Victoria's commercial land use zoning
Productivity reform case study
The case study was handed to the Council on Federal Financial Relations on 28 July 2020 and publicly released on 14 September 2020.
The case study explores the implementation and impacts of changes to Victoria’s commercial zones over the past decade. Victoria’s experience suggests it is possible to introduce greater flexibility into zoning arrangements with positive outcomes.
Download the case study
- Land use zoning can be an effective tool for pursuing urban planning objectives, such as separating industrial activities from residential areas or reserving open or green space.
- But overly prescriptive zoning imposes costs and reduces land use flexibility and adaptability.
- While important, zoning is just one of many factors shaping land use in a jurisdiction like Victoria, including population growth and a shift from manufacturing to knowledge‑ and service‑based industries.
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Victoria has sought to simplify and standardise its commercial zones over the past 20 years.
- Business zones were standardised in the late 1990s to provide greater consistency across newly merged local government areas.
- The broad Commercial 1 and 2 zones were introduced in 2013 following the merging of the previous five business zones. (This change was accompanied by amendments to the industrial zones to provide more flexibility for office and some retail uses.)
- The Commercial 3 Zone is a mixed use employment zone introduced in October 2018.
- The effect of these reforms over time has been to broaden the extent of allowable and as‑of‑right uses (that is, uses allowed without a permit) on commercially zoned land across the state.
- The move to broader commercial zones aimed to increase business investment and encourage more productive land use by making the zoning rules simpler and less prescriptive, but generated concerns about unintended adverse consequences.
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Business investments and qualitative feedback suggest that these measures are having their intended effects.
- The changes have increased the availability of suitable sites and reduced set-up costs for small‑scale supermarkets and large format retailers. Consumers now have greater access to these type of retailers.
- The significant negative impacts predicted to result from the 2013 reforms do not appear to have come about, although some maintain that the more market‑driven approach has detracted from urban amenity or unfairly affected some businesses. Some of these arguments are questionable on empirical and/or conceptual grounds.
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The new Commercial 3 Zone aims to facilitate the establishment and growth of creative industries, small‑scale manufacturers and start‑up businesses.
- The Commercial 3 Zone has the potential to increase the productivity of land use by allowing limited retail and residential uses, while maintaining the option value of preserving land for employment‑related activity (rather than full‑scale residential development).
- Its merits as a form of industry assistance are more questionable.
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This case study highlights that:
- although it is widely accepted that enhancing the amenity and productivity of land use requires a combination of regulation and markets, there is inevitable debate about the right balance
- a key benefit of flexible zoning arrangements is that they allow land use to adapt to changing economic circumstances (such as unanticipated shifts in the nature of office work)
- Victoria’s experience suggests it is possible to introduce greater flexibility into zoning arrangements with positive outcomes.