Item 10.1 - Attachment 4 |
Detailed Report
Deferred Areas June 2008 |
DETAILED REPORT ON DRAFT
PLANNING CONTROLS FOR
MERRYLANDS, CARLINGFORD &
BACKGROUND
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,
Carlingford and
THE DEFERRED AREAS
This report focuses on the deferred areas in the RDS of Merrylands,
Carlingford and
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
park (
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
Station along
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
Councillors on
Merrylands
§ 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
§ 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
Merrylands Precinct
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
the
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
Carlingford Precinct
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
for
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
side of
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
CONSULTATION
Staff
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.
NEXT STEPS
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.