Item 8.13 - Attachment 5

Background to Development of Westmead Strategy




Parramatta Regional Planning Strategy 1999


The Parramatta Regional Planning Strategy 1999 identifies the vision, and framework for strategies and actions to achieve this vision for the Parramatta Primary Centre, which includes the Westmead Precinct. The strategy identifies a conceptual structure plan and future directions for Westmead:





Future character

Westmead will continue to develop as the major medical precinct in the Sydney region.  The opportunities this offers combined with its approximately to the City Centre and Parramatta Regional Park, will ensure the continued popularity of multi- unit housing in the precinct.  Population and employment growth will create opportunities for expansion of the mixed use centre at the railway station.


Key elements of the future character of this precinct are:


·    growth of health service delivery and medical research

·    consolidation of Westmead’s educational role

·    access improvements to and through the precinct

·    intensification of residential land uses

·    development of a higher density mixed use centre close to the station

·    improvements in urban design particularly along the Regional Park edge.


An important strategy included is:


6.5       Identify opportunities to the intensify land use within walking distance of the railway station to support a mixed use centre in the precinct.



The Westmead Precinct Structure Plan -- a Vision for 2020, July 2004


From early 2003 a group of key stakeholders considered the development of a strategy for the Westmead Precinct.  Stakeholders include: Parramatta City Council, Western Sydney Area Health Service, NSW Health, Department of Planning, University of Western Sydney, Landcom, Holroyd City Council, Premier's Department, Transitways with regular input from State Transit, State Rail Authority and RTA.  Arising from the deliberations of this group, the Government Architect's Office prepared and in July 2004 released a draft report: the Westmead Precinct Structure Plan -- a Vision for 2020.


The report contains a vision for Westmead of a vibrant campus environment with world class health, research and education facilities and attractive civic spaces full of activity. The plan states that it has the potential to establish Westmead on a similar global parallel to cities such as Cambridge and Oxford in the UK and Stamford in the US that are renown township and institutional centres for research and education and to the Mayo Institute as a major health facility which serves as a focus for the town of Rochester, Minnesota. A number of key issues in relation to future development of the precinct are identified:



·    Relatively undeveloped internal access routes.

·    Limited access for precinct visitors from outside the precinct

·    Poor pedestrian and cycling facilities

·    New transport proposals including the north-west transit way


Design and future development

·    Need to create a vibrant township in a health and teaching campus

·    Need to develop a built form concept that supports transit orientated development

·    Limited block permeability and readability in the precinct -- need to develop a compact, walkable community with strong connectivity to facilities and transport

·    Explore design solutions for medium high-density mixed use urbanism including horizontal zoning solutions

·    Need for a focal town centre

·    Need to activate streets and public spaces

·    Proposals for future economic growth

·    Environmental sustainability


Detailed proposals


A table with detailed proposals of the Westmead Precinct Structure Plan are outlined below.




Principle 3

Develop a clear and legible network of streets and public squares with a well defined hierarchy and a civic character, thus improving permeability and way finding.

Principle 4

Facilitate a modal shift to public transport.  Establish a sequence of public transport nodes convenient to major destinations in the precinct.  Improve and extend the pedestrian and bicycle paths, especially between Westmead Railway Station and the major destinations.  Rationalise car parking.

Principle 6

Land and capital contributions from development of private and publicly owned sites will fund parts of the new infrastructure and public domain improvements through section 94 contributions.  Special development levies may need to be set in the future for public domain improvements.


Land uses will be determined according to a number of objectives with mixed use development being recommended in particular along Hawkesbury Road and on the UWS site.


A variety of housing would be provided including studio apartments, one, two and three bedroom apartments as well as hostel accommodation that provides shared facilities.  This would give inexpensive housing options to short-stay, seasonal or low -income residents.


A potential future minibus service would be provided linking local functions of the two hospitals, the residential areas, employment areas and the Cumberland Hospital site with transport interchanges at Railway Parade and Darcy Road


A mixed use town square development would be established on the southern corner of Darcy and Hawkesbury Roads, currently being planned by the University of Western Sydney.  The level of the Town Square is one storey above Hospital Square and will allow a direct pedestrian bridge across Darcy Road connecting the two spaces.

3 .13

Major landscaping would be undertaken to Hawkesbury Road, being Westmead's main street including the planting of a grand avenue of eucalyptus.


Institute Road would be formed as a new campus street.


Whole -of -catchment Water Catchment Urban Design Strategies would be implemented to address total water management issues including stormwater quality and quantity entering into the natural watercourses across the precinct.


Implementation of the structure plan will require resources of both the public and private sectors in a collaborative arrangement that recognises and accommodates the objectives and constraints of both sectors.  Several forms of economic models for private sector participation are suggested including developer contributions, contributions linked to rezoning, privately funded infrastructure, land pooling schemes and land development rights.



Impression from the structure plan of future town centre on UWS site -- looking south from Westmead Hospital towards UWS site and railway line







Design concept from the structure plan for Westmead Precinct



Westmead Precinct Implementation Plan November 2006


The Westmead Precinct Structure Plan -- a Vision for 2020 was a high level document required to be further grounded by transport, economic, retail and planning analysis.  To this end, the Department of Planning, in early 2005, commissioned various planning, urban design, economic, retail and transport consultants to undertake further work.  This work culminated in the preparation of the Westmead Precinct Implementation Plan November 2006 which was forwarded to Council in July 2007.


 The Implementation Plan aims to facilitate the continued evolution of the Westmead Precinct into a highly specialised medical research centre.  Under the plan the number of residents is expected to increase from 7880 to 12,137 and the number of employees to increase from 11,204 to 18,361 by 2031.


Important features and proposals of the Plan are as follows:


·    A similar intensity and structure of future development is proposed as in the current Parramatta LEP 2001, although land between Redbank and Kleins Roads is zoned for future medium density development

·    Mixed use development is allowed for in much of the precinct and including the hospital sites and along Hawkesbury and Darcy Roads

·    Permitted heights range from four to five storeys with the height on some sites being permitted up to 12 and 15 storeys

·    There are major proposals to enhance the amenity, public domain and built form of the precinct.

·    Hawkesbury Rd is to be developed into a ‘main street’ with the creation of new public squares on adjoining sites and a pedestrian access way (‘Research Walk’) through hospital land

·    Future transport needs of the precinct are proposed to be largely met by public transport, with restrictions on parking provision, but there are proposals for improved roading access through the hospital sites.




Background information from Implementation Plan


Below is information from the Implementation Plan which provides an overview and details some of the issues of the Westmead area.


Transport proposals


Existing travel overview, from 6.1 of the Westmead Precinct Implementation Plan and from the Chris Stapleton background report:




One of the main aims of the Implementation plan is to reduce the amount of private vehicles access to Westmead which is currently at 80% by increasing the use of Public transport to 60%.


Below is information on traffic within Westmead


·    88% currently travel by car in peak hours (increasing 1-3% PA)

o 2150 vph each Darcy and Hawkesbury in peak

o 1200 vph Redbank

·    AM peak

    5000 hospital staff trips

    1400 patient

    3400 school (70% by train)

    500 industrial employees outside core area

--    57 other employee trips of the core of the study area





A significant aspect of the transport strategy involves the reduction of parking over time. 


·    Current 6220 parking spaces including

    654 on-street

     168 rail commuters

     110 residents

     160 patient and 80 staff

     55 retail

    5235 hospital parking

     3673 staff only ($10/week)

     1387 staff/patient/visitor

     175 patient only ($6 flat fee or $4/hr children’s hospital)


Connectivity and future demand


Below are points which demonstrate some of the key connectivity issues for Westmead and reasons why it is so important to get connectivity right


·    Relatively infrequent and poor regional connectivity - especially to the east and south.  Westmead is disconnected from the regional road network although has reasonable proximity to it. 

·    70% of the Westmead workforce live within a 7km radius of Westmead

·    Future workforce expected to double over the next 20 years to 11,000 (half the employment for Parramatta)


Accommodation of demand


     Limited capacity to accommodate additional demand within the existing road network

     Without a change in travel behaviour an additional 4300 vehicles would seek to access Westmead in the peak hour

     Additional demand will require $180M for road upgrades and 40M for parking

     Any additional travel demand would be best accommodated by public transport



Economic development Analysis


Population modelling was undertaken to help in the commercial demand analysis.  The summary results are outlined below:


Westmead precinct population



Projected to 2031







Transience/daily visitors







Detailed characteristics of the population profile are provided in the background report by Hirst Consulting Services Pty Ltd.



Below are the key commercial components within Westmead:


·    Local Retailers – supermarket, newsagent, bakery, fruit market, hairdresser & laundrette

·    Local Commercial activities – real estate agent, dentist etc

·    Coca Cola Amatil


Current Market Potential - $ Spend

·    Current available expenditure $12.2 million

·    Current retail floorspace 1,920m2


Based upon population growth in Westmead the forecasted market opportunity for:

·    Total expenditure potential is $28.4 million

·    Retail floor space potential is an additional 5180 m2 to give a total of 7100 m2

·    Retail currently located within the hospital is internally oriented for the use of hospital staff, patients and visitors.  If this floorspace were to be relocated to the Hawkesbury Road frontage, patronage could be increased significantly and the western side of Hawkesbury Road activated

·    An increase of medical specialists by 200 requiring an additional 8750 m2 of floorspace giving a total floorspace of 15,750m2

·    Additional office space should be provided for some industries and organisations associated with the medical focus of the precinct.

·    The ability of the area to support other associated uses such as medical equipment suppliers, offices of illness foundations and support groups, and medical research companies should also be considered.  It might be prudent to allow some industrial type land (for example, land around Briens Road) for medical/health related purposes.


Detailed proposals


Tables with detailed proposals of the Westmead Precinct Implementation Plan are outlined below.


Transport proposals


Sections 6.0 and 8.4 of the Westmead Implementation Plan discuss and outline options for meeting future transport demands. Appendix D of the plan comprises the detailed report by Chris Stapleton on transport issues and options for Westmead. 




8.4.1 Public Transport Option Note: has the objective to reduce car use from 88% to 60% and to increase public transport use from 12% to 40%

A bus route be provided from Darcy Road to Windsor Road in North Parramatta in the short term


A bus route to be provided from Hawkesbury Road to Dunlop Street, through the Cumberland hospital in the long term


Redbank Road to be extended to join with Darcy Road so as to create another major publicly accessible route into Westmead precinct

8.4.2 Demand management option

Note: has the objective to reduce car use from 88% to 44% and to increase public transport use from 12% to 56%

The proportion of total employee parking at Westmead (including offstreet parking garages) is to be progressively reduced from existing supply of 0.82 spaces per employee to 0.4 spaces per employee.


A parking management programme be agreed between Westmead's major health service providers, Council and the Department of Planning to assist with the documentation of the parking strategy



9.2  - - pedestrian and cycle movements -- Illustration 26

Proposals for a fully public, interconnected network system for pedestrians and cyclists, as well as vehicles and public transport



Planning proposals




2.1.1 Metropolitan Strategy

Relevant provisions of the strategy as they apply to Westmead

4.3 Views, vistas and landmarks

Significant district and local views are identified and it is stated that any land use strategy needs to ensure that these are not compromised by future development

7.3 Staged implementation

The Westmead precinct is divided into two general areas for implementation purposes: Stage 1 covering the central part of Westmead and hospitals where the proposed provisions would apply immediately and Stage 2 where they would apply at some time in the future.

39 B Medium Density Residential zone


The zoning of land between Balmoral Road and Toongabbie Creek as medium density

39 C Mixed Use 1 zone

The zoning of land on the eastern side of Hawkesbury Road between the Best Western site and Helen Street as Mixed Use 1

39 D Mixed Use 2 zone

The zoning of land as Mixed Use 2 between Hawkesbury Road and Parramatta Park.

Mixed use 1 and 2 zones

Provisions for these zones as they apply to land between Hawkesbury Road and Parramatta Park

39 E Special Activities  zone

The provision of a range of activities within this zone including medical related uses, motels, multiunit housing and shops

39 E Special Activities zone

Zoning of land to the north side of Toongabbie Creek as special activities

Enterprise Corridor zone

Zoning of south eastern side of Briens Road between Redbank Road and Kleins Road as Enterprise Corridor

39 N Special areas

Objectives and requirements for following special areas:

§ Hawkesbury Road and Westmead Station

§ Windsor Road and Helen Street

§ Darcy Road

§ Park Avenue

§ Parramatta River and Toongabbie Creek

§ Medical and Research Special Area

8.5 Funding Framework for Infrastructure Improvements and


 8.6 Recommended Infrastructure Upgrades to Be Included in Consolidated Contributions Plan

Provisions and an outline of recommended infrastructure upgrades

9.1 Site Coverage

Maximum site coverage requirement of 50 %  for residentially zoned allotments

9.3 Landscaping

Specific recommendations for landscaping

9.4 Separation distances

Front (4 metres for home activity and six metres for residential) and side (3 metres) setbacks for residential uses

9.5 Signage and awnings

Controls relating to signage and awnings

9.6 Sustainability

Sustainability principles

9.7 Street lighting

Requirement for preparation of a street lighting plan


Urban design proposals




Planning and Urban design aims / Special areas

39N. 4.(a) (b).B (Page 123 to 127)
Illustration K

Upgrading of Hawkesbury Road to a landscaped boulevard.  Creation of a new town square within the block bounded by Hawkesbury Road, Queens Rd and Caroline Street.

Planning and Urban design aims / Special areas

39N.5.(a) (b) (Pages 129 to 131)
Illustration M

Landscape and street improvements to Queens Rd and Helen St

Planning and Urban design aims / Special areas

39N.6 (a) (Pages 132)

Creation of a landscape boulevard in Darcy Road

Planning and Urban design aims / Special areas

39N.7 (b) (Page 133)
Illustration N

Street and landscape improvements of Park Avenue to reinforce its interface with Parramatta Park.

Planning and Urban design aims / Special areas

39N.8 (b) (Page 137)

Provision of enhanced active and passive recreational opportunities along Parramatta River and Toongabbie Creek eg seating and play and BBQ areas

Planning and Urban design aims / Special areas

39N.9.(b) (Page 139)
Illustration O

Within hospital precinct, encouragement of greater public use, permeability, improved amenity and built form.  In particular, creation of a new pedestrian street (‘Research Walk’- 20 metres minimum width) connecting Hawkesbury Road with Institute Road, creation of a new pedestrianised space -- hospital square to the south west of the Children's Hospital and upgrading of Institute Road.






Concept plan for Westmead from implementation plan




Westmead Health Campus Planning Principles March 2007


Sydney West Area Health Service of NSW Health released this report comprising high-level town planning principles to inform site development decisions on achieving a 15 year vision for a major health teaching campus at Westmead.  Proposed planning principles include:


·    Development of a functioning and vibrant campus that supports the evolution of Westmead as a health, research and education precinct of international renown and preferred employment

·    Creation of a high quality urban environment and well designed public domain

·    The provision for potential mixed retail, commercial and related health services development along Hawkesbury and Darcy Roads

·    The creation of pedestrian links and boulevards through the hospital site

·    The creation of a number of landscaped squares fronting Hawkesbury and Darcy Roads

·    Relocation of car parks to the perimeter of the hospital site which will be expanded to meet the shortfall in demand.




Westmead Health Campus – Transport and Accessibility Strategy, 2007


The Westmead Health Campus Transport and Accessibility Strategy (TAS) was commissioned by NSW Health to explore the implication of major redevelopment of the campus over the 15 year leading to 2021.  The main focuses and goals of the study were to:


§ look at Land use and transport together;

§ takes a multi modal approach

§ consider both demand management and transport supply solutions

§ is informed by best practice in planning for hospital accessibility


The study is to address the transport challenges and responses for the three Campus hospitals


§ Westmead Hospital

§ Children’s Hospital

§ Cumberland Hospital


The TAS examines existing transport demands arising from the major hospital user groups:


§ Patients

§ Visitors

§ Staff


The study documents the existing transport systems (Road, parking, rail, bus, cycling and walking) and explores how future demands will be affected by the growth and change planned for the Campus in the Campus future directions Report and the Future Development strategy, recognising the hospital ongoing role as a Specialised Centre.


The TAS is made up of the following six plans

§ Staff Travel Plan

§ Improve Public transport

§ Local area transport plan

§ Campus Parking Policy

§ Improve Internal accessibility Plan

§ Movement and Opens Space Framework plan




Below are is a table of the TAS implementation plan:



Westmead TAS Implementation Plan




Short Term 2007-2010

Medium Term 2011-2016

Long Term 2016-2021

A. Staff Travel Plan (STP)

Pilot STP focussed on non-medical staff

Commencement of broader STP

Ongoing STP

Ongoing STP

Improving Public Transport

Main Focus: Increase network coverage

Improve Interchange and terminal saftey
Improve information and Ticketing

Individual marketing and travel Plan

Marketing existing systems as part of STP and to visitors (Journey Plans)

Lobby MoT for improvements especially during Strategic Corridors finalisation and ingrate network review

Input to metropolitan network development and servicing

Install taxi phones



Local Area Transport

Explore shuttle bus potential

Work with Councils and RTA to improve walk and cycle gateways

Promote public transport walking and cycling



Parking Policy

Develop parking policy parameters - clarify supply, commence change to pricing and allocation

Planning and delivery of new supply

Ongoing implementation of policy

Planning and Delivery of new supply

Assessment of whether post -2016 supply likely to be sufficient

Ongoing implementation of Policy

Planning and delivery of new supply

Improve internal accessibility

Extending the way finding strategy to the whole of the Westmead Health campus

Upgrading the creekside path alongside the Toongabbie Creek from Mons Rod to Redbank Road

Creating Greenways which connect into the Toongabbie creek/Parramatta River Creekside path and link up existing green corridors in the the wider movement network

Upgrading, where required, the existing openspace within the built form

The implementation of the overall (medium term) movement and openspace framework is dependant on the proposed development of buildings within the campus

The implementation of the overall (long term) movement and openspace framework is dependant on the proposed development of buildings within the campus

Building Capacity

Secure stakeholder understanding and ownership

Establish internal management framework

Establish data management and evaluation framework

Develop strategy budget

commence communication


Ongoing communication


Ongoing communication


Below is a table that that demonstrates the estimates for the expected reduction in car drivers for each group by each action plan. These reductions would be expected over the life of the Future Directions Strategy.



Expected reduction in car driver mode share from TAS



Public Transport

Local Area Transport

Total Mode Shift

















Other Staff






Patients Arriving





Overnight Patinnets













Draft Subregional Strategy for the West Central Sub Region, 2007


The Draft Subregional Strategy for the West Central Sub Region includes aims to consolidate and enhance Westmead's role as a vibrant health and health-related education/research precinct. A statement from the strategy on Westmead's importance is included below:








A statement on the strategic aims for the precinct is as follows:


Westmead Precinct Strategy: aims to consolidate and enhance Westmead’s role as a vibrant health and health related education/research precinct. It will also address critical traffic and access problems and improve the direct and efficient access to and

throughout the precinct. The plan will facilitate substantial new development potentially creating an estimated 15,000 additional jobs and a two-fold increase in dwelling yields.



Parramatta City Council, Residents Panel: Westmead Consultation Business Report, December 2008; Westmead Residents Consultation Report, May/June 2009; Focus Group Report with Businesses, 10 March 2009; Focus Group Report with Residents, 18 August 2009


Arising from a Councillor resolution in 2008, Council's Residents Panel organised and undertook consultation with residents within Westmead Precinct and businesses of Hawkesbury Road over 2008 and 2009.


·    Residents within the precinct were asked to complete a questionnaire.  100 responses were received.


·    Thirty eight businesses on Hawkesbury Road were surveyed and18 responses received.


·    A focus group session was held with businesses on 18 March 2009 and a focus group session with residents on 18 August 2009. 


Main messages from businesses:


·    Main issues related to insufficient parking for visitors and staff and also traffic management.


·    Various solutions were put forward to help alleviate the problems of parking and traffic.


Main messages from residents:


·    Westmead is liked for being central and close to activities and being quiet


·    Dislikes focused on traffic and also generally to safety and cleanliness.


An indication was given to businesses that further opportunity for consultation would be provided following completion of the transport study.




Westmead Integrated Transport Strategy, 2010


Council engaged a consultant to undertake a traffic and transport analysis to prepare an integrated transport strategy for the Westmead Precinct which included a traffic model to guide the future transport needs and assist Council in the preparation of future planning controls and to support the assessment of Development Applications.


The Westmead precinct has limited existing vehicular access and parking problems due to the low use of public transport.  The future transport needs of the precinct need to focus on walking, cycling and public transport to be able to realise the potential development proposed.


The Strategy’s recommendations are below:



Strategy Component


Strategy 1: Increase Public Transport Use and Mode Share

1.1 Increase public transport and walking and cycling mode share to 35% (from 12% currently) (refer to other strategies for detailed recommendations to achieve this target)

Strategy 2 : Increase Walking, Cycling and Public Transport Trips

2.1 Introduce Westmead Sustainable Transport Guide


2.2 Improve pedestrian amenity in Westmead


2.3 Develop way-finding signage plan for walking and cycling


2.4 Develop a regular program of site inspections for surface damage, signposting and vegetation


2.5 Roll out Walking School Bus Scheme


2.6 Close gaps in cycle network


2.7 Provide free secure bicycle parking across Westmead and at Westmead railway station

Strategy 3: Improve Accessibility to Westmead centres

3.1 Introduce continuous cycle and walk connection with Parramatta City Centre


3.2 Introduce a formal cycle route to Parramatta and to the north


3.3 Introduce direct bus connections to areas north and south of Westmead, by extending routes 520, L20 and 545 to Westmead, and divert routes 549, 600, 811, 813 and 815 through Westmead


3.4 Strengthen bus links to west of Westmead


3.5 Assess feasibility of a free shuttle bus within Westmead


3.6 Reduce the interchange time at Granville during the off-peak by increasing rail service provisions between Campbelltown and Westmead (refer to Section 5.8 in support of restoring services on the Cumberland Line)


3.7 Investigate potential demand on Cumberland line services with a view to extend services


3.8 Confirm location of a potential Metro station in Westmead


3.9 Ensure all bus stops in Westmead comply with DDA guidelines


3.10 Improve intersections of Darcy Road / Institute Road, Darcy Road / Bridge Road and Darcy Road / Hawkesbury Road

Strategy 4: Make More Effective and Efficient Use of Available Infrastructure Assets

4.1 Intersection improvements to increase the effectiveness of existing road space (Darcy Road / Institute Road, Darcy Road / Bridge Road and Darcy Road / Hawkesbury Road)


4.2 Bus priority program


4.3 Reallocation of kerbside road space at stations and centres


4.4 Optimise the rail timetable to achieve an even spread of services over the hour


4.5 Better access and kerbside allocation at Westmead CityRail station, new Metro station and T-Way station for bus and walking and cycling users

Strategy 5: Demand Management and Parking

5.1 Review land use and location of new development in respect to closeness to public transport stations


5.2 Infrastructure such as investment in walking and cycling facilities to achieve mode share objectives


5.3 Review parking pricing strategy


5.4 Reallocate existing parking for priority users


5.5 Work with hospitals to manage travel demand


5.6 Introduction of car pooling and car share initiatives as proposed in Section 3.6.1 of the Draft Parramatta Development Control Plan


5.7 Introduce traffic calming plan to precinct


5.8 Promote the existing Park and Ride facilities at the Burns and Riley T-Way bus stops


5.9 Introduce dynamic parking signage


5.10 Support the car parking rates for development within Westmead as proposed in Section 3.6.2 of the Draft Parramatta Development Control Plan

Strategy 6: Affordable and Staged Implementation

6.1 Adopt parking policy based on user pays


6.2 Prepare Sustainable Transport Plan for Westmead


6.3 Consult with stakeholders and develop Draft Concept Plan which includes detailed routing of walking, cycling and public transport


6.4 Develop funding strategy in consultation with RTA, Sydney Metro, RailCorp, Westmead Hospital and Town Centre developers




Metropolitan Plan for Sydney 2036, 2010


The Metropolitan Plan for Sydney 2036 includes the objective (B2) to strengthen major and specialised centres to support sustainable growth of the city. Westmead is identified as a specialised centre in this plan, as indicated below in the strategic concept map.




In Appendix 5 Future Directions for Strategic Centres of this plan, Westmead is identified as a health and biotechnology cluster adjacent to Parramatta Regional City.  A statement of future directions included is as follows:


Health and biotechnology cluster adjacent to Parramatta Regional City

• Future Directions:

— Intensify the cluster of education and health enterprises.

— Investigate opportunities for creating a more vibrant town centre precinct

with active street frontages linking the hospital to the station.

• Examples of State Government support:

Westmead Hospital Redevelopment Stage 2.

—Western Express rail; Chatswood–Epping–Parramatta Rail Link.

—Strategic Bus Corridor 42 (North–West T–way).