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[2025] VCAT 569
mixed. The Council's 5 December 2024 information requirement was varied under s 85(1)(d) of the Planning and Environment Act 1987 (Vic). Items 1(a), 1(c), 1(d), 2(a), 3(a) and 3(b) were confirmed; items 4 and...
The Tribunal decided that the small replacement-deck proposal, including minor excavation and a retaining wall serving the deck, qualified as a VicSmart application. The Council could still issue a formal further-information request under s 54(1), but it could not use that power to require every item of information ordinarily specified by the EMO. The VicSmart information rules limited the request. The Tribunal therefore kept or adjusted several plan and stabilisation items but removed the geotechnical and landslip risk assessments. It did not decide which decision guidelines the Council should apply when later deciding the permit application.
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2,089 words · generated 01/10/2026
Nicole Lambden applied for permission to demolish an existing rear deck and build a replacement at her home in Upper Ferntree Gully. The land was in a Low Density Residential Zone, an Erosion Management Overlay (EMO) and a Significant Landscape Overlay (SLO). The house occupied steeply rising land, and the deck sat above an existing excavated area and retaining structures. The proposed deck was materially smaller than the existing deck, measuring about 4.6 metres by 1.14 metres, or approximately 5.2 square metres.
2 cited instruments linked from this judgment.
The application was lodged on 28 November 2024. On 5 December 2024, Yarra Ranges Shire Council issued a further-information request under s 54 of the Planning and Environment Act 1987 (Vic). It requested, among other things, additional details on plans, a geotechnical assessment, a landslip risk assessment and information about earthworks. Lambden sought review under s 78(b). The order of 7 July 2025 varied the Council's request under s 85(1)(d).
The Tribunal's analysis proceeded through connected questions: what permissions were required, whether the application was VicSmart, and what information the Council could require for a VicSmart application. The Tribunal found that permission was required under the EMO and SLO. In the EMO, the relevant exceptions to the permit requirement did not apply on the available information. Under the SLO, the application plans did not show trees within four metres, but Lambden accepted that trees within that distance existed and were not shown, so the Tribunal proceeded on the basis that the exception did not apply.
The Tribunal concluded that the application was VicSmart under both overlays. The associated excavation and retaining wall were not treated as a separate, independent retaining-wall proposal. They were connected to the deck, intended to facilitate its use and minor in scope. The Tribunal estimated the excavation at less than half a cubic metre. This characterisation mattered because it determined which information rules governed the application.
The final order confirmed items 1(a), 1(c), 1(d), 2(a), 3(a) and 3(b); deleted items 4 and 5, the geotechnical and landslip risk assessments; and changed items 1(b) and 6. Item 1(b) was confined to contours and existing development on the subject land. Item 6 was narrowed to “The means proposed to stabilise disturbed areas”.
The central distinction was between the existence of a power to request further information and the scope of that power for a VicSmart application. The Tribunal rejected Lambden's argument that s 54(3) prevented the Council making any further-information request. It reasoned that VicSmart applications were not, as a class, exempt from s 54(1). The provisions identified in cl 71.06-2 as exemptions concerned specified notice, decision and review provisions, and did not include s 54(1) [52].
That did not mean that the Council could request any information it considered useful. Clause 71.06-2 provided that VicSmart information requirements applied, while other information requirements for an overlay did not apply unless the VicSmart class expressly specified them. The Tribunal read this as controlling the information the Council could request under s 54(1) for this application [52]-[58].
The Tribunal described two permissible categories of information. First, a request could seek the relevant information in cl 59.05 that had not been provided or had been provided incompletely. Second, it could seek information necessary for the Council to understand and assess the proposal, as in any permit application, provided that this was not information required by the EMO or its schedule but not specified in cl 59.05 [58]. In other words, the general need to understand a proposal did not restore an overlay requirement excluded by the VicSmart provisions.
That distinction resolved the Council's reliance on landslip risk. Council submitted that the site had a relatively high landslip hazard rating and that its geotechnical consultant had concerns about the stability of the existing cutting. It also referred to decision guidelines that would be relevant when deciding whether to grant permission, including the overlay's risk provisions and recommendations about geotechnical assessments. The Tribunal accepted that these matters might be relevant to the eventual merits decision. It did not consider them relevant to deciding whether the information supplied with this VicSmart application was sufficient under the applicable information rules [57]-[58].
The remaining items were assessed against cl 59.05 and the application as lodged. The Tribunal found that certain plan details were justified because they corresponded with cl 59.05 and the application's shortcomings. It confirmed requirements concerning a north arrow, trees, retaining walls and specified elevation information. It narrowed the contour and existing-development requirement to the subject land, rather than the subject land and neighbouring properties. It also changed the stabilisation requirement to follow the relevant cl 59.05 wording. By contrast, it deleted the geotechnical and landslip risk assessment items because they derived from the EMO or its schedule and were not specified as VicSmart information requirements.
The Tribunal also treated the works as a deck proposal rather than a separate retaining-wall proposal. It focused on the application as lodged. The excavation and wall were just beyond the deck footprint, but connected with the deck, not independent of it, and directed to comfortable use of the deck. Their limited scale supported that characterisation [47]-[51].
The judgment did not amend the Planning and Environment Act or the Yarra Ranges Planning Scheme. Its contribution is an explanation of how the existing provisions interact in the circumstances of a VicSmart application.
Before this decision, the relevant statutory and planning-scheme text already distinguished between s 54 information requests and exemptions applicable to VicSmart applications. The Tribunal read the scheme as leaving s 54(1) available, while separately limiting what information could be demanded by applying cl 71.06-2 and the class-specific information requirements. Its decision therefore separates two questions that can otherwise be conflated: whether a request can be made at all, and whether a particular item of information is within its permitted scope.
For this application, the EMO and its schedule contained broader application requirements, including a geotechnical assessment or landslide risk assessment. The VicSmart information requirements in cl 59.05 included, among other matters, information about proposed earthworks and the means of stabilising disturbed areas. The Tribunal found that the broader EMO requirements did not apply to this VicSmart application unless specified in the VicSmart information requirements. It did not find that geotechnical or landslip information can never be requested in any VicSmart matter. The decision is tied to the provisions and application before it.
The Tribunal's reasoning also distinguishes information needed to identify and understand a proposal from information sought because it may assist the merits assessment. It allowed a request for information necessary to understand and assess the proposal, but not where that would simply reintroduce an excluded EMO requirement [58]. The Tribunal suggested that if the Council considered the VicSmart information requirements inadequate for proper consideration of EMO applications, it could consider requesting an amendment to cl 59.05. That was a comment about the planning-scheme framework, not an amendment made by the Tribunal.
At [47], the Tribunal said the excavation and retaining wall were “for” the deck because they were connected to it, not independent, and intended to facilitate its comfortable use. In plain English, an associated component does not necessarily take a proposal outside the relevant class just because it is not itself part of the deck structure. Its relationship, purpose and scale matter. The Tribunal's estimate that less than half a cubic metre would be excavated reinforced its view that the associated work was minor.
At [52], the Tribunal explained that “a responsible authority may make an information requirement under section 54(1) in respect of a VicSmart application.” In plain English, VicSmart processing does not automatically remove the Council's power to issue a formal further-information request. The Tribunal rejected the argument that s 54(3) barred a request simply because this was a VicSmart application.
At [58], the Tribunal set out the permissible categories: missing or incomplete cl 59.05 information, and information needed to understand and assess the proposal, subject to the restriction on requiring non-VicSmart EMO material. In plain English, a Council may ask for information that the VicSmart rules actually require, or for information needed to work out what is being proposed. It cannot use that second category to demand information that the planning scheme has excluded for this VicSmart class.
The order gives the reasoning practical effect. Some plan-related requirements were confirmed, while the separate geotechnical and landslip risk assessment requirements were deleted. The distinction was not that those assessments could never matter to a permit decision. Rather, the Tribunal found that they could not be imposed through this s 54 request under the applicable VicSmart information framework.
The decision is most directly relevant where a permit application is classified as VicSmart, a responsible authority issues a s 54(1) further-information request, and the request includes items drawn from a zone, overlay or schedule beyond the information specified for the relevant VicSmart class. The decision directs attention to the exact text of the applicable planning-scheme provisions: whether the proposal falls within a specified class, what information that class requires, and whether the scheme expressly imports any additional requirements.
It is also relevant where a proposal includes associated works that might be characterised as a different kind of development. Here, the Council questioned whether excavation and retaining walls prevented the proposal from being treated as a deck application. The Tribunal considered their connection to the deck, their independence or lack of independence, their purpose and their scale [47]-[51]. The judgment does not establish that all associated retaining or earthworks will be treated as part of a deck. Different plans, purposes or scale could affect the characterisation.
The decision may be useful in situations where a Council relies on technical risk concerns to request information. It requires careful separation of information needed to understand the application from information sought to inform the eventual assessment of risk or merits. This judgment does not eliminate the role of technical advice in a permit decision. It addresses the permitted scope of the information request for the VicSmart application before the Tribunal.
The material supplied is the judgment itself and does not identify any later decisions that have followed, applied, distinguished or otherwise treated it. No account of later judicial or tribunal treatment can therefore be given from this source alone.
The decision is identified as a “Red Dot Decision”, a designation used by VCAT for cases of interest or significance. That designation and the summary explain why the Tribunal considered the case noteworthy, but they do not establish how later courts have treated its reasoning. Any assessment of subsequent treatment would require later case materials not included in the supplied judgment.
The Tribunal did not determine which decision guidelines the Council would have to consider when it eventually decided the permit application. Lambden was concerned that the Council might rely on the EMO's risk and geotechnical guidelines, but the Tribunal considered that question premature. It identified matters still to be considered by Council: the information supplied following the order, any amendments to the application and any further technical advice [72]-[74].
The decision also leaves open how far the category of information “necessary to enable the Council to understand and assess the proposal” extends in other cases. The Tribunal stated the category with an important limit: it cannot be used to require EMO or EMO-schedule information not specified in cl 59.05. How that boundary operates will depend on the particular VicSmart class and information sought.
The characterisation of associated works remains fact-sensitive. The judgment treated the small excavation and retaining wall as works for a deck because of their connection, purpose and limited scale. It does not set a numerical threshold for excavation or establish a general rule for larger works, works serving another purpose, or works that are practically independent of the principal development.
Finally, the judgment's body contains an apparent reference to “clause 76.01-2” in the assessment table when discussing the information items deleted. Elsewhere, including the Tribunal's explanation and the footnotes, the governing provision is identified as cl 71.06-2. The reasoning should be read in the context of the repeated references to cl 71.06-2, while recognising the apparent inconsistency in that table entry.
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Pursuant to Section 54 of the Planning and Environment Act 1987, further information is requested before the proposal can be considered and assessed by Council. The information required is detailed below.
...
1 The Site Plan to scale with dimensions to show:
(a) A north arrow
(b) If the proposal triggers a planning permit under the Erosion Management Overlay, the following is required:
(i) Contours across the entire site, including notations showing the AHD of each contour.
(ii) Any existing development, including buildings, water tanks and pools or dams on both the subject lot and adjacent land.
(c) The location and diameter of all trees within 4 metres of the proposal
(d) Any retaining walls, existing and proposed.
2 The Floor Plan to scale with dimensions to show:
(a) A north arrow
3 The Elevation Plans to scale with dimensions to show:
(a) Maximum height and depth of any existing earthworks within 5 metres of the proposal, including the works that are proposed.
(b) The location and health and depth of any proposed retaining walls, if applicable.
Note: This item only applies in the event that a planning permit is triggered for the proposed buildings and works under the EMO.
Note: Council may waive the request for a landslip risk assessment if the geotechnical practitioner assesses the site in accordance with section 6.1.1 of the incorporated document and provides written advice stating that these requirements have been met.
(a) Characterise the proposal.
(b) Identify the permissions required for the proposal.
(c) Consider whether the application is a VicSmart class of application.
(d) If the application is a VicSmart class of application, determine the scope of a more information requirement.
(e) Consider the parties' submissions.
(f) Assess the information requirement.
(g) Consider whether decision guidelines are relevant to the assessment.
(a) The land is rectangular in shape with a frontage of 21.34 metres, a depth of 60.96 metres and an area of 1,298 square metres.
(b) The land slopes up from the street by 18 metres, which is an overall slope of nearly 30% which the Council describes as 'moderate'.
(c) The land is developed with a double-storey dwelling, located on excavated land, with various 'retaining structures' (as the Council describes them) including 'multiple staggered retaining walls' behind the dwelling.
(d) The dwelling has a deck at both the front and rear of the dwelling.

Figure 1 Existing floor plan and elevations. Source: Application plans drawing 3.
(a) the existing deck located above excavated land comprising a retaining wall (dimensioned at a height of one metre) and a steep batter; and
(b) the existing deck floor level as 2.55 metres above the existing ground level on which the dwelling sits.[4]


Figure 2 Photographs of west elevation of existing deck. Source: Application documents

Figure 3 An oblique view of the deck from the backyard Source: Applicant's written submissions p 2

Figure 4 Proposed floor plans and elevations. Source: Application plans drawing 4
Extent of any proposed earthworks:
Earthworks less than one metre (approx 500mm) may be required to facilitate the building of the new deck. Plans demonstrate the location and extent of the excavation. Plans also indicate there are existing earthworks over 1 metre in the vicinity of the proposed new works and earthworks. Note that proposed deck works are consistent with original plans approved by council when the house was originally constructed. Note that the proposed works will not impact on the scenic character of the significant landscape as the deck is to the rear of the existing building and not visible from the street nor horizon. It is proposed that native plants be used to stabilise the earth around the proposed deck which will enhance the environment and character of the Dandenongs. No trees are required to be lopped to facilitate the earthworks as they are not within 4 metres of the works.
The means proposed to stabilize disturbed areas:
Existing earthworks are supported by retaining walls under one metre at the house level (base) of the existing earthworks. See plans for details of proposed earthworks/excavation under 1 metre to support new works. Plans demonstrate that retaining plants will be planted around the proposed earthworks and existing earthworks as the primary means to stabilise disturbed areas. With a preference to source native plants. If access allows, additional retaining walls (under 1 metre) or rocks may be considered in the future to further stabilise the earthworks. Access may be limited so planting is the primary strategy.
Earthworks that result in a modified ground surface that is less than 1 metre above or below the natural ground level and does not allow water ponding.[9]
Alteration or extension to an existing building provided all of the following are met:
A retaining wall or slope retention to support existing earthworks provided the earthworks were undertaken prior to 2001.[11]
A retaining wall associated with new excavation or fill provided all of the following are met:
An application must be accompanied by any information specified in a schedule to this overlay and information showing:
The following application requirements apply to an application for a permit under Clause 44.01, in addition to those specified elsewhere in Clause 44.01 and elsewhere in the scheme, and must accompany an application, as appropriate, to the satisfaction of the responsible authority.
For an application to construct a building or construct or carry out works:
An application is a VicSmart application if all of the following requirements are met:
A VicSmart application must be accompanied by the information requirements specified for the relevant class of application. The information requirements of the relevant zone, overlay or particular provision, other than those specified for VicSmart applications, do not apply unless the information requirements for the relevant class of application specify otherwise.
If in the opinion of the responsible authority an information requirement is not relevant to the evaluation of a VicSmart application, the responsible authority may waive or reduce the information requirement.[20]
(Tribunal emphasis)
A copy of title for the subject land and a copy of any registered restrictive covenant.[21]
A plan, drawn to scale and fully dimensioned showing:
A photograph of the building or area affected by the proposal.[23]
For land in an Erosion Management Overlay, information showing:
The extent of any proposed earthworks.
The means proposed to stabilise disturbed areas.[24]
For land in a Significant Landscape Overlay, a written description of the proposal including:
The information requirements and decision guidelines have been individually tailored to the nature of the proposed development and the reasons why a permit is required.
A council officer cannot ask an applicant to provide more information than is listed in Clause 59.[26]
If an application for a permit is of a class that is exempted by a planning scheme from the requirements of this section, the responsible authority must not require the applicant to provide it or the referral authority with more information under this section before it deals with the application.
In assessing an application the responsible authority must consider as appropriate:
What does a council officer do if the submitted information is inadequate?
If inadequate information is submitted with the application a council officer should contact the applicant directly and advise that without the information the application cannot be decided in 10 business days.
VicSmart applications can be subject to formal requests for further information under section 54(1) of the Act. The processes are the same as for a regular application however the prescribed time for the issue of a notice requesting further information is five business days of receiving the application.
The request for further information must be in writing setting out the information to be provided.[32]
(a) the relevant information in clause 59.05 that has not been provided or has been provided incompletely;
(b) information necessary to enable the Council to understand and assess the proposal as would be the case in any application,[33] provided that information was not information required under the EMO or the EMO schedule that was not specified in clause 59.05.[34]
This requirement is said to be conditional on permission being required under the EMO. Such permission is required. The requirement is justified under dot point 2 of clause 59.05-1 and by the state of the permit application. However, it should be changed so it is confined to the land.
The requirement is justified under dot point 2 of clause 59.05-1 and by the state of the permit application and by the applicant's implied acceptance in the applicant's informal plans.
The requirement is justified by clause 59.05-1 dot point 7 sub-dot point 1.
The requirement cannot be made because it is information required under the EMO or the EMO schedule that cannot be required under clause 76.01-2.
The requirement cannot be made because it is information required under the EMO or the EMO schedule that cannot be required under clause 76.01-2.
The requirement is too broad and is duplicated in major part by other confirmed items. It should be changed to 'The means proposed to stabilise disturbed areas' in line with clause 59.05 dot point 7 sub-dot point 2. Although this requirement, as changed, is also broad, it is justified by the insufficient details on this item currently included in the application.
In deciding a VicSmart application, the responsible authority:
(a) the information that the applicant must provide as a result of this proceeding;
(b) any amendments to the permit application that the applicant has foreshadowed she intends to make; and
(c) any further advice from technical experts that the Council may wish to obtain.
[1] The submissions and evidence (including documents) of the parties have been considered in the determination of the proceeding. In accordance with the practice of the Tribunal, not all of this material will be cited or referred to in these reasons.
[3] PE Act s 54(1B), s 54(2); Planning and Environment Regulations 2015 (Vic) reg 18(a).
[4] The elevation describes this level as 'NGL' or natural ground level. Being a benched site on sloping land, I agree with the Council that this level cannot be NGL.
[10] Ibid cl 44.01 sch 3.0 dot point 6.
[11] Ibid cl 44.01 sch 3.0 dot point 10.
[12] Ibid cl 44.01 sch 3.0 dot point 9.
[26] Department of Environment, Land, Water and Planning, VicSmart Planner and Practitioner Guide, pp 11, 23.
[28] Ibid cl 44.01-8 and cl 44.01 sch cl 5.0.
[29] For completeness, cl 71.06-2 states the EMO application requirements could apply if specified, in effect, in cl 59.05. They are not specified so this exception does not apply.
[31] Planning scheme cl 71.06-2 'Exemption from notice and review'.
[32] Department of Environment, Land, Water and Planning, VicSmart Planner and Practitioner Guide, p 25.
[33] Such as the information required by s 47(1) of the PE Act and reg 13 of the Planning and Environment Regulations 2015 (Vic).
[34] Planning scheme cl 71.06-2 'Information requirements'.
[35] Archiscope, drawings 1 to 4 revision D dated 4 April 2025.
[36] Planning scheme cl 71.06-2 'Exemption from notice and review'.
[37] Planning scheme cl 71.06-2 'Matters to be considered'.
[38] Applicant's written submissions p 6.
Lambden
Yarra Ranges SC
The Council's 5 December 2024 information requirement was varied under s 85(1)(d) of the Planning and Environment Act 1987 (Vic). Items 1(a), 1(c), 1(d), 2(a), 3(a) and 3(b) were confirmed; items 4 and 5 were deleted; item 1(b) was changed to require contours and existing development across the land; and item 6 was changed to require the means proposed to stabilise disturbed areas.