prd project management p/l c/- intro design demolition of ... · multi-level buildings comprising...

Development Assessment Commission 15 December 2016

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AGENDA ITEM 3.2.3

PRD Project Management P/L c/- Intro Design Demolition of existing buildings and construction of three (3) mixed use, multi-level buildings comprising residential apartments, offices, hotel accommodation, commercial tenancies and ancillary car parking and landscaping. 79 Port Road, Thebarton 211/M014/16

TABLE OF CONTENTS

AGENDA REPORT ATTACHMENTS 1: DEVELOPMENT PLAN PROVISIONS 2: APPLICATION DOCUMENTS, PLANS AND TECHNICAL REPORTS

a. Development Application Form b. Architectural Plans and 3D Renders (23/09/16) c. Planning Report – Intro Design (15/09/16) d. Certificate of Titles e. Traffic report – Tonkin Consulting (8/08/16) f. Waste & Recycling report – Colby Industries (5/08/16) g. Wind Impact Assessment- Vipac (29/06/16) h. Air Quality and Odour Assessment- Vipac (22/06/16) i. Acoustic Report – Resonate Acoustics (29/06/16) j. Building Services/ ESD Report- Lucid Consulting (4/08/16) k. Landscape concept plan – Tract Consulting (08/08/16) l. Stormwater & Flooding technical report (27/06/16) m. Site contamination investigation- Tierra Environments (22/10/16)

3: AGENCY COMMENTS a. Government Architect b. Adelaide Airport c. State Heritage Unit d. DPTI Traffic Operations

4: COUNCIL COMMENTS / TECHNICAL ADVICE 5: REPRESENTATIONS 6: RESPONSE TO REPRESENTATIONS


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AGENDA ITEM 3.2.3

OVERVIEW Application No 211/M014/16 Unique ID/KNET ID 2016/14229/01 Applicant PRD Project Management P/L c/- Intro Design Proposal Demolition of existing buildings and construction of three (3)

mixed use, multi-level buildings comprising residential apartments, offices, hotel accommodation, commercial tenancies and ancillary car parking and landscaping.

Subject Land 79 Port Road, Thebarton Zone/Policy Area Urban Corridor Zone/ Boulevard Policy Area 34 Relevant Authority Development Assessment Commission Lodgement Date 15 August 2016 Council City of West Torrens Development Plan 5 May 2016 Type of Development Merit Public Notification Category 2 Representations Two representations, one to be heard. Referral Agencies Government Architect, City of West Torrens, Adelaide Airports

Authority, State Heritage Unit (DEWNR), Traffic Operations (DPTI)

Report Author Lauren Moore, Team Leader- Coordinator General RECOMMENDATION Refusal EXECUTIVE SUMMARY The applicant seeks Development Plan Consent for the demolition of existing buildings and construction of three (3) mixed use, multi-level buildings comprising residential apartments, offices, hotel accommodation, commercial tenancies and ancillary car parking and landscaping at 79 Port Road, Thebarton. The subject land is located wholly within the Urban Corridor Zone and more specifically the Boulevard Policy Area 34 of the City of West Torrens Council Development Plan. The Urban Corridor Zone (the Zone) provisions generally seek a mix of medium to high density residential and mixed use development. It also seeks buildings that create a linear corridor which frames the main road with street frontages that establish an activated pedestrian environment at ground level. Buildings of four or more storeys will be the predominant built form. The application was subject to Category 2 public notification pursuant to the City of West Torrens Development Plan from which two formal representations were received against, one of which has indicated they wish to be heard by the Development Assessment Commission. Several referral agencies were also consulted including DPTI Safety and Services Division, State Heritage Unit of DEWNR, Adelaide Airport Authority, Government Architect and the City of West Torrens. The proposed built form exceeds the maximum building height envisaged within the Zone by 4.5m however on balance, the development is considered to achieve appropriate performance outcomes in respect of qualitative and quantitative provisions and is appropriate. Notwithstanding the developments suitability on the subject land with regards to land use and built form, there remains fundamental traffic concerns from the DPTI Traffic Operations on the ability of the intersection to accommodate for the proposed development and the increase in traffic this will cause.


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AGENDA ITEM 3.2.3

On balance, it is considered that the proposal satisfies the general intent of the Urban Corridor Zone and other relevant Development Plan provisions however, further analysis and potential modifications to the proposal are required with regards to vital infrastructure provision for Development Plan Consent to be granted. ASSESSMENT REPORT 1. BACKGROUND

1.1 Strategic Context In October 2013, the Housing Diversity DPA (Part 1) – Port Road Corridor was gazetted. This coincided with the roll out of the Ministers Inner Metropolitan Growth DPA’s to encourage mixed-use forms of development complemented by well-designed and contemporary housing types close to public transport, jobs and vibrant places and thereby enabling a new form of urban living and allowing more people to enjoy the benefits of an inner city lifestyle.

1.2 Pre-Lodgement Process The proponent briefly engaged in the Pre-lodgement Service offered by the Department of Planning, Transport and Infrastructure to proponents of development involving building work exceeding four storeys in height within the Urban Corridor Zone. The proposal was reviewed at one Pre-Lodgement Panel meeting and one Design Review session and the application was then lodged before a pre-lodgement agreement could be reached. 2. DESCRIPTION OF PROPOSAL Application details are contained in the ATTACHMENTS. A summary of the proposal is as follows: Land Use Description

Demolition of existing buildings and construction of three (3) mixed use, multi-level buildings comprising residential apartments, offices, hotel accommodation, commercial tenancies and ancillary car parking and landscaping.

Building Height Office tower: 37.1m Residential tower: 36.7m Hotel tower: 31.4m

Description of levels • Basement- car and bicycle parking • Ground level- urban square, landscaping and car parking • Ground level buildings- retail and commercial tenancies

and commercial vehicle loading • Level 1- communal open space area • Residential flat building (apartments from levels 1-9); • Hotel building (rooms from levels 1-7); • Office building and above grade car parking

(car park levels 1- 4 and Office levels 4-8) Floor areas 90 apartments in total – 72 -2 bedroom and 18 - 1 bedroom.

Floor areas of apartments range from 51 – 78 sqm. Hotel has 105 rooms Total Office GLA 5500 square metres.


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AGENDA ITEM 3.2.3

Site Access Majority of vehicle access from Walsh Street and left in only access via slip lane to the basement car park from Port Road. Three access points from Walsh Street- one to the ground level car park, one to the delivery area and a combined access to the basement and above ground office car park.

Car and Bicycle Parking

Car Total: 340 175 spaces provided in the basement (90 for apartments) 16 at grade 149 spaces in the above ground office car park Bicycle Total: 65 48 spaces provide in the office building. 16 spaces provided in the residential apartment building

Encroachments Canopies are proposed to overhang the property boundaries to provide pedestrian shelter- this will occur along each of the three road frontages where pedestrian access is proposed to the buildings. The development also proposes a slip land along Port Road which will cut into the Council verge and replace the existing footpath within the subject land.

3. SITE AND LOCALITY

3.1 Site Description The development site comprises 11 allotments of some 7000 square metres in area, collectively referred to as 79 Port Road, Thebarton. Legal descriptions of the allotments as follows:

Lot No Section Street Suburb Hundred Title

3 DP 120022 Port Road Thebarton THEBARTON 5259/467



218-223

DP 1038 Port & Walsh Thebarton THEBARTON 5259/470

224 & 247 DP Walsh St Thebarton THEBARTON 5259/472

The subject site has three road frontages being Port Road to the east, Phillips Street to the south and Walsh Street to the west. The shape of the subject land is square and has a gentle slope down to the west from Port Road by approximately 1 metre. The site is currently developed with an existing, predominantly single storey industrial/commercial building built to all four boundaries of the subject site including to all road frontages. There is a small setback of the building on the corner of Phillips and Walsh Street where the entrance, car park and some landscaping is located. Vehicle access to the site is currently gained via three crossovers from Walsh Street. The sites curtilage comprises an existing paved footpath along Port Road, a bituminised footpath along Phillips Street and partially landscaped/compacted gravel verge along Walsh Street where vehicle access is gained. There are a few existing street trees along the all three road frontages however these are not Regulated and do not form an integral characteristic of the locality.


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AGENDA ITEM 3.2.3

No Land Management Agreements, encumbrances or infrastructure easements exist on the titles and no heritage conservation listing exists on the site either in part or whole.

3.2 Locality The site is located on the northwest corner of Phillips Street and Port Road. The surrounding locality is characterised as predominantly commercial in nature with the State Heritage Southwark Hotel and two small commercial premises directly adjoining to the south, Commercial properties to the west, and a car park and commercial properties to the north. To the east is Bonython Park fronting Port Road which is a major strategic transport route road forming part of the Adelaide CBD Ring Route and the tram line including a tram stop located directly to the east of the subject land. Figure 1 – Subject land and locality

Subject Land


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AGENDA ITEM 3.2.3

4. COUNCIL COMMENTS or TECHNICAL ADVICE City of West Torrens Traffic concerns

- It is considered inappropriate for vehicles to reverse into or out of the site. - To address safe and effective traffic movements and pedestrian accommodation,

the realignment of the site boundaries along Phillip Street and Walsh Street is recommended.

- Forecast cue lengths from the entrances of the development will extend past the Walsh/Phillips Street intersection frequently which will cause difficulty for vehicles turning into the development and interrupt the intersection flows.

- Further SIDRA analysis is required to be undertaken to determine if additional turn in/out lanes are required which would then require an additional setback of the hotel building from the corner.

- Consideration be given to an exit lane out onto Port Road. - Turning paths for vehicles entering and exiting the entrances of the development

should be provided. - No pickup/drop off area for guests near the hotel entrance.

Car parking Car parking numbers appear to meet the minimum requirements specified for the Urban Corridor Zone with a number of notes suggested for any approval. Bicycle Parking The location for visitor bicycle parking is considered to be unsatisfactory. The plans should be amended to accommodate bicycle parking near entrances to the various buildings. Road widening Phillips Street and Walsh Street

- Provide a greater setback to the Walsh Street and Phillips Street corner to improve safety for pedestrian access to the hotel.

- Setback of the built form should be taken from the kerb (not the property boundary) as the kerb/verge width to the property boundary is not even along Phillips Street.

Stormwater

- The FFL of the development should ensure the development is protected from inundation when considering a 350mm stormwater flow depth.

- Minimum FFL should be provided to Council to be endorsed - All new stormwater connections to be a minimum of 1m from proposed driveways,

stobie poles, street lights SEP’s and pram ramps. - Stormwater calculations supporting a stormwater detention system is required to

be provided. - Reuse of stormwater back into the building should be encouraged. - Stormwater quality measures as outlined in the State Governments Water

Sensitive Urban Design Policy 2013 shall be provided. Street trees Conflict with at least one street tree on Walsh Street and two on Port Road has been identified. Council insist they are compensated for this public street tree removal. Boundary Overhang The issuing of the appropriate permits for portions of the building which overhang the boundary should be issued prior to any development approval being issued.


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AGENDA ITEM 3.2.3

SAPN Switching Cubicle SAPN are installing a switching cubicle adjacent the Walsh Street frontage which will likely be located in front of the proposed loading dock of the development. It is noted that the applicant has been in discussion with SAPN and will continue to work through the logistics of this issue as the development progresses. Waste Management

- Councils standard three bin waste collection services will not be able to service this development.

- Both locations for refuse pick up are not large enough (should have a greater capacity than one truck at one time).

- Vehicles should enter and exit in a forward direction and turning path diagrams should be provided to demonstrate this.

5. STATUTORY REFERRAL BODY COMMENTS Referral responses are contained in the ATTACHMENTS.

5.1 State Heritage Unit, DEWNR The State Heritage Unit of DEWNR provided the following comments: The proposed development (as amended) is considered to be acceptable in relation to the adjoining State heritage place (77 Port Road, Thebarton- the Southwark Hotel) for the following reason/s.

• The proposed development does not directly affect the physical fabric of the State heritage place.

• The form and massing of the proposed development provide suitable reinforcement of the two-storey scale of the hotel and its streetscape context generally, assisted by the taller building form on the corner having generous set-backs from Port Road and Phillips Street.

• The two-storey podium reinforces the zero street boundary set-backs of the hotel.

• The materiality and articulation of the podium respond appropriately to the historic character and proportions of the hotel

5.2 Government Architect

The Associate Government Architect provided the following comments for the proposal:

• In-principle support for the mix of uses and scale of development for the locality.

• Acknowledgement that the buildings are over height for the policy area however the height, scale and massing is supported.

• The ground level configuration and presentation to Phillip Street is acceptable however the proposed slip lane from Port Road will compromise pedestrian amenity and safety.

• Access to the communal open space for office occupants through the car park may compromise user amenity.

• The 8.5m high podium element of the development is supported. • The building configuration and orientation on the site is supported, the internal

size and layout of the apartments are supported and the building’s design intent to reference surrounding industrial context provides a coherent aesthetic which is supported.

Recommendations:

• Reconsideration of the proposed slip lane from Port Road • Further development of pedestrian safety strategies around the slip lane


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AGENDA ITEM 3.2.3

• Refinement of access and way finding strategies from the office building to the rooftop communal areas

• Further information on landscape maintenance such as irrigation and drainage • Materials and samples board

5.3 Safety and Services Division, DPTI

As the development (and associated increase in traffic volumes) in its current form is likely to result in a detrimental impact on the safe and efficient operation this portion of the Adelaide CBD ring route (which will become unresolvable if the development proceeds) and given that the issues are likely to result in fundamental changes to the development, Traffic Operations cannot support the approval of the application in its current form. Consequently, the Safety and Services Division strongly recommends that the matter be deferred so that the necessary modifications to the development can be undertaken. In the event that the matter is not deferred, Traffic Operations strongly recommends refusal of the application.

5.4 Adelaide Airport The subject land is identified in Map WeTo/5 within Zone C of the Airport Building Heights area where by all structures over 15 metres are required to be referred to the Adelaide Airport Authority. The proposed development has been identified as having a minor intrusion into the Obstacle Limitation Surface (OLS). The Airport Authority has advised that this is marginal and therefore it is deemed appropriate to resolve as a reserved matter to ensure the approval (if required) of the Department of Infrastructure and Regional Development be obtained prior to any final Development Approval be issued. 6. PUBLIC NOTIFICATION The application was notified as a Category 2 development pursuant to the City of West Torrens Development Plan. Public notification was undertaken (by directly contacting adjoining owners and occupiers of the land) and two representations were received against, one of which indicates they wish to be heard by the Commission. Representor

ID Issue Applicant’s Response

R1

Overshadowing of solar panels affecting their carbon neutral target.

Overshadowing has been minimised and will only impact on the two northern most rows of panels in the morning but not from 2pm onwards

Over height by two-storeys

Departure from the maximum height provision of 4.5m is not considered significant due to the location of taller buildings sited further away from the more sensitive land uses.

Access to loading zone during construction will affect business

Refer to traffic management report.

R2 (To be heard)

Over height by two-storeys

Departure from the maximum height provision of 4.5m is not considered significant due to the location of taller buildings sited further away from the more sensitive land uses.


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AGENDA ITEM 3.2.3

Representor ID

Issue Applicant’s Response

Overshadowing as a result will affect solar panels and reduce energy efficiency of the resident/business.

Proposed development has been designed to minimise impacts during winter months by setting the taller buildings away from the southern boundary.

Figure 2 – Representation Map

Three additional representations were also received by the Commission but were either assessed as being invalid (in accordance with the Development Regulations) or received after the close date. 7. POLICY OVERVIEW The subject site is located within the Urban Corridor Zone and the Boulevard Policy Area 34 with the City of West Torrens Development Plan Consolidated 5 May 2016. The relevant planning policies are contained in ATTACHMENT 1 and summarised below.

R1 R2


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AGENDA ITEM 3.2.3

Figure 3 – Zoning Map

7.1 Zone and Policy Area The Zone and Policy Area encourages a diverse range of land uses, providing opportunity for compatible, non-residential and medium to high density residential land uses orientated towards a high frequency public transport corridor such as Port Road. Pedestrian areas should be enhanced to maximise safety and promote activity in appropriate locations. This can be aided through the use of uniform setbacks from the main road, appropriate landscaping and treatments and shielding of onsite vehicle parking from the primary street frontage. It is intended that, over time, development within the zone will produce a linear corridor framing the main roads and establishing an interesting and vibrant pedestrian environment. The desired character of the zone anticipates a new built form, and one that is considerably different from the existing established development context. New buildings will be recognised for their design excellence, ensuring careful building articulation and fenestration, focussing height, mass and intensity of the built from to the main road frontage. Port Road’s function as a strategic transport route will be protected with minimal on-street vehicle parking and access points. Access should be provided from secondary road frontages and rear access ways.

UrC – Urban Corridor Zone - Boulevard Policy Area 34

Subject Land


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AGENDA ITEM 3.2.3

Development will be undertaken within defined building envelopes and the location and scale of the buildings will achieve high quality urban design outcomes. The greatest height, mass and intensity of development will be focussed on the main road frontage, and will reduce in scale to transition down where there is an interface with low rise residential development in adjacent residential zones.

7.2 Council Wide General provisions of relevance to the proposal seek development in appropriate locations of a high design standard and appearance that responds to and reinforces positive aspects of the local environment and built form; and protects and enhances visual amenity. The detailed nature of provisions and objectives contained within the Urban Corridor Zone and more specifically Boulevard Policy Area 34 provide detailed guidance to similar developments further to that which may be contained within Council Wide policy requirements. Medium and high rise development should accommodate a mix of uses with a human scale at ground level and internal designs that facilitate adaptive reuse. The critical Council Wide policies of relevance would specifically relate to transport, access, parking (bike and car), design and appearance, interface with the public realm, interface between land uses and different zones, medium and high rise development, stormwater and environmental principles. Development will also integrate (and supplement where necessary) with existing infrastructure to ensure a cohesive and well executed development in situ with the surrounding locality. The Council-Wide policies of relevance to assessment of the proposal are reproduced in ATTACHMENT 1.

7.3 Overlays

7.3.1 Development Constraints Overlay The subject land is within the Airport Buildings Heights Zone C- All structures exceeding 15 metres above existing ground level. Please note the site is not affected by flooding hazard and it is not identified in as requiring any road widening.

7.3.2 Strategic Transport Overlay The subject land is located within the designated area for Strategic Transport Routes. This overlay seeks the minimisation of access points to Port Road.

7.3.3 Heritage Overlay The subject land is located directly adjoining the Southwark Hotel identified as a State Heritage Place. The building is located on the opposite corner of Phillips Street and Port Road, is two-storey and was built in 1886.

7.3.4 Affordable Housing The subject land is highlighted part of an area where affordable housing options should be provided. No affordable housing has been designated as part of the proposal however, the apartment composition includes 20, one bedroom apartments which provides for more affordable housing options within the development.


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AGENDA ITEM 3.2.3

7.3.5 Noise and Air Emissions Overlay This site is located within the designated area for the Noise and Air Emissions overlay, and as such requires assessment against Minister’s Specification SA 78B for Construction Requirements for the Control of External Sound. 8. PLANNING ASSESSMENT The application has been assessed against the relevant provisions of the City of West Torrens Development Plan, contained in Appendix One.

8.1 Quantitative Provisions Development

Plan Guideline Proposed Guideline

Achieved Comment

Dwelling Density per/ha.

100 (min)

128

YES NO PARTIAL

Building Height

32.5m

Office: 37.1m Res: 36.7m

Hotel: 31.4M

YES NO PARTIAL

As per assessment below, variance not considered unreasonable.

Land Use Mixed use

Mixed use

YES NO PARTIAL

Car Parking 390

339

YES NO PARTIAL

Various discounts are appropriate in the UCZ.

Bicycle Parking

77

64

YES NO PARTIAL

Applicant has applied a 20% reduction for shared mixed use.

Front Setback

0

0-4m

YES NO PARTIAL

Partial setback for slip lane and public square on corner.

Rear Setback 0

0

YES NO PARTIAL

Secondary Setback

0

0

YES NO PARTIAL

Private Open Space

1 Bed: 8sqm 2 Bed: 11sqm

1 Bed:9-10sqm 2 Bed: 9-13sqm

YES NO PARTIAL

Marginal variances on balance considered reasonable.

8.2 Land Use

The Urban Corridor Zone supports mixed use development comprising a range of compatible non-residential land uses in association with medium to high density residential land uses. Mixed land uses (such as offices/retail as proposed) are envisaged by the zone. The proposed development is considered to provide an appropriate mix of land uses which contribute positively to the intent of the zone and provide a reasonable level of public realm activation.


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AGENDA ITEM 3.2.3

8.3 Design, Appearance and Character

8.3.1 Urban Corridor Desired Character Statement:

• Building should establish an interesting pedestrian environment and human-scale though at ground level through careful building articulation and fenestration, verandas, balconies, canopies and landscaping. In general, the greatest height, mass and intensity of development will be focussed at the main road frontage. Buildings of 3 or more storeys will be the predominant built form

The proposed development provides a sufficient level of articulation and whilst the colours proposed have darker tones, the facades are broken up by glazed windows, balconies and canopies, bronze and lighter grey panels and brick materials which provide an industrial character which reflects the surrounding locality. It is noted that the Associate Government Architect (AGA) is supportive of the design intent to reference the industrial forms and material palette of the surrounding context. Further commentary from the desired character statements as follows:

• Where buildings are set back from main roads, landscaping will contribute to a pleasant pedestrian environment and provide an attractive transition between the public and private realm. Large scale development in the zone will facilitate the establishment of areas of communal and public open space, and create links with existing movement patterns and destinations in the zone. Front fencing in the zone will be kept low and/or visually permeable

The proposed development provides public open space at both the ground level in the public urban square and a communal open space on level 1 for residents and office occupants, accessed via the car park for the office and via the north end of the level 1 apartment corridor (door not shown on plans). These areas will have landscaping, shelter, seating and BBQ facilities which provide a pleasant and attractive environment both internally for the occupants of the development and when viewed from the street and neighbouring allotments. The ground level open space area also provides a sufficient level of ‘blurring’ in transition between the public and private realm. The Walsh Street frontage is the main vehicle access frontage (which is the current use of the frontage) however it will still have some visual relief with views and direct pedestrian access through to the landscaped urban square.

8.3.2 Boulevard Policy Area 34

• Buildings of up to eight storeys will have a strong presence to Port Road and Anzac Highway. At lower levels, buildings will have a human scale through the use of design elements such as balconies, verandas and canopies. Development on corner allotments will enhance the gateway function of such corners by providing strong, built-form edges combined with careful detailing at a pedestrian scale to both street frontages

• Podium elements, where higher floors of the building are set back further

than lower level floors, may be used to improve air quality (through greater air circulation), as well as enhancing solar access, privacy and outlook for both the residents of the building and neighbours

• Buildings along Port Road will have zero setback from the front boundary in

order to establish a strong and imposing presence to the road,


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AGENDA ITEM 3.2.3

The building has a strong presence to Port Road and provides a sufficient human scale through the public urban square which runs along the frontage and incorporates covered pedestrian walk ways underneath the proposed two-storey podium. This podium element is supported by the AGA as it provides more solidarity and strengthens the built form edge and provides suitable contextual reinforcement of the adjacent two-storey historic hotel. The AGA expressed concern with the slip lane sited part way along the Port Road frontage and its impact on pedestrian safety and amenity. As advised by the applicant, this slip lane was added to the design following initial discussions with DPTI Safety and Services Division to limit the impacts of traffic moving through the main intersection and Phillips Street was identified as not being conducive to access. The applicant has attempted to overcome the pedestrian amenity and safety by providing a continuation of the council footpath onto the subject land with appropriate use of bollards, painted lines and coloured pavement to highlight the change in environment for pedestrians. This is considered to be a reasonable design response to a technical matter. Overall, the design and appearance of the proposal achieves a sufficient degree of consistency with the policy guidance and has the overall support of the AGA and on balance, the Development Plan.

8.4 Interface/Amenity

8.4.1 Landscaping The proposal includes a detailed landscaping design for the open space areas. Tract Consultants landscape architects have supplied an analysis and design of plantings and landscape architecture for the designated communal open space areas of the development contained in ATTACHMENT 2. The landscaping treatment along the two main road frontages is subtle however is considered to sufficiently visually soften the building facades and provide a soft but defined edge along the Port Road slip lane and Phillips Street corner. The landscaping, seating and raised planter boxes within the ground level urban square creates a greater sense of pedestrian scale and an environment which is inviting and usable both for the public and the occupants of the development. The landscaping, shelters, seating and other activity facilities within the level 1 communal open spaces area provides an important usable outdoor living space which is essential to the success of higher density living as envisaged by the Urban Corridor Zone. Overall, the landscaping concept is considered to have been well conceptualised and satisfies the intent to create a pleasant environment and attractive transition from the public realm to the private. A detailed landscaping maintenance plan will need to be developed however this is deemed to be appropriately addressed by condition to be satisfied prior to any final development approval being issued.

8.4.2 Setbacks The Urban Corridor Zone calls for a zero setback to Port Road to establish a strong imposing presence to the road. The development has incorporated a slip lane to the Port Road frontage which results in the building being stepped back from the front boundary. Further to this, the development proposes a ground level public open space on the corner of Phillips Street and Port Road which continues into the development. The intent of this is to create a shared use, active public realm area along the frontage which will integrate with the public footpath and flow into the urban square. This variance


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AGENDA ITEM 3.2.3

to setbacks has not impacted upon the ability of the building to have a strong and imposing presence on Port Road and again, the AGA has expressed support of the podium which provides solidity and strengthens the grounding of the building on the corner which relates well the two-storey hotel and provides a good presence to Port Road and Phillips Street. All other setbacks comply with the provisions of the Boulevard Policy Area 34.

8.4.3 Overlooking There will be no significant overlooking issues from the development due to the distance of the buildings from the nearest private dwellings. Internally, apartment and hotel balconies are perpendicular to one another and are provided on the same axis ensuring that overlooking is minimal. The proposal does not co-locate balconies and ensures that they do not significantly protrude from the façade further minimising potential for overlooking.

8.4.4 Overshadowing & Building Height The Boulevard Policy Area 34 PDC 13 states that the maximum building height for this portion of the zone is 8 storeys and 32.5 metres. The proposed residential and office buildings are 2 storeys and 4.5m over height. The hotel building on the south west corner is within the building height limits for the Zone. When considering the impacts of this quantitative departure, the proportions and the configuration of the buildings on the site are also considered. The highest buildings are sited closer to Port Road and the commercial/industrial properties to the east and north respectively which reduces their visual impact to the southern locality which contains some residential properties further south. The consistent two-storey podium for all buildings in the development further balances the higher portions of the buildings and architecturally, the scale and massing of the buildings is supported by the AGA. The overshadowing diagrams show that there will be some partial overshadowing of the roofs of the commercial premises at number 3 and 5 Phillips Street in the morning on winter solstice. It should be noted that this overshadowing is caused by the hotel building on the southern boundary which meets the height and setback parameters of the Zone. The Energy Efficiency (Council Wide) provisions of the Development Plan require that development be designed and sited to conserve energy and provide on-site power generation. Whilst the solar panels on number 5 will be impacted upon, it is only during winter months where they will be worst affected, and some portion of the panels will still receive light at all times of the day up until approximately 2PM, when they will all be unencumbered. On balance, the overshadowing and scale impacts of the proposed buildings are considered to have been sufficiently minimised and not unreasonable in the context of the design and site configuration.

8.5 Heritage A State Heritage Listed building (State ID: 11831) known as the Southwark Hotel exists on the southern adjoining corner of Port Road and Phillips Street. The State Heritage Unit of DEWNR has advised that the proposed development will not impact on the context or setting of the heritage place.


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AGENDA ITEM 3.2.3

Further to this, it is noted that removal of the existing E.S Wigg & Son wall has been raised by concerned local residents in informal representations. The building is not a heritage listed building and it was determined early on in pre-lodgement discussions with ODASA and DPTI Planning staff that its retention as part of the proposed development will create contextual imbalance between its single storey form, and the adjoining two-storey Southwark Hotel. For optimal design and street activation success to be achieved, its demolition was considered the best option moving forward.

8.6 Traffic Impact, Access and Parking The applicant has provided a traffic management report by Tonkin Consulting. Parking The 340 car spaces proposed in the basement, the above ground car park and some at grade is considered to be sufficient despite there being a shortfall in accordance with each separate land use. Table WeTo/6, PDC 3 states that a lesser number of parking spaces may be provided based on the nature of a particular development outlined below:

(a) the development is a mixed use development with integrated (shared) parking where the respective peak parking demands across the range of uses occurs at different times

The traffic consultant’s report has outlined that due to the location of the site next to two high frequency public transport modes (bus and tram), the peak times for retail, residential and office which do not conflict, and the shared nature of use of the car parks between the different uses, it is appropriate to apply a discount to the total number of spaces required. Once a 20% discount is applied, a minimum of 339 spaces is required and provided for. Council did not raise concern with the number of parking spaces for vehicles and bicycles however the location of visitor bicycle parking was raised as being unsatisfactory. Bicycle parking is provided and also presents a relatively minor shortfall of 13 spaces. Again, due to the mixed use and shared nature of the parking spaces, the shortfall is not considered to be unreasonable. The bicycle storage spaces are secured and located in convenient locations with end of trip facilities provided for the office accommodation. The applicant has also advised that they will include additional visitor bicycle racks in the urban square once the final design has been formalised. Access/Traffic Management As part of pre-lodgement discussions, the applicant was advised that vehicle access would not be possible from Phillips Street and that the proposed left in only slip lane from Port Road would assist to minimise traffic congestion impacts. Walsh Street was considered to be adequate for the main access/egress for the site and it was flagged with the applicant that DPTI Transport could not alter or improve (provide more ‘green light’ time) at the Phillips Street intersection to assist with the potential increases in queuing. The referral provided by DPTI Transport Operations following lodgement has raised a number of issues relating the road network capacity as summarised below:

• The queue length at the right turn in lane from Port Road to Phillips Street increases beyond the available storage and there is insufficient lane width to lengthen it.

• The queue length at Phillips Street will increase significantly and will block ingress and egress to Walsh Street.

• This development will result in the Port Road/Phillips Street intersection exceeding its capacity.


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AGENDA ITEM 3.2.3

• Whilst Traffic Operations is supportive of the provision the slip lane off Port Road, consideration needs to be given to the impact of service and footpath relocation which should be then dedicated as ‘public footpath’.

• The pedestrian realm adjacent the Port Road/Phillips Street intersection is raised and may pose a barrier, particularly to people with disabilities. Further refinement of this area to ensure a seamless integration with the adjacent footpaths to improve pedestrian safety and comfort.

Possible solutions which require further work:

• The above intersection capacity issues can be addressed through the installation of an additional lane at the Port Road/Phillips Street intersection. Given that land cannot be acquired from the site opposite (i.e. the Southwark Hotel which is a State Heritage item), this will require some land from the site to be dedicated to this purpose. It is noted however that road widening is not identified in the relevant Development Plan at this intersection.

• Installing a ‘Keep Clear’ on the Phillips/Walsh intersection will only exacerbate the queuing on Phillips Street and thus further reduce the capacity of the intersection.

• Some of this issue can potentially be resolved by providing sufficient space at the Phillips Street / Walsh Street intersection to enable through vehicles on Phillips Street to bypass the right turning vehicles.

At this stage, the traffic concerns are not considered to have been sufficiently addressed. Whilst part of the intent of the Urban Corridor Zone is to focus on optimal use of public transport, as one of Adelaide strategic transport routes, failure to address this issue appropriately will potentially cause irreversible and disordered conditions to the existing network which will not only interrupt personal vehicles, but will impact on all forms of transport modes including public transport, emergency vehicle access, bicycle and pedestrian safety.

8.7 Environmental Factors

8.7.1 Crime Prevention The proposal involves various active and passive design elements which assist in the creation of safe and secure areas of the built form. The urban square and car park will have 24/7 security systems and monitoring and will be well lit to enable facial recognition. All residential apartments, hotel rooms, office space and retail/commercial areas have windows which provide external views for passive surveillance. The design of the urban square is open and provides a number of entrance and exit points thereby ensuring no hiding nooks or areas of entrapment are created. Landscaping has been selected to ensure line of sight through the public areas is not impeded and all entry points to the buildings will be clearly identified through the architecture, lighting and signage. The walkways to access each building will be illuminated to ensure safety through surveillance. Balconies and windows face public areas to ensure casual surveillance of these locations. These measures are considered to address the principles of personal safety and provides a sufficient level of passive surveillance to the public and private realms of the development.

8.7.2 Noise Emissions


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AGENDA ITEM 3.2.3

The site is located within the designated area for the Noise and Air Emissions Overlay. Where sensitive development is located within the overlay, the ‘Minister’s Specification SA 78B for Construction Requirements for the Control of External Sound’ applies. The objective of the Minister’s Specification is to protect community health and amenity from adverse impacts of noise and air emissions. The applicant has provided an acoustic report (prepared by Resonate Acoustics) which provides guidance as to the extent of acoustic attenuation and measures that are required to ensure the occupants of the building and residents within the locality are protected. It has been noted in the report that the subject land is mostly surrounded by commercial premises. The nearest residential property is approximately 100m south west of the subject land along Walsh Street. An external noise impact assessment for the activities likely to cause the most noise from the development has been provided. The activities identified are the loading dock, car park and plant equipment. Both the loading dock and car park were deemed to be sited as such that the noise levels generated to the nearest sensitive land uses is within acceptable levels when assessed against the South Australian EPA Noise Policy 2007. During the detailed design phase, noise emissions from external plant will be assessed and mitigation treatments adopted to ensure the requirements of the SA EPS Noise Policy 2007 are met. The report also made a number of construction requirement recommendations including external wall and façade treatments, external glazing to windows and roof and ceiling insulation which again, would be incorporated into the detailed design of the buildings construction. The acoustic assessment and recommendations made are generally consistent with the amenity policies of the Development Plan regarding noise and air emissions and, more specifically, with the Noise and Air Emissions Overlay.

8.7.3 Waste Management A waste management plan has been prepared by Colby Industries and submitted with the proposal. The key waste storage areas for each building is graphically presented in the report and summarised below: Residential, public waste and micro-brewery/restaurant (East Tower)

• Discharge point from two chutes for residential apartments at each level (Dual chute (with e-diverter) – for general waste and recycling to 1,100L skip bins)

• Separate chute – for food organics to 660L skip bin • Separate public place waste bin (660L skip) • Bin storage space • Bin wash area • Temporary hard waste storage area • Spare 1,100L/660L bin set that can be deployed across development (if

and where needed) Hotel Building (West Tower)

• Cafe tenancy waste storage • Hotel waste storage

Office/Car Park (North Tower)

• Offices waste storage area • Provision for bin lifter to empty 140L MGBs containing paper from office

stationery rooms into larger 1,100L skip bin • Market waste storage area


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AGENDA ITEM 3.2.3

• A cardboard baler / compactor • 5/6 m3 skip bin in the loading dock bulky hard waste

The recommended bins sizes and other operating requirements are detailed in the waste management strategy including signage, transfer pathways, automatic bin monitoring, bin cleaning, operation and management. Service collection points Council collection services are not sought in this proposal and the applicant has advised that the intent is for the Property Management to align the collection for all services at specified times to minimise collection events. West Torrens Council expressed concern with the movements and number of collection services (and proposed deliveries), and the impacts this may have on the local road network. There are two areas of the site proposed to be used for collection of waste and delivery of goods. The loading area within the at-grade retail car park and the loading dock in the north office building, both of which are accessed via Walsh Street. As per the report provided, the frequency of anticipated collection from the north office building loading dock is approximately two per day and one delivery per day. The frequency of collection/deliveries from the retail car park area is three waste collections per day and one delivery per day. The at-grade retail parking area collection point will be used to service the eastern and western buildings (hotel, commercial tenancies and residential). Vehicles will enter into the car park in a forward direction and will then need to manoeuvre (three point turn) to exit in a forward direction. The affected at grade parking spaces (2-3) will be predominantly used during business hours of the retail market. It is proposed that Property Management will control the service vehicle collection times to occur outside of peak vehicle movements and business hours (prior to 7AM and after 6PM). The management of collection times will ensure there is minimal conflict with waste control service vehicles and use of the car park. It is also noted that there is no significant shortfall of car parking available for the development as a whole therefore, loss of a few parking spaces (if this becomes an issue) will not significantly compromise the ability of the site to sufficiently cater for off-street car parking. For the northern building loading dock, which will be used to service the office and market place waste, vehicles will need to reverse into the loading dock from Walsh Street and then leave in a forward direction. This is a short reversing length/movement and the traffic consultant has provided turning movement diagrams to demonstrate that only a minor incursion into the opposite lane would occur. It is considered that with control of the collection times being restricted to outside of peak traffic times and the low number of collection/deliveries anticipated per day (outlined above), the impacts on the surrounding locality are manageable. The proposed storage area is generally consistent with Council’s Development Plan regarding waste storage and collection. Furthermore, it is considered that the Waste Management Report from Colby Industries demonstrates that adequate storage and collection arrangements will be in place and these arrangements will not result in unacceptable disruption to traffic movements (provided the traffic issues expressed above are resolved). The proposal is generally consistent with provisions regarding waste storage and collection.

8.7.4 Stormwater Management


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AGENDA ITEM 3.2.3

The applicant has provided a stormwater management plan including calculations as prepared by PT Design. A number of issues were raised by Councils Asset department with regards to stormwater. Each of the concerns of council was specifically covered in the report originally provided as follows: Council Advice 2.1. Regarding the justification of the FFL. This is explained in the 'Stormwater Design" section of our Stormwater Management Report. Council Advice 2.2 Regarding the flow of street water into the basement. Council has specified 350mm above the adjacent water table is required and the applicant has proposed FFL’s that at 300mm above the FFL. The height can be confirmed (and altered if required) subject to final design. Council Advice 3.2 Regarding stormwater disposal locations. All major stormwater will be discharged direct to the existing side entry pit in Port Road ‐ as shown on C01 Stormwater Management Plan. Council Advice 4.1 Regarding Stormwater Detention. This is covered in the "Stormwater Detention" section of the Stormwater Management Report. Calculations are provided in Appendix A of the same report and have been calculated based on the restrictions specified by council in their comments. Council Advice 5.1 Regarding Stormwater Re‐use. This is covered in the 'Stormwater Design" section of the Stormwater Management Report. If viable to do so water retention for reticulation purposes will be adopted. Council Advice 6.1 Regarding Stormwater treatment. A proprietary Gross Pollutant Trap and Oil and Grease Arrestor will be provided in an effort to reduce any potential pollutants leaving the site. A suitably sized and selected treatment device will be specified once we get into detailed design development. Stormwater management is considered to have been sufficiently addressed and the final design of the system will be required to be provided (in consultation with council) prior to any final Development Approval being issued.

8.7.5 Energy Efficiency The Development Plan provides that multi-storey buildings should incorporate roof designs that enable the provision of rain water tanks and other sustainable features. In addition, development should include stormwater harvesting techniques and other ESD initiatives. As outlined in the stormwater management plan, stormwater detention is proposed in the basement. The stormwater management report advised that it may (subject to further consultation with council) propose rain water storage tanks for re-use on site as a trade-off for the required detention volume. It is noted that the apartment layouts and configuration provide good access to natural sunlight and ventilation to provide passive comfort living environments. It is noted that other ESD opportunities may be incorporated into the design in the final design stage.

8.7.6 Wind Analysis and Air Quality


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AGENDA ITEM 3.2.3

The applicant has provided a Wind Impact Analysis as prepared by Vipac who have considered the form and range of wind exposure to the various public areas in accordance with their function and to ensure a reasonable level of comfort can be attained. The recommendations are as follows:

• With the proposed design, the adjacent footpaths would be expected to have wind levels within the walking comfort criterion.

• The proposed development with the recommended corner canopy (>1.2m depth) on the south western corner of the Serviced Apartments would be expected to have wind speeds within the recommended comfort criteria: standing comfort criterion for the hotel entrances, and walking comfort criterion for the surrounding pedestrian walkway.

• The wind conditions of the proposed design at the other main entrance areas would be expected to be within the criterion for standing comfort.

• The public space ‘Urban Square’ proposed on the south side of the development is expected to be within the recommended standing comfort criterion.

• Educating occupants about wind conditions at open terrace/balcony areas during high-wind events and fixing loose, lightweight furniture on the terrace are highly recommended.

In addition to wind impact analysis, Vipac also provided an Air Quality and Odour Assessment. The cumulative air quality impacts of the SA Brewery and Coca Cola boiler emissions have been determined for all prediction locations and the results have determined that proposed developments will comply with all pollutant criteria at all receptors.

8.7.7 Site Contamination The Urban Corridor Zone Desired Character Statement acknowledges that some parts of the Zone, including allotments in Thebarton and Keswick, are potentially contaminated because of previous and current industrial activities. In these circumstances, development is expected to occur on a precautionary basis if site contamination investigations identify potential site contamination, particularly where it involves sensitive uses such residential development. The applicant has provided a site contamination report by Tierra Environment. The existing site has been used as an industrial and manufacturing facility and it is noted that the site is almost completely sealed. This report advised that some previous activities conducted on the site the last 100+ years has resulted in a possible likelihood where site contamination is expected to be present sometimes. Given this initial assessment, it is recommended once construction commences at each stage, testing and appropriate site remediation shall be carried out. An analysis outlining the contamination treatment shall be provided in consultation with the EPA and to the satisfaction of the Development Assessment Commission, prior occupation of the development should approval be issued. 9. CONCLUSION The proposed development is to demolish the existing buildings and construct three mixed use, multi-level buildings comprising residential apartments, offices, hotel accommodation, commercial tenancies and ancillary car parking and landscaping.


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AGENDA ITEM 3.2.3

The proposed mix of land uses are considered to be compatible and align with both the Urban Corridor Zone and more specifically the Boulevard Policy Area 34. The design departures of the proposal being over height and not built on the front boundaries is not considered to detrimentally impact on the overall success of the integrated complex in this locality. Notwithstanding the above assessment, the issues regarding impacts on the existing strategic transport network requires further consideration and in its current form based on the information provided, refusal is warranted. 10. RECOMMENDATION It is recommended that the Development Assessment Commission:

1) RESOLVE that the proposed development is NOT seriously at variance with the relevant policies in the Development Plan.

2) RESOLVE to REFUSE Development Plan Consent to the proposal by PDR Project

Management for the demolition of existing buildings and construction of three (3) mixed use, multi-level buildings comprising residential apartments, offices, hotel accommodation, commercial tenancies and ancillary car parking and landscaping for the reasons listed below:

The anticipated additional traffic volumes as a result of the proposed development will have a detrimental impact on the safe and efficient operation of the Adelaide CBD ring route which is a major strategic transport route for the city. This is an issue which must be resolved before any approval can be contemplated, particularly for scale of development anticipated on this site and within the wider locality. The proposal is considered to be at odds with the following provisions within the City of West Torrens Development Plan Consolidated 5 May 2016: Council Wide Orderly and Sustainable Development PDC 6 Where development is expected to impact upon the existing infrastructure network (including the transport network), development should demonstrate how the undue effect will be addressed. The applicant has not sufficiently demonstrated how the impacts on the existing road network will be sufficiently mitigated. PDC 7 Vacant or underutilised land should be developed in an efficient and co-ordinated manner to not prejudice the orderly development of adjacent land. The proposed land is considered to be under-utilised however, should the development proceed in its current form, the impacts to the traffic network in this location will be irreversible, and will have flow-on impacts on the ability for adjoining land in the area to be developed in an orderly and efficient manner. Transportation and Access Objective 2 Development that:

(a) provides safe and efficient movement for all transport modes (b) ensures access for vehicles including emergency services, public infrastructure

maintenance and commercial vehicles


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AGENDA ITEM 3.2.3

It has been determined by DPTI Traffic Operations that the anticipated queuing of vehicles as a result of the development (shown through traffic modelling provided by the applicant) is considered to seriously impact on the ability to provide efficient and safe movements for all transport modes at this intersection, including emergency vehicles. PDC 2 Development should be integrated with existing transport networks, particularly major rail, road and public transport corridors as shown on Location Maps and Overlay Maps – Transport, and be designed to minimise its potential impact on the functional performance of the transport network. The information provided indicates that the proposed development does not integrate with the existing transport network and will detrimentally impact on the functional performance of the network. Strategic Transport Routes Overlay Objective 1- Development that recognises the importance of strategic transport routes and does not impede traffic flow or create hazardous conditions for pedestrians, cyclists or drivers of vehicles, including emergency services vehicles. The proposed development will impede traffic flow and potentially create hazardous conditions for all users of the road.

LAUREN MOORE TEAM LEADER COORDINATOR GENERAL & PUBLIC HOUSING DEVELOPMENT DIVISION DEPARTMENT OF PLANNING, TRANSPORT and INFRASTRUCTURE

prd project management p/l c/- intro design demolition of ... · multi-level buildings comprising...

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