PAGE 99 Request for Additional Information
4. PUBLIC SUBMISSIONS
The following key issues were raised within the public submissions received:
a) Built Form (excessive building height, impact on character of locality and density/overdevelopment);
b) Capability of Existing Infrastructure (traffic congestion, car parking, social infrastructure and pedestrian safety);
c) Extension of Spurway Drive (some submissions objected to the road link and others supported the road link but requested additional traffic infrastructure at the intersection of Spurway Drive and Windsor Road);
d) Impact on Amenity (overshadowing, privacy, noise and crime);
e) Economic Impact (impact on property values); and
f) Applicant Submission requesting further amendments to the Planning Proposal.
Built Form
i. Height and Impact on Character: Concern is raised that the proposed maximum height is excessive, out of proportion to building heights on adjacent land (existing, approved and future development including two (2) storey townhouses and integrated dwellings on adjoining land) and does not take into account the topography of the land. Concern that any development in excess of 16 metres would change the character and feel of the area.
Comment:
The site will be different to that originally envisaged under the current LEP and DCP controls. The site is part of the BRRA and was expected to be developed for apartments and allotments between 4,000 – 5,000m2 at 5 storeys maximum height. The anticipated yield was approximately 600 apartments depending on mix.
The NWRL and the State Government’s Corridor Strategy has changed the existing land use aspirations for this site. It envisaged a built form ranging from 7–12 storeys maximum however the heights are exhibited are at the predominant 12 storey maximum. This does present compatibility challenges and it is considered that the proposal as per the report, in its exhibited form, would result in a number of unacceptable built form impacts:
The siting of 12-13 storey buildings in the south-western and north-eastern portions of the site adjacent to existing two (2) storey dwellings (refer to Figure 2);
Loss of amenity for existing residential development within the locality (such as overshadowing, loss of privacy and visual impact) and failure to provide an adequate level of amenity for future residents on the site (primarily due to internal overshadowing);
The creation of a bulky, obtrusive and imposing built form which is inconsistent with the current and proposed future character of the area (refer to Figure 5);
The creation of an unbroken visual barrier up to 13 storeys in height along the majority of the southern and northern boundaries of the site (refer to Figure 6); and
Failure to achieve suitable transition in heights between the Norwest Business Park and lower density residential development within the Balmoral Road Release Area.
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PAGE 101 Figure 5
Exhibited built form concept (viewed from the North)
Figure 6
Indicative view of the site from Spurway Drive (southern boundary)
The urban design outcome detailed above is incompatible with, and unsympathetic to, existing development and the desired future character for this area. Despite the additional urban design work completed by the applicant, the proposal fails to achieve an appropriate built form and is excessive within its context in terms of height, bulk, scale and intensity.
Taking into account the issues raised within submissions, the existing and approved development within the vicinity (ranging in height from 2-9 storeys) and the strategic location of the site and envisaged future character within the Norwest Station Precinct, it is recommended that the planning proposal be amended to reduce the overall scale of the proposal and promote a built form ranging in height between 6-9 storeys with some higher landmark elements in the central portion of the site (up to 12 storeys). Coupled with FSR controls, it will mean that the built form along the road frontage opposite recently constructed development will be less than the 6 storey maximum. The front setback for these streets needs to be 10m and heavily landscaped with 2-3 storey built form at the building setback raising to 6-9 storeys behind.
ii. Density and Overdevelopment of the Site: Objection is raised to the density of the proposal. Comments that the density is an excessive increase beyond both the current controls and the density envisaged within the North West Rail Link Corridor Strategy.
Comment:
Under current controls, the site would be expected to accommodate approximately 600 new dwellings. Given the strategic location of the site within the Norwest Station
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PAGE 102 Precinct, it is considered appropriate to increase the residential density which can be accommodated on the site.
The original design concept reported to Council and forwarded to the Department of Planning and Environment for Gateway Determination proposes a total of 1,300 new dwellings. The Gateway Determination identified that the proposed intensity of the development exceeded that envisaged under the North West Rail Link Corridor Strategy and as a result, requested that additional urban design work be completed by the applicant.
Despite the concerns raised within the Gateway Determination, the additional information and amended design concept submitted by the applicant (and publicly exhibited by Council in accordance with the Gateway Determination) demonstrated a yield of up to 1,950 new dwellings (650 dwellings more than originally submitted to Council and the Department of Planning and Environment for Gateway Approval).
Further, it should be noted that the actual dwelling yield of future development on the site may further increase at the development application stage as a result of proposed amendments to State Environmental Planning Policy 65 which mandate minimum apartment size and would take precedence over Council’s Development Control Plan.
The urban design work does not do enough to justify the proposed yield, as exhibited. It is considered excessive in the context of the site and also within the Norwest Station Precinct. Further, the amended design concepts submitted by the applicant failed to adequately address concerns raised by both Council and the Department of Planning and Environment with respect to the intensity of the development.
While there is strategic justification for increasing the residential density on the site above the current planning controls, it is considered that the proposal to accommodate nearly 70% of all planned future residential development within the entire Norwest Station Precinct on one (1) site is excessive. This is especially relevant where the overdevelopment of the site will result in unacceptable built form outcomes as detailed above.
The recommended amendments to the maximum building heights detailed within this report would result in a built form ranging in height between 6-9 storeys with some higher landmark elements in the central portion of the site (up to 12 storeys). It is anticipated that these height limits, along with appropriate floor space ratio controls, would enable a yield of between 1,100 and 1,300 new dwellings on the site. It is considered that this outcome represents a more reasonable increase in development yield (up to 800 additional dwellings over and above current controls) which responds to the strategic location of the site without allowing for an excessive overdevelopment of the site. This outcome would also be consistent with the strategic framework established by the State Government with respect to the intensity of development to be achieved within the Norwest Station Precinct and with Section 117 Direction 5.9, which requires consistency with the North West Rail Link Corridor Strategy.
In light of this, the recommended amendments to the maximum permissible building heights and floor space ratio controls detailed within this report are supported not only with respect to the built form outcome, but also in order to ensure an appropriate development yield will be achieved on the site.
Capability of Existing Infrastructure
i. Traffic Congestion: Concern that the additional population will greatly exacerbate the current traffic gridlock in and through Norwest Business Park, surrounding residential areas and along Norwest Boulevarde, Fairway Drive, Windsor Road,
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PAGE 103 Showground Road and that very few traffic improvements along Norwest Boulevarde have been undertaken. Concern that the Traffic Report does not take into account the cumulative impact of the Urban Activation Precincts (Kellyville, Bella Vista and Showground Stations). Request that Windsor Road, Showground Road and Norwest Boulevarde be widened immediately to three (3) lanes in each direction.
Comment:
A Traffic and Parking Assessment prepared by Varga Traffic Planning Pty Ltd was submitted in support of the planning proposal and identified that should the proposed development proceed, the intersections of Windsor Road and Spurway Drive and Solent Circuit and Fairway Drive would continue to operate at an acceptable level (SIDRA Level of Service “A”). The assessment concludes that the additional traffic expected to be generated by the development proposal is unlikely to have any unacceptable traffic implications in terms of road network capacity.
The planning proposal was forwarded to the Roads and Maritime Services and Transport for NSW for comment during the exhibition period. Both agencies deemed that future development on the site is unlikely to have any unacceptable traffic implications in terms of road network capacity.
The site is located within the Norwest Station Precinct, which is expected to accommodate future residential and employment growth as a result of the North West Rail Link. The North West Rail Link Corridor Strategy identifies that significant upgrades to the road and traffic network are likely to be required in the future to accommodate future growth. In particular, the Norwest Station Structure Plan identifies the need to:
Create new linkages within the precinct, including the connection of Fairway Drive to Windsor Road through the extension of Spurway Drive;
Signalise the intersection of Norwest Boulevard, Brookhollow Avenue and Century Circuit;
Provide taxi ranks in Brookhollow Avenue near the intersection with Norwest Boulevard; and
Provide short term parking (kiss and ride) in Brookhollow Avenue.
As part of the planning process for the Norwest Station Precinct, further consideration is to be given to transport, movement and accessibility including improvements to connectivity, improvements to bus networks, parking requirements and required road upgrades/widening. As the planning for the Norwest Station Precinct continues these options will be further explored and considered.
ii. Car Parking: Concern that future development on the site will not provide adequate on-site car parking and will cause overflow parking in surrounding streets.
Comment:
Council’s Parking Controls requires that all parking, including visitor parking, be provided on site, at the rates identified within the Development Control Plan. This is to ensure that development will not adversely affect existing on-street parking arrangements or surrounding streets. This proposal does not seek to amend Council’s Parking Controls to allow for a reduced parking rate for future development of the site. Any future development application lodged with Council would be assessed against the parking requirements within DCP 2012.
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PAGE 104 iii. Social Infrastructure: Concern is raised that existing and planned infrastructure (community centres, open space and schools) will be inadequate to meet the additional demand generated by the proposal. Additional concerns that insufficient private open space is proposed within the development.
Comment:
The Social Infrastructure Assessment which forms an attachment to the planning proposal found that the additional demand for social infrastructure generated by the development of the site could be accommodated by the existing and planned facilities within a 5 kilometre catchment area of the site including:
five (5) primary schools;
one (1) secondary school;
nineteen (19) medical and health facilities;
thirteen (13) childcare centres;
fifteen (15) community centres;
eleven (11) playing fields;
ten (10) netball courts; and
six (6) tennis courts.
In addition, the assessment identified a total area of 18.7 hectares of open space within 2 kilometres of the site.
The site is located within the catchment area of Contributions Plan No.12 – Balmoral Road Release Area and any future development on the site would be required to make Section 94 contributions in accordance with this plan to fund the provision of the necessary local infrastructure within the Balmoral Road Release Area.
With respect to private and communal open space within the development, any future development application lodged with Council would be assessed against the requirements of Council’s Development Control Plan which includes requirements relating to the provision of landscaping and open space.
iv. Pedestrian Safety: Concern that increased vehicle movements on local roads will reduce pedestrian safety for families with children.
Comment:
Any traffic generated by future development on the site will utilise the existing and planned local road network within the Balmoral Road Release Area and is not expected to result in any decrease in pedestrian safety.
Where development is proposed, footpaths will be constructed as a condition of any future development consent that may be issued to ensure safe pedestrian access. It is noted that the proposed extension of Spurway Drive through the site connecting Fairway Drive to Windsor Road would include a 2.5 metre wide shared pedestrian cycleway along the full length to ensure safe pedestrian passage through the area.
Proposed Road Link connection to Windsor Road
i. Objection to Proposed Road Link: Concern that the proposed extension of vehicular traffic along Spurway Drive to Windsor Road will become a thoroughfare and short-cut to Castle Hill for thousands of residents in Norwest and Bella Vista.
Comment:
The Norwest Station Structure Plan identifies the need to provide new links within the precinct in order to increase vehicular and pedestrian connectivity and permeability. In
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PAGE 105 particular, the Structure Plan identifies that Spurway Drive should become a public road connecting Fairway Drive to Windsor Road. The proposed extension of vehicular traffic along Spurway Drive to Windsor Road is consistent with the Norwest Station Structure Plan and would facilitate greater permeability and connectivity between Windsor Road and the Balmoral Road Release Area. The proposal was forwarded to the Roads and Maritime Services and Transport for NSW for comment during the exhibition period. No objection to the extension of Spurway Drive was raised.
While the proposed extension is likely to result in increased traffic movement along Spurway Drive in comparison to the existing operation of Spurway Drive as a private road, it is envisaged that the road will primarily service local traffic within the Balmoral Road Release Area. Furthermore, the retention of the “left-in/left-out” operation of the intersection of Spurway Drive and Windsor Road as well as the median strip preventing turning right off Windsor Road into Spurway Drive will limit the extent to which
“through-traffic” will utilise this vehicular connection.
ii. Concern that it will worsen access from Castle Pines to Windsor Road and Castle Hill due to “left turn only” and request a major intersection upgrade to provide traffic lights at the intersection of Spurway Drive and Windsor Road.
Comment:
It is envisaged that the proposed extension of Spurway Drive will primarily service local traffic within the Balmoral Road Release Area. The retention of the “left-in/left-out”
operation of the intersection of Spurway Drive and Windsor Road as well as the median strip preventing turning right off Windsor Road into Spurway Drive will limit the extent to which “through-traffic” will utilise this vehicular connection.
It is considered that the existing major intersection of Windsor Road and Norwest Boulevard provides adequate access to the Norwest Business Park. The provision of traffic lights at the intersection of Windsor Road and Spurway Drive would adversely impact on the operation of this existing intersection (by significantly shortening the turning lanes along Windsor Road) and the function of Windsor Road. Further, the provision of traffic lights at this intersection would remove the current “left-in/left-out”
restriction (as well as the median strip) which would be likely to substantially increase the extent of “through-traffic” utilising Spurway Drive as a secondary access point to the Norwest Business Park. This would be an undesirable outcome for both the local road network and residents within the Balmoral Road Release Area.
Impact on Amenity
i. Overshadowing: Concern that the proposal will result in significant overshadowing of existing and approved future residential development adjoining the site.
Comment:
The planning proposal, as exhibited, would facilitate development on the site which would result in excessive overshadowing of adjoining residential development. In particular, the proposed development would overshadow:
The rear private open spaces of both existing and approved two (2) storey townhouse and integrated dwelling developments within the Norwest Town Centre Residential Development at 9am, Noon and 3pm on 21 June; and
The entirety of a number of approved two (2) storey dwellings within the Norwest Town Centre Residential Development at 9am, Noon and 3pm on 21 June.
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PAGE 106 In addition to the overshadowing of adjoining residential properties, it is considered that the proposed design concept results in an undesirable outcome with respect to internal solar access. The design concept submitted by the applicant proposes to site buildings around internal courtyards and this proposed configuration demonstrates unacceptable overshadowing of its own internal courtyards, private open spaces and new dwellings resulting in an unacceptable amenity outcome for any future residents of the proposed development.
Issues relating to overshadowing would be further addressed in any future development application for the site however it is considered that the extent of overshadowing of existing and approved adjoining residential development likely to be generated by the proposal in its exhibited form is unacceptable.
The recommended amendments to the maximum permissible building heights detailed within this report would substantially reduce the bulk and scale of the proposed development and would largely alleviate issues relating to overshadowing.
However, further urban design work will also be required as part of any future development application for the site to address issues relating to internal overshadowing as a result of the proposed configuration and siting of buildings on the site. In particular, alternative building configuration and siting should be further investigated at the development application stage to minimise internal overshadowing of courtyards, private open spaces and new dwellings.
In light of this, the recommended amendments to the maximum permissible building heights detailed within this report are supported not only with respect to the built form outcome, but also in order to ensure an appropriate level of solar access to existing and future residential development adjoining the site.
ii. Loss of Privacy: Concern that the proposed maximum building height will result in future development overlooking into private open spaces, living areas and bedrooms of existing adjoining dwellings.
Comment:
The planning proposal, as exhibited, would likely result in direct overlooking of lower density development on adjoining land. In particular, significant overlooking is likely to occur from the proposed development towards private open spaces and living areas within:
Existing two (2) storey dwellings to the north of the site along Horatio Avenue and Rosetta Crescent;
Existing two (2) storey dwellings adjoining the site to the south (along Central Park Avenue off Fairway Drive); and
Approved two (2) storey dwellings and residential flat buildings adjoining the southern boundary of the site within the Norwest Town Centre Residential Development East Precinct.
The recommended amendments to the maximum building heights detailed within this report would result in a built form ranging in height between 6-9 storeys with some higher landmark elements in the central portion of the site (up to 12 storeys). It is anticipated that these height limits, along with appropriate floor space ratio controls, would reduce the extent of privacy impacts on adjoining residential development.