agenda report states that the Retail Strategy was adopted by Council in April 2016, while the attached assessment states that the Retail Strategy was adopted in December 2015; this date inconsistency is a source limitation requiring confirmation from the original Retail Strategy or Council minutes (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3, 20, 28).
The immediate policy problem was that Bacchus Marsh had retailer interest but no settled strategic position on where bulky goods uses should go (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.17-19). A prior Bunnings-related rezoning request at 101 Gisborne Road was authorised for exhibition as Amendment C71 in 2014, received more than 180 opposing submissions, and was abandoned by Council in December 2015 after concerns about traffic, residential interface impacts, development scale, and the absence of a clear strategic vision (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.50-51). That history matters because it shows the assessment was not just a demand study; it was a mechanism for avoiding repeated site-by-site disputes without a settled hierarchy or land-use logic (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3-6, 50-52).
The assessment was prepared by Essential Economics with Meinhardt and tabled to the Section 86 Urban Growth Strategy Committee on 26 April 2017 (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3, 7-9). The briefing recommended landowner liaison before public exhibition, a report to the June 2017 Ordinary Council Meeting seeking a resolution to advertise the strategy, and public exhibition after that liaison (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, p.6).
Analysis
Demand, Leakage and Land Requirement
The assessment’s demand logic starts with a mismatch between local population growth and local bulky goods supply (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.15-19, 32-36). Moorabool Shire had an estimated 2016 population of 32,310, including 18,580 people in the Bacchus Marsh urban area of Bacchus Marsh, Darley and Maddingley (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.15-16). Forecasts cited in the assessment projected Moorabool Shire to grow by 20,960 residents between 2016 and 2041, with 11,940 of that growth in the Bacchus Marsh urban area (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.15-16). The distribution of that growth is important because approximately 99% of Bacchus Marsh urban-area growth was forecast south of the Western Freeway, split between Bacchus Marsh and Maddingley (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.15-16).
The Retail Strategy evidence cited in the assessment indicated that more than half of Moorabool residents’ retail expenditure was leaving the municipality, and that 80% to 85% of household goods spending was escaping to centres such as Melton and Ballarat (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.20-21, 32-33). Bacchus Marsh had only about 2,300 square metres of bulky goods floorspace, with Wilsons Home Timber & Hardware accounting for about 1,500 square metres of that supply (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, p.32).
The assessment produced a total 2041 floorspace requirement of 16,600 square metres, comprising 13,300 square metres of bulky goods retail floorspace plus 3,300 square metres for non-retail and trade-related uses (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.35-36). Applying a 35% to 40% site-coverage assumption, the assessment estimated that Bacchus Marsh required 2.7 to 3.0 hectares by 2021, 3.4 to 3.9 hectares by 2031, and 4.2 to 4.7 hectares by 2041 (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, p.36). The practical planning test is therefore whether a site can hold at least about 4.2 to 4.7 hectares of usable precinct land, with enough access, parking, servicing, and interface treatment to function as a consolidated precinct rather than scattered individual stores (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.36, 38-40).
Site Selection Mechanism
The assessment used five locational principles: arterial-road visibility and exposure to passing traffic, accessibility to local and regional residents, sufficient site size, relatively flat land, and a relationship with surrounding uses that avoids unacceptable conflict with residential and other sensitive uses (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.4, 11, 38-39). The mechanism is straightforward: large-format retail needs big flat sites and truck access, but planning policy must also protect town-centre functions, residential amenity, gateway landscapes, industrial operations, environmental values and future infrastructure corridors (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.28, 38-40, 44-49, 50-54).
Only two long-term sites met all five locational principles to some degree: Site 1 at Geelong-Bacchus Marsh Road/Fisken Street, Maddingley, and Site 2 at Geelong-Bacchus Marsh Road/Woolpack Road, Maddingley (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.4-5, 41-42). The assessment preferred Site 1 because it is closer to the existing Bacchus Marsh urban area and because its three sub-sites create fallback options if one land parcel is unavailable or constrained (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.48-49).
Site 1 is a cluster of three possible land components (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.42-44). Site 1A at 11 East Maddingley Road is about 18.2 hectares and has an indicative 72,000 square metres of capacity at 40% site coverage (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.42-44). Site 1B at 51 Geelong-Bacchus Marsh Road and adjoining land is about 11.6 hectares and has an indicative 46,000 square metres of capacity at 40% site coverage (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.42-44). Site 1C at 30 Fisken Street is about 5 hectares and has an indicative 20,000 square metres of capacity at 40% site coverage, although the assessment notes that final developable area would depend on more detailed topographic analysis (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.42-44).
Site 2 is about 14.5 hectares, has an indicative 58,000 square metres of capacity at 40% site coverage, and forms part of the Parwan Employment Precinct in the draft Urban Growth Framework (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.46-48). Site 2’s weakness is timing: the assessment described it as currently isolated from Bacchus Marsh urban areas and unlikely to attract bulky goods retailers until Parwan residential growth and the Eastern Link road improve accessibility and exposure (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.47-49). This makes Site 2 a longer-term strategic reserve rather than the preferred near-term spatial answer (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.48-49).
Short-Term Pressure and Contested Alternatives
The assessment separates the best long-term planning location from sites that may satisfy shorter-term demand (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.48-54). Site 3 at 101 Gisborne Road is 3.7 hectares, could accommodate about 15,000 square metres at 40% site coverage, and would meet about 90% of the 2041 floorspace requirement of 16,600 square metres (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.50-52). However, Site 3 is in the General Residential Zone, would require rezoning, has access constraints from Clifton Drive, sits close to housing and childcare, and carries the direct legacy of the abandoned Amendment C71 process with more than 180 opposing submissions (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.50-52). Its planning problem is therefore not whether it can physically fit a large-format retail proposal, but whether traffic, gateway character, sensitive-use interface and community opposition can be resolved through a defensible amendment process (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.50-52).
Site 4 north-east of Hallets Way and the Western Freeway is 2.1 hectares, could accommodate about 8,400 square metres at 40% site coverage, and would meet about 51% of the 2041 floorspace requirement (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.52-54). It has high freeway exposure and broad catchment accessibility, but it is also in the General Residential Zone, relies on access from Holts Lane, adjoins residential land, is constrained by a drainage reserve and would require careful design because it is elevated and visible from surrounding areas (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.52-54). Its smaller area means it cannot act as the sole long-term precinct without further sites, so using it would risk a fragmented bulky goods pattern unless paired with another location or treated as a limited interim response (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.52-54).
The effect of this split is a timing conflict. Site 1 is the preferred strategic location, but the assessment says it is unlikely to attract successful bulky goods retailers in the short to medium term because Geelong-Bacchus Marsh Road did not yet provide the traffic exposure expected by major large-format retailers (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.5-6, 44-49, 54-55). Site 3 has stronger short-term exposure and accessibility, but it has more acute planning and community constraints (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.50-52).
Statutory Controls and Downstream Effects
The assessment identifies bulky goods retailing as Restricted Retail Premises under the Moorabool Planning Scheme (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, p.56). For Site 1A and Site 1B, the existing Special Use Zone 1 for coal mining could allow an application, but the assessment found the zone was not fit for a planned bulky goods precinct because permits would be triggered for many future uses and developments (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.45-46, 58-59). For Site 1C, the Mixed Use Zone could also allow a permit application, but the assessment found that a mixed residential, commercial and industrial purpose could undermine a dedicated bulky goods precinct (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.58-59).
The two main zoning options were Commercial 2 Zone and Special Use Zone, both likely supported by a Development Plan Overlay (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.45-46, 56-59). The Commercial 2 Zone is attractive because it explicitly supports bulky goods retailing and makes Restricted Retailing a Section 1 use, but that flexibility also allows other as-of-right or permit-considered uses that may weaken the intended precinct role or affect the Bacchus Marsh activity centre and neighbourhood centres (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.56-57). The Special Use Zone could be tailored to restricted retail premises and ancillary uses such as trade supplies and landscape gardening supplies, but the assessment cautioned that a Special Use Zone should be used only where another zone cannot achieve the outcome with local policy and overlays (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.57-58).
A Development Plan Overlay would require masterplanning and make later permits generally align with the approved development plan, but the assessment also notes that a DPO removes third-party notice and review (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, p.58). That is a significant statutory effect in a context where Site 3 had already generated more than 180 opposing submissions and where interface issues are central to site selection (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.50-52, 58). If a DPO is used, the earlier amendment and exhibition stage becomes the main point for community and agency scrutiny because later development-plan-aligned permits may have reduced participation pathways (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, p.58).
Current Status
As at the 26 April 2017 Section 86 Urban Growth Strategy Committee agenda, the Strategic Bulky Goods Assessment had been completed as a final March 2017 report and was being presented for noting and progression toward public exhibition (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3-6, 7-9). The recommended next steps were landowner liaison, a June 2017 Ordinary Council report seeking a resolution to advertise the strategy, and public exhibition after that liaison (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, p.6). The manifest provides no later adoption, exhibition, amendment or gazettal record, so the current statutory status cannot be confirmed from the available source set (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3-6).
Dependencies
- Blocks: A settled bulky goods precinct direction blocks ad hoc rezoning pressure from being treated only as individual site proposals, because the assessment was intended to guide the Urban Growth Framework, MSS review and future planning controls (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3-6, 56-60).
- Blocked by: Implementation is blocked by Council’s site choice, landowner liaison, Urban Growth Framework integration, future planning scheme amendment work, and unresolved access, interface, environmental and infrastructure constraints for the selected site or sites (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.6, 39-46, 56-60).
- Informed by: The assessment is informed by the Moorabool Retail Strategy 2041, the draft Bacchus Marsh Urban Growth Framework, population forecasts by id Consulting, benchmark homemaker-centre site coverage, and discussions with Wilsons Home Timber and Hardware and Bunnings Warehouse (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.20-24, 35-36, 40-41).
- Implements: The work implements the Retail Strategy recommendation for an out-of-centre bulky goods/homemaker location in Bacchus Marsh and was intended to inform the 2017/18 planning scheme review including the MSS review (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3-4, 20-22).
- Conflicts with: Potential conflicts include residential amenity at Site 3 and Site 4, the operation and future protection of the Maddingley Brown Coal Mine near Sites 1 and 2, gateway landscape and viewline impacts at Site 3 and Site 4, and possible impacts on the Bacchus Marsh activity centre if overly broad commercial controls allow uses better suited to activity centres (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.44-46, 50-54, 56-58).
Cross-Jurisdictional Links
The assessment is local in its recommendations but regional in its demand logic. Bacchus Marsh sits about 13 kilometres west of Melton and about 60 kilometres east of Ballarat, and those centres currently absorb much of the bulky goods spending that is not retained in Moorabool (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.15, 32-33). Watergardens and other western Melbourne homemaker centres are also identified as competing destinations for Bacchus Marsh residents (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.32-33). The Western Freeway, Ballarat railway line, Geelong-Bacchus Marsh Road and proposed Eastern Link are therefore not just access assets; they shape whether Bacchus Marsh can support a local precinct or continues to export household-goods trips to Melton, Ballarat and metropolitan Melbourne (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.15-18, 32-34, 44-49).
The assessment was also being prepared alongside the VPA-supported Bacchus Marsh Urban Growth Framework, which means the bulky goods decision was intended to sit within a broader state-local growth planning process rather than a standalone commercial rezoning (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.21-24, 60). The source does not include VicRoads corridor study material, VPA final framework documents, or infrastructure authority servicing advice, so cross-agency dependencies can be identified only at a high level (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.17-18, 39-40, 60).
Gaps in This Analysis
This page relies on one agenda PDF containing the committee briefing and attached March 2017 assessment. The original Moorabool Retail Strategy 2041, final or exhibited Bacchus Marsh Urban Growth Framework, Amendment C71 material, any later bulky goods exhibition submissions, Council adoption minutes, planning scheme amendment documentation, traffic reports, environmental assessments, servicing advice, and landowner consultation records are not included in the manifest (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.3-6, 20-24, 50-52, 56-60). This limits the analysis of current status, final statutory effect, post-2017 policy changes, whether Site 1 was carried forward, and whether any subsequent development approval or amendment resolved the identified conflicts (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.6, 54-60).
The main analytical gaps to log in _gaps are: the original Retail Strategy because it supplies the leakage and demand assumptions; the final Urban Growth Framework because Site 1 and Site 2 depend on its land-use and road assumptions; Amendment C71 records because they explain the contested Site 3 precedent; and any later Council report after April 2017 because the available source only recommends exhibition and does not confirm adoption or abandonment (Source: final-agenda-s86-urban-growth-strategy-committee-26-04-17.pdf, pp.6, 20-24, 50-52, 60).