council agenda 14 october 2015

AGENDA

Ordinary Meeting of Council

6.00pm Wednesday 14 October 2015

*** Broadcast live on Phoenix FM 106.7 ***

QUESTION TIME WILL BE LIMITED TO WRITTEN QUESTIONS RECEIVED BEFORE 12 NOON ON THE DAY OF THE MEETING. THE QUESTIONS WILL BE READ BY A COUNCIL

REPRESENTATIVE AND ANSWERED BY THE MAYOR. THERE WILL NOT BE AN OPPORTUNITY FOR QUESTIONS TO BE ASKED FROM THE FLOOR

VENUE:

Reception Room,

Bendigo Town Hall,

Hargreaves Street, Bendigo

NEXT MEETING:

Wednesday 4 November 2015

Bendigo Town Hall

Copies of the City of Greater Bendigo Councils Agendas & Minutes

can be obtained online at www.bendigo.vic.gov.au

Council Vision

Greater Bendigo - Working together to be Australia's most liveable regional city.

Council Values Council wants the community to continue to have reason to be proud of the city and will do this through:

Transparency - Information about Council decisions is readily available and easily understood;

Efficiency and effectiveness - Council provides services based on evidence of need and demonstrates continuous improvement in the delivery of services;

Inclusion and consultation - Council uses a range of engagement strategies to ensure community members can understand and take part in discussion that informs the development of new strategies and actions;

Clear decisive and consistent planning - In a rapidly growing municipality, Council undertakes to plan effectively for our long-term future;

Respect for community priorities and needs - Council will advocate for improved services for community members and will consider community impact and feedback the decisions it makes.

Themes 1. Planning for Growth

2. Presentation and Vibrancy

3. Productivity

4. Sustainability

5. Leadership and Good Governance

ORDINARY MEETING WEDNESDAY 14 OCTOBER 2015

ORDER OF BUSINESS:

ITEM PRECIS PAGE

ACKNOWLEDGEMENT OF COUNTRY 6

PRAYER 6

PRESENT 6

APOLOGIES 6

SUSPENSION OF STANDING ORDERS 6

PUBLIC QUESTION TIME 6

RESUMPTION OF STANDING ORDERS 7

DECLARATIONS OF CONFLICT OF INTEREST 8

CONFIRMATION OF MINUTES 9

1. PETITIONS AND JOINT LETTERS 10

1.1 PETITION: REQUEST FOR CITY OF GREATER BENDIGO

TO RETHINK ORGANIC WASTE OPTIONS

10

1.2 RESPONSE TO PETITION: KEEP THE DISCOVERY

SCIENCE AND TECHNOLOGY CENTRE OPEN

13

1.3 RESPONSE TO PETITION: KANGAROO FLAT

(BROWNING STREET) LEISURE CENTRE

BUILDING/GREATER BENDIGO AQUATIC AND

WELLBEING CENTRE

19

1.4 RESPONSE TO PETITION: REQUEST TO PROVIDE AN

ADDITIONAL ACCESS ROAD AND CAR PARKING WITHIN

THE BIG HILL PRIMARY SCHOOL VICINITY

38

1.5 PETITIONS NOT REQUIRING COUNCIL RESOLUTION 49

2. PRESENTATION AND VIBRANCY 52

2.1 SAFE HAVEN ENTERPRISE VISA PROGRAM 52

2.2 DRAFT GREATER BENDIGO MUNICIPAL EARLY YEARS

PLAN

62

2.3 GREATER BENDIGO REGIONAL FOOD HUB - DRAFT

FEASIBILITY STUDY

71

2.4 AQUATIC FACILITY OPERATIONS SUMMARY 2014/15 77

2.5 2016-2017 COMMUNITY SPORTS INFRASTRUCTURE

FUND

86

2.6 TIMOR LESTE REPORT 30 SEPTEMBER 2015 101

2.7 2015 16 COMMUNITY GRANTS PROGRAM ROUND 1 110

3. PLANNING FOR GROWTH 120

3.1 PLANNING SCHEME AMENDMENT C214 - DOMESTIC

WASTEWATER MANAGEMENT STRATEGY - FOR

ADOPTION

120

3.2 PLANNING SCHEME AMENDMENT C219 - APPLYING THE

HERITAGE OVERLAY TO PART OF 16 CROOK STREET,

KENNINGTON - FOR ADOPTION

133

3.3 11-13 WEIR COURT, KANGAROO FLAT 3555 -

SUBDIVISION OF LAND (4 LOTS), DEMOLITION OF

OUTBUILDINGS; REMOVAL OF AN EASEMENT AND

CREATION OF AN EASEMENT

138

3.4 182 WATTLE STREET, BENDIGO 3550 - PARTIAL

DEMOLITION OF DWELLING, DEMOLITION OF

OUTBUILDING, THREE STOREY EXTENSION TO

EXISTING DWELLING AND CONSTRUCTION OF

SWIMMING POOL AND GARAGE (AMENDED PLANS )

157

3.5 485 TANNERY LANE, STRATHFIELDSAYE 3551 - 2 LOT

SUBDIVISION

176

3.6 142 RYALLS LANE, STRATHFIELDSAYE 3551 - 2 LOT

SUBDIVISION OF LAND

188

3.7 73-77 KENNEWELL STREET AND 171 ST KILLIAN

STREET, WHITE HILLS - STAGED SUBDIVISION OF LAND

INTO 21 LOTS AND REMOVAL OF NATIVE VEGETATION

199

3.8 UNITY MINING ERC - NOMINATIONS FOR COMMUNITY

REPRESENTATIVES

219

4. PRODUCTIVITY 223

5. SUSTAINABILITY 224

5.1 GREATER BENDIGO PLANNING SCHEME AMENDMENT

C217- BIG HILL AND MANDURANG VALLEY LANDSCAPE

ASSESSMENT

224

6. LEADERSHIP AND GOOD GOVERNANCE 262

6.1 FINANCIAL STATEMENTS AND PERFORMANCE 262

STATEMENT FOR THE FINANCIAL YEAR 2014/2015

6.2 BENDIGO GOLF CLUB - REQUEST TO REIMBURSE BACK

RATES

266

6.3 POLICIES APPLICABLE TO COUNCILLORS 270

6.4 COUNCILLOR DISPUTE RESOLUTION 302

6.5 MEMBERSHIP OF MURRAY DARLING ASSOCIATION 307

6.6 SUBMISSION TO HERITAGE ACT REVIEW 2015 310

6.7 RECORD OF ASSEMBLIES 314

6.8 CONTRACTS AWARDED UNDER DELEGATION 325

6.9 APPOINTMENT OF INDEPENDENT MEMBER OF THE

AUDIT COMMITTEE

327

7. URGENT BUSINESS 329

8. NOTICES OF MOTION 330

8.1 NOTICE OF MOTION: LAKE EPPALOCK 330

9. COUNCILLORS' REPORTS 332

10. MAYOR'S REPORT 332

11. CHIEF EXECUTIVE OFFICER'S REPORT 332

12. CONFIDENTIAL (SECTION 89) REPORTS 332

____________________________

CRAIG NIEMANN CHIEF EXECUTIVE OFFICER

Ordinary Meeting - 14 October 2015

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ACKNOWLEDGEMENT OF COUNTRY

PRAYER

PRESENT

APOLOGIES

SUSPENSION OF STANDING ORDERS

That Standing Orders be suspended to allow the conduct of Public Question Time.

PUBLIC QUESTION TIME

Public Question Time Guidelines Public Question Time Purpose Council has provided the opportunity for members of the public to lodge written questions of broad interest to Council and the community. Matters relating to routine Council works should be taken up with Councils Customer Service Officers through its Customer Request System. Question time will be limited to written questions received before 12 noon on the day of the meeting. The questions will be read by a Council representative and answered by the Mayor. No questions relating to planning matters on the Agenda will be accepted. By the time planning matters have reached the council agenda, they have been through an extensive process as required by the Planning and Environment Act. In addition, in most instances mediation has been held between the parties involved. Throughout the process there are many opportunities for people to ask questions. Public Question Time Where, When And Who The public question time is held at every Ordinary Meeting of Greater Bendigo City Council. Meetings of Council commence at 6.00pm in the Reception Room, Bendigo Town Hall, Hargreaves Street, Bendigo. The public question time is held at the start of the meeting as close as practical to 6:00pm. A maximum of 30 minutes has been provided for registered written questions. Acceptance of Questions Councils Meeting Procedure Local Law does not allow for other questions or comments during the remainder of the meeting. 1. An individual may only lodge one question per meeting. 2. In the event that the same or similar written question is raised by more than one

person, an answer may be given as a combined response.


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3. In the event that time does not permit all written questions registered to be answered, questions will be answered in writing or referred to the next meeting if appropriate.

4. The Mayor and or CEO have the right to decline registration on basis of:

Legal proceedings;

More appropriately addressed by other means;

Vague or lacking in substance, irrelevant, frivolous, insulting offensive, improper, defamatory or demeaning;

Answer likely to compromise his / her position;

Confidential, commercial-in-confidence. 5. Each individual whose written question has been accepted or declined will be

advised by early afternoon on the day of the scheduled meeting. 6. In the event of a written question being declined the question will be circulated to

the Council for information.

RESUMPTION OF STANDING ORDERS

That Standing Orders be resumed.

CR LEACH'S REPORT


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DECLARATIONS OF CONFLICT OF INTEREST

Pursuant to Sections 77, 78 and 79 of the Local Government Act 1989 (as amended) direct and indirect conflict of interest must be declared prior to debate on specific items within the agenda; or in writing to the Chief Executive Officer before the meeting. Declaration of indirect interests must also include the classification of the interest (in circumstances where a Councillor has made a Declaration in writing, the classification of the interest must still be declared at the meeting), i.e.

(a) direct financial interest (b) indirect interest by close association (c) indirect interest that is an indirect financial interest (d) indirect interest because of conflicting duties (e) indirect interest because of receipt of an applicable gift (f) indirect interest as a consequence of becoming an interested party (g) indirect interest as a result of impact on residential amenity (h) conflicting personal interest A Councillor who has declared a conflict of interest, must leave the meeting and remain outside the room while the matter is being considered, or any vote is taken. Councillors are also encouraged to declare circumstances where there may be a perceived conflict of interest.


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CONFIRMATION OF MINUTES

Minutes of the Ordinary Meeting of Wednesday 26 August 2015 and the Ordinary Meeting of Wednesday 16 September 2015. The following items were considered at the Ordinary Council meeting held on Wednesday 26 August 2015 at 6:00pm.

Further Response to Petition and Adoption of Strathfieldsaye Township Traffic Management Plan

Proposed Lot 1, PS716365 - 55 Somerville Street, Flora Hill - Partial Demolition of Existing Building; Use and Develop Land for an Education Centre (Training Facility) and Reduction in Car Parking

Planning Scheme Amendment C201 - New Heritage Places and Heritage Efficiency Review - Adoption

Private Planning Scheme Amendment Policy Review

Priorities for Planning Scheme Amendments - Progress Report for 2014/2015 and Plan for 2015 and Beyond

Connecting Greater Bendigo: Integrated Transport and Land Use Strategy (ITLUS)

Proposed Sale of 8 Rennie Street, Huntly

Bendigo Easter Festival Community Reference Group

An Official Bendigo Scottish Tartan

Women Showing the Way Forum 2015

Graeme Robertson, National Trust, Cast Iron Collection

Nomination for a Council Nominee for Election to the Board of Bendigo Stadium Limited

Record of Assemblies

Contracts Award Under Delegation

Section 89 Confidential Report: Contractual Matter and Proposed Development Due to the closure of the Ordinary Meeting on Wednesday 16 September 2015 following disruption from the public gallery, no business items were dealt with at that meeting. The unconfirmed minutes have also been posted on the City of Greater Bendigo website pending confirmation at this meeting. RECOMMENDATION That the Minutes of the Ordinary Meeting of Council held on Wednesday 26 August 2015 and Wednesday 16 September 2015, as circulated, be taken as read and confirmed.


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1. PETITIONS AND JOINT LETTERS

1.1 PETITION: REQUEST FOR CITY OF GREATER BENDIGO TO RETHINK ORGANIC WASTE OPTIONS

[Petitions and joint letters with ten (10) or more signatures are included in the agenda or tabled at the meeting, unless there is a separate legal process for considering the petition or joint letter, as there is for planning submissions or submissions following public notices (Section 223 LGA)]. An electronic petition has been received regarding the proposed Organic Waste Collection for Greater Bendigo, as outlined below: "If you would like to show your support for: (1) Greenaway Bins and would like to endorse their service; or (2) think that Councils like the City of Greater Bendigo should give small

businesses a "fair go"; or (3) want to be able to choose how you manage your organic waste, e.g.

use green waste, worm farms, compost bins; please consider signing this petition". Signatures - 671 Officer Comment:- (Rachelle Quattrocchi, Acting Director Presentation and Assets) In addition to the key elements of the petition as outlined above, the petition also makes the following points regarding Greenaway Bins:

That it provides a cost effective service for kerbside organics.

That it diverts 15-25 tonnes per week away from landfill. The following is relevant to the introduction of a kerbside organics service by City of Greater Bendigo:

Three separate audits of kerbside waste bins have consistently shown that greater than 50% by weight of the kerbside bin is organic in nature (food waste and garden waste).


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The amount of kerbside waste sent to Eaglehawk and Heathcote landfills in landfill in 2014/15 was 28,756 tonnes.

Based on these figures the estimated amount of organic waste sent to landfill was 14,400 tonnes in 2014/15.

There are an estimated 46,600 residential tenements in City of Greater Bendigo.

At this stage, it is intended that the kerbside organics service will only be introduced in urban Bendigo and the townships of Elmore, Heathcote and Marong. An initial estimate is that this will involve around 35,000 households.

The service is expected to be a compulsory service as is the existing kerbside waste and recycling service. The inclusion of an exemption process has already been identified as a desirable element of the service.

A conservative estimate of the amount of organic material diverted from landfill from a service to 35,000 households is 8,400-10,400 tonnes per annum.

Households outside of urban Bendigo and the townships of Elmore, Heathcote and Marong may be able to opt into the service if they desire. However, they are anticipated to have the space and capability to manage organic waste on their own properties.

The composting of the combined food and garden waste at the expected tonnage of 8,400-10,400 tonnes per annum requires licencing from the Environment Protection Authority (EPA). There are no composting facilities within the Greater Bendigo region that have a licence from EPA to compost combined food and garden organics.

The following points are relevant to evaluating Greenaway Bins role in diverting organics waste from landfill:

Greenaway Bins service is a voluntary service with an estimated take up rate of 5% of households across the City of Greater Bendigo.

While the service Greenaway Bins provides has contributed to diverting material from landfill, the service it provides is for garden waste only and it is therefore not a complete organics kerbside service.

At the upper estimate of 25 tonnes per week of garden waste, the equivalent annual tonnage collected is 1,300 tonnes, which represents 4.5% of the total kerbside waste landfilled in Greater Bendigo in 2014/15.

This material is sent to Epsom Environmental Services where it is composted. The threshold for processing organic material by composting without a licence from EPA is 100 tonnes per month. Epsom Environmental Service is unlikely to be able to compost significant additional material without licencing by EPA.

To put Greenaway Bins operations into context, the amount of garden waste diverted from landfill from the recovery operations at Eaglehawk landfill was 4,570 tonnes in 2014/15.

The purpose of implementing the kerbside organics service as a trial is to understand how the service will work and obtain feedback from households in the two trial areas, prior to determining the final service to be introduced. It has already been anticipated that an exemption process would be appropriate for households that can demonstrate


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they manage all household organics waste on their property in an appropriate manner. This would include, but not be limited to, use of poultry, composting and worm farming. During the trial, information will be collected on the number of households that would not require an organics bin because they manage all their household organic waste on property in an appropriate manner. In addition to the management options outlined above, consideration will also be given to providing an exemption for those households that manage all food waste on their property and at the time of the collection service being implemented (and continuing thereafter), have an existing garden waste collection service through a private operator. Council intends to use its existing collection fleet and staff to collect the organics material during the trial as this is the most cost effective option to Council and ratepayers.

RECOMMENDATION

That Greater Bendigo City Council endorses: 1. That the kerbside organics trial will collect information on the number of households

that manage all organic waste effectively and would therefore have no need for a kerbside organics service.

2. That information from the trial will be used to develop an appropriate exemption

process for households that already manage all organic waste in an effective and appropriate manner.

3. To inform the submitter of the petition of Council's resolution.


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1.2 RESPONSE TO PETITION: KEEP THE DISCOVERY SCIENCE AND TECHNOLOGY CENTRE OPEN

Document Information

Author/ Darren Fuzzard, Interim Director Organisation Support Responsible Director

Summary/Purpose

The purpose of this report is to provide a response to a petition from students from the Big Hill Primary School requesting that the Discovery Science and Technology Centre remain open. The report also considers the business plan presented to Council at the forum on 12 August, 2015 by the Discovery Science and Technology Centre Committee of Management and a request from that group for financial assistance.

Policy Context

Council Plan Reference:

City of Greater Bendigo Council Plan 2013-2017 (2015/16 Update):

Theme: 1 Leadership and good governance

Strategic Objective: 1 Council demonstrates leadership in its decisions to meet future needs and challenges

Strategy 1.1 Good governance principles are used to guide strategic decision-making

Background Information

The following petition was tabled at Council's Ordinary Meeting on 24 June 2015 from students from the Big Hill Primary School (coordinated by the Year 2 students) with the full support by the Big Hill Primary School Council, requesting that the Discovery Science and Technology Centre remain open, as outlined below: "Dear Bendigo City Council, we really like the Discovery Centre (Bendigo) because

you get to learn new science things. Kids really like it and they are sad that it is closing. There are cool machines, so don't let the Discovery Centre close. Grade 2's at Big Hill Primary School want to go to their sleepover in November".

Names - 185


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A further petition with approximately 400 names which was presented to the Hon Jacinta Allan, State Member for Bendigo East, from students at the Quarry Hill Primary School supporting the continuation of Discovery, was also tabled. Council resolved "that the petition be received and a response be prepared within two (2) meetings".

Report

The Bendigo Trust (the Trust) has been managing the Discovery Science and Technology Centre (Discovery Centre) since 2010 when it assumed responsibility for the assets, liabilities and staff of the Bendigo Science and Technology Museum Inc. (BSTMI) under a deed of agreement. BSTMI had previously been operating the centre since 1995. In June 2015, the deed of agreement between BSTMI and the Bendigo Trust expired. At that time, the Trust advised that it would not seek to enter into a new arrangement and consequently all assets, liabilities and staff were returned to the BSTMI. In response, according to its new business plan, the BSTMI has undertaken the following immediate actions:

Re-constituted its membership to include a skill set able to manage the operation of the Discovery Centre.

Ensured that BSTMI is sufficiently financially secure to take on the staff and liabilities of the Centre.

Prepared and implemented a business plan to support a sustainable long term future.

New Committee of Management members of the BSTMI gave a presentation at the Council forum on 12 August, 2015 and outlined their business plan to secure the future of the Discovery Centre. Education, tourism and STEM (Science, Technology, Engineering and Mathematics) connect were nominated as the areas of focus for the future business model. BSTMI indicated that partnerships with the City, La Trobe University, the State Government, Coliban Water and the Bendigo Bank are seen as critical pillars on which to base the Discovery Centres future success. Through these partnerships it is intended to secure funding to: reinvigorate the exhibits; engage a number of qualified teaching staff to support an extended education program; develop and implement a more sophisticated and modern marketing plan; make access to the Discovery Centre more affordable for schools in the region; and, offer a series of promotional scholarships. For its part in this proposal, the BSTMI has requested that Greater Bendigo City Council commits to:

An extension of the existing sub-lease arrangements whereby the City charges a peppercorn rent of $2 per annum and undertakes maintenance work on the building as necessary, and

A funding contribution of $50,000 per year for three years (commencing in 2015/16) with indexation applied annually in accordance with CPI.


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During the BSTMIs presentation, the importance of obtaining a commitment from Council to the full three years of requested funding was expressed. The BSTMI believes that this length of commitment will enable it to secure similar arrangements from its other intended funding partners and therefore permit it to fully commit to its business plan. Since 2010, Greater Bendigo City Council has provided annual funding to the Bendigo Trust to assist in its management of the Discovery Centre. The 2015/16 budget provides an allocation of $40,000 specifically for the Discovery Centre. This was deducted from the funding allocation to the Trust given their decision to no longer manage the Discovery Centre. Discussion A. Extension of the sub-lease arrangements If the City were to charge market rates for rental of this facility, it has been estimated by the Economic Development Unit that it could attract in the order of $200,000-$250,000 per annum. Extension of the existing arrangements would therefore mean that the City continued to, in effect, subsidise the Discovery Centre operations by this amount and to forgo the use on this potential income for other purposes. Note: to date no attempt has been made to explore whether alternative prospective tenants currently exist for the site. Continuing to maintain the existing building under current arrangements is estimated to cost Council a further $10,000 per annum. The Discovery Centre is also covered by the Citys public liability, professional indemnity and building insurance at no cost to the Centre. Insurance provided to the Discovery Centre includes coverage of a motor vehicle, building contents and cash in hand. This cover costs 96 cents per $1000. Any insurance claims, including WorkCover, are also administered by City officers. Accordingly, if Council wishes to continue the current lease and operational arrangements, this should in effect be considered to represent an annual investment in the order of $250,000 - $300,000. B. Funding contribution of $50,000 per year for three years, indexed with CPI. As indicated above, an allowance of $40,000 has been made in the 2015/16 budget for the purpose of supporting the Discovery Centre. The Bendigo Trust has been advised that this money is no longer payable to it as part of its annual allocation and it is therefore available if Council wishes to pay it directly to the BSTMI. In regard to the request to increase this cash contribution to $50,000 in the current year, it is noted that the various contributions from funding partners appear relatively nominal in the business plan presented. Accordingly, it is suggested that Council consider limiting any agreed contribution to what has been budgeted by Council at this point. As always, should Council wish to increase this contribution above $40,000 in 2015/16 then the standard practice of considering this (against other possible priorities) in the mid-year budget review process is recommended.


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It is further suggested that allocating the $40,000 of available funds in 2015/16 to the BSTMI would represent an appropriate response to the new Committee of Managements work and the public feedback received (including the two petitions) following the Bendigo Trusts announcement of its withdrawal from the Discovery Centre. It is understood that this, together with the other funding already obtained through the BSTMIs efforts in the community, would enable the Discovery Centre to continue to operate through 2015/16. The reasons for BSTMIs desire to secure a three year funding commitment from Council are appreciated. Also, the groups achievement in quickly attracting initial funds from a variety of sources should be commended. It is however considered premature for Council to commit itself to three years of cash contributions given the difficulties in operating the Discovery Centre that have come to light through the Bendigo Trusts review of the business. Rather, it is recommended that Council consider a report on progress from the BSTMI as part of developing its 2016/17 budget such that further investment in the Discovery Centre can be considered in the context of all other identified community needs. This approach would also permit all parties to gain a greater appreciation of the ongoing commitment from the community to the Discovery Centre and the effectiveness of the new business plan. As an alternative, Council could consider making a commitment in-principle to the three year funding agreement that is subject to annual demonstration of specified performance indicators being achieved prior to payment of any cash contributions. Such an agreement may assist the BSTMI to secure similar arrangements from its other proposed partners. In practice however it is suggested that such an approach would not offer any real assurance beyond the year-to-year approach recommended above. Should Council deem it appropriate to commit to a three year investment at this time, it is recommended that Council does not accede to the request for annual CPI indexation of the cash contribution. Primarily this is because there are many external parties to which Council allocates funds annually and such indexation is not applied. Not only would accepting this proposal create a precedent, this annual reduction in real terms represents an inbuilt mechanism for reducing the reliance on Council funds over time. In doing so, this creates an effective model to help groups such as the BSTMI to establish while reducing the possibility of Council becoming an arbitrary crutch that prevents a drive for ongoing innovation and self-sufficiency. Risk Analysis:

The information provided by the BSTMI suggests that, with Councils $40,000 contribution in 2015/16, the Discovery Centre can continue to operate through the current financial year. Accordingly, the risk that the pre-existing community benefits from the attraction will not be realised following Council committing to this cash investment appears low.


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Continuing to support the operation of the Discovery Centre however does have a significant potential opportunity cost in the form of unrealised rental income. Given the initial community response to the possible closure of the attraction it is suggested that this potential opportunity cost should be set aside for 2015/16 as the BSTMIs new business plan is tested. Such an approach is considered to be consistent with this Councils position in regard to the closure of the Golden Square pool. Committing upfront to a three year investment of $40,000 - $50,000 per year without the opportunity to annually review the return on this investment and performance of the BSTMI business plan is considered unnecessarily risky for Council for the reasons previously described.

Consultation/Communication

Committee of Management members of the BSTMI presented their proposed business plan to Council on 12 August 2015.

Resource Implications

The 2015/16 budget includes an allowance of $40,000 toward operation of the Discovery Centre. This was previously included in the funding agreement with the Bendigo Trust and is now available for allocation to the BSTMI if deemed appropriate. Should Council wish to increase its funding contribution to the requested $50,000, the additional $10,000 could be considered as part of the mid-year budget review process.

Conclusion

As demonstrated by the two petitions received, the Discovery Centre remains a relevant and important attraction for at least some young residents of Greater Bendigo. A rejuvenated Bendigo Science and Technology Museum Inc (BSTMI) has developed a new business plan which they believe can reinvigorate and reposition the Discovery Centre in the areas of education, tourism and STEM connection. The Business Plan includes a requested indexed contribution of $50,000 per year for three years from Council. The 2015/16 budget currently includes a $40,000 funding allocation for the Discovery Centre and it is considered appropriate that these funds be made available to BSTMI in support of the new business plan. The allocation of the additional $10,000 is not recommended at this point but could be considered in the mid-year budget process. The achievements to date of the new BSTMI board are commendable. At the same time, the findings of the Bendigo Trusts review into the viability of the Discovery Centre cannot be ignored. Accordingly, any allocation of funds to the Discovery Centre should be considered on an annual basis alongside other possible priorities for the community.


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RECOMMENDATION

That the Greater Bendigo City Council:

1. Acknowledge the significant effort made by the new Committee of Management of the Bendigo Science and Technology Museum Inc. in response to the decision of the Bendigo Trust to withdraw from operation of the Discovery Science and Technology Centre.

2. Approve allocating the $40,000 included in Councils 2015/16 Budget for operation of the Discovery Science and Technology Centre to Bendigo Science and Technology Museum Inc.

3. Advise Bendigo Science and Technology Museum Inc. that its request for a commitment from Council to contribute further funds in 2016/17 and 2017/18 will be considered as part of developing the 2016/17 Council Budget. Further, that a report on the Discovery Science and Technology Centres performance during 2015/16 will be required to assist in that consideration.

4. Advise the Bendigo Science and Technology Museum Inc. that an extension of the existing lease beyond October 2016 will be considered as part of reviewing Councils future commitments to the Discovery Centre.

5. Thank the children and Board members of the Big Hill Primary School for their petition and advise them of Councils role and decision on the matter.


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1.3 RESPONSE TO PETITION: KANGAROO FLAT (BROWNING STREET) LEISURE CENTRE BUILDING/GREATER BENDIGO AQUATIC AND WELLBEING CENTRE

Document Information Author and Responsible Stan Liacos - Director, City Futures Director

Summary/Purpose The purpose of this report is to provide information and advice to Council in relation to a recently tabled petition seeking the retention of the Kangaroo Flat Leisure Centre building on Browning Street which Council has resolved on previous occasions to decommission and remove to enable the development of the Greater Bendigo Indoor Aquatic Leisure and Wellbeing Centre in accordance with planning permit approval. The report considers a range of matters but in the main considers whether or not the proposed Indoor Aquatic Centre, the existing Leisure Centre building and the existing sports oval can all fit on the available land at the Browning Street Reserve and any implications of that. Policy Context Council Plan (2014/15) Plan for the Greater Bendigo Indoor Aquatic Centre at Kangaroo Flat including applying for a planning permit and continuing to advocate for funding. Council Plan (2015/16) - Implement Councils decision on the development of the Aquatic Centre. Background Information The Petition Council recently received a petition of over 3,000 signatures requesting the retention of the Leisure Centre building on the Browning Street Reserve in Kangaroo Flat. The petition seeks the reversal of past Council decisions and planning permit approval that authorises the removal of the building as part of considered plans for the development of the Greater Bendigo Indoor Aquatic and Wellbeing Centre. On Wednesday 9 September, most Councillors and relevant staff met with Mr. Don McKinnon and Mr. Lloyd Nuttall to discuss their petition and their perspective on the matter.


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Previous resolutions In 2009, Council adopted the Kangaroo Flat Community Plan which among other things placed priority on the development of an indoor aquatic centre in the district. Between 2009 and 2012, various reports, discussions and resolutions took place with Council that among other things concluded the Browning Street Reserve site as the preferred site for the proposed indoor aquatic centre. That decision was made in the broader context of any earlier adopted Greater Bendigo Aquatic Facilities Strategy. It is important to note that the considerations for the proposed aquatic centre were for a range of features, including initially a lap-pool of only 25 metres in length. After much community, media and Council consideration, at its meeting of 8 February 2012, Council considered a lengthy report and among other things resolved to include a 50 metre lap-pool in the design brief for the proposed aquatic centre. This decision had a significant impact on escalating the cost of developing the Centre and also made it difficult to accommodate the retention of the current building on the Browning Street Reserve site. At its meeting of 21 March 2012, Council adopted a report that among other things agreed the design brief and planning and development processes necessary to deliver this major project. This included approval to engage well-credentialed specialist aquatic centre designers and engineers. At its meeting of 5 December 2012, Council agreed to the formation of an 18-person Community Reference Group to provide input into the design process and assist with community engagement. From December 2012 to early 2014, the Community Reference Group were briefed on the recommendation of the project team that removal of the existing building on Browning Street was desirable, indeed necessary, for a variety of reasons. The conclusion was supported by both the Reference Group and Council at the time. At its meeting of 27 March 2013, Council resolved to publicly release plans for the proposed aquatic centre. The plans and associated report adopted by Council made clear reference to the desirability and rationale for removing the existing building on the site. At its meeting of 20 August 2014, Council resolved to issue a planning permit for the development of the proposed Greater Bendigo Aquatic Leisure and Wellbeing Centre, including removal of the existing building on the site. One objection was lodged against the planning permit which was subsequently withdrawn. As part of an advocacy campaign managed over recent years, last year and again earlier this year the Victorian Government reconfirmed $15 million towards the development of the aquatic centre. This is a major funding and policy commitment by the government. It covers about half the cost of developing the Centre. This is a contracted budgeted


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commitment by the Victorian Government and is also supported by the Victorian Opposition i.e. it has bipartisan political support. At its meeting of 24 June 2015, Council considered an extensive report on the project. The purpose of the report was to provide Council with a summary of the many and varied features and milestones achieved to date regarding the proposed development of the Greater Bendigo Indoor Aquatic and Wellbeing Centre. The conception, planning, design and fund-raising efforts associated with this major project have been many years in the making. Features of the report included summaries of:

The Greater Bendigo Aquatic Strategy and emerging leisure trends

Site identification and early planning

Public consultation and Community Reference Group

Project Delivery Group

Project Brief

Status and use of the existing Hall at Browning Street

Planning approvals

Public and Council advocacy

Project cost and development options

Project funding sources and Councils contribution Facility management options

Business analysis of operations

Alternative siting options and implications if Council decided to retain the

existing hall on Browning Street

Financial implications and project affordability The report provided Council with sufficient information to help it to decide whether or not to proceed with the project and if so in what form and at what scale. Whatever decision and direction Council decided, it was recommended that the decision be prompt and decisive. The significant Victorian Government financial contribution to the project is fixed at up to $15 million and must be drawn down commencing this financial year. With the passage of time, development costs will only increase in line with construction- industry inflation and the governments contribution will proportionately decrease in real terms the longer it takes for the project to be built. The report concluded with a recommendation to proceed to the next phase of the project, being inviting Expressions-of-Interest in the leased operation of the proposed facility to be followed by detailed design, documentation, tender and construction. The report provided Council with two substantive aquatic centre development options - Option One incorporated a centrepiece 50m pool whilst Option Two incorporated a 25m pool. All other features of the proposed complex were incorporated into both options, i.e. the only substantive difference between the two options was the length of the main swimming pool. The report also provided Council with a discussion and consideration regarding the option to either remove or retain the existing building on the Browning Street site. At that meeting, Council resolved to proceed with the project. This decision was subsequently conveyed to the Victorian Government and Greater Bendigo community through extensive media coverage. The Victorian Government and the City have since agreed and signed a Funding Contract Agreement regarding the project.


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Public Consultation The development of the proposed indoor aquatic centre and by implication the removal of the existing Leisure Centre building on the reserve has been communicated in a variety of ways over many years now, including:

Numerous and regular prominent media reports (print, television and radio);

Presentations to various community groups in the Kangaroo Flat district;

Distribution of Project Bulletins (over 5,000 in each case on three occasions);

The on-going work of the Community Reference Group and Kangaroo Flat Community Enterprise;

Numerous editions of the Flat Matters Community Newsletter understood to be distributed to over 5,000 households per edition in the Kangaroo Flat, Golden Square, Maiden Gully, Marong, Lockwood and Big Hill areas; and

Distribution of prominent articles in Councils Greater Bendigo News publications periodically sent to all households in the municipality.

A planning permit process was also undertaken in the first half of 2014. Only one objection was received in response to the planning permit application which was subsequently withdrawn at a VCAT Directions Hearing. The existing Leisure Centre building The existing building at the Browning Street Reserve was planned in the late 1970s and physically developed over 30 years ago in the early 1980s. It was developed within what was then known as the Shire of Marong. The development cost of the building is understood to have cost $489,000 (1984 dollars) with a community (non-Council) contribution of $51,000 (10%). Since local government amalgamations in the mid-1990s, the building has been owned by the City of Greater Bendigo although its operation until very recently for many years contracted out to the Y.M.C.A. The building comprises a basketball court, toilets, storerooms, a meeting room and small office. In the 1980s and 1990s, the facility was understood to have been reasonably well-used. Fast-forward to today, however, and the building and its popularity is in a different state. Whilst sound structurally, the building is relatively unsightly and used infrequently. Information provided by the Y.M.C.A for the 2012/13 financial year indicates that the facility generated income of $27,940. Expenses incurred were $45,670. The facility ran at a net loss of $17,730 for that year. In 2013/14 revenue totalled $33,467 and expenses totalled $39,749, resulting in a net loss of $6,282.


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In recent years, representatives of the City and Y.M.C.A have liaised with remaining users of the facility offering assistance and advice regarding their phased relocation. Most remaining users of the facility have already moved to alternative facilities in Kangaroo Flat or elsewhere in Bendigo. There are no remaining bookings and the Y.M.C.A has vacated the premises. Remaining users of the Leisure Centre building have been offered assistance to relocate to alternative venues including other facilities in the area or across Bendigo such as Bendigo Exhibition Centre; facilities at Crusoe Secondary College, JB Osborne Theatre/Hall etc. In recent years it is understood that either new or upgraded community facilities have been developed in proximity including St Monicas Primary School, Kangaroo Flat Primary School, Crusoe Secondary College, Kangaroo Flat Scout Hall, Kangaroo Flat Y Services Club and the Kangaroo Flat Sports Club. It is also important to note that the proposed indoor aquatic centre has been specifically designed to accommodate some of the recent users of the hall in quality contemporary spaces. Multi-purpose rooms have been incorporated into the design of the Centre. In terms of discussions with concerned residents that were originally involved in the development of the existing building in the late 1970s and early 1980s, this has taken place. The Project Director has met on several occasions with Mr Don McKinnon and others. These deliberations have at all times been respectful and genuine. Analysis of the existing Leisure Centre building and the rationale for its removal Upon review of the existing site and building conditions several years ago, it was concluded that the building was infrequently used and outdated in nature. Whilst it may have served the community well in past decades, the reality is that it was no longer meeting the reasonable contemporary demands of the vast majority of the local community. The building does not lend itself to be creatively and efficiently adapted for the purposed of a modern efficiently-designed efficiently-operated indoor aquatic centre which needs specialist design and material considerations and have completely different functional needs to that of an otherwise traditional masonry community hall. In our initial consideration of utilising the existing building for the proposed indoor aquatic centre, we undertook a review of its existing conditions and what ramifications this may have on proposed works. As part of the preparation of the proposed designs, our project team undertook an analysis of the existing building conditions and what value the building had if any for the functional planning of the proposed aquatic centre. As part of the analysis, several concept options were produced of which one option was to retain the core of the existing building. To guide our analysis we established five key criteria to assess the performance of the existing building and reviewed advantages and disadvantages against the criteria. The key criteria used to assess the existing building were:


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a) Building and Materiality; b) Services; c) Site Orientation; d) Access; and e) Building Value/cost. In assessing the above criteria and features it was determined that if there was a component of the existing building that could be retained it would only be the existing superstructure for the single basketball court which would also require treatment in order to ensure it complies with contemporary building standards. At preliminary concept design stage a quantity surveyor was engaged to analyse the value of this existing component. The value of the existing building that could possibly be retained was estimated to be $200,000. Our professional view was that the compromise of important design and functional requirements for the operations of the indoor aquatic centre would far exceed the salvage value of $200,000 which in our opinion does not stack up given the scale, nature and desired longevity of the proposed indoor aquatic centre. In analysing the site/existing building conditions and possible building adaptation for our proposed scope of works based on the above criteria and thoughts, we strongly maintain that the most efficient and sound solution to deliver a contemporary environmentally-friendly building that can service the community for 40-plus years would be to decommission and remove the existing building from site at the time of construction of the proposed aquatic centre. The few remaining users of the current building (apx. 4 users) can be reasonably accommodated in either the proposed new aquatic centre (multi-purpose rooms have been incorporated in the design) or relocated readily to alternative venues in Kangaroo Flat or elsewhere in Bendigo. The Aquatic Centre Brief To fully appreciate project scope, scale and cost, it is important to recall that the original and to this day still current project brief was endorsed by successive Councils. It was established from the outset that the objective was to design and develop a multi-purpose Indoor Aquatic Leisure and Wellbeing Centre inclusive of:

51.5 metre 8-lane pool inclusive of a 1.5m moveable boom divider; Hydrotherapy warm-water pool with associated spa facilities;

Beach-entry family/children's play pool incorporating play equipment;

Toddler learn-to-swim area;

Benched seating for up to 500 people;

Change facilities (individual and group change rooms);

Allied health "Wellbeing Centre";

Reception and administration area;

Caf;

Multi-purpose "dry" rooms;

Gymnasium and associated fitness areas; and


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Plant room and equipment. The total physical area of the facility is in the order of a 6,000 sq. metres, which is significant in scale and will inevitably consume considerable space on the Browning Street Reserve. The Project Team has long had the objective of designing the facility to:

Provide an inviting frontage and entrance off Browning Street;

Maximise natural sunlight orientation for the purpose of reducing operational power costs and create an inviting ambience for patrons;

Efficiently incorporate required car parking (permanent and overflow) and ease of access for patrons;

Optimise the physical appearance of the facility and position it well within the attractive parkland setting;

Not encroach on the existing Kangaroo Flat CFA track lease boundary;

Not encroach on the nearby Browning Street Sports Oval; and

Connect with the Bendigo Linear Walking and Cycle Trail along the creek. Development constraints at the Browning Street Reserve site A casual glance of the site for the proposed indoor aquatic centre may suggest to many people that we are dealing with an unconstrained and large development site. The reality is we are not afforded this luxury, nor do we have limitless budgets. It is actually a reasonably constrained development site from a design, planning and engineering perspective. Some of the limitations that the project team have long had to factor in include:

The existing CFA Fire Track and lease boundary immediately to the west;

The Environmental Significance Overlay (Planning Scheme Zone) along the creek immediately to the east;

Browning Street to the north;

The existing sports oval and parkland immediately to the south; and

The desire to design a building that is situated and "shaped" well to afford efficient and logical aquatic centre operations well into the future.

Accounting for all these givens, there is realistically no scope in which to accommodate the existing leisure centre building on site without adversely impacting on the ability to develop and operate a large contemporary efficiently run aquatic centre and incorporate necessary car parking and retain the existing sports oval and associated parkland. Analysis of an alternative plan An alternative plan has been presented to Councillors by Mr McKinnon and others seeking the retention of the existing building on the site.


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To help Councillors compare the alternative plan relative to the existing permit-approved plans agreed to by Council, colour copies of both plans are attached on the following pages. Councils permit-approved plans were prepared after several years of careful planning and consideration by a project client team managing a group of architects, engineers and project managers that have a track record of having successfully developed over twenty aquatic centres across Australia and Asia. Whilst the alternative plan may at initial glance infer an ease of retaining the existing building on the site, the plan is simplistic and fails to take reasonable account of important matters including: - Sound planning; - Operational constraints for the proposed aquatic centre; - Recreation planning; and - Cost implications. These matters are generally discussed below:


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Sound planning The alternative plan does not make reasonable allowances for all-important car parking supply and vehicle access. When the planning permit for the proposed aquatic centre was issued by Council in December 2014, it included a specific requirement for 187 car park spaces to be provided as follows: On-site new car spaces 107 spaces Existing Browning St. Car Park Spaces 49 Reconfiguration of on-street car parking 25 Browning Street drop-off zone 6

187

The planning permit specifically assumed the removal of the existing Leisure Centre building on the site and consequently the entitlement for the aquatic centre to re-use all of the existing car spaces currently on and around the site for the aquatic centre. If Council decided to retain the existing building, then the aquatic centre would not legitimately be entitled to include the existing car parking as part of its permit requirement. Therefore, by implication, retention of the existing building would also place an added cost impost on the development of the aquatic centre. The estimated development cost of this would be between, $400,000 and $600,000 depending ultimately on location, scale, access and the quality of engineering and material finishes required by Council for the additional car parking areas. The existing Leisure Centre building/use would require about 120 car parking spaces to satisfy its statutory requirement (assumed to be a Place of Assembly of up to, say, 400 patrons for the purpose of this analysis). The existing building has some 67 existing spaces in immediate vicinity that it could reasonably draw upon. Attached is a plan that we have prepared that illustrates the likely footprint of providing the necessary/desirable car parking in the immediate area. It is clear that the development of extra car parking would significantly cut into the existing sports oval and associated parkland. Other important matters include: - The awkwardness visually and operationally of developing the proposed aquatic

centre adjacent and immediately behind a markedly contrasting 1970s/1980s masonry building;

- The potential encroachment on to the Environment Significance Planning Overlay

and Flood Zone that runs along the creek alignment. The Project Team had worked hard to avoid encroaching on to this otherwise no go zone; and

- The loss of a large amount of additional parkland and a sizable cluster of significant

native vegetation (which the project team had worked hard to preserve in its design).


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Operational Constraints The alternative plan also poses a number of major operational constraints including: - Failure to provide an inviting highly visible frontage along Browning Street this

would be a lost opportunity and would operationally limit aquatic centre operations and promotion;

- Failure to provide required statutory car parking requirement within a reasonable

distance of the aquatic centre (note: this is not just a planning concern but importantly also a concern for the successful customer-friendly running of the aquatic centre);

- Failure to show the development of necessary new internal roadways and drop-off

zones necessary to provide access to the aquatic centre for general patrons, buses, disabled and aged persons and service vehicles;

- The limitation in being able to successfully develop a visually inviting, aesthetically

pleasing and operationally efficient northern-light orientation for the proposed aquatic centre;

- The significant added cost of developing additional added car parking to

accommodate both buildings uses; and - The withdrawal of our current funding application to Federal Governments

National Stronger Regions Fund. This fund requires projects to have planning approval and be in a position to start almost immediately once funding is confirmed.

There is realistically little if any scope in which to accommodate the existing building on site without adversely impacting on the ability to develop and operate a quality efficiently-run aquatic centre. At this late stage any such significant change to the plans would also necessitate a new planning and community engagement process (including redesign and redoing site engineering analysis) to be undertaken leading to delays in project timing and increased costs. Recreation Planning The alternative plan does not account for the anticipated loss of the Browning Street sports oval due to necessary additional roadways and car parking areas. As part of the Dower Park Master Plan, this oval was identified as a key asset to help meet the demand of local junior football and cricket in particular. The Master Plan recommends the upgrade of the surface of the oval and the eventual longer-term installation of lighting to meet the needs of the local community. This has been accommodated in the site plans approved as part of the original planning permit issued by Council in 2014.


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Advice from our Recreation Department suggests we already do not have enough open space and sporting ovals for the Kangaroo Flat area. The loss of the oval would be unfortunate. It is understood to be used between 50-60 times per annum for organised training and competition as well as informally by the local community and local schools. Retention of the existing Leisure Centre building on the reserve would also contradict key recreation planning principles which Council has endorsed including wherever possible avoiding duplication of community facilities, modernising facilities to ensure they meet demand and the prudency of rationalising significantly under-utilised community facilities. Cost Implications of retaining the current building It has been suggested to Council that if the existing Leisure Centre building is retained it will only need an inexpensive facelift. To the contrary, an analysis has been prepared by our Quantity Surveyors Turner and Townsend in association with our architects Peddle Thorp, our Project Manager Ted Gallagher of Gallagher Jeffs, our in-house Disability Access Advisor / Building Surveyor, and members of our project team. We have used their analysis and advice to help arrive at an indicative cost estimate. In understanding how some costs are likely to arise, it is worth acknowledging the following points:

The requirement to upgrade the facility to meet contemporary building and planning regulations (particularly to provide access for people with disabilities, fire regulations, asbestos removal etc.);

The necessity to upgrade the facility to a sufficiently high enough standard where it would actually want to be used by the community and event management clients;

The need to significantly extend the footprint of car parking provision for the proposed aquatic centre on the assumption that existing car parking at the site would be required to meet the needs and statutory requirements of the current building on the reserve.


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The indicative costs of upgrading the existing building are conservatively estimated as follows: Faade Works for entire building $320,000 Accessibility Compliance $150,000 Asbestos Removal (to be determined) $50,000 Toilets/Showers/Change rooms Refurbishment $120,000 Kitchen Refurbishment and Fit-Out $90,000 Foyer / Office / General Meeting Room / Passages $70,000 Multi-purpose Rooms $90,000 Main Hall, Flooring, Stage Refurbishment (inc. dressing rooms) $200,000 Services Upgrades $140,000 External Works and Landscaping $40,000 Sub Total $1,270,000 Design Contingency $70,000 Construction Contingency $90,000 Professional Design and Fees $100,000 Authority Fees and Charges $20,000 Allowance for Loose Furniture, Fittings and Equipment $50,000 Project Total $1,600,000

These costs exclude allowances for cost escalation; latent conditions; If Council decided to retain and upgrade the existing building and proceed with the proposed aquatic centre development, it is estimated that this would require an additional expenditure by Council of between $2,000,000 and $2,200,000. (i.e. the $1.6m assumed upgrade plus an assumed car parking cost of about $600,000.) It is important to note however that a new design, planning and community-engagement permit process would be required for the aquatic centre if it was to be moved from its original approved location. This would result in an estimated delay of about one year and therefore an order of added costs about $1,300,000 through cost escalation plus redesign costs. Therefore, a more likely estimate of additional cost to be borne by Council if it was to retain the existing leisure centre building on the site is therefore about $3,300,000 (at a minimum). Restoration of the existing building and development of additional car parking to service the aquatic centre would clearly draw from already scarce Council financial resources.


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Other Matters In recent months, Mr McKinnon has also raised concerns about the site soil and geotechnical structural composition of the development site in question. Councillors are assured that the project team has commissioned and analysed thorough investigations by competent contractors in this regard. The implications of these investigations are that there are no unforseen nor unreasonable restrictions and impediments to the safe and cost effective development of the site for the purposes of an indoor aquatic centre, car parking, roadways and landscaping. Our architects and engineers have taken these investigations into consideration in their design and cost planning. Mr McKinnon has also questioned whether or not Council would need to recommence a new planning permit and community engagement process in the event of it abandoning its existing planning permit and deciding to redesign the aquatic centre on the basis of deciding to retain the existing Leisure Centre building at the reserve. The firm advice of our planning department is that we would need a new planning permit analysis and process and this has been validated by our specialist planning legal advisors. Redesigning and reengineering the development, and seeking a new planning permit for a project of this scale and nature, would easily take in the order of one year. Doing so would significantly increase costs and put in jeopardy project funding. Conclusion It is not practical or feasible to retain the existing building at the Browning Street Reserve without losing the existing sports oval at the Reserve, a large cluster of native vegetation, and significantly impact on the functional design and operation of the proposed aquatic centre. The alternative plan presented to Council is simplistic and fails to:

Account for necessary and responsible car parking requirements;

Account for the inevitable roadways necessary to provide access to the indoor aquatic centre for general patrons, buses, disabled and aged persons and service vehicles;

Acknowledge that a new (estimated one year-long) design, engineering and planning permit and community engagement process would be necessary which would significantly delay the project; and

Acknowledge that it would add at least another $3.3 million to project costs (at a minimum).


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The development of the Greater Bendigo Indoor Aquatic and Wellbeing Centre has been proposed for many years now and has progressed to an exciting point where it is well and truly shovel ready. It is considered that the project and proposed facility has been well planned and justified by considered strategy, community advocacy and efficient value-management design. It is acknowledged that whilst the existing building at the Browning Street Reserve has now ceased operating, there are a few remaining groups that would still like to use the building. Council staff will continue to assist with the relocation of these groups. It should be noted that the proposed Centre has been specifically designed to incorporate multi-purpose dry-spaces to accommodate some of the few remaining users if they so wish. The Victorian Government has pledged a most significant financial contribution of $15 million towards the project the largest ever single contribution to a municipal pool in Victoria. The contribution intends to cover at least half the cost of the project. This is unprecedented in Victoria. It is arguably an opportunity too good to refuse. The Kangaroo Flat Community Enterprise has also pledged to contribute $1 million towards the project. Council has agreed to proceed with the project and has responsibly made this decision in the context of its Long Term Financial Plan. The development of the Greater Bendigo Indoor Aquatic and Wellbeing Centre presents an opportunity for Council to significantly boost the quality and accessibility of aquatic and recreational health facilities in our region and would be the realisation of a long-held civic priority. It is once again recommended that Council resolve to re-authorise proceeding with its long planned position of decommissioning the existing leisure centre building at the Browning Street Reserve to make way for the proposed aquatic centre which will act as a major contemporary community focus for Kangaroo Flat and the wider region. On current projections, it is anticipated that the project will be put out to construction tender over the next three months and be in a position to have started construction by February next year i.e. in about four months from now. RECOMMENDATION That the Greater Bendigo City Council resolve to reaffirm previous resolutions authorising the decommissioning and removal of the existing leisure centre building on the Browning Street Reserve to make way for the long-planned Greater Bendigo Indoor Aquatic and Wellbeing Centre.


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1.4 RESPONSE TO PETITION: REQUEST TO PROVIDE AN ADDITIONAL ACCESS ROAD AND CAR PARKING WITHIN THE BIG HILL PRIMARY SCHOOL VICINITY

Document Information

Author Brett Martini, Manager Engineering & Public Space Responsible Ross Douglas, Acting Director, Presentation and Assets Director

Summary/Purpose

The purpose of this report is to provide a response to a petition from concerned residents requesting the City of Greater Bendigo upgrade access and car parking in the vicinity of Big Hill Primary School, Big Hill.

Policy Context

Council Plan Reference: City of Greater Bendigo Council Plan 2013-2017 (2015-2016 Update):

Theme: 1 Leadership and Good Governance

Strategy 1.6 Programs, projects and services are guided by best practice principles and delivered to respond to community needs.

Theme: 2 Planning for Growth

Strategic Objectives Greater Bendigo plans for the needs of our growing population through the preparation of long-term strategies and the development of 'major new assets' and supporting infrastructure.

Strategy 2.3 Sustainable transport options are supported in the Integrated Transport and Land Use Strategy (ITLUS)

Action 2.3.1 Implement ITLUS through a program of community engagement, targeted infrastructure and recommended developments, with a particular focus on healthy active travel and travel behaviour change.

Action 2.3.2 Increase resources for new footpaths, shared path construction, including connectivity of pedestrian and cycle paths.


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Theme: 5 Sustainability

Challenges and Opportunities

Keeping our assets on good repair is an important principle. Essential infrastructure, footpaths, drainage and well built and maintained roads are essential for economic as well as social purposes.

Strategy 5.3 Essential infrastructure is constructed, maintained and renewed to meet the needs of current and future residents.

Strategy Reference: Integrated Transport & Land Use Strategy:

Engaging Greater Bendigo - Action 1, pg. 74: Provide every Greater Bendigo Primary School with an Active Travel Toolkit, which has been developed as an ITLUS active travel initiative and progressively implement the key elements so as to increase the level of walking, cycling and public transport use among school communities. Healthy Greater Bendigo - Action 2, pg.81: Maintain a comprehensive network of footpaths, bicycle lanes and shared paths throughout the city so that a significant portion of journeys can be made by walking or cycling.

Background Information

The following petition was tabled at Council's Ordinary Meeting on 27 May 2015 from residents in the Big Hill (Primary School) area, as outlined below:

"This is a petition for the Bendigo City Council to act on securing the safety of our children and the general community by creating a second access road for the McInnes Street area. Also to increase the parking facilities due to the rapid increase at Big Hill Primary School. The current environment is a traffic and fire hazard. The area is a known high risk red zone for fire activity, and therefore requires more than one exit road. We the undersigned are concerned citizens who urge our leaders to act now to provide additional road and car parking in the Big Hill Primary School vicinity".

The petition contained 115 signatures. Council resolved "that the petition be received and a response be prepared within two (2) meetings." Big Hill Primary School (BHPS) currently hosts 279 students and 22 staff members.


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After concerns were raised earlier in the year by BHPS's School Council President regarding traffic management in the immediate vicinity of the Primary School, City of Greater Bendigo's (CoGB) Transportation Engineer met with BHPS's Acting Principal and the School Council President on the afternoon of 18 February 2015 to observe school traffic. Vehicle movement was relatively smooth with only minimal queuing observed. A traffic count was conducted at the start of McInnes Street in early June 2015, recording an average of 870 vehicles per day. A peak of 170 vehicles per hour was observed at school pick up time, a figure obviously generated by school related traffic. A meeting was held with parents, teachers, Councillors and Council staff on 17 August 2015 to discuss the concerns of the parents directly with Councillors. Further observation of traffic at the school was undertaken on 9 September 2015. On this occasion, queuing in McInnes Street at the Calder Highway occurred between 3.20pm and 3.38pm. The maximum queue length was approximately 30 vehicles with queuing beyond the school entrance. The maximum wait was approximately five minutes. Almost all traffic during this time was generated by the school pick up. The CoGB have provided 16 formalised angle parking bays next to the school, partly on the McInnes Street road reserve and partly on the school grounds. There are also 19 formalised parking bays in the school loop. Informal parallel parking along Prospectors Way offers space for a further 13 cars. Teachers park their vehicles in an informal car-park within the school grounds at the back of the multipurpose room. A sealed off-road shared path between Furness Street, Kangaroo Flat and BHPS was constructed to encourage students to walk and ride to school. The shared path also encompasses a school crossing of the Calder Highway in order to provide safe access to the path link for students and families on the western side of the highway. With the intention of avoiding traffic congestion around BHPS, particularly on McInnes Street, many parents wait for their children to walk 1300m north, along the shared path, picking them up at Phillis Street, Kangaroo Flat. The Ravenswood bus service also stops at BHPS to drop off and pick up approximately 20 children from the school every morning and afternoon.

Report

Two issues have been raised by the petitioners in this case; the ability of residents and school students to evacuate efficiently in case of emergency, and traffic congestion and parking facilities around BHPS. Bushfire Emergency Management: Whilst BHPS provides students and their families with unique educational opportunities courtesy of its close proximity to native bushland, that same proximity can present challenges in emergency related risk management.


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In response to the tragic fire events that transpired in February 2009, the 2009 Victorian Bushfires Royal Commission made several recommendations to ensure the ongoing safety of communities around the state located in bushfire prone areas. One such recommendation saw the implementation of a new fire rating system, including the classification of Code Red days. Residents in high bushfire risk areas are urged on Code Red days to leave these areas the night before or early in the day. In addition to this, schools, kindergartens and child care facilities located in these high risk areas are closed on days declared as Code Red. Petitioners have raised concern about the ability of local residents and BHPS to evacuate in the event of a bushfire emergency, due to a single entry and exit from the area, namely McInnes Street. One alternative exit option for BHPS involves construction of the unmade road reserve between BHPS and Gee Road (details for which will be covered in the following section of this report relating to parking infrastructure). With a second exit, vehicles departing BHPS would be dispersed between the Gee Road and McInnes Street access points. However, traffic returning to Bendigo from Gee Road would be required to make a U-turn at the McInnes Street break in the Calder Highway median. As detailed in Figure 1, this U-turning traffic would have priority over the traffic trying to exit from McInnes Street, ultimately exacerbating any congestion along McInnes Street by potentially creating longer delays for traffic trying to exit onto the Calder Highway. Figure 1 - Traffic Movements at McInnes Street Intersection resulting from upgrade of Gee Road as an alternative exit:


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In addition to generally increasing traffic congestion in the vicinity of BHPS, in the case of fire emergency, residents of McInnes Street would see no benefit from a Gee Road alternative as no direct connection with McInnes Street would be provided. The only other option for an alternate fire emergency exit would involve the formal construction of the unmade road reserve to the east of McInnes Street and BHPS, parallel to the railway line - a continuation of Railway Street (see Figure 2). From McInnes Street, this road reserve runs north to Gee Road and south to Tuckermans Lane. No formal road exists along this section, and the road reserve and surrounds are heavily treed. Due to the vegetation surrounding the road reserve, this is not considered to be a safe alternate access to the Calder Highway in the event of a bushfire. School and residential vehicles leaving the area in the event of a bushfire would head directed to the Calder Highway rather than east toward the bush land. In an emergency event, the school would also look to utilise buses to ferry students to a suitable location for collection if required. Figure 2 - Location of unmade road reserve - continuation of Railway Street:

Although CoGB has received correspondence from the CFA since the petition regarding traffic congestion in McInnes Street was tabled, it is noted that when the residential development for Garland Rises (Prospectors Way) was referred to the CFA and VicRoads in 2008, VicRoads placed no conditions on traffic management at the Calder Highway for the development and CFA only placed standard conditions on the subdivision that related to hydrant locations and road widths. At no time during traffic observations in the area has there been any restriction to traffic, including emergency vehicles, being able to enter and travel through the area.

Unmade Road Reserve - Continuation of Railway Street


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Traffic Congestion / Parking Infrastructure: One of the options outlined above remains relevant in the discussion of additional parking infrastructure. The unmade road reserve behind 5648 Calder Highway, located north of BHPS and intersecting with Gee Road (see Figure 3 over page) provides an opportunity for the creation of up to 15 additional parking spaces adjoining BHPS. In order to construct the 75m of road between BHPS and Gee Road, a Land Use Activity Agreement with the Dja Dja Wurrung Clans Aboriginal Corporation would be required as no road currently exists on the reserve. Compensation for this use would be expected. In addition, several environmental factors would need to be considered including the requirement of a planning permit for removal of native vegetation and the considerable costs associated with any subsequent vegetation offsets. Figure 3 - Unmade Road Reserve behind 5648 Calder Highway:

The bushland area surrounding the school is also inhabited by the endangered Eltham Copper Butterfly. Therefore any road or carpark construction would need to be sensitive to the butterfly's habitat. An upgrade of Gee Road from gravel to sealed would also be deemed necessary, with VicRoads also likely to require works to the intersection with the Calder Highway including construction of a left turn slip lane and an acceleration lane on the Calder Highway. These factors bring the cost estimate of this project to between $300,000 and $500,000.

Unmade Road Reserve via Gee Road


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In conjunction, the resulting traffic from any upgrade to Gee Road needs to be considered. Traffic from Gee Road would need to negotiate the intersection of the Calder Highway and McInnes Street (as briefly mentioned in the section of this report covering Bushfire Emergency Management). Bendigo-bound traffic from Gee Road is required to cross two lanes of Melbourne-bound traffic and enter the turning lane in the space of 140m. This additional turning traffic would likely impede traffic turning right from McInnes Street. The upgrade of Gee Road has been evaluated against criteria within the CoGB's Capital Works Program. Whilst utilisation of Gee Road would provide an alternative access to the school and additional parking, the cost of the works against the lack of significant traffic benefit and impact on the environment, mean that this project does not rate highly within the Capital Works Program when compared with other road construction projects. An alternative at a significantly lower cost than the proposed works associated with Gee Road, involves additional angle parking being constructed to the west of the existing angle parking in McInnes Street (see Figure 4). These works would require approval from the Department of Education, as construction would occur partly within the school site. Ten additional parking bays could be constructed at this location where currently approximately three cars informally parallel park. Formal construction of ten additional angle parking bays would cost approximately $29,000. Figure 4 - Additional Parking in McInnes Street:

The potential for additional parking east of the school entry in Prospectors Way was also identified. This area is currently used for informal parallel parking. A concept plan for the construction of 14 angle bays and a footpath to provide access to them has been prepared (see Figure 5). The estimate for this work is $62,000.

Potential location of additional parking


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Figure 5 - Additional Parking in Prospectors Way:

Evaluation of these parking projects against criteria for the Capital Works Program however, still results in a relatively low priority scores when compared to other projects. Although less costly, additional parking at BHPS, in light of recent site inspections and traffic volume data is not a high priority within the current traffic management program. Like most schools, traffic congestion occurs around school pick up time when students generally leave the school at the same time, as compared to the start of the school day where students generally arrive over a broader timeframe. As reflected in the background of this report, this is true for BHPS where much of the congestion is experienced at the end of the school day. The construction of a left turn lane in McInnes Street at the Calder Highway was raised to provide an alternative to the current queueing of right turning vehicles (see Figure 6). A left turn lane would need to be sufficiently long enough to enable vehicles at the back of the queue to move to the left lane and avoid the queue of traffic turning right. A left turn into the Calder Highway and then a U-turn to head back to Bendigo would add approximately 850m extra travel distance, but would be a slightly quicker option for those drivers avoiding the queue. The cost of this option is estimated at $47,000. However, a long left and right turn lane at an un-signalised intersection is not recommended in road design guidelines due to the reduction in sight distance created by having two vehicles side by side at an intersection. As McInnes Street intersects with the Calder Highway, the suitability of this option was raised with VicRoads. VicRoads has stated that a turning lane of this length would not be supported by them. To make the turning lane any shorter would negate its ability to provide a viable alternative to queuing for a right turn. Given the negligible travel time savings, the number of vehicles that would utilise the left turn lane for only a very short period during school days, the increased risk due to reduction in sight distance, and the lack of endorsement from VicRoads for this treatment, it is not considered a viable alternative.


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Figure 6 - Left Turn Lane in McInnes Street at Calder Highway:

Recently, the Integrated Transport and Land Use Strategy (ITLUS) was adopted by Council. ITLUS encourages walking and cycling to school not only to manage congestion around schools but also to support the health and wellbeing of students. One of the first actions of ITLUS has been the launch of the Active Travel, Healthy Kids Guide. The guide will be provided to each primary school to encourage sustainable travel. Whilst not all students live within walking or cycling distance of BHPS, there are other opportunities for parents to drop children off in Phillis Street and in Granter Street, Kangaroo Flat. These options allow children to complete part of their journey by bike or on foot, avoiding traffic congestion at the school, particularly at pick up time. Extension of the kerb on the north side of Phillis Street, and improvements and extension to the informal parking on the south side could be undertaken for approximately $10,000. Better utilisation of this area would not only ease traffic congestion in the vicinity of BHPS but also encourage a more sustainable mode of transport for students travelling to school whilst providing benefits to children's health. In discussions between CoGB's Transportation Engineer and the BHPS Principal, changing the five minute parking areas in the school loop to a two minute pick up / drop off area would also encourage turn over in the drop off / pick up area. Discussions regarding appropriate parking signage will continue with representatives from BHPS and CoGB.

Conclusion

Although two unused road reserves exist in the vicinity of BHPS and McInnes Street, their suitability as alternative access points during a fire emergency is limited due to lack of connectivity, significant levels of vegetation and subsequent safety concerns in such an emergency.


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Taking into account the closure of BHPS during Code Red days, students will not be at the school during the highest risk periods. At other times and for residents in the area, the safest option for evacuation of the area would be to travel directly to the Calder Highway. Traffic congestion and parking challenges are common around schools at drop-off and pick-up times. Construction of additional car parking for the school between BHPS and Gee Road is particularly expensive with potentially significant, adverse environmental impacts. Extension of the existing angled parking on McInnes Street at an estimated cost of $29,000 and formalisation of parking on Prospectors Way at an estimated cost of $62,000 could create an additional 10 and 14 parking bays respectively. However, these projects rate as low priority when compared to other projects within the Capital Works traffic management program. Changes to the parking restrictions for the drop-off and pick-up area within the school, as supported by the school Principal, would work to improve the efficiency of this area. As part of the implementation of ITLUS, assistance will be provided to all schools in order to assist students and parents in choosing more active transport options. The Active Travel, Healthy Kids Guide has been launched and is in the process of being distributed to all primary schools. Encouraging more students to walk or ride all or a part of the way to school is a key principle of ITLUS and represents the most effective way to reduce traffic congestion and demand for parking around the school during the drop-off and pick-up times. Actions that support active and healthy living and the sustainable transport option identified in ITLUS should be undertaken before projects that support children being driven to and from schools.

Attachments

Nil


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RECOMMENDATION

That Council, having considered the above petition, existing bushfire emergency management recommendations, and current priority of outlined options against other projects in the CoGB Capital Works Program:

1. Work with Big Hill Primary School to improve parking signage within the school loop to encourage turnover at the drop-off and pick-up point;

2. Not support a left hand turn treatment of McInnes Street as a viable alternative, noting the negligible time savings to be created and VicRoads' lack of support for this treatment due to reduction in sight distance;

3. Undertake improvements to Phillis Street, Kangaroo Flat near the Calder Highway to facilitate and encourage more parents to drop off and pick up Big Hill Primary School students at this location;

4. Assist Big Hill Primary School in establishing a program for the encouragement of active travel as part of the implementation of ITLUS and the Active Travel, Healthy Kids Guide; and

5. Inform the submitter of the peti

council agenda 14 october 2015

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