Previous Report regarding the Merrylands RDS Area considered at the Council Meeting on 24 November 2008

Item 7.4 - Attachment 1

Previous Report regarding the Merrylands RDS Area considered at the Council Meeting on 24 November 2008

CITY DEVELOPMENT

ITEM NUMBER 10.1

SUBJECT Merrylands RDS Area (Further Report)

REFERENCE F2006/01198 - D01049777

REPORT OF Acting Manager Land Use and Transport Planning

PURPOSE:

This report seeks Council’s endorsement of draft planning controls for the centre of Merrylands for inclusion in draft Parramatta Local Environmental Plan (LEP) 2008. Council previously considered the draft planning controls for this centre at its meeting on the 28 July 2008 and deferred its decision pending further analysis. This report responds to that decision of Council.

Council should adopt draft planning controls for Merrylands so that these can be included in draft Parramatta LEP 2008 and be provided to the Department of Planning for consideration along with the rest of the draft plan as part of the process of gaining approval to exhibit the draft plan.

RECOMMENDATION

(a) That Council adopt the draft planning controls for the RDS Centre of Merrylands as shown at Attachment 2 (Option 1), and that these be incorporated into the draft Parramatta Local Environmental Plan 2008 prior to its exhibition.

BACKGROUND

1. As provided in the detailed report at Attachment 1, Council previously considered draft planning controls for Merrylands (known as options 1 and 2) at its meeting on 23 June 2008. These are described in more detail in Attachment 4. It was recommended that Council adopt option 1 as the preferred land use strategy for the Merrylands RDS centre. Council resolved to adopt Option 1 but the resolution of 23 June 2008 was rescinded. The matter was re-considered by Council at its meeting of 28 July 2008. At this meeting, a number of submissions were tabled and one resident addressed the public forum on behalf of residents of Smythe Street.

2. At the meeting of the 28 July 2008, Council resolved:

(a) That Council adopt the draft planning controls for the RDS Centres of Carlingford and East Rydalmere, as shown at Attachment 2 of Manager Land Use & Transport Planning Report, and that these be incorporated into the draft Parramatta Local Environmental Plan 2008 prior to its exhibition.

(b) That the draft planning controls for Merrylands be deferred and council officers undertake further analysis of the petitions tabled tonight, particularly in relation to the width of Smythe Street and in this regard, an audit of Smythe Street width be undertaken.

(c) That an analysis be undertaken of new areas per zone in each of the scenarios.

(d) Further, that the petition from residents of Albion Street also be considered in conjunction with this matter.

SUMMARY OF THE ANALYSIS

Petitions, submissions and public forum

3. Three (3) petitions and one (1) submission were made to Council in respect of the draft planning controls. One petition and one submission were in support of Option 1, a second petition was in support of Option 1, subject to Albion Street being up zoned for high density residential development in this Option. The third petition and public forum address were in support of Option 2. The petitions, submission and public forum are all addressed in the detail report at Attachment 1. The opportunity for community consultation will be during the public exhibition of the draft LEP. All submissions made at that time will be considered before a final decision is made by Council.

Smythe Street

4. A detailed plan of Smythe Street is shown at Attachment 6. It provides widths of the roadway, location of trees and services. A travelling lane in each direction is available for the length of Smythe Street. Parking is available on both sides of the street for 78% of the street length. The road has been designed to narrow at a pinch point half way along its length and also at the Loftus Street intersection (which is left turn only into and out of Smythe Street). This is intended to direct and slow traffic and parking is restricted in these sections.

5. Smythe Street is intended as a slow vehicle movement area and it is considered that the current configuration of Smythe Street is adequate for local residential traffic. Should Councillors wish to undertake other measures to manage traffic flow, options such as road widening or other traffic calming devices are discussed in Attachment 1.

Albion Street

6. A number of residents of Albion Street petitioned Council seeking that Albion Street be zoned R4 for higher density development, and this be included in Option 1. It is considered this area should retain its low density zoning as it makes better provision for consolidated increase in residential density in the short term as well as preserving land for longer term growth.

Area per zone

7. As required by Council’s resolution of 28 July 2008, an analysis has been undertaken for each option of the quantum of land area proposed to be zoned for high, medium and low density residential, mixed use and commercial. This has revealed that Option 1 would generate a greater amount of residential and commercial gross floor space while retaining a larger area of low density residential.

PREFERRED OPTION

8. The recommended planning controls, being Option 1, will focus increased residential density in the northern portion of the precinct, whilst retaining the southern portion as a low density residential area, underpinning the area’s potential to accommodate further residential development in the longer term. It provides a practical and sustainable approach to planning and recognises that redevelopment of the Merrylands RDS centre should be allowed to proceed in stages.

NEXT STEPS

9. 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. The draft LEP must undergo a review by the Department of Planning as part of the process of seeking State Government approval to place the plan on public exhibition. It is anticipated this review will be completed in the coming months, following which the draft LEP will be reported to Council for endorsement enabling a formal request to the Department of Planning for approval to exhibit. Subject to this process it is anticipated that the draft LEP and DCP could be exhibited in early to mid 2009.

10. 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.

Diane Galea Sue Stewart

Project Officer Acting Manager

Land Use & Transport Planning Land Use & Transport Planning

Attachments:

1	Detailed Report Deferred Areas November 2008	7 Pages
2	Option 1 Merrylands	3 Pages
3	Option 2 Merrylands	4 Pages
4	Detailed Report Deferred Areas June 2008	8 Pages
5	Public Forum Address & Reply 28 July 2008	3 Pages
6	Smythe Street Detail Plan	1 Page

REFERENCE MATERIAL

Item 7.4 - Attachment 1

Previous Report regarding the Merrylands RDS Area considered at the Council Meeting on 24 November 2008

Attachment 1

DETAILED REPORT ON DRAFT PLANNING CONTROLS FOR MERRYLANDS

BACKGROUND

Council previously considered draft planning controls for Merrylands, known as Option 1 (Attachment 2) and Option 2 (Attachment 3) at its meeting of 23 June 2008. These were considered in conjunction with draft controls for Carlingford and East Rydalmere.

Option 1 seeks to focus increased residential density in the northern portion of the precinct, whilst retaining the southern portion as a low density residential area, underpinning the area’s potential to accommodate further residential development in the longer term.

Option 2 seeks to retain existing densities, with the exception of land bounded by Mombri Street, Loftus Street and Merrylands Road that would be down zoned to low density residential. This option was prepared in response to discussions at a Councillor workshop regarding the advice provided by the Department of Planning in relation to down zoning of the land described above. The Department’s justification behind this possible down zoning was to retain capacity for future higher density development in the longer term. The Department’s advice was in the context of the remainder of the existing Residential 2(b) and Residential 2(c) zonings in the precinct being retained. Additional detail on both Option 1 and Option 2 is provided in the previous detailed report at Attachment 4.

The decision of Council at the 23 June 2008 meeting was the subject of a rescission motion at the Council meeting of the 28July 2008. At this meeting three petitions and one individual submission were tabled and one resident addressed the public forum on behalf of residents of Smythe Street. Council resolved:-

(b) That the draft planning controls for Merrylands be deferred and council officers undertake further analysis of the petitions tabled tonight, particularly in relation to the width of Smythe Street and in this regard, an audit of Smythe Street width be undertaken.

(c) That an analysis be undertaken of new areas per zone in each of the scenarios.

(d) Further, that the petition from residents of Albion Street also be considered in conjunction with this matter.

PETITIONS, SUBMISSIONS & PUBLIC FORUM

Three (3) petitions and one (1) submission were made to Council in respect of the draft planning controls that were initially presented to Council on 23 June 2008. A signatory of one of the petitions also addressed Council at it meeting of 28 July 2008 during the public forum. Details of each petition/submission are summarised in Table 1.

Table 1: Summary of petitions and submissions received

PETITION/SUBMISSION AUTHOR

SUMMARY

COMMENT

Petition from residents of Railway Terrace, Mombri Street and Merrylands Road, Merrylands.

Petition of 20 signatories (represents 19 properties) in support of Option 1, which allows for mixed use development up to six storeys in height between Railway Terrace, Mombri Street and Merrylands Road.

This petition supports Option 1 in its current form and does not seek any amendments.

Petition & Public Forum Address from residents of Smythe Street, Merrylands

Petition of 30 signatories (represents 9 properties) in support of Option 2, to have the area remain at its present densities. A representative of this petition also addressed Council at its meeting of 28 July 2008 and raised the following issues:

· Lack of public consultation;

· Current parking congestion in Smythe Street;

· Narrow width of Smythe Street; and

· Amenity impacts of higher density developments.

The issues raised during the public forum address were responded to at the Council meeting of 28 July 2008. The public forum address and subsequent reply accompanies this report at Attachment 5. Further consideration of these matters is also provided below.

It should be noted that Option 2 proposes that land in Smythe Street be zoned for a lower residential density than the current zoning.

Petition from residents of Albion Street, Merrylands

Petition of 33 signatories (representing 32 properties) of which 10 signatories stated an address outside of Albion Street). This petition seeking that Albion Street, Merrylands be up zoned to R4 as part of Option 1.

Further consideration of this matter is provided below.

Submission from resident of Merrylands Road, Merrylands

Submission in support of Option 1 for higher density development.

This submission supports Option 1 in its current form and does not seek any amendments.

SMYTHE STREET

Concern was raised by some Councillors and residents about the width of Smythe Street in relation to possible higher density residential development. In this respect, Council resolved that an audit of the width of Smythe Street be undertaken for further consideration.

A detailed plan of Smythe Street accompanies this report at Attachment 6. The plan provides widths of the roadway, location of trees, and services. Council’s Civil Design staff have also undertaken a number of on-site measurements and advised that the road has a total length of 311 metres, and of this, 238 metres (76.5%) of the length has a road width of 9.6 and 9.8 metres (measured from kerb face to kerb face). 4.6 metres of the road length (1.5%) has a width of between 9.4 and 9.6 metres, and 68.5 metres of the road length (22%) has a width of less than 9.4 metres (typically 8.5 metres), occurring at a pinch point designed in the road way, and at the eastern end approaching Loftus Street, which limits vehicles to left in/left out movements only. In addition, the eastern end approaching Loftus Road has “no stopping” signs on the southern side of the street for approximately 40 metres.

Council’s Transport & Traffic Service Manager and Civil Design staff have previously advised that a minimum road width of 9.4 metres is sufficient to enable 2 metres for vehicle car parking on either side, whilst allowing 2.7 metres per vehicle travelling lane in each direction. This is achieved over 78% of Smythe Street. Of the remaining 22% of the road length, the narrower widths have been designed to slow traffic and to restrict vehicle movements at the Loftus Street intersection. This restricts parking, but also allows a travelling lane in each direction.

Smythe Street is a slow vehicle movement area, is of a reasonably short distance, and is not a major road within the local road network. The existing road configuration is designed to allow sufficient vehicle movements but to control the speed of vehicles travelling along the road at certain intervals. Additionally, the close proximity to public transport provides opportunities for reduced car movements in the longer term.

Given the characteristics of the road and its function, it is recommended that the current configuration of Smythe Street be maintained.

However, there are various ways Council could improve traffic flow in Smythe Street should it be deemed a priority in the future:

(1) Council could widen the Smythe Street carriageway. This could be achieved within the existing road reservation, without the need to acquire private property.

The costs associated with road widening would include realignment of kerb and guttering, extension of road pavement, removal and replacement of existing trees, potential realignment of the footpath/s and potential relocation of services. Initial investigations of existing services reveal that the northern side of the road reserve contains Telstra lines and gas pipes, while the southern side contains Telstra lines, water pipes, underground and overhead power lines and Optus cables.

Without a detailed working design/scope of works of any such road widening it is difficult to accurately determine the costs associated with undertaking the project. However an approximate cost of civil works associated with widening the road by approximately 0.5 metre along one side, including kerb and gutter realignment and extension of the roadway, has been estimated at approximately $100,000. This does not include the relocation of services, tree removal and replacement, or any other contingencies. While the cost associated with relocating services is generally determined on a case by case basis, it is reasonable to expect a significant increase to the total cost, taking into account what is likely to be involved.

(2) Council’s Traffic and Transport Services Manager has advised that traffic calming devices including line marking and speed humps could be provided to contain vehicle speeds and to help guide motorists. Such works are estimated to cost approximately $10,000.

(3) Monitoring of traffic conditions over the longer term could also allow Council to consider other alternatives, including restricting parking to one side of the roadway only or altering vehicle movements to ‘one way’.

Funding options to undertake road works would need to be explored including through the use of Section 94A funds. However, this would require the amendment of the S94A plan to identify the road improvements to be undertaken in the schedule of works.

ALBION STREET

A number of residents of Albion Street petitioned Council seeking that Albion Street be zoned R4 for higher density development, and that this be included in Option 1.

Albion Street and adjoining streets to the south are suitably located to accommodate increased residential or mixed use development given their proximity to Merrylands train station and Merrylands town centre, regular shaped allotments, generous street widths and relatively flat topography.

Under Option 1, land south of Sutherland Lane is proposed to be zoned low density residential, allowing it to be revisited in the future for higher density residential development. Option 1 is preferred because it makes better provision for consolidated increase in residential density in the short term as well as preserving land for longer term growth.

Rezoning greater volumes of the RDS study area, including Albion Street, for increased residential densities is not favoured for the following reasons:

· Recent redevelopment uptake has predominantly occurred along Railway Terrace, Mombri Street and William Street. Option 1 seeks to encourage a consolidation of medium and high density development and mixed use development in this northern portion of the precinct as the first stage of redevelopment.

· Holroyd Council has provided opportunities for substantial redevelopment on the opposite side of the train line which will cater for a large proportion of housing demand in the short to medium term.

· Providing a mix of residential zoning and densities, allows for a mix of dwelling types to be provided within the community.

· Previous discussions with Councillors demonstrate that many local residents believed that the area had local heritage significance but were reluctant to have formal heritage listing. This and the contents of the petition received would suggest that a more measured, long term approach needs to be adopted for the planning controls for this area.

It is recommended that the area south of Sutherland Lane be retained as low density residential in the short term to allow increased densities to be revisited in the future. Rather than select streets in isolation for increased residential development such as Albion Street, the southern part of the precinct should be revisited and investigated as a whole to achieve and integrated planning outcome at a later stage.

AREAS PER ZONE

As required by Council’s resolution of 28 July 2008, an analysis of the quantum of land areas zoned for high, medium and low density residential, mixed use and commercial under each option is provided in Table 2. Land areas provided relate to the area generally within the RDS precinct bounded by Randle Street to the north, Bertha Street to the south, Woodville Road to the east and Railway Terrace to the west.

As detailed in the table below, Option 1 would result in 56% of the land area being zoned for low density residential (R2), 14.1% for medium density residential (R3), 25.5% for high density residential (R4) and 2.7% for mixed use development (B4). The remaining 1.7% would constitute Neighbourhood Centre or Enterprise Corridor zones.

In comparison, Option 2 would provide less land area zoned for low density residential (49%) and high density residential (14.1%), but substantially increases the land area zoned for medium density housing (35.1%). No mixed use zoning would be provided under Option 2, and the area zoned Neighbourhood Centre and Enterprise Corridor would remain consistent with Option 1.

The gross floor area figures provided in Table 2 take into consideration proposed floor space ratio. Option 1 would generate a greater amount of residential and commercial gross floor space while retaining a larger area of low density land to be retained for future long term growth.

Table 2: Land area and potential gross floor area (GFA) for Option 1 and Option 2

ZONE	OPTION 1 (Land area m²)*	OPTION 1 (Gross GFA)**	OPTION 1 (% Land area)	OPTION 2 (Land area m²)*	OPTION 2 (Gross GFA)**	OPTION 2 (% Land area)
*R2 Low Density Residential*	275,279	137,640	56%	241,355	120,768	49%
*R3 Medium Density Residential*	69,632	41,779	14.1%	172,285	103,371	35.1%
*R4 High Density Residential*	125,571	120,793	25.5%	69,563	55,650	14.1%
*B1 Neighbourhood Centre*	3,805	5,708	0.8%	4,317	6,476	0.9%
*B4 Mixed Use*	13,233	26,466	2.7%	N/A	N/A	0
B6 *Enterprise* *Corridor*	4,165	6,248	0.9%	4,165	6,248	0.9%
*TOTAL*	491,685 m²	338,634 m²	100%	491,685 m²	292,513 m²	100%

* These figures are approximate only.

* These gross floor areas are indicative only and represent land area x floor space ratio for each option. No allowance is made for existing GFA nor possible impediments to redevelopment including recent redevelopment, strata subdivision, heritage etc.

PUBLIC CONSULTATION

The community will have the opportunity to provide comment to Council on the draft planning controls during the exhibition of the Draft LEP. This exhibition is likely to be conducted over a 2 month period to enable all stakeholders opportunities for comment. Council will consider all submissions before any final decision is made.

PREFERRED OPTION

The recommended planning controls, being Option 1, will focus increased residential density in the northern portion of the precinct, whilst retaining the southern portion as a low density residential area, underpinning the area’s potential to accommodate further residential development in the longer term.

Option 2 would result in the fragmentation of high and medium density areas over the Merrylands RDS precinct limit the long term growth potential of Merrylands and may also result in a more inconsistent built form throughout the precinct.

NEXT STEPS

The draft LEP must undergo a review by the Department of Planning to confirm its consistency with the State Government’s standardised LEP format and State policies. This review is underway and when completed, the draft LEP will be reported back to Council (with advice about the outcome of the review) so that Council can formally lodge the draft plan with the Department of Planning and request approval (under Section 65 of the Act) to publicly exhibit the draft plan. Subject to this process, it is anticipated the draft LEP could be placed on public exhibition in early to mid 2009.

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, and will be reported to Council.

Item 7.4 - Attachment 1

Previous Report regarding the Merrylands RDS Area considered at the Council Meeting on 24 November 2008

DETAILED REPORT ON DRAFT PLANNING CONTROLS FOR

MERRYLANDS, CARLINGFORD & EAST RYDALMERE

23 June 2008

BACKGROUND

In November 2006, Council adopted a revised Residential Development Strategy (RDS) to respond to future population growth and housing demand in Parramatta local government area (LGA). The purpose of the RDS is to set the direction for the future location, density and character of housing within Parramatta.

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 East Rydalmere were amongst those areas deferred in the RDS. There were a variety of reasons for the decision to defer areas but generally it was better to examine these areas in the longer term when the affects of other influences could be better assessed.

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 29 October 2007, Council resolved in part:

‘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 East Rydalmere was undertaken.

THE DEFERRED AREAS

This report focuses on the deferred areas in the RDS of Merrylands, Carlingford and East Rydalmere. Maps of each study area are identified within Attachment 2.

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 (Granville Park) further east of the station closer to Woodville Road. The primary roads in the study area are Merrylands Road, Railway Terrace, Mombri Street and Loftus Streets. Merrylands Road provides access directly to Merrylands Railway Station and Woodville Road to the east. Railway Terrace provides access to the south towards Guildford. Mombri and Loftus Streets provide access across the railway line into the Merrylands Town Centre. Two heritage items are located in the study area at Nos. 56 and 59 Merrylands Road, being single storey dwellings.

The Carlingford Study Area is located around Carlingford Railway Station. The study area is located on a ridge line defined by Pennant Hills Road, which also forms the boundary between Parramatta City Council and Baulkham Hills Shire Council. Carlingford Railway Station is the last stop on the Carlingford Railway Line. Access to the railway station is on the northern side of Pennant Hills Road. Several bus services exist between the railway station and Parramatta Railway Station connecting Carlingford to other centres such as North Rocks, Epping, Pennant Hills, Ryde, West Ryde and Meadowbank.

There is a small group of shops to the south of Carlingford Railway Station along Pennant Hills Road, located in Parramatta LGA, as well as the Carlingford Village shops at the eastern end of the study area at the intersection of Marsden Rd and Pennant Hills Road. The study area comprises a mix of housing, including residential flat buildings, town houses and detached houses. Spread throughout the area is a series of bushland corridors.

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 Victoria Road at the intersection of Park Road. Victoria Road is a heavily trafficked arterial road linking Parramatta to Sydney. The study area accommodates a variety of building types and land uses, including low scale detached housing and is adjacent to substantial industrial areas. Subiaco Creek, a regional open space corridor, lies to the north of the study area, with Parramatta River to the south and the study area includes a Bowling Club and local parks. There is a small grouping of shops framed by Park Road and Victoria Road which provide day to day retail services. There is also a hotel, baby health care facility, church and school within the precinct. Heritage items are located at Nos. 2 Myrtle Street (Catholic Church), and two dwellings at No. 24 Wattle Street and No. 72 Park Road.

DEFERRED AREAS ANALYSIS

A workshop was held with Councillors on 7 April 2008 in relation to the deferred areas of Merrylands, Carlingford and East Rydalmere. The information presented at the workshop outlined the context and setting for each area, environmental analysis, proposed urban design principles and draft land use controls to underpin the LEP. The principal findings of the analysis are discussed below.

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.

East Rydalmere

§ 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 Mombri Street, Loftus Street, Railway Terrace, Merrylands Road and Smythe Street is in the immediate vicinity of Merrylands Railway Station and is recommended for higher density residential development. This area also is within walking distance to a large retail centre on the opposite side of the railway station which provides major retailing and considerable services to support the needs and demands of the existing and future community.

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 Mombri Street, Loftus Street, and Merrylands Road is proposed to allow higher density residential development, providing a gradual change in scale from Railway Terrace to Woodville Road. The area bound by Boomerang, Bennalong, Randle and William Streets, and the parcels between the existing school and Bennalong Park on William Street are also proposed to be zoned to allow higher density residential development, providing streetscape continuity along Boomerang and William Streets.

Land south of Sutherland Lane and the southern part of the precinct is proposed to be zoned low density residential, allowing it to be revisited in the future as to its longer term development capacity.

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 19 December 2007, viz:

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 Mombri Street, Loftus Street and Merrylands Road blocks referred to. The zoning, height and FSR outcomes under this scenario are mapped in Attachment 3. Building height and density controls would remain consistent with those allowed under the existing LEP 2001, other than for the Mombri, Loftus & Merrylands Road blocks which would be downzoned to R2 low density residential.

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 Smythe Street in relation to the proposed higher density residential development. This matter has been discussed with Council’s Transport & Traffic Service Manager and Design staff who have advised that the current Smythe Street road pavement width of 9.65 metres is sufficient to enable 2 metres for vehicle car parking on either side, whilst allowing 2.8 metres per vehicle travelling lane in each direction. These widths are consistent with the RTA’s minimum width of 2.7 metres and are comparable to sections of Parramatta Road which allows vehicles to travel at 60 km/hour. By contrast, Smythe Street is a slow vehicle movement area, is of a reasonably short distance, and is not a major road within the local road network.

Options are available to improve vehicle circulation within Smythe Street including restricting parking to one side of the roadway only, altering vehicle movements to ‘one way’, or widening of the carriageway.

Should Council wish to widen the Smythe Street carriageway in the future, this could be achieved within the existing road reservation, without the need to acquire private property. The costs associated with undertaking road widening would include realignment of kerb and guttering, extension of road pavement, removal and replacement of existing trees, potential realignment of the footpath/s and potential relocation of services.

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 59 Merrylands Road, Merrylands and the potential impact this will have on the integrity of these heritage items. Proposed zonings in proximity of these items have been reviewed so that the current zoning regime is maintained immediately adjoining these sites.

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 Pennant Hills Road, Adderton Road and Charles Street as detailed at Attachment 2.

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 Pennant Hills Road allow for significant increases in residential densities and will also accommodate demand for housing in the area.

East Rydalmere Precinct

The recommended planning controls for East Rydalmere seek to accentuate development along Park Road both north and south of Victoria Road within the precinct as detailed at Attachment 2. It is proposed to retain the existing medium density residential zone along Victoria Road as R3 Medium Density Residential, reflecting the existing zoning and recent multi-unit residential redevelopment in this location.

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 Victoria Road will also allow for a mix of two storey (11 metres) R3 Medium Density Residential and R4 three storey (11 metres) R4 High Density Residential zones. The existing commercial zoning on the south eastern corner of Victoria Road and Park Road will be extended to incorporate two additional properties on Park Road as previously resolved by Council and will allow a maximum of 3 storeys (12 metres).

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, Rydalmere Primary School and public transport services including the Rydalmere Ferry Wharf and bus services along Victoria Road. The street width in Elonera Street and Burbang Crescent allows for constrained traffic movement if cars are parked in the street and may require an extension of existing parking restrictions that apply on one side of Elonera Street.

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 Victoria Road. Furthermore, the heights and densities proposed allows for a suitable relationship to be created between the existing low density areas and proposed areas to be up zoned.

An existing heritage item and adjoining land at No. 72 Park Road is proposed within the R3 Medium Density Residential zone. Height and densities proposed on and adjacent to this site will provide for relatively low scale development at 2 storeys (11 metres). The current Residential 2a zone applying to this site and surrounds permits a maximum height of 2 storeys (9 metres). Heritage planning controls require the heritage significance of the heritage item to be considered as part of any development on or adjacent to the site. The heritage item at No. 24 Wattle Street is proposed to remain within a low density residential zone, while the heritage item at No. 2 Myrtle Street, the Catholic Church, will maintain zoning, height and density controls equivalent to Parramatta LEP 2001.

CONSULTATION

Staff from Council’s Strategic Asset Management, Community Capacity Building, Place Management, Traffic and Transport Services and Urban Design teams were consulted in the preparation of draft planning controls.

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.

Item 7.4 - Attachment 1

Previous Report regarding the Merrylands RDS Area considered at the Council Meeting on 24 November 2008

Attachment 5 - Public forum item from Council meeting on 28 July 2008-11-04

Statement on behalf of the residents of Smythe Street, Merrylands prepared by Mr Frank Skiller:-

This evening I and my fellow petitioners from Smythe Street Merrylands in the Woodville Ward would like to comment on the proposed Local Environment Plan changes to increase the urban density in our street.

Firstly, we would like to thank Councillor Garrard for alerting us to these proposed changes. Without his intervention, we would not have been aware of these matters.

This is in comparison to the Council’s excellent job in communicating the proposed changes in the previous LEP, which we felt had provided for much more community consultation.

Our main concerns in brief are:

1. Parking congestion already exists in our street as a flow-on effect after changes to the adjoining Railway Terrace.

2. The narrow width of the street makes if difficult for cars to pass and damage to property and vehicles has already occurred.

3. Several residents have recently renovated their properties after being advised in the previous LEP that the street would not be zoned for unit developments.

Parking

At the last general meeting on the 14^th July, the petitioner in Railway Terrace mentioned the difficulties experienced from changes to parking availability and traffic flow due to the RTA redevelopment. This included the removal of parking from the eastern side of the street and no provision for drivers to drop off passengers for the railway station.

These issues have had a flow on effect into Smythe Street resulting in weekday parking congestion where three-quarters of the street is parked out from anywhere between 7:30am and 7:30pm, making entry and exit to one’s property difficult, with cars obscuring vision and sometimes parking over driveways. Recently we had a development of 4 townhouses in the street which has already increased vehicle density, and we are concerned about the multiple impact on street parking, 7 days a week, if the council approves up to 6 storey unit blocks.

Street width

Minutes of a previous Council meeting state the road pavement width of Smythe street to be 9.65 metres, however, this is incorrect and actually 8.73 m and even narrower still at the Loftus Street end. This is below RTA standards. This reduced width already makes passing traffic hazardous; road signs are frequently damaged as motorists try to manoeuvre the parked and passing cars, especially those close to Railway Terrace and also the traffic islands. There have also been reports of damage to parked vehicles, mine being one of them.

We have been told that Council would then consider either making the street open to one-way traffic flow only or making the road wider by removing trees and realigning the kerb and guttering. For the first proposal we would ask, “Where then would the current residents and commuters park?” and also “ What would be the implications for traffic flow and access?” And as for the widening of the road, “How will our streetscape look if the trees are removed?”

The question of access and traffic flow have been on the Council agenda previously where the right turn from Loftus street was terminated due to the hazard of collision and also to reduce the quantity of traffic flowing westerly down Smythe street to the Railway station. A roundabout was placed on Merrylands road to steer the majority of the traffic down Merrylands road, which is a much wider street.

Recent property developments

We acknowledge that there is a percentage of housing stock in Smythe Street well past its prime and needing replacement to better utilise the land. We also note that several residents acted on developing their properties after the last LEP, where the Council regulated to keep neighbours privacy and other qualities of life intact, trusting that the Council would adhere to its decisions. But now, we have the prospect of being adversely affected by changes in the LEP without respectful consultation with the community. If high-density dwellings were constructed even on the southern side only, what would be the impact of shading on the dwellings on the opposite side?

The residents ask, “What percentage of land changed to heavier density in the previous LEP has been utilised in the new zoning for high density dwellings?” We ask you to consider the current impact of density and traffic changes affecting the residents and how this impact would be multiplied if higher density dwellings were constructed in our street. We ask you to consider the impact of offending residents and commuters at the cost of appeasing developers.

We ask you to stop and assess the impact from the grass roots level, before creating multiple dwellings leaving little or no open space for inhabitants, no space for children to play, increasing noise pollution and where quality of life is greatly reduced. What statement are you sending your voters – will Parramatta still be a great place to live?

We, the residents of Smythe Street, support option 2 to have the area remain at its current densities and seek support from all Councillors to adhere to the wishes of the residents as per the petition presented to Council on July 14, 2008. We would also like to thank the Councillors who have supported our position as option 2.

Response by Acting Manager, Land Use & Transport Planning – Sue Stewart:-

Tonight, Council will be considering two options for proposed changes to the planning controls in Smythe Street, Merrylands. Option 1 proposes to allow increased residential density in the form of 3 to 4 storey residential flat buildings. Option 2 proposes to allow lower residential density such as single dwelling houses. Currently the zoning of Smythe Street allows for medium density housing such as town houses.

1. Option 2 – Draft Planning Controls for Merrylands

It should be noted that under Option 2, land in Smythe Street is proposed to be zoned for a lower density residential (single dwelling houses) than the current zoning. There appears to be a misunderstanding that this option retains the density identified in the current LEP.

2. Public Consultation

Tonight Council is considering which draft zoning option it wishes to be included in the draft Local Environmental Plan when it goes on public exhibition. Residents will have the opportunity to provide comments to Council during the exhibition. This exhibition is likely to be conducted over a 2 month period to enable all stakeholders opportunities for comment. Council will consider all submissions before any final decision is made.

3. Smythe Street

Properties in Smythe Street are currently zoned to allow medium density residential development such as townhouses. Whilst the width of Smythe Street is not ideal for increased residential traffic, it is a reasonably short local road that does not cater for through traffic. Its width serves to slow traffic speed. There are various options available to improve vehicle circulation should this be necessary. Providing higher density residential development close to public transport provides opportunities for reduced car movements in the longer term. It is not unusual in Sydney to find narrow streets in areas of high residential density.

4. Amenity Impacts of Higher Density Development

Development applications for residential flat buildings are examined by Council’s Design Review Panel to ensure that design quality and residential amenity are satisfied. This is over and above the normal assessment process. Neighbouring residents also have the opportunity to comment on such development applications and can raise any concerns about amenity or other impacts before the application is determined by Council.