Item 9.5 - Attachment 1
Planning Assessment Report
Attachment 1 – Planning Assessment Report for the Planning Proposal on land at 220 & 222 Church Street & 48 Macquarie Street, Parramatta
1. THE SITE
subject site is located in Parramatta CBD on
- Lot 1 DP 702291 (222 Church Street);
- Lot 1 DP 1044242 (220 Church Street); and
- Lot B DP 394050 (48 Macquarie Street).
Reference to ‘the site’ in this report and Planning Proposal means all three allotments as illustrated in Figure 1. The site is an irregular ‘L’ shape and has an area of approximately 3,684.4sqm.
site is located centrally within the Parramatta City Centre, to the north of
- The ‘Greenway Plaza’, a one and two storey
- A two storey retail and
- A three storey brick mixed use building (48 Macquarie Street).
The land immediately surrounding the site is a mix of low and medium rise retail and office buildings. Active frontage uses are predominately located at ground floor levels, with upper floors predominately containing office premises.
To the south
of the site, across
pedestrianised section of
Figure 1 –
Figure 2 – Location Plan
2. PLANNING CONTROLS
2.1 Land Zoning
land is zoned B4 Mixed Use under the provisions of Parramatta City Centre Local
Environmental Plan 2007 (City Centre LEP). The B4 zone provides for a mixture
2.2 Height of Buildings
Pursuant to Clauses 21 and 29E of the City Centre LEP, the site contains two different height limits.
21, the maximum building height for the part of the site fronting
Figure 3 - Extract from City Centre LEP Height of Buildings Map
2.3 Floor Space Ratio
Three maximum FSRs apply across the site in the City Centre LEP. The FSR is divided across the site as three parallel north to south strips as shown in Figure 4 and 5. More specifically:
- that part of the site (18m deep) fronting Church Street has a maximum FSR of 3:1 (Zone A);
- that central part of the site has a maximum FSR of 10:1 (Zone B); and
- that eastern part of the site fronting Macquarie Street has a maximum FSR of 6:1 (Zone C).
Figure 4 – Location of existing FSRs on the site under City Centre LEP
Figure 5 – Extract from City Centre LEP Floor Space Ratio Map
The totalling of floor space for each different ‘strip’ (i.e. Zone A + Zone B + Zone C) across the site would theoretically achieve an overall maximum allowable floor space of approximately 23,938sqm (refer to Table 1).
Table 1 – Summary of existing achievable floor space across the site FSR Equivalent floor space
Equivalent Floor Space
It should be noted that the above quantum of floor space is only theoretical, as under the current configuration of the land and applicable FSR controls it is unlikely the land would ever be developed to its potential.
The site does not contain any heritage items, nor is the site located within a heritage conservation area under the City Centre LEP. There are, however, a number of heritage items that adjoin and surround the site as illustrated in Figure 6.
Figure 6 – Extract from City Centre LEP Heritage Map
3. THE PROPOSAL
proponent has requested a distribution and increase of the maximum allowable
FSR on the site. The proposal is to generally concentrate the floor space
within the eastern portion of the site. The major objective of the planning
proposal is to enable a feasibly viable
The planning proposal does not seek to amend the zoning and maximum building height of the site.
Floor space within Parramatta is controlled by Clause 22 which sets the objectives for FSR controls and sets the maximum FSR for buildings as shown on the Floor Space Ratio Map (extract provide at Figure 5). The Floor Space Ratio Map that applies to the subject land specifies three different maximum FSRs. Amending the floor space limit is achieved by amending the City Centre LEP Floor Space Ratio Map (Sheet FSR_001).
The proposed amendment seeks to introduce two new maximum FSRs for the site. Figure 7 illustrates the proposed new FSRs and the portions of the site to which they are intended to apply. Table 2 provides an overview of the resulting area of floor space potentially achievable through amending the FSR controls.
As Table 2 demonstrates, the proposed amendment increases the base allowable floor space area for the site to 27,581sqm. This represents an increase of 3,643sqm over the current controls. This is a 15% increase, 10% of which can be achieved under the provisions of Clause 22B Design Excellence of the City Centre LEP without the need of this Planning Proposal.
Figure 7 – Proposed FSRs on the site
Table 2 – Summary of proposed floor space across the site
Proposed Maximum FSR
Proposed Equivalent Floor Space
proposed mixed use development over the site contains retail and commercial
offices. The proposal is for a low rise retail building fronting
4. THE ISSUES
Land Use Planning
The proposed FSRs for the site would continue to address the objectives of Clause 22 in the City Centre LEP for the control of FSRs as demonstrated below.
(a) to ensure a degree of equity in relation to development potential for sites of different sizes and for sites located in different parts of the Parramatta city centre
amendment would ensure equity in relation to development potential for sites,
through redistributing and increasing FSR across land within an important City
Centre location, so ensuring that the development of the land be
(b) To ensure that proposals for new buildings are assessed with due regard to the design excellence and build form provisions of this Plan
A Design Excellence Process will be pursued whilst the Planning Proposal is being assessed to ensure design excellence and built form provisions of the City Centre LEP are addressed to a high standard. The Design Excellence Process is seeking design excellence approval for a commercial office development in accordance with Clause 22B of the City Centre LEP.
(c) To provide sufficient floor space for high quality development for the foreseeable future
FSRs across the site will facilitate and support high quality
(d) To regulate density of development and generation of vehicular and pedestrian traffic
FSRs will continue to regulate the density of development on the land to an
acceptable level within the context of the site’s central CBD location and
proximity to public transport. It will not generate an unacceptable level
pedestrian or vehicular traffic that cannot be ac
(e) To encourage increased building height and site amalgamation at key locations
The site is centrally located within the Parramatta CBD. The site contains 3 allotments and oddly distributed FSR. The proposed FSR distribution and increase would achieve an increased building height and site amalgamation. Without an amendment of this nature, the maximum building height and site amalgamation on this land would unlikely be achieved.
Further, subclause 22(3) requires a certain land size to achieve certain maximum FSRs. Subclause 22(3) will not apply to the subject land, as the proposed amended FSRs (i.e. 2:1 and 11:1) are not listed in Column 1 of the FSR Table.
Properties has engaged Crone Partners
study provides a development framework for the site based on an analysis of the
scale of development achievable under relevant current controls and the
proposed FSR amendment. Specifically the study examined the potential
development of the site and identified options including for new buildings that enhance the
Urban Design Study and preliminary concepts are based on an analysis of the
site’s opportunities and constraints, its
site’s constraints and opportunities and the proposed amendment to the FSR
control will result in a maximum floor space of 27,581sqm. Various built form
options have been considered and tested for their environmental sustainability,
urban form and
Specifically, it is evident that the amendment will deliver:
§ a lower scale building fronting Church
§ a 16 storey
§ new public domain spaces and pedestrian
access ways integrated with existing and future connections within the
It should be noted that the tower height, podium height and ultimate quantum of floor space are indicative at this stage and will be the subject to the Alternate Design Competition Process and Development Application.
the proposed changes to FSR and the resulting increase in floor space across
the site will facilitate and enable the delivery of urban design out
the Planning Proposal increases the amount of developable floor space on the
land, the height will be set by the sun access plane controls for
No changes are proposed to maximum building height controls for the site under the City Centre LEP in this Planning Proposal. For the majority of the site, excluding the 12m height control for the 18m deep portion of the site fronting Church Street, building height is controlled (under Clause 29E of the Parramatta City Centre LEP 2007) through prohibiting development that results in any part of a building projecting above the sun access plane controls established within the City Centre Development Control Plan.
this regard, notwithstanding the proposed amendment to the FSRs across the
site, the ultimate height restriction for the majority of the site will
continue to govern the extent of development. The proponent has tested building
envelopes to understand potential overshadowing impacts on the adjacent
The Urban Design Study identifies the opportunities to improve the public domain and pedestrian permeability within the City Centre. The Urban Design Study illustrates options for how the ground floor of a future development proposal may look. In developing these options, regard has been had to Council’s Lane Strategy 2010. For example:
§ opening up United Lane and providing a link between Houison Place and Macquarie Street;
§ retaining an arcade/through site link from Church Street through to Houison Place/Horwood Place;
§ supporting a central east-west ‘spine’ through the
§ supporting a north-south pedestrian lane to be provided from Macquarie Street to George Street.
The above matters relating to public domain and pedestrian permeability are supported and should be incorporated in the detailed design of the building and addressed during the Alternate Design Excellence Process and Development Assessment stage.
Urban Design Team provided the following
Vehicular Access. The preferred location for
vehicular access to basement parking is from
Sightlines. A clear and direct sight
line should be maintained from
This should extend to the full width of the pedestrian through site link, which is required to be a minimum of 3m, non-leasable space clear of all obstructions (including columns, stairs and escalators).
is support in principle to the variation from the City Centre DCP in relation
to the podium height addressing
is noted that the development overshadows the
5. ASSESSMENT OF PLANNING PROPOSAL AGAINST DEPARTMENT OF PLANNING & INFRASTRUCTURE GUIDELINES
Recent planning reforms
regarding the preparation of LEPs were introduced on 1 July 2009. Under this process, Council, as the relevant
planning authority must resolve to support a Planning Proposal before it can
proceed to Gateway determination.
Community consultation is undertaken after Council and the DP&I has
considered and subsequently approved to proceed with the rezoning. The DP&I will determine the level of
The Planning Proposal and Urban Design Study prepared by the proponent, together with this Planning Assessment, will be submitted to DP&I for Gateway determination should Council resolve to support the proposal.
The following issues are required to be addressed as part of any Planning Proposal
Objectives or Intended Out
of this Planning Proposal is to redistribute and increase the floor space ratio
to facilitate the development of a
Explanation of Provisions
In order to achieve the above objective, amendment of the current FSR relating to the site is required.
different maximum FSRs apply across the site. The FSR is divided across the
site roughly as three parallel north to south strips as shown in Figure 4. The
current configuration and allocation of floor space will not deliver a good
built form out
The proposed amendment to the City Centre LEP is to the Floor Space Ratio Map (Sheet FSR_001). The proposed amendment seeks to introduce two new maximum FSRs for the site. Figure 7 illustrates the proposed new FSRs and the portions of the site to which they are intended to apply. It is proposed to generally redistribute the floor space and concentrate it within the eastern portion of the site.
Table 2 provides an overview of the resulting area of floor space
potentially achievable through amending the FSR controls. The proposal would
facilitate the future development of the site. The proposed amendments will
have the effect of ‘unlocking’ the site and enabling a
A Need for the Planning Proposal
Is the Planning Proposal a result of any strategic study or report?
Although the planning proposal is not the result of a specific land use or economic strategic study the proposed amendment to the City Centre LEP is consistent with the major objectives and directions of the Metropolitan Plan for Sydney, West Central Subregional Strategy and Parramatta City Centre Vision in that it will:
§ facilitate the delivery of employment
generating floor space within the
§ contribute towards the achievement of the employment target for Parramatta;
§ deliver jobs in a location well serviced by public transport and services;
§ provides for a stronger and successful centre, i.e. accessible and pedestrian friendly, having attractive and safe public domain spaces;
§ ensures the
§ allow for a future built form that is an appropriate form and density for a constrained site.
Is the Planning Proposal the best means
of achieving the objectives or intended out
The proponent’s request for
such an amendment has been discussed with Council planning officers and the
planning consultants engaged by the proponents on a number of occasions. A
meeting was held between Council planning officers and the proponent to discuss
Under the existing LEP
controls up to 23,938sqm of floor space on the site can be achieved. However
due to the way this floor space is currently distributed across the site
(through the varying FSR controls) it will not deliver a good urban design or
built form out
The study included at Appendix A of Attachment 2 illustrates
the form of buildings able to be achieved on the subject land as a result of
the proposed amendment. The current configuration and allocation of floor space
sterilises the land from development of a kind that would deliver a good built
form and deliver employment generating floor space within the
Is there a net
The Planning Proposal will
result in a net
Specifically, the Planning
Proposal will enable the land to be developed to its potential thereby facilitating
a much needed addition to the
§ contribute towards meeting the employment targets for the region by generating over 2,000 new permanent jobs;
§ contribute towards the economic success of Parramatta;
§ provide improved connectivity and permeability of sites within the City Centre;
§ reinvigorate retail areas and help further activate the City Centre;
§ improve the quality of the public domain; and
the urban form and amenity of the locality with high quality well designed
Ultimately, the proposed amendment to the FSRs across the site maximises the economic performance of suitably zoned land that is highly accessible to public transport.
B. Relationship to Strategic Planning Framework
The Metropolitan Plan for
Sydney 2036 and draft West Central
Subregional Strategy identify Parramatta as Sydney’s Premier Regional City
and second CBD and seek to strengthen Parramatta’s role as Sydney’s second CBD
through planning for increased employment from 43,000 jobs in 2006 to 70,000
jobs by 2036. They further aim to preserve
The Planning Proposal is
consistent with the objectives and strategies of the Metropolitan Plan and
draft Subregional Strategy in that it will facilitate the delivery of
employment generating floor space within the
Parramatta Twenty 25 is
Council’s 20 year plan for the future of
Strategic Plan sets out the
future vision for
An assessment of the Planning Proposal against applicable State Environmental
Planning Policies (SEPPs) is provided in Table 3 in Attachment 2. The relevant SEPPs do not apply to this Planning Proposal rather to future development of the site.
§ SEPP (Exempt and Complying Development Codes) 2008
§ SEPP (Infrastructure) 2007
§ SEPP (State and Regional Development) 2011
§ SEPP No 55 Remediation of Land (Note: land is currently zoned for mixed use development and the proposed LEP amendment does not seek to change current permissible uses).
§ Sydney Regional Environmental Plan (Sydney Harbour Catchment) 2005
Is the planning proposal consistent with applicable Ministerial Directions (s.117 directions)?
An assessment of the Planning Proposal against the Directions issued by the Minister for Planning under Section 117 of the Environmental Planning & Assessment Act 1971 is provided in Table 4 in Attachment 2. In sum, the Planning Proposal is consistent with the following relevant Ministerial Directions:
and Industrial Zones - The
Planning Proposal seeks to encourage employment growth through unlocking a site
within the commercial core of Parramatta CBD, thereby supporting the viability
2.3 Heritage Conservation - City Centre LEP contains heritage conservation provisions and this Proposal does not seek to amend them. Heritage considerations will accordingly be addressed as part of any future development of the land.
3.4 Integrating Land Use and Transport - The Planning Proposal, through unlocking the development potential of the site, will concentrate critical mass to support public transport, and improve access to jobs and services by walking, cycling and public transport.
4.1 Acid Sulphate Soils - City Centre LEP contains acid sulphate soils
provisions and this Proposal does not seek to amend them. Acid sulphate soils investigations and analysis will accordingly be undertaken as part of any future development of the land.
6.1 Approval and Referral Requirements - No new concurrence provisions are proposed.
6.2 Reserving Land for Public Purposes - No new road reservation is proposed.
6.3 Site Specific Provisions - Planning Proposal amends existing site specific provisions, without being unnecessarily restrictive.
of the Metropolitan Plan for Sydney 2036 - The Planning Proposal is
consistent with the objectives and strategies of the Metropolitan Plan in
that it will facilitate the delivery of employment generating floor space
C. Environmental, Social & Economic Impacts
This Planning Proposal will
not affect any critical habitat or threatened species, populations or ecological
There are no other likely environmental effects as a result of the Planning Proposal given the minor nature of the amendment and the setting of the site within a highly urbanised area. Possible issues relating to heritage, traffic and access, overshadowing, acid sulfate soils and flooding will be considered at the Development Application stage. The planning proposal is supported by an Urban Design Study which provides a sound analysis of the built form and overshadowing (note: no changes are proposed to the maximum building height controls for the site under City Centre LEP) based on an analysis of the site’s opportunities and constraints.
The provisions of the City Centre LEP will ensure that an appropriate assessment of the impact of any development proposal on nearby adjacent heritage items is undertaken. A key consideration to any future development on the site will be how the building integrates with the adjoining heritage item, and the extent of overshadowing of the proposal on the setting and enjoyment of surrounding heritage items. This will be addressed as part of a future Development Application for the site and be the subject of a Heritage Impact Assessment.
The proposed amendment does not alter the base principles of the City Centre LEP, therefore the detailed assessment of future traffic impacts and access and parking arrangements will be addressed as part of the redevelopment of the site, particularly as the proposed amendment does not result in a significant increase in the floor space currently able to be developed on the land.
The site is located above the 1:100 Average Recurrent Interval. However, consideration to any future development of the site may require consideration of certain low risk flood related controls. This may be addressed as part of a future development application for the site.
It is evident that the existing
buildings on the land are reaching the end of their functional and economic
life and there is an opportunity to redevelop the site to provide new and improved
The proponent has expressed
that the current
§ generate a significant number of jobs thereby contributing towards the employment targets for the region;
§ support the vitality and economic growth of Parramatta as Sydney’s second
§ contribute to improving pedestrian amenity with new through site links and activation of the public domain and streetscape around Horwood Place.
is understood that the existing infrastructure in the Parramatta CBD has the
capacity to ac
The development is in close proximity to the Parramatta Transport Interchange (rail and bus services). It is accordingly in the interest of the State Government to intensify employment generating development in close proximity to this strategic transport hub and thereby increase viable patronage of this significant infrastructure investment.
are no significant Commonwealth or State interests in the Planning Proposal other
than in general for a more appropriate planning and development out
No formal consultation has at the time of writing this Planning Proposal been undertaken with either State or Commonwealth authorities. Where necessary, consultation with relevant authorities will be undertaken as required in accordance with the Gateway determination.
E. Community Consultation
It is proposed that in accordance with the DP&I’s ‘A guide to preparing local environmental plans’ that the Planning Proposal undergo a 28 day public exhibition period. This period would include consultation with public authorities. It is noted that confirmation of the public exhibition period and requirements for the Planning Proposal will be given by the Minister as part of the LEP Gateway determination.
It is proposed that the Planning Proposal be exhibited simultaneously with the development application for the site. This has the advantage of elucidating to the general public how the site would be developed under the proposed amendments to the City Centre LEP.
Urban Design Study undertaken for the land demonstrates that changes to
existing FSRs as proposed by this Planning Proposal would be more appropriate
than the current controls to support a built form out
This Planning Proposal will facilitate development that has demonstrable urban
social and economic benefits for the region. It is evident that the existing
buildings on the land are reaching the end of their functional and economic
life and there is an opportunity to redevelop the site to provide new and
improved retail and
It is recommended that Council resolve to endorse and forward this Planning Proposal to the Department of Planning and Infrastructure for Gateway determination in accordance with the Environmental Planning & Assessment Act 1979.