07:01 Urban Form Strategy For Hurstville Town Centre (T/01230)
HURSTVILLE CITY COUNCIL
CIVIC CENTRE, MACMAHON STREET, HURSTVILLE.
SUMMARY OF ITEMS CONTAINED IN THE
DIVISIONAL MANAGER - POLICY PLANNING AND ENVIRONMENT' REPORT
TO THE MEETING OF THE DEVELOPMENT, HEALTH AND PLANNING COMMITTEE
TO BE HELD ON 95 11 29TH NOVEMBER, 1995-
07:02 Residential Development Strategy (T/01229)
07:03 Hurstville Local Environmental Plan 1994 (Amendment No. 1) Reclassification Of Land Off Woodville Lane, Hurstville
07:04A 6-12 Carrington Avenue, Hurstville (401/95)
07:05A 2-8 Bridge Street, Hurstville (249/95)
|HURSTVILLE CITY COUNCIL|
REPORT ITEM NO: .
POLICY PLANNING & ENVIRONMENT
DIVISIONAL MANAGER - POLICY PLANNING AND ENVIRONMENT
REPORT NO 01TO THE DEVELOPMENT, HEALTH AND PLANNING COMMITTEE
TO BE HELD ON 95 11 29TH NOVEMBER, 1995-
The General Manager
Hustville City Council
The Civic Centre
Hereunder is my report No.01 to be submitted to the DEVELOPMENT, HEALTH AND PLANNING Committee:-
07.01 URBAN FORM STRATEGY FOR HURSTVILLE TOWN CENTRE (T/01230) BACKGROUNDThe Hurstville Town Centre has developed as one of the major commercial centres in the southern Sydney area. The early sixties saw the development of the retail complex over the railway station and the connection between the two sides of the centre.The next major retail development was the development of the Westfields complex in the 1980s which consolidated the role of the centre as a mjaor retail area. In the 1980s office development also began to take place and this broadened the role of the town centre. The development of office floorspace in the Hurstville centre was a direct result of the State Government policies of the time to promote decentralisation of employment, especially Government employment.The major trend in the 1990s has been the development of high density residential development within the boundaries of the commercial centre in pursuance of Government policies of urban consolidation and development close to public transport links.REVIEW OF CURRENT DEVELOPMENTHowever, recent and currently proposed Development Applications are producing buildings which are unrelated to each other, the street system and the existing building fabric. It should be of concern to Council, business interests and the wider community that continued development of this type will not produce a livable, attractive town centre and will make worse attempts to achieve a more compact form of city. In terms of current planning controls and management priorities, it is apparent that:* The centre is undergoing change from a suburban centre to a regional centre.* There is no clear vision of the ultimate physical outcome for the City Centre.* There is no economic base related to the planning controls. An estimate of the development which could take place in Hurstville over the next ten years is say 20 sites @ $15m - approximately $300m. (This is only two sites per year.) If we consider that we are in the business of building towns it is essential that we have an idea of the outcome of the town in 10 years time when such large expenditures have been made.* The spatial system as delineated by the streets and parks, is not reinforced by the buildings.* The existing code is not specific in stipulating the requirements of each building in respect of how it forms and affects the public domain and how one building relates to another.ALTERNATIVE PLANNING FOR TOWN CENTRE DEVELOPMENTThe major issue for the future development of the Hurstville Town Centre is not primarily about densities but rather about developing an appropriate urban form which will produce a cohesive town centre and an appropriate public realm. The floor space capability should be derived from the urban form.A town is a collection of buildings which define a spatial system. The spatial system is the public domain streets/parks etc and it is through the public domain that people experience the town, not through the individual buildings. It is essential therefore, that buildings are organised to define a quality public domain and this can only occur through an holistic design process. In order to achieve a successful urban form as higher densities, it is necessary to undertake the following three processes:1. The Urban Form Strategy
2. The Architectural Resolution
Design a three dimensional urban structure plan which establishes the building envelopes and spatial network for the city and forms the basis for development controls which will then be selected to achieve this desired urban outcome.
3. The Public Realm Detail design of paving, lighting, street furniture and planting.PROJECT PROPOSAL - URBAN FORM STRATEGYThis project deals with the first part of this process and will produce a comprehensive urban structure plan for Hurstville Town Centre to guide future planning and development. It will be the basis for a new draft DCP.It will build in to the urban form controls all issues relating to heritage, environmental amenity, community needs, access requirements and definition of the public domain. This will result in site specific envelopes and building controls.Project Aim and DescriptionHurstville Council is committed to achieving a livable urban mixed use high density city centre. It is understood Kogarah Council wishes to include the southern side of the Town Centre, and will contribute proportionally to the project in addition to the funds allocated by Hurstville. This will enable the two Councils to work together to maximum advantage of the project.T he aim of the Study is to create a consistent vision for the Hurstville City Centre as a high density mixed use town centre that will accommodate the ongoing commercial, social and cultural needs of the community . Objectives The objective of the study is to produce a three dimensional urban structure plan for the Hurstville Town Centre which will establish building envelopes and spatial network for the C ity. From this a Development Control Plan will be prepared.* To outline the relationship in terms of urban form between Hurstville the City Centre and the region.* To review existing LEP's and DCP's, current design proposals and town centre conditions.* To provide for Hurstville a clear framework in which urban development can take place and which forms the basis for development controls.* To produce block studies for each site. These will illustrate and take into account the following:
Produce guidelines for the architectural resolution of the building envelopes.
* Capacity including floor space, landuse and population;
* Community aspirations;
* Heritage issues and strategies;
* Environmental aspects;
* The Public Domain including public space hierarchy and definition;
* Amenity and social aspects;
* Traffic and transport including access;
* To establish a framework for implementation and management.Project MethodologyThe approach to be adopted includes:* A review of information related to the urban form of Hurstville and identification of additional information or documentation required to properly complete this and later studies.* Investigation and analysis of the characteristics which give Hurstville its unique identity in terms of the existing urban structure and cultural patterns.* The position outlined by Andre Duany and Elizabeth Plater Zyberk in their book 'Towns and Town Making Principles' which is summarised below to some extent will inform the approach adopted: ie that a town should:
The envelopes produced are intended to provide an understanding of the amount of development for each block within the defined constraints but will not represent a final architectural solution.
* Clear edges and focused centre;
* primary elements in 'closer proximity';
* Streets to serve 'equitably' cars and pedestrians;
* buildings 'regulated to spatially define streets and squares';
* 'Squares and parks well distributed - designed as specialised places for social activity and recreation';
* 'Well placed civic buildings act as symbols of the community identity and provide places for purposeful assembly'.
* Analysis and review of related precedents for building types and urban space models proposed including:
This approach is derived from many historical theoretical and current urban models and is used as the basis for urban codes by Duany and Plater Zyberk.
* Block studies will be carried out in order to relate the various environmental, heritage urban space, amenity and other characteristics of particular sites and provide a guide to capacity and the definition of the public domain. The block studies are developed as guideline envelopes and sections.Project StagesStage I - Information GatheringThis first stage involves gathering the required data. This includes workshops/discussions with stakeholders and interaction with Councillors. * Review of Existing Information
* Public Squares,
Council has also undertaken a Central Business District Traffic Study.
Council has already undertaken Stage I of an Integrated Transport and Land Use Strategy in conjunction with Kogarah and Rockdale Councils. Stage 2 will formulate a regional transport strategy plan and implementation plan.
* Economic Characteristics
The planning controls presently governing the town centre are contained in Development Control Plan 4 and LEP 30.
* Physical Characteristics:
* Retail Requirements
* Market Demands
* Development Potential
* Cultural Characteristics
* Regional Context
* Topography/View Corridors/Plans Sections
* Existing Built Form Structure
* Heritage Elements
* Ownership Patterns
* Transportation/Movement Patterns/Parking/Access
* Infrastructure capabilities
* Demographics (Currently being completed by the Hunter Valley Research Foundation)
* Community Requirements/Needs
Stage II - Design Concepts* Re-establish common goals & objectives in terms of the Town Centre* Opportunities and Constraints
(This will also use the work carried out as part of the Hurstville ILAP Project/ Focus on St George Committee)
* Concept Design
* pull together the analysis to identify key issues
* Three Dimensional Design Options
* location of uses
* relationship of town centre/public transport ... etc
* disposition of spaces
* Preferred Option
* development, refinement and testing of options against objectives
A "vision" statement ie a statement of desired outcome.
* Construction of ModelPROJECT OUTCOMESThe Urban Form Strategy will deliver a planning document that will assist Council, developers and the community with the following outcomes: * As residential uses will form component of the Hurstville CBD strategy, this study will form part of HCC Residential Strategy, as required by the Department of Urban Affairs & Planning.* Change the emphasis of town planning from being reactionary to proactive.* Illustrate the value of spending funds at the beginning of the planning process to ensure a good result rather than in the courts at the end of the process.* Documentation of a clear framework to which all sections within Council eg engineers, landscape, community services, can work.* Improved quality of public domain.
* management structure which meets Council's objectives
* urban form strategy that meets regional and local objectives and has community support
* building envelopes; uses; site capacities; identification of public domain
* block by block studies as selected
* Innovative Development Control Mechanisms: Control mechanism will be site specific and designed:
* Issues pertaining to the quality and formation of the public domain as a spatial condition, are considered prior to establishing controls.
* Improved DA negotiation times.
* to ensure agreed desired outcomes as set out in the strategy;
* specifically for higher density building forms and not a derivation of suburban controls.
* Documentation of a methodology for use in other areas within Hurstville and by other councils.PROJECT FUNDINGEstimated Cost of Urban Form Strategy:
* Certainty to community and developers.
NOTE BY GENERAL MANAGERI have discussed the proposal contained in the report at length and on a number of occasions with the Divisional Manager - Policy, Planning and Environment.I find the concept an exciting one and very appropriate for the Hurstville Town Centre, particularly given the crucial stage of development the Centre has reached.The strategy also has appeal because of its obvious and common sense approach to solving what is a very difficult problem, by simply determining what we want the Centre to be and what we want it to look like - and then by appropriate controls, ensure it happens that way.It is an approach that will break substantial new ground.The proposal has my support and, in principle, that of the Executive Committee.
. Recommendation URBAN FORM STRATEGY FOR HURSTVILLE TOWN CENTRE RECOMMENDATIONTHAT Council endorse the concept set out in the report for a Comprehensive Urban Structure Plan for the Hurstville Town Centre and allocate funds for this purpose.THAT, it is funded by deferring the Section 94 Study until July 1996 when the planning study is complete. This would provide $35,000. An additional $15,000 would be allocated as savings from the Hunter Valley Research Foundation. The remaining $30,000 would be allocated from the Working Fund.THAT Kogarah Council be invited to be an active partner in the scheme on the basis of proportional funding of the cost between the Councils.FURTHER, THAT the Department of Urban Affairs and Planning, through the Minister for Planning, the Hon. Craig Knowles, be invited to participate and to share the cost, in view of the Government's desire for all Councils to develop performance based Residential Development Control Plans (RDCP's), and
|HURSTVILLE CITY COUNCIL|
RECOMMENDATION NO: .01
POLICY PLANNING & ENVIRONMENT
* Hurstville City Council's valuable and unique experience in relation to performance based RDCP's;
* the imminent revision of Council's repealed performance based RDCP;
* the relationship between a performance based RDCP for Hurstville and the combination prescriptive/performance controls to be developed from the Hurstville Town Centre Strategy proposal;
* the fact that Hurstville would provide a model for other Councils to work with so as to avoid the substantial pitfalls of performance based schemes thereby facilitating the Government's objectives.
|HURSTVILLE CITY COUNCIL|
REPORT ITEM NO: .
POLICY PLANNING & ENVIRONMENT
07.02 RESIDENTIAL DEVELOPMENT STRATEGY (T/01229) BACKGROUNDThe State Government has announced it will be introducing a new State Environmental Planning Policy (SEPP) to streamline the current range of planning instruments controlling residential development.Council may gain exemption from parts of the SEPP through the preparation, assessment and acceptance by the Department of Urban Affairs and Planning, of a Residential Development Strategy (RDS) for the Hurstville Local Government area.The Hurstville Town Centre Study and an evaluation of the Interim Residential Control Plan will form part of the Residential Development Strategy.PREPARING A LOCAL RESIDENTIAL DEVELOPMENT STRATEGYThe Department has released a guideline document which sets out a framework within which Local Government in consultation with the State Government, can develop local residential planning policies, development controls and approval processes which contribute to achieving metropolitan planning objectives.The guidelines require a two-stage process.STAGE ONE REPORTThis is an initial overview to be completed by mid February 1996 which is to include the following four steps:Step One Determine and describe the sub-regional planning context based on the Metropolitan Strategy.Step Two Review available material on local and regional housing needs, including:
Step Three Review effectiveness of local planning instruments and approvals processes.Step Four Identification of possible sites/precincts which have potential to provide increased density and diversity of residential development, including:
* demographic trends;
* local housing needs and affordability;
* demand and existing range of housing types and residential construction trends;
* general market conditions;
* major public spaces, transport nodes, the capacity of existing infrastructure, areas unsuitable for residential development.
The Department will review the Stage One Report and negotiate an agreement with Council on future directions for a completed RDS, and key outcomes to be achieved, which will include:
* opportunities for conversion from other uses;
* vacant or under utilised sites;
* under-utilised residentially zoned lands.
STAGE TWO REPORTThis involves the production of a Residential Development Strategy by end September 1996.Step Five Visit sites of good residential developments (new and old). How/where could this type of development occur in the Council area?Step Six Synthesis - consider in detail specific opportunities for development sites, improvements to development codes and approvals processes. Identify short and medium term actions necessary to realise these opportunities.Step Seven Prepare a comprehensive residential strategy. Document and maps. Include simple neighbourhood design frameworks for new areas and/or concept plans for redevelopment sites/precincts.Step Eight Prepare supporting statutory documents (local environmental plans and development control plans). Use AMCORD and/or new NSW Code.TIMEFRAME FOR DEPARTMENTAL ASSESSMENTCompletion of Stage One and Stage Two packages will be the basis for consideration for exemption from the proposed new residential development SEPP.The Department has set completion time lines of mid February 1996 for Stage One and end September 1996 for Stage Two.COMMENCEMENT OF RDS - STAGE ONE REPORTCouncil already has carried out, or has access to, work relevant to some of the requirements for the completion of the Stage One Report, namely:
* sites/precincts to be investigated for development (or redevelopment) to achieve denser and more diverse housing forms;
* opportunities to improve existing development controls; and
* reforms to current development approval processes.
FURTHER WORK TO BE UNDERTAKENIn order to complete the Stage One requirements set out in the guidelines, additional research/investigation/consultation is required.(a) Housing Market Study
* Demographic Profile by the Hunter Valley Research Foundation.
* Metropolitan and regional planning context, major public spaces, transport nodes and infrastructure through the SSROC Integrated Transport and Land Use Strategy for Hurstville, Kogarah and Rockdale (Stages One and Two).
* Recent review of LEP and DCP.
* Previous precinct review of residential development potential.
* St George Older Persons Housing Project.
(b) Housing Needs Survey
General regional and local market conditions (private/public/rented); demand and supply, prices and affordability; stock composition/quality; building and construction trends.
(c) Precinct and Site Surveys
Community survey, housing preferences, special needs groups, community housing projections, consultation with regional and local housing providers and service organisations.
PROJECT FUNDINGCompletion of these studies require specialist expertise and need to be undertaken by concurrent consultancies, given also the short time lines set by the State Government.The studies are estimated to require the following funding allocations:
Identification of residential intensification opportunities, conversion from other uses, vacant or under-utilised sites.
However, Studies One and Two above require a regional perspective and could be done on a joint resource sharing basis with Rockdale and Kogarah Councils.
|Study One:||Housing Market Study||$6,000|
|Study Two:||Housing Needs Survey||$9,000|
|Study Three:||Precinct and Site Survey||$3,000|
. Recommendation RESIDENTIAL DEVELOPMENT STRATEGY RECOMMENDATIONRECOMMENDATIONTHAT Council approve the allocation of $18,000 for the completion of the Residential Development Strategy Stage One Report funded from the Working Fund.FURTHER, THAT consultation proceed with Rockdale and Kogarah Councils on joint funding for Studies One and Two above.
|HURSTVILLE CITY COUNCIL|
RECOMMENDATION NO: .02
POLICY PLANNING & ENVIRONMENT
|HURSTVILLE CITY COUNCIL|
REPORT ITEM NO: .
POLICY PLANNING & ENVIRONMENT
07.03 HURSTVILLE LOCAL ENVIRONMENTAL PLAN 1994 (AMENDMENT NO. 1) RECLASSIFICATION OF LAND OFF WOODVILLE LANE, HURSTVILLEReference is made to a report on this Amendment, to the 28 June 1995 meeting, which it was resolved to forward the Amendment to the Minister of Urban Affairs and Planning for gazettal.In late August, 1995 the Minister's Office advised that the draft Amendment had not been advertised for a sufficient period and referred the matter to Council for action. In response to this advice, the Amendment was readvertised from 12 September, 1995 to 13 October 1995 during which period no public submissions were received.This matter is now completed and the draft Amendment shall be re-submitted to the Minister for final gazettal.
. Recommendation HURSTVILLE LOCAL ENVIRONMENTAL PLAN 1994 (AMENDMENT NO. 1) RECLASSIFICATION OF LAND OFF WOODVILLE LANE, HURSTVILLE RECOMMENDATION
|HURSTVILLE CITY COUNCIL|
RECOMMENDATION NO: .03
POLICY PLANNING & ENVIRONMENT
1. A copy of this report on the findings of the public exhibition for reclassification of land off Woodville Lane, Hurstville from "community" to "operational" be forwarded to the Department of Urban Affairs and Planning; and
2. The Minister for Urban Affairs and Planning be requested to make Draft Hurstville Local Environmental Plan, 1994 (Amendedment No. 1).
POLICY, PLANNING & ENVIRONMENT
|HURSTVILLE CITY COUNCIL|
REPORT ITEM NO: .
POLICY PLANNING & ENVIRONMENT
07.05A 2-8 BRIDGE STREET, HURSTVILLE (249/95)At the meeting on 7 November 1995, Council agreed to grant delegated authority to the General Manager to issue development consent subject to the applicant meeting the requirements set out in the Council report (copy attached).The applicant has subsequently prepared an alternative solution. I am now raising this matter before Council because I believe that a better solution from a civic design point of view would be achieved if the building was lengthened. This would involve an increase in floor space.Ideally the building would extend the length of Bridge Street and terminate in a southern end which is parallel to the railway cutting. To increase the length would require a reduction in depth. The present proposal varies from 10 metres to 20 metres in depth. It is not economically feasible or physically practical to reduce the depth of the building. So to achieve the desired result requires an increase in floor space.The increased length will ensure that:i. The building will block off more effectively the view of the railway stauntions now visible from along Bridge Street looking east.ii. The building will read in a more coherent way from across the railway line, King Georges Road and Woniora Road.iii. The building line will reflect the original subdivision pattern. This helps "ground" the building in Hurstville and on that particular site.iv. A properly designed corner to terminate the view at the end of Bridge Street looking east, could be designed.The floor space is presently 5,235.6m2 which gives a floor space ratio (FSR) of 2:1. The floor space should be increased by 700m2 to 5,935m2.The increase floor space gives a FSR of 2.26:1.The proposed increase in floor space is tied to a particular building envelope and cannot be converted into an alternative envelope. It occurs as a result of designing a specific envelope for the site.The floor space would be distributed approximately equally over the lower six floors of the building giving probably one extra unit per floor. The underground car parking would be adjusted accordingly. The additional floor space could not be used on the two top floors.The philosophic basis for the request is:i. every site has a different role in the hierarchy of the town and therefore the massing of built form needs to be established on a site by site basis to ensure overall legibility in the town, balanced streets, solar amenity, etc.ii. the building envelope and the architectural resolution should where possible, reflect their context and role in the history of the town even though development may be at a different scale and type. The increase in floor space would enable a better resolution of both these issues.___________________________________________________________________________Applicant : Geoform Design Pty. LtdProposal : MIXED DEVELOPMENTZoning : Zone No. 3(b) - City Centre BusinessOwners : Italo Aust. Club Ltd., Mr. E. Bown, Cecil Bown, Eva Dora Barnes & Mr. A. MatthewsExisting Development : Residential DwellingsCost of Development : $3 millionPRECIS OF REPORT1. Commercial/Residential consisting of 20 x 2 and 26 x 3 bedroom units (amended).2. The amended plans comply with the DCP No. 4 - Hurstville Town Centre.3. Floor spare ratio now complies.4. Recommendation - delegated authority be given to General Manager to issue development consent.Divisional Manager's ReportMembers will recall, at its meeting on 18 October 1995, Council considered an amended application for the subject premises which consisted of commercial floor space and 46 residential units. Subsequently, Council resolved "to defer the application until the next meeting to enable further consideration to be given to the architectural resolution and building form of the proposed development".To address Council's resolution, on 23 October 1995, a meeting was held between the applicant, architect, owners of the property, the Chairman of the Development, Health & Planning Committee, Clr Dominelli and Council's Divisional Manager - Policy, Planning & Environment and Manager of Planning Services, with a view to amend the application. It was agreed between parties that the building will address the streetscape by aligning the building with Bridge Street, relocate all vehicular access towards the northern most boundary, reposition commercial floor space within the ground floor and alter various residential units to take advantage of both the northerly aspect and surrounding views.The requirements of Hurstville City Council are as follows:1. To align the proposed building to Bridge Street.2. The central portion of the building is to have a setback of approximately 3-4 metres to allow appropriate planting.3. The northern end can extend to front boundary as per the present design, if the applicant wishes.4. The southern end needs to extend to the front boundary in part, address the view along Bridge Street in both directions and create an "end condition" on the building. The southern end on the present proposal is a repeat of the other modules as though the building could extend indefinitely. Greater consideration needs to be given to this corner which is so highly visible across the railway cutting and along the street system. It should be designed as a visible terminating element in the manner of a traditional corner.5. The proposed vehicular crossing at the southern end needs to be repositioned or eliminated so that the view along Bridge Street does not terminate in a driveway.6. The pool is located on the northern end of the site. Bearing in mind that the adjacent site on the north could be developed, the pool location may be subject to overshadowing even with low development. It may therefore be preferable to site the pool toward the southern end of the site.NOTE: A report which sets out the general principles related to Urban Form and Architectural Resolution in Hurstville, follows.
"HURSTVILLE CITY CENTRE1.0 INTRODUCTION 1.1 General Design Considerations
URBAN FORM AND ARCHITECTURAL RESPONSE
2.0 BUILT FORM 2.1 General Design Conditions 2.1.1 The building should define an edge for Bridge Street as part of the town centre. 2.1.2 Spatial Definition/Spatial Quality
The design emphasis in Hurstville is on a built form which reinforces a human scale and produces a Hurstville character. Variety is purposely sought to avoid any appearance of a "project" look or super-block. However, continuity between each building and its neighbours is essential to provide a visual coherence to the city. The complexity and interest normally associated with older and more established urban neighbourhoods is the desired outcome.
The built form profile is medium rise high density block edge development. For this building form to be successful it needs to adhere to the following principles:
* The buildings are to be organised on a "block edge" principle - facing the street and near or on the front of the site in a manner which provides a coherent definition of the urban space.
* The architecture is to draw clues from the existing buildings in terms of plans, elevations and the traditional vertical structural modulation evident in Hurstville.
* The buildings should be appropriately modulated and articulated in their facade in order to provide well proportioned elevations and human scale, shadow lines etc when viewed along the street.
* The design should consider the proposed building in its street context.
* The building must define in plan and section clear, well proportioned spaces/streets which are appropriate for their particular use (internally and externally).
* The spaces/streets etc must have landscaping, lighting etc which is appropriate for their urban condition.
* The spaces must have a high level of amenity in terms of solar access/shelter etc.
2.2.1 Building Height Generally a building height of 4-8 stories is considered acceptable but this will depend on the individual envelopes, the street width, overshadowing and heritage condition. Higher floor to floor heights in residential buildings are encouraged and envelopes will be set to enable some flexibility above a 2.4 floor to ceiling height. This is to enable better proportioned rooms and placement of window heads above 2.1 metres so light can penetrate deeper into the rooms.3.0 THE ARCHITECTURAL RESOLUTION 3.1 The Street Walls/Elevations
The building mass should respond to the relationship of the site with adjacent and proposed buildings (to be defined by envelopes) and must be appropriate in terms of the immediate context when viewed from within the street system.
* The elevations should provide an oblique view along the street which is articulated, provides interest and is at a human scale. For this reason strong horizontals and flat facades are not suitable. Large expanses of blank walls and curtain walling should be avoided.
* Minor stepping of the street, frontage and articulation of building facade is encouraged. The building entrance may be set back or brought forward for emphasis.
* Important parts of the building such as corners, entrances the building base and the roof, should be articulated. Corners should not be unduly emphasised but should respond to their particular context.
* The structural module of the buildings should be expressed where possible to provide vertical facade proportions which reflect the vertical proportions of many of the existing buildings in Hurstville.
* The proportions and relationship of voids and solids should build on and adapt the existing patterns in Hurstville. They should not be replicas.
* Surveillance of the public domain from the building is essential and bay windows in residential developments are considered appropriate.
* form an appropriate silhouette from the street, * create an attractive view for nearby buildings which look over the building. 3.3 Materials
* Building tops should be articulated by the roof form and/or parapet line and the roof and building must form a cohesive design.
* In the case of a flat roof, rooftop pergolas and lift over runs should be integrated into a well designed form. Articulated parapets and cornice lines should emphasise the top of the building, and help create an appropriate scale for the overall facade.
* The roof must also:
* Building should complement the predominantly masonry construction of buildings in Hurstville.
* Materials should respond to the need for a sense of scale and texture in the street wall. Curtain walling is not considered appropriate at the lower levels.
3.5 Carparking and Parking Garage Walls
* The existing cream to mid toned brick buildings of Hurstville should be reflected in the colour range of the proposed building.
* Streets should not be lined with a wall of car parking. Carparking should be unobtrusive.
* Parking must be located underground but in some situations due to the topography part of the walls enclosing the parking may be visible. The length and height of the wall should be kept to a minimum.
* Where it is located under courtyards it should allow for the growth of trees and landscaping.
* The carparking entrances should be minimum width.
* Garage doors/loading docks etc are to be slightly recessed so that they are not dominant in street wall and should not be located at the end of a street vista.
4.0 USES 4.1 General Considerations
* Natural or mechanical ventilation from the car park may not be achieved through the use of large metal grilles or large openings.
* Any visible roofs of parking structures area must be landscaped to provide a passive outdoor space, as well as to create a pleasant view from the windows above.
CommentAs the applicant is committed to options on each property which are due to expire, it is recommended to Council that delegated authority be given to the General Manager to issue development consent subject to a satisfactory redesign, its compliance with Council's requirements stated earlier in the report and conditions stated previously in the recommendation.To re-acquaint Members of the various aspects of the proposal, a copy of the report to Council of 18 October 1995 is reproduced below."Council at its Meeting held on 27 September, 1995 considered the application for a mixed development consisting of 26 x 2 and 26 x 3 bedroom units and commercial floor space. Council resolved the following :
* To ensure that the public domain is well surveilled and that buildings present an interesting street frontage retail/public uses are encouraged at ground level."
The applicant has now amended the proposal to comply with Council's resolution. The details are :1. Floor space ratio of 1.999:1 (2:1 max).2. Reduced the floor space content of the units yielding 6 x 2 bedrooms less than originally proposed.3. Proposal consists of 20 x 2 and 26 x 3 bedroom residential units and 284.12 square metres of commercial floor space.Traffic ImpactAs part of the Statement of Environment Effects, traffic considerations were assessed against the provisions of the Traffic Authority of NSW Policies and Guidelines and Procedures for traffic generating development. The submitted traffic study prepared by Transport and Urban Planning Associates Pty Ltd indicates that there is no significant impact on existing traffic. The report will be made available to Councillors prior to the meeting.Television ReceptionFurther to the conclusions submitted to the last Council Meeting applicant's Consulting Engineers have provided the following comments on television signals and potential interference : "Television Signals The main television transmitter towers are located approximately 19 km and 25o East of North from the site. Television signals are electro-magnetic radiation in the VHF and UHF bands and are essentially line of sight signals which can be reflected and absorbed by buildings and other apparently solid objects such as trees, particularly when they are wet. One phenomenon of these signals is that they can diffract around the sharp corners of objects which are seen as "knife edges", this is advantageous in some circumstances and can cause the signals to bend slightly. Potential Interference The type of construction will cause a reception shadow, however the proposed cladding is unlikely to reflect signals at high strength levels. The signal shadow cast by the building will be approximately 35 m wide and accordingly may affect reception in a tapering band in order of 400m away from the building. Free air television signal strength in the area is in the order of 80 dB (micro-volts) and in the area behind the building there are existing areas of difficult reception. (Refer attached survey results). The attitude of the building to the line of sight television signals is such that the leading face of the building will be at about 88o to the direct signal. The leading face is approximately 20 m. wide, compared to the Otis building leading face of approximately 36 m. In summary the alignment of the proposed development, proximity of the existing Otis and Meriton towers, and general landform, lead us to the opinion that the development is unlikely to materially degrade reception in the area."To reacquaint Councillors with the various aspects of the proposal prior to amendments the report to the Meeting held on 27 September, 1995 is reproduced below :"The application before Council seeks favourable consideration of the establishment of a Commercial/Residential development on 2, 4, 6 and 8 Bridge Street, Hurstville.Existing and Surrounding DevelopmentThe subject site will be a consolidation of Lots 1 and 2 DP 501239, Lot 1 DP 88105, Lot 21, DP 974987 and Lot 20 DP 81017. The land is located on the northern side of the Illawarra Railway Line and south of Forest Road, directly opposite the Hurstville Telephone Exchange and the Otis building.The site is rectangular and flat with an area of 2,617.8 square metres with a street boundary of 81.91 metres and a southern boundary that abuts the railway line of 42.8 metres. Currently standing on the property are three weatherboard and fibro cottages of no architectural significance and past their economic life.The surrounding area is a mixture of commercial and retail. The southern boundary abuts City Rail land used for works and storage. The northern boundary is common with a used car sales yard. There are residential and commercial uses in Forest Road.HistoryCouncil, at its meeting held on 26 April, 1995 considered a proposal from the applicant requesting the development have a floor space ratio of 2.5:1 in lieu of the 2:1 under Council's Development Control Plan No. 4 - Hurstville Town Centre, in order to make the project economically viable. Council resolved that ".....the applicant be advised that Council is not prepared to agree to an increased floor space ratio for the site at 2-8 Bridge Street, Hurstville and that the development standards contained in the Hurstville Development Control Plan No. 4 are to be adhered to."Section 90The site has been inspected and the proposal examined in accordance with the provisions of Section 90 of the Environmental Planning and Assessment Act, 1979, and the following comments are submitted for consideration.Statutory RequirementsThe subject site is zoned No. 3(b) - City Centre Business under the Hurstville Local Environmental Plan, 1994, and the proposal is permissible within the zoning with Council consent. The proposal has been assessed against the provisions of Council's Development Control Plan No. 4 - Hurstville Town Centre.For the purpose of this application the applicant has submitted a State Environmental Planning Policy No. 1 objection to the increase in floor space of some 494.41 square metres (fsr 2.188:1) above Council's maximum requirement. The applicant states that ....."the excess in floor space ratio in this instance to be marginal and insignificant given the contextual impact of surrounding buildings within its vicinity (particularly the Otis building) and the added fact that impact to local amenity will not be further affected by this increase in floor space ratio." Comment : The request for an increase in floor space ratio is considered unwarranted as the amount equates to approximately 5 or 6 units. The SEPP No. 1 fails to indicate to Council that strict compliance with the floor space ratio would be unreasonable or unnecessary or hinder the attainment of the objects specified in 5(a)(i) and (ii) of the EPA Act 1979. Furthermore the restriction of floor space ratio is not a development standard and is addressed only in DCP No. 4 - Hurstville Town Centre. It is therefore recommended that any approval would be conditioned to reflect a floor space ratio of 2:1.Development Control Plan No. 4 - Hurstville Town CentreCouncil at its Meeting held on 17 July, 1995, resolved to amend the Controls relating to the Land Use Strategy as follows : RESOLVED THAT Council restrict residential development within the peripheral commercial areas defined in Development Control Plan No. 4 - Hurstville Town Centre to 25% of the total permissible floor space ratio and that this residential component be permitted only above ground floor level.This application was formally lodged with Council on 14 July, 1995 resulting from earlier discussions with the applicant regarding the concept and compliance with the DCP.Proposed DevelopmentThe proposal involves the establishment of a part eight and part seven level residential and commercial building consisting of 26 x 2 and 26 x 3 bedroom residential units serviced by two lifts, two ground floor offices, a pool, on-ground visitor parking and one level of residential basement parking.The building is a symmetrical tower, kinked at two points with two central circulation wells for the first seven (7) levels. This alignment of the building is to reduce direct impact from railway noise and give visual relief from bulk. The maximum height of the building is RL 95.35 AHD (25 metres) compared to a RL 104.96 for the ten storey Otis building.Each residential unit has a balcony area of 18.5 square metres for three bedrooms and 15.8 square metres for two bedrooms by either an open balcony or closed treated with different brickwork and balustrades. Roofs have been added to the top floor and balconies at the street frontage to detract from the horizontal aspect of the main roof area.Tabled Information:
"THAT the application be deferred to a future Council Meeting to enable the applicant to submit amended plans that comply with the maximum floor space ratio of 2:1 under the provisions of the Development Control Plan No. 4 - Hurstville Town Centre.
FURTHER THAT the reduction in floor space to 2:1 be removed solely from the residential component of the proposal, a more detailed traffic study for Bridge Street be carried out and more detailed report on television reception be provided to Council."
Vehicular Entrance and ParkingThe proposal is served by two entry/exit points to Bridge Street. The driveway closest to Forest Road serves for access to the basement resident parking and ground level visitor parking. The remaining driveway will service both the commercial occupancies and visitor parking.Loading/UnloadingThis is divided with the two driveways, where courier and bin storage is provided at either end of the site.Traffic Implications:The Traffic Authority Guidelines provide for example daily trips for residential units. These range from 5.0-6.5 vehicles per unit and peak hour vehicular trips at 0.29 trips per unit. The proposal with its projected traffic generation per unit and commercial content will not impact on Bridge Street which is controlled by traffic signals on Forest and King Georges Road. This is confirmed by Council's Manager Traffic and Transport.ParkingThe parking levels have been designed as a two-way circulation system serviced by a combined entry/exit on Bridge Street for basement resident parking via a 1:6 ramp at the rear of the site. Aisle widths and bay dimensions are in accordance with Council's requirements providing for a total of 76 spaces.LandscapingThe proposal includes a footpath and a mature landscape forecourt of variable width along the Bridge Street frontage that will enhance the building and existing streetscape. A secondary eastern garden at the rear and addressing the pool area will consist of harder shrubs. A condition of any consent will require the applicant to provide a detailed landscaping plan accompanying the formal Building Application.OvershadowingSubmitted diagrams indicate that most of the winter shadows fall upon the development itself, the Hurstville Telephone Exchange, the Bridge Street carriage way and onto the railway line.Waste DisposalWaste will be compacted and stored in bins. Two compactus and storage areas are provided on site and garbage trucks are allowed to enter, collect and leave in a convenient manner. However, this method is not totally accepted and appropriate conditions will reflect Council's requirements.DrainageIt is required of the applicant to have all drainage directed to the existing street system and such details will be provided by a Hydraulics Engineer with the formal Building Application.Likely Impact on Television ReceptionA report was submitted with the Development Application prepared by Consulting Engineers who have assessed the possible impact of the proposed building to television reception. Their conclusions are reiterated below:"(a) That there will be minor shadowing of the television signals transmitted by all stations. The existing topography is such that reception to the South and West of the site is a known area of poor reception and is affected by existing buildings, trains and aircraft interfering with an already attenuated signal.(b) The affect of the shadowing will vary from household to household for different stations because of the slightly different angles of the transmitters to the building.(c) In this circumstance the use of a translator is not practical due to the lack of available frequencies.(d) There is likely to be little or only minor increase in ghosting effect from reflected signal because of its attitude to the local antenna alignments and the effects of the existing buildings.(e) In summary the alignment of the proposed development, proximity of the existing Otis and Meriton towers, and general landform lead us to the opinion that the development is unlikely to materially degrade reception in the area."Manager Building Services (North)The application was referred to the building surveyor regarding compliance with the Building Code of Australia and other pertinent matters.No objections are raised, however the proposed garage management is not acceptable and requires alteration. Furthermore, noise levels within the building will be required to be addressed and a maximum noise level of 45 dB(A) be achieved. All these matters will form part of any consent as conditions.Manager Development AdviceThe matter was referred to the Manager Development Advice who raises no objection subject to appropriate drainage requirements and new crossings.Manager Traffic & TransportThe application was referred to the Manager of Traffic & Transport regarding on-site vehicular movement and traffic management. No objection is made regarding these two points however, has requested that the driveway ramp to the basement be redesigned to decrease the 1:6 grade and make it circular. This will be a condition of consent.Traffic generation is within an acceptable level and will have little impact on Bridge Street and the surrounding system.Public Notification and CommentThe proposal was advertised in the Leader and adjoining residents were notified by letter, inviting them to view the plans and submit comments on the proposal within twenty (21) days. Seven (7) submissions were registered, their concerns are outlined below.(i) City Rail has raised a number of points regarding disposal of drainage across their land, boundary setbacks and noise exposure to future occupants.CommentsThe above concerns have been taken into account and such issues raised ie: acoustic mounding, double brickwork or use of other similar construction materials and double glazing will be added to advisory notes attached to any comment. Furthermore, a condition of consent will require the applicant to submit working plans to City Rail for their comments prior to Building Application approval.(ii) NSW National Parks & Wildlife Service and the Attorney General's Department have raised concerns to street parking and traffic congestion.Comments:The majority of their staff park in the street as a result of leasing agreements. However, this residential development with a commercial content will have little impact on the provision for on-street parking as all residents and, to a degree, visitors and office employees should park on-site. Bridge Street is controlled at both ends by Traffic signals thereby controlling the integration of vehicles into King Georges and Forest Road.(iii) The density is too high.Comments:It is acknowledged that the residential density is greater than that in Residential zoned land, however, commercial/retail uses demand more parking and have a higher occupancy rate per square metre.(iv) TV Reception.Comment:The report prepared and submitted with the Development Application suggested that only minor increase in ghosting effect from reflected signals due to the local antenna alignments and the effects of the existing buildings. However, the report states "The signal shadow cast by the building will be approximately 35 metres wide and accordingly may affect reception in a tapering band in the order of 400 metres away from the building."(v) Traffic GenerationCommentAs mentioned earlier traffic generation for the proposed development is at an acceptable level so as not to impact on the current traffic signals. The existing Otis building demonstrates the difficulties with commercial floor spaces where staff are not generally permitted to park on-site or tenants are not willing to lease car spaces. In contrast the proposal will have tenant parking on-site as the commercial tenancies are at a size to cater for the needs of staff, as for residential occupants and visitors wanting safe areas for vehicles parking.(vi) Reduction in property valuesCommentThe objector resides on the Penshurst side of Bridge Street and therefore this development will have little impact on property values. It should be mentioned that the site is zoned for commercial uses.In SummaryAlthough Council has taken steps to restrict residential development to 25%, the proposal still meets with Council's objectives for Land Use Strategy which promotes residential uses. However, the location of the building and its residential component will have minimal impact on traffic generation and traffic congestion in the local system as opposed to a pure commercial or retail development.The applicant has agreed to alter the design of the building by reducing the amount of built form to a number of balconies which will improve the external aesthetics of each building face.Therefore, it is recommended that the development application be approved subject to conditions."RECOMMENDATION:THAT Council grant delegated authority to the General Manager to issue development consent subject to the applicant meeting with requirements set out in this report and subject to the following conditions as amended.1. Compliance in all respects with Amended Drawing Nos A01-A13 (inclusive) tables and documentation prepared by Geoform Design Architects, dated 5.9.95 and submitted with DA 249/95, except where amended by the conditions of consent.2. A Building Application being submitted to and approved by the Council in accordance with the requirements of the Local Government (Approvals) Regulation 1993, accompanied by detailed building plans, specifications, and the payment of relevant building application fees.3. The hours of work on the site during demolition of the existing building or excavation of the site and construction of the proposed building shall be limited to the hours of 7.00 am to 5.00 pm Monday to Saturday inclusive with no work on Sundays, Good Friday, Christmas Day or Public Holidays. PLEASE NOTE : A separate application for demolition work is required to be lodged with Council for approval prior to the commencement of the work.4. Payment to Council of a contribution pursuant to Section 94(1) of the Environmental Planning and Assessment Act, 1979. The purpose of the contribution is for open space/ community recreation facilities. The contribution is based on the criteria of any development that results in a nett increase in the City's population which will create extra demand on open space and community recreation facilities. Therefore the requirement for additional open space and embellishment of existing open space is a direct measurable consequence of the approved development. The contribution is $178,421 and payable prior to the release of the approved building plans.5. Payment to Council of a contribution pursuant to Section 94(1) of the Environmental Planning and Assessment Act, 1979. The purpose of the contribution is for community services and facilities. The contribution is based on the criteria of any development that results in a nett gain of people living in the City or a change in the population structure which will create extra demand on community services and facilities. The contribution is $19,896 and payable prior to the release of the approved building plans.6. Payment to Council of a contribution pursuant to Section 94(1) of the Environmental Planning and Assessment Act, 1979. The purpose of the contribution is for the provision of traffic management facilities within the Hurstville CBD. The contribution is based on the following criteria as a direct consequence of the proposed development.
|Floor Space Ratio|
see "Statutory Reqs"
|Total Floor Space|
The contribution rate for Residential/Commercial is $1.40/$9.00 per square metre respectively of nett increase in floor space. The amount is $8,751 and payable prior to the release of the approved building plans.7. The subject site where fronting Bridge Street, the applicant is to pay Council for the full cost of reconstruction/construction of the footpath in Brazier or clay pavers or approved equivalent in herringbone pattern with rectangular header courses at kerb line and property boundary, road shoulder, kerb and gutter, piped drainage, pits, the implementation of street tree planting and grates. Should the applicant elect to construct the work, it is to be carried out in accordance with Council's conditions and specifications together with a payment of Council's administration fee. The amount is to be paid prior to the issue of a Certificate of Classification.8. The applicant to provide an on site detention (OSD) facility designed by a professional hydrological/hydraulic engineer, showing computations of the inlet and outlet hydrographs and stage/storage relationships of the proposed OSD using the following design parameters:
* The increased traffic volume, raise the potentiality of conditions accelerating the deterioration of road pavement and/or traffic system operational conditions.
* Where provision of the scheduled facilities is essential to the traffic system operation due to the proposed development.
* Where the provision of a facility is a direct requirement as a result of the proposed development.
9. Stormwater drainage plans prepared by a qualified practising hydraulics engineer being submitted to Council with the Building Application. The layout of the proposed drainage system including pipe sizes, type, grade, length, invert levels, etc., dimensions and types of drainage pits are to be shown. 10. All stormwater to drain by gravity to the kerb and gutter in Bridge Street and the underground carpark to pump to the same kerb.11. All building materials shall be compatible in colour and texture throughout the whole project. Details and colour of building materials shall be submitted with the Building Application.12. The ground levels of the site shall not be raised/lowered or retaining walls constructed on the boundaries unless specific details are submitted to and approved by Council at Building Application stage.13. The area and/or work being the subject of the development consent, shall not be occupied or the use commence until a final inspection has been made and a Certificate of Classification has been issued by Council.14. The specific use of each office tenancy will be the subject of a separate Development Application being submitted to Council for approval prior to occupation.15. Compliance with the requirements of Sydney Electricity in relation to the provision of a site within the subject land for the establishment of an electricity kiosk type substation, if required for the locality. Prior to submission of building plans, the developer shall present details of the development in writing to Sydney Electricity and obtain confirmation of that authority's requirements. The kiosk site shall be dedicated at the applicant's expense for use of Sydney Electricity.16. That the proposed development provide for access for people with disabilities in accordance with the provision of AS 1428.1 as set out in the Building Code of Australia - Building.17. The provision of fifty two (52) residential spaces, four (4) commercial spaces and twelve (12) visitor parking car spaces in accordance with the submitted plans. Such spaces, manoeuvring areas, driveways and vehicular crossings are to be suitably constructed, sealed to provide a surface of concrete or bitumen, signposted, clearly linemarked, and drained to Council's specifications. Footpath and crossing levels are to be obtained from the Engineer's Department at a fee set by Council.18. All driveways, access ramps are to be in accordance with RTA - Guide to Traffic Generating Developments, Section 6, "Access and Parking Area Design". Details are to be submitted with the formal Building Application for approval.19. All car spaces shall have minimum dimensions of 2.5m X 5.5m, except for disabled spaces which shall have minimum dimensions of 3.0m X 5.5m.20. All entry and exit points and one or two way circulation movements are to be clearly signposted to the satisfaction of Council.21. A minimum height between the floor surface and the lowest overhead obstruction shall be 2.1 metres for all areas traversed by cars. A minimum of 3.6 metres headroom shall be provided over all areas traversed by service vehicles.22. The submission of a detailed landscape plan to the satisfaction of the Manager, Planning Services, with the building application. This plan is to be prepared by an approved landscape consultant. The plan is to include details of the species, size and number of all plant material, together with the surface treatment of all areas. Landscaping shall be completed to the satisfaction of the Manager, Planning Services in accordance with the approved plan prior to occupation of the building. All landscaping shall be maintained to the satisfaction of the Manager, Planning Services. Note: In addition the Landscape Plan is to identify all existing trees by Botanical and Common names, having a height which exceeds 3 metres or a girth greater than 300mm at 450 mm above ground level, and their relationship, by scale to the proposed development. NO trees are to be removed or lopped without Council approval.23. Where a sub-station kiosk is required, such shall be suitably located and screened, and details of screening and location shall be submitted with the landscape plans and shall be to the satisfaction of Council. 24. Perimeter planting along site boundaries shall be such as to provide a dense-foliaged plant screen of trees and shrubs over a broad height range to minimise the effect of the development upon adjoining development.25. That the applicant submit working drawings to State Rail Authority of NSW for their concurrence and furnish written acceptance by State Rail to Council, prior to the issue of the approved Building Application.26. Pay Council to:
* For events up to a 1% annual exceedance probability (AEP) design event as defined by Australian Rainfall and Runoff (May 1987), maximum peak site discharge resulting from the development shall not be greater than peak site discharge under existing conditions for all durations up to the time of concentration with OSD included and of the same AEP.
* Where the stormwater discharge points are connected to the street gutter system, the peak flow from the site shall not increase the width of gutter flow by more than 200mm at the design storm.
* The OSD facility shall be designed to meet all safety requirements and childproof safety fencing around the facility must be provided where the OSD facility is open or above ground when the design peak storage depth is greater than 300mm.
Quote given on request.27. The development shall be designed and constructed to ensure noise levels from external noise sources in any habitable room does not exceed 45 dB(A) when window and door openings are closed. A report from a qualified practising Acoustical Engineer must be submitted with the building application.ADVISORY NOTES REGARDING THE SUBMISSION OF A BUILDING APPLICATION1. Structural details of proposed shoring works must be submitted with the Building Application.2. Details of proposed smoke hazard management including exhaust of the basement carpark must be submitted with the building application.3. Proposed method of garbage control and disposal is not considered to be acceptable. The garbage and recycling storage rooms must be located within two metres of the street and be capable of holding two 1100 litre garbage containers, a frame to hold at least 10 recycling crates and a paper sack frame. Details must be submitted with the building application.4. Walls separating wet areas and habitable rooms in adjoining sole occupancy units must have a minimum Sound Transmission Class of 50."
(a) replace all redundent crossings with kerb and gutter;
(b) construct two (2) 150mm thick concrete crossings reinforced with F72 mesh;