Item 8.2 - Attachment 4

Detailed Submission







The DoP has publicly exhibited the redevelopment of the Children’s Medical Research Centre (CMRI) at 178A Hawkesbury Road, Westmead. The proposal is a ‘major project’ under State Environmental Planning Policy (Major Applications) 2005 and the project will be determined by the Minister of Planning under Part 3A of the Environmental Planning and Assessment Act, 1979.

Comments from specialist areas within Council are detailed below.





The subject site is zoned 5 Special Uses under Parramatta Local Environmental Plan 2001. The proposed development is consistent with the objectives of this zone and is permitted on the subject land with development consent. The proposed development is also consistent with the provisions of the Sydney Regional Environmental Plan 28.


The proposed development is located within Westmead Health Campus (WHC) with the Westmead Children’s Hospital (CHW), Westmead Hospital (WH) and Westmead Millennium Institute (WMI).  These organisations form the Westmead Research Hub, a co-operative research environment where equipment and scientific expertise can be shared for a superior, efficient and cost-effective approach to research. 


Section 94 Contributions

In April 2008, the Parramatta Section 94A Development Contributions Plan came into effect. The development contribution applicable under this plan to this development would be 1% of the total cost of the development.


The applicant has argued that it should be largely exempt from the levy as it is a not for profit research facility. The facility proposed by this application is not exempt from the levy as detailed in Council’s Section 94A Development Contributions Plan. As the application does not form development by the Crown under Part 4 or Part 5A of the Act, there is no requirement to give consideration to Circular D6 – Crown Development Applications and Conditions of Consent issued by the former Department of Urban Affairs and Planning, which provides guidelines in relation to exemptions from development contributions for those Crown activities which provide essential community services.


The applicant has also argued that ‘Detailed Schedule of Works’ contained within the Parramatta Section 94A Development Contributions Plan provides limited provision within the Westmead locality where the proposed facility will be located.


Section 94A (4) of the Act states that:


(4) A condition imposed under this section is not invalid by reason only that there is no connection between the development the subject of the development consent and the object of expenditure of any money required to be paid by the condition.


While it is recognised that the nature of the proposal as a medical research facility will provide a greater good for the general community, there is no mechanism available for Council to ‘pick and choose’ where the levy should be applied, other than what is already dictated by the plan and relevant legislation. Should Council make a decision to reduce or omit the levy in this instance it may set an unsuitable precedent for similar development. It would also unfairly prejudice against similar facilities that have previously been approved by Council, and which have paid development contributions.


Council may be willing to accept a deferred or periodic development contributions payment if the application is approved; however, this would require further discussion with the consent authority and the applicant and would be subject to the provision of a bank guarantee or similar mechanism to ensure payment.




That the 1% Section 94A development contribution be paid in full.



Traffic and Transport


The Future Directions Strategy (FDS) prepared by the applicant, identified a number of inefficiencies with the WHC including:

1.   Significant distance between facilities with little provision for people movement;

2.   Uncertain locality definition, way finding and little sense of arrival;

3.   Lack of public permeability and inadequate car parking facilities;

4.   Very little staff, patient, carer and visitor amenity;

5.   No internal access to public transport;

6.   Lack of connectivity with Parramatta including inadequate public transport access; and

7.   The physical barriers created by the T-way and by Toongabbie Creek/Parramatta.


Note that the “FDS forecasts a 30% expansion of health care services at Westmead between 2006 and 2021 with a commensurate growth of staff to 11,000 (from 8,000 in 2006) and a need for additional car parking.  The FDS suggests an additional 2,500 to 3,000 car parking spaces will be required by 2021.  Increase use of public transport, walking and cycling facilities will contribute to the establishment of a virtuous cycle of improvement and the redevelopment of CMRI will contribute to the solution”.


Existing Transport Services

The existing transport services available to and from Westmead Hospital/Medical Precinct are as follows:

1.   Public Transport:

a)    Rail – approximately 700m from CMRI (within 10 mins walk time).  Westmead is serviced by the Western, Cumberland and Blue Mountains lines and is currently the third most frequently serviced station in the Parramatta LGA.

b)    Bus – North-West T-way from Parramatta to Rouse Hill, Blacktown and Kellyville and other bus services (total of 8 routes with 190 services each direction during weekdays; 5 services on weekends with 90-97 services).  Note that 5 of the 8 routes are T-way routes.

c)    Taxis – available at Westmead railway station and on Hawkesbury Road between CMRI and the entrance to CHW.  Direct taxi phones are provided at each major hospital entrances.

2.   Community/Hospital Transport – CMRI does not run any employee specific community/hospital transport services.

3.   Walking – footpaths are available in all streets around Westmead as well as pedestrian crossing facilities at Hawkesbury Road/Darcy Road and Hawkesbury Road/Railway Parade intersections.  Pedestrian refuge islands are also located in Hawkesbury Road.

4.   Cycling – current cycle paths to and from the Health Campus are limited.  The Transport Accessibility Report indicates that “a bi-directional off road path has been provided adjacent to the T-way, however, a section adjacent to the elevated T-way between Cumberland Highway and Ferndale Close is currently missing and leaves cyclists to make a detour via local streets. The draft Parramatta Bike Plan identifies the missing section and proposes an on road facility.  There is a nearby cycleway through Parramatta Regional Park which runs on-road along the periphery of the park effectively connecting Westmead with Parramatta CBD. This path links to Hawkesbury Road in the vicinity of CMRI via Caroline Street, although Jessie Street provides an easy and more direct link to CMRI.  The draft Bike Plan also proposes an off road facility through Milson Park to Lydbrook Street and Wentworth Avenue, connecting to Wentworth, Pendle Hill and Toongabbie”.


Existing Parking Supply

WHC has 9 carpark areas for WH and 3 carpark areas for CHW.  CMRI provides some parking on land immediately adjacent to their existing building and have access to the following off-street parking:

·    Adjacent to CMRI – 6 spaces (free)

·    WH staff carpark – 13 spaces (free)

·    CHW staff carpark – 18 spaces ($462 per year)


Note that “a reorganisation of the off street car parking serving the Westmead Health Campus (WHC) is planned, including the demolition and rebuilding of some car parks.  This will result in an overall increase in the off street parking available to WHC staff and visitors.  Children's Hospital Westmead has progressed plans for the construction of a new car park to the north of CMRI.  CMRI will part fund the car park construction and secure 100 parking spaces for CMRI staff”.


The number of car parking spaces available within WHC by component is as follows:

·   Staff – 3,673 spaces

·   Shared – 1,387 spaces

·   Patients Only – 175 spaces

·   Internal on-road spaces – 650 spaces

Total – 5,885 spaces


Note that a flat rate of $6 per entry with no time limit is charged at the Hawkesbury Road carpark (entry via Darcy Road) and Children's Hospital (CH) staff parking charges vary from $4 (1st hour) to $12 (3 hours plus).


CMRI staff park in a number of locations including:

·   On land immediately adjacent to the CMRI building

·   Children's Hospital Westmead staff parking area (by special arrangement)

·   Westmead Hospital staff parking by special arrangement

·   On-street (subject to restrictions)

·   Public off street parking at Children's Hospital Westmead

·   Public off street parking at Westmead Hospital

·   Public off street parking at University of Western Sydney


It is also apparent that some staff make their own private arrangements with local residents.


The proposed development provides a total of additional 20 parking spaces on site which will be completed during Stage 4 development.




As CMRI is part of the Westmead Research Hub and as the issue of parking is considered to be a critical factor, it is important that a Master plan for the redevelopment of the whole Westmead Health Campus is submitted to Council so that, in future, proposed developments within the research hub can be analysed along with the existing developments.


Existing Travel Demand

The Transport Access Report indicates that “of the current CMRI staff, 74% (98) travel at least part of their way to work by car on at least some of their working days. Lesser numbers cycle, walk and use public transport.  While rail is the most popular form of public transport, some staff travel by either Sydney Buses (Government buses) or private bus services. It should be noted that 24% (32) of staff walk to work on at least some of their working days”. 


Note that there were 132 staff employed by CMRI at the time of survey (40 male & 92 female).  Travel mode for Journey to Work (JTW) on a single day indicated as follows:

·    Car as a driver – 64%

·    Bicycle – 5%

·    Train – 18%

·    Motor Bike – 2%

·    Bus - 1%

·    Foot – 10%

Service Vehicles 

Servicing levels remain well within the levels that can be accommodated, following completion of the development. The proposed loading dock will be more than twice the size of the current facility following completion of Stage 4 and be capable of simultaneously accommodating a 12.5m vehicle and an 8.8m vehicle. 




The turning and manoeuvring of service vehicles is to be shown and demonstrated to work on the architectural plans.


Traffic Generation with Travel Demand Management (TDM) Strategy

Currently, 64% of CMRI staff drive to work and staff have access to 47 off street car park spaces. This indicates that of the 160 staff that can be accommodated in the existing building, 102 staff drive to work with 46% of these staff having access to off street parking and 54% having to find other parking.


The Transport Access Report indicates that “to ensure the redevelopment of CMRI and the resultant increase in staff numbers does not adversely impact on the wider Westmead health community, patients and visitors, CMRI staff driver mode share must reduce from 64% to 42%. This mode shift can be achieved in stages based on redevelopment progress and staff number increases.  This reduction in car driver mode share will be achieved through a range of initiatives aimed at increasing the take up of walking and cycling, the use of public transport and the number of people travelling as a car passenger’.


The redevelopment of the CMRI proposed to deliver a number of transport benefits including:

·   Provision of secure indoor cycle parking with shower change facilities, as shown on the plan.

·   Provision of a highly visible entry driveway facility on Hawkesbury Road aligned with the direction of approach from Westmead Station and the T-way stops in Darcy Road.

·   Increased number of staff which will assist in attaining 'critical mass' for certain travel behaviour change initiatives, particularly car pooling / ridesharing. 

·   Additional 20 parking spaces on-site.

·   On-site conference facilities, minimising the need to travel to alternative locations.

·   Encourage staff to use public transport.  CMRI will offer ‘free weekly tickets’ to trial public transport use.

·   CMRI will utilise and update the existing Westmead Transport Access Guide (TAG) on a regular basis and to be distributed to staff (via noticeboards and hard copy) and Intranet.

·   Flexible working hours and home/work travel assistance.


The Transport Access Report indicates that “CMRI recognises local parking constraints and the issues surrounding access to parking for certain groups, particularly patients and visitors, and that available on street and public car parking should be maximised for these groups.  All additional parking demand resulting from the redevelopment will be contained within existing and additional restricted off street parking space.  A travel demand management strategy has been developed to bring about a mode shift and a reduction in single occupancy vehicle use by staff. This will minimise resultant traffic generation and ensure parking demand is contained at a level that can be accommodated. This approach to transport management will lead the way within Westmead and act as an example to major trip generators”.


Comment: The proposal has an emphasis on public transport, accessibility and managing future travel demand. More specifically, a focus has been placed on maximising the accessibility of CMRI by all modes and working through a transport management program which will use a mode shift towards sustainable transport modes and a reduced level of single car usage. A substantial increase of carparking spaces with this proposal would adversely impact on the delivery of the mode shift towards the use of public transport to and from the CMRI.


Car parking Design:

The following issues have been raised from Architectural Plan No. 0807 EA-101 Revision A (dated 17 Feb 2009 prepared by Ancher/Mortlock/Woolley) regarding parking spaces:


In accordance with Table 1.1 and Figure 2.2 of AS2890.1 carpark spaces for ‘User Class 3’ is recommended to be 2.6m wide. However, an assessment of the plan has shown that:

1.   Parking space widths in ‘level 0’ do not comply with AS 2890.1:2004. For example; carspace No. 17 is measured at 2.19m wide.

2.   Ramp entry width to ‘level 0’ is less than 5.5m which is required for a two-way ramp.




That the proposal be supported on traffic and parking grounds, including the proposed transport facilities, subject to the following:


1.  That the DoP place as a condition of consent, the travel plan described for employees as a way of managing car park demand in the future.


2.  That a Master plan for the future redevelopment of the WHC with the CHW, WH and WMI as part of the Westmead Research Hub be submitted to Council for consideration.


3.  The following traffic related conditions be included as conditions of consent:


a)   20 off-street parking spaces (including at least 1 disabled parking space) to be provided, permanently marked on the pavement and used accordingly.  The dimensions for  parking spaces and aisle width to be in accordance with AS 2890.1-2004 (2.4m wide x 5.4m long clear of columns plus 300mm clearance adjacent walls & 6.2m aisle width minimum).  The disabled parking space dimensions to be 3.8m wide x 5.5m long according to Council’s Development Control Plan 2005.


b)   Cycle parking spaces as shown on the plan to be provided and constructed according to the relevant Australian Standards.


c)   All entry and exit driveways (passenger cars and delivery vehicles) off Hawkesbury Road as shown on the plan to be provided and constructed according to AS 2890.1- 2004 and Council’s specifications.


d)   Driveway and ramp gradients shall comply with Clause 2.5.3 and Clause 3.3 of AS 2890.1-2004.


e)   Traffic facilities to be installed, such as; wheel stops, bollards, kerbs, signposting, pavement markings, lighting and speed humps, shall comply with AS 2890.1-2004. 


f)    Clear sight lines shall be provided at the property boundary line to ensure adequate visibility between vehicles leaving the carpark and pedestrians along the frontage road footpath (in accordance with Figure 3.3 of AS 2890.1-2004).  The required sight lines to pedestrians or other vehicles in or around the site should not be compromised by the landscaping, signage fences, walls or display materials.


g)   The minimum available headroom clearance is to be signposted at all entrances and clearance is to be a minimum of 2.2m (for cars and light vans including all travel paths to and from parking spaces for people with disabilities) measured to the lowest projection of the roof (fire sprinkler, lighting, sign, and ventilation), according to AS 2890.1-2004.


h)   The turning and manoeuvring of service vehicles be shown and demonstrated to work on the architectural plans.



Development Engineering


The following issues have been raised from the submitted Stormwater Plan No. SW01/A (dated 23 January 2009 prepared by Michael Frost & Associates Pty Ltd):


1.   Plan SW01/A makes a reference to a plan SW02 which does not form part of the exhibition material.

2.   Insufficient information has been provided on the proposed ‘emergency overflow Ø225mm pipe from basement level’ as indicated on plan SW01/A.

3.   Insufficient information has been provided on the overflow path destination as indicated on plan SW01/A.

4.   No surface or invert levels have been provided on the stormwater plan.

5.   No pipe sizes are shown on stormwater plan.




That Stormwater Plan No. SW01/A and Architectural Plan No. 0807 EA-101 Revision A be revised to address the above issues. 

Landscape and Tree Management


Twelve (12) mature Platanus x hybrida (London Plane) trees will be required to be removed to allow the demolition of the existing building and excavation for the proposed development.


There is lack of information on existing underground services and the suitability for tree planting on the Hawkesbury Road, frontage.




1.   Further information be provided on existing underground services and the suitability for tree planting on the Hawkesbury Road, frontage.


2.   Advanced replacement trees (minimum container size of 200 litres) of the same or similar species be planted on the Hawkesbury Road frontage at the completion of the construction period to replace the lost amenity that the existing trees provide.


3.   A qualified landscape architect/arborist be engaged to ensure that the correct sized tree pits are installed to allow newly planted trees (400 litres) to establish and develop naturally. A qualified landscape architect or designer should also prepare any landscape plans for the site.



Urban Design


There are common design intentions and principles that are universal for the WHC. All new development should seek to achieve the following:

1.   Integrate the hospital with the surrounding area; opening movement through the site and new frontages/development to activate its perimeter.

2.   Assist in defining a strong north-south and east-west axis through the site to establish a legible structure to the area.

3.   Create a series of public, semi-public/private and private spaces to enhance the landscape setting of the campus; to develop an open “campus character”.


And, more specifically for Hawkesbury Road:

4.   Improve streetscape definition and legibility through new development opportunities on the western side of the road, to form a continuous built edge to the street.

5.   Encourage active ground floor uses, medical, research, and service/retail or the like, i.e. supporting land uses.

6.   Integrate new development and landscaped areas into the urban fabric.



The architectural design of the building looks to be a sophisticated response to the program and will be an asset to the area. The proposal is for a courtyard building type: the building wraps around to define a communal space to improve internal amenity.


Courtyard types are usually limited to 4 storeys in height and provide sufficient building separation. The proposal is for 6 storeys, with the communal courtyard raised above 2 levels, so this would maintain a sufficient level of internal amenity. However, attributes of courtyard types is the level of public/semi-public/private spaces that are achieved, providing high quality landscaped areas and outlook. This proposal does not deliver this intent of the building type.


Minimal activation of surrounding streets

The proposal provides minimal activation of the surrounding streets and public spaces. There are no active uses located on Hawkesbury Road and no special active address is presented to the adjoining public space. The corner entry does not adequately contribute to activating the primary street frontage. This main pedestrian entrance is from a side street, and is raised above ground levels with a series of steps and ramps. A wall then bands across the entire primary street frontage with offices above. The facade systems to the offices/research rooms are primarily a series of screens, without clear views between inside and out.


The proposal does include a discovery centre on the ground floor however this is located on the side street. This facility may have a more beneficial location were it to front the park or Hawkesbury Road, to allow for greater interaction with the community and outlook.


Environmental Sustainability

The environmental assessment describes the building as incorporating many sustainable features, but these are not quantified and so it is difficult to know their full impact. For instance, has the building received a star rating under the Green Star System? There is a draft tool for health currently available, has this been applied?  Also, can the environmental features be more specifically quantified by stating the proportion of the water that is being collected and how much more efficient the air conditioning system will be from current.


Acceptable environmental solutions are being upgraded nearly annually at present and given the proposed 10-15 year building span, the highest environmental standards should be aimed for and/or inbuilt flexibility to accommodate changing environmental technology as it becomes available.




1.      Investigate opportunities to reconfigure the proposed courtyard to improve the level of internal amenity and integration with surrounding streets and public spaces.

2.      Maximise the activation of surrounding streets and public spaces.

3.      Quantify the sustainable features of the proposed building, through the Green Star System, draft Green Star rating tool for health and stating the proportion of the water that is being collected and how much more efficient the air conditioning system will be from current.





Waste Management


CMRI waste policies comply with all statutory requirements. Council will not be providing any services as specialist private contractors will be removing all waste.


Waste Management Recommendations






In the limited time available, Council has assessed the Environmental Assessment Report and accompanying plans and specialist reports. Key issues and recommendations have been raised by a range of specialist areas in Council.


Overall, Council raises no objection in principal to the proposal subject to the above issues being addressed and the recommendations being adopted by the proponent and DoP prior to the determination of the application.