Item 10.1 - Attachment 4
Detailed Report Deferred Areas June 2008
DETAILED REPORT ON DRAFT PLANNING CONTROLS FOR
MERRYLANDS, CARLINGFORD &
In November 2006, Council adopted a revised Residential Development
Strategy (RDS) to respond to future population growth and housing demand in
To manage new residential development, the RDS proposes a ‘concentrated growth’ model. This would allow more intense housing development to occur in areas or ‘centres’ which can best support such growth. Typically, these areas are close to public transport, shops and community facilities.
In adopting the RDS, Council deferred some of the ‘centres’ for
consideration at a later date. Merrylands, Carlingford and
In translating the RDS into the draft Parramatta Local Environmental Plan (LEP), Council in May 2007 adopted the draft Parramatta LEP 2008 which proposed to downzone some areas within the study areas of Merrylands, Carlingford and East Rydalmere that are currently zoned Residential 2(b). This was to preserve the land from ad-hoc development in the short term until decisions on its future development capacity were made. (Note: The existing areas zoned Residential 2(c) within these areas were proposed to be retained in the equivalent R4 High Density Residential Zone under the draft LEP).
In October 2007, the Department of Planning (DoP) advised Council that
there were a number of outstanding issues that prevented the DoP from
authorising a Section 65 Certificate enabling the draft Parramatta LEP to be
formally exhibited. One of the issues raised by the DoP was that deferred areas
where down-zoning was proposed would not be supported. At its meeting of the
‘That Council note the advice of the Minister for Planning on 24 October that:-
1. The Department of Planning will not accept the down-zoning of deferred areas and therefore Council proceed immediately to prepare detailed analysis of these areas leading to zoning and built form controls in the draft Parramatta LEP 2008.’
As a consequence, an assessment of the deferred areas of Merrylands,
THE DEFERRED AREAS
This report focuses on the deferred areas in the RDS of Merrylands,
The Merrylands Study Area is focused on the eastern side of Merrylands Railway Station. The railway line forms the boundary between Parramatta City Council and Holroyd City Council. A small group of shops are located on the eastern side of the railway station. The area surrounding these shops comprises mostly detached dwellings. The Merrylands Town Centre is located on the western side, within the Holroyd LGA.
There are small pockets of medium and higher density housing spread
throughout the study area. The study area is relatively flat and there is a large
The Carlingford Study Area is located around Carlingford Railway
Station. The study area is located on a ridge line defined by
There is a small group of shops to the south of Carlingford Railway
There are a number of heritage items in and adjacent to the study area including bushland at Evans Road, Carlingford Memorial Park, Eric Mobbs Memorial, K13 Memorial, Galaringi Reserve, Mobbs Hill Reserve, bushland, fencing and bridge on Honiton Avenue, water tanks on Marsden Road, and dwellings at Nos. 101 and 105 Adderton Road.
The East Rydalmere Study Area is located on
DEFERRED AREAS ANALYSIS
A workshop was held with
§ With access to public transport, retail and commercial services, open space and a relatively unconstrained urban structure, Merrylands offers opportunities for increased residential densities.
§ This area has direct pedestrian access to the railway station and vehicular and pedestrian access to the Merrylands Town Centre. Given the principles of transit-oriented development, the lots directly adjacent to the station may be given comparatively more generous height and floor space controls.
§ In the short term, it is desirable to preserve the low scale residential character of single dwellings in the southern part of the precinct, which contribute to the mix of housing and the amenity of the neighbourhood. In the longer term, increased densities may be considered, as the first stage of redevelopment is completed, and assuming that there is sufficient demand for further housing.
§ Planning controls prepared by Holroyd Council in respect of land in that LGA directly adjacent to the railway line allows for mixed used development between 6 – 8 storeys in height. This also accommodates some demand for housing development in the locality.
§ Carlingford has topographical and natural constraints, poor pedestrian and vehicular connectivity and is characterised by a mix of housing including established residential flat buildings and low scale detached housing. Considering these constraints Carlingford study area is less likely suitable to sustain significant housing growth.
§ Planning controls prepared by Baulkham Hills Shire Council in respect of land on the northern side of Pennant Hills Road allow for significant increases in residential densities and will also accommodate demand for housing in the area.
§ Considering the existing mix of uses in East Rydalmere, as well as its established low scale character, it is anticipated that this study area could sustain contained redevelopment for increased residential densities focused around the existing ‘centre’ and close to parks and schools.
§ New mixed-use development should be focused around the current commercial and community uses and toward the intersection of Park Road and Pine Street.
§ Part of the study area has an established low density character with single dwellings that are highly consistent in terms of scale, materials and setbacks from the street. Retention of this housing in the eastern sections of Pine and Wattle Street is desirable in providing for housing mix and retaining the character of this housing and the amenity it provides to the neighbourhood.
RECOMMENDED PLANNING CONTROLS
1. Preferred Planning Controls - Option 1
The provision of high density
residential development near existing public transport infrastructure is
consistent with transport oriented development promoted by the NSW State
Government and Council’s RDS. Land along
The recommended draft planning controls for Merrylands provide for increased densities concentrated along the northern portion of the precinct, whilst allowing reduced densities within the southern portion as outlined in Attachment 2.
It is proposed to concentrate higher density mixed use development toward the railway line, with building heights and densities gradually falling from west to east (towards Woodville Road). An active street frontage to Railway Terrace is recommended, creating opportunities for surveillance of the railway line and improved pedestrian access between the northern portion of Railway Terrace and Merrylands Railway Station.
Concentrating the tallest
buildings (5 – 6 storeys or 17 – 21 metres proposed on the Parramatta LGA side)
closest to the railway station has also been the strategic approach of Holroyd
City Council, which allows for development between 6 – 8 storeys in this
vicinity. The area bound by
Land south of
2. Alternative Zoning based on Department of Planning Advice – Option 2
At the Councillor workshop it was
suggested that another zoning option could be considered for Merrylands, reflecting
the advice of the Department of Planning (DoP) in its letter to Council of
The Department’s assessment of the zoning within the RDS included consideration of Council’s argument that down zoning was needed to retain capacity for future higher density development. In most cases adequate low density 2(a) land was identified in reserve, without the need to downzone existing medium density 2(b) or high density 2(c) land. In the case of Merrylands however, there does not appear to be adequate 2(a) land in reserve. Therefore the Department agreed that the two street blocks closest to the station (Mombri & Lotus Streets & Merrylands Road) could be down zoned to allow for future higher density development.
Under this scenario of the
Department of Planning, all existing zonings of Residential 2(b) and Residential
2(c) in the Merrylands RDS precinct would be retained, with the exception of
Councillors may wish to consider this option, but the recommended planning controls discussed in Option 1 above are preferred because they make better provision for consolidated increase in residential density in the short term as well as preserving land for longer term growth.
Option 2 would result in the fragmentation of high and medium density areas over the Merrylands RDS area and limit the long term growth potential of Merrylands. It may also result in more inconsistency in built form throughout the precinct.
3. Response to issues raised at Councillor Workshop
Concern was raised by some
Councillors at the workshop about the width of
Options are available to improve
vehicle circulation within
Should Council wish to widen the
While an increase in traffic volumes may be expected as a result of higher residential densities within the locality, the proposal accords with the principles of Council’s RDS to provide higher density housing close to centres and public transport, which provides opportunities for reduced car movements in the longer term. Traffic speeds in any case will be slow.
Another matter raised at the
Councillor Workshop was concern about the proximity of higher density
development in the vicinity of existing heritage items at Nos. 56 and
In response to a number of
constraints relating to Carlingford as previously discussed, particularly topography
and poor vehicular and pedestrian connectivity, it is recommended to
concentrate increased densities along
The draft planning controls propose greater height and density along Pennant Hills Road in the shopping precincts of Carlingford Village Shopping Centre at the eastern end of the precinct and for the shops closer to Carlingford Railway Station to encourage an upgrade of existing retail shops with shop top housing and support their ongoing viability with increased residential population within their catchment. It would also add to the diversity of dwelling types in the locality.
West of the railway line it is proposed to allow a mix of four storey (14 metres) residential flat buildings and two storey (11 metres) townhouse style housing. This part of the precinct also has good proximity to the Telopea RDS precinct and has already shown potential for redevelopment with recent medium density redevelopment.
The remainder of the precinct is more suited to low density residential development. The effect of this is some proposed down zonings of residential land at the perimeter of the RDS area consistent with proposed zonings outside the RDS area, where rezoning is proposed from 2(b) Residential to R2 Low Density Residential. This is considered appropriate and justifiable to the DoP largely because of the environmental constraints and limited walkability of these areas for residents, as well as in the context of the broader RDS proposals in this locality.
Existing heritage items within the precinct are proposed to retain existing zoning equivalents.
As mentioned previously, planning controls prepared
by Baulkham Hills Shire Council in respect of land on the northern side of
The recommended planning controls
Proposed zonings north of Victoria Road seek to allow for a level of mixed use activity (3 storeys or 12 metres) to be concentrated around the intersection of Park Road and Pine Street, building on existing activities including the church, school, hotel and shops, and allowing future redevelopment to be focussed away from Victoria Road. Increased residential densities are generally proposed between the industrial area west of Myrtle Street and the eastern side of Park Road allowing for a mix of two storey (11 metres) R3 medium density and 3 storey (11 metres) R4 high density residential zones.
Proposed zonings on the southern
The southern part of the precinct
is considered appropriate for up zoning given its isolation from low density
residential areas, its proximity to open space,
Height and densities proposed
over the precinct as a whole are proposed to be relatively low scale allowing
for two and three storey developments throughout. These heights and densities
would also provide consistency where existing development has already taken
place within the 2(b) Residential Zone, particularly along
An existing heritage item and
adjoining land at
from Council’s Strategic Asset Management,
Community consultation of these deferred areas will occur with the exhibition of the draft Parramatta LEP 2008 as a whole.
This report details the preferred zoning, height and density options for Council to consider. Once the draft planning controls have been adopted by Council they will be included as part of draft Parramatta LEP 2008. Draft DCP controls will also be formulated, to provide more detailed planning guidance on built form outcomes, desired streetscape, building setbacks, future character, desired future pedestrian connections etc and will be reported for Council’s consideration. These controls will form part of the draft Parramatta Development Control Plan 2008 to guide future development in each precinct.