Botany Bay Local Government Area
LEP Standards and Urban Design Controls Study
for the City of Botany Bay LEP 2011
Report prepared for
Botany Bay City Council
September 2010
Contents
1 Introduction.......... ......................................................................................................... i
2 Executive Summary............ ........................................................................................... 1
3 Literature Review...... .................................................................................................... 8
4 Methodology... ............................................................................................................ 18
5 Study Area 1: Mascot Station Precinct and Sydney Airport Surrounds.. ........................... 39
6 Study Area 2: Mascot/Rosebery and Eastlakes.... .......................................................... 57
7 Study Area 3: Botany and Banksmeadow... ................................................................... 86
8 Study Area 4: Pagewood.... ....................................................................................... 101
9 Study Area 5: Eastern LGA Centre – Daceyville to Hillsdale... ....................................... 111
10 Outcome of Capacity Analysis.... ................................................................................ 131
11 Proposed LEP and DCP Controls.... ............................................................................. 137
12 Further Research....................................................................................................... 152
Appendix 1: Opportunities and Constraints Maps... .......................................................... 153
Appendix 2: Zoning, Height and FSR Maps.... .................................................................. 162
1
Introduction
Neustein Urban together with David Lock Associates and Taylor Brammer Landscape Architects
were commissioned by the City of Botany Bay and Department of Planning to inform the
development of the City of Botany Bay’s LEP 2011. The purpose of the study is to translate
recommendations of the Botany Bay Planning Strategy 2031, prepared by SGS Economics and
Planning in 2009, into LEP Standards (FSR, height and zone) and urban design controls for five
study areas within the Botany Bay Local Government Area. These areas, identified by Council,
have been targeted for an increase in employment and residential capacity. They include the
following and are described in more detail in their respective chapters.
Table 1.1: Five study areas identified by Council
Study area
Study Area 1 – Mascot station
precinct and Sydney Airport
surrounds
Study Area 2 – Mascot/Rosebery
and Eastlakes
Location
Area bounded by Gardeners Road, Alexandra Canal, Qantas Drive
and the area in the vicinity of O’Riordan Street.
Study Area 3 – Botany and
Banksmeadow
Area includes:
•
Proposed B5 zoning in Bay, McFall, Erith, Underwood and
Chegwyn Streets
•
Proposed B2 zoning along Botany Road, Banksmeadow
•
Proposed B4 zoning along Swinbourne Street
•
Proposed B5 zoning bound by Botany Road, Wilson Street,
Herford Street and Stephen Road
Study Area 4 – Pagewood
Area includes the proposed B1 zoning of Holloway Street and Dalley
Avenue and the proposed R3 zoning between Holloway Street and
Wentworth Avenue.
Study Area 5 – Eastern LGA
Centres – Daceyville to Hillsdale
The area of Hillsdale bound by Denison Street, Beauchamp Road,
Bunnerong Road and Wentworth Avenue.
Area generally bounded by Gardeners Road and Southern Cross Drive
and the area in the vicinity of Botany Road. The area also includes:
•
Proposed B6 zoning along Wentworth Avenue
•
Proposed B1 zoning at the corner of Maloney and King Streets
•
Eastlakes Shopping Centre
Figure 1.1: Study Area Key Plan illustrates the study areas and their geographical relationship to
each other. Detailed maps of each of the study areas, including aerial maps are included in the
respective study area chapters.
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Figure 1.1: Botany Bay LEP Study Area Key Plan
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The aim of this study is to develop LEP and urban design controls that will assist the City of
Botany Bay to meet its subregional targets for housing and employment. This information
will enable the preparation of a new comprehensive LEP in accordance with the standard LEP
instrument as well as a single DCP for the entire local government area (LGA).
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2
Executive Summary
2.1
Botany Bay Planning Strategy 2031
This study has been prepared for the Botany Bay City Council and the New South Wales
Department of Planning. The general purpose of the Urban Design and LEP Study is to define
planning controls to be implemented so that the City of Botany Bay may meet its subregional
targets for housing and employment in ways appropriate for its population and its built
environment. The study was preceded by the Botany Bay Planning Strategy 2031 (BBPS),
prepared by SGS Economics and Planning that recommended a number of short, medium and
long term actions that would enable the City of Botany Bay to achieve its subregional targets.
Following a detailed examination of the means by which the BBPS sought to provide for the
housing and employment targets, the study team determined that alternative means of
reaching these targets needed to be devised. Like the BBPS, this study finds that the housing
and employment targets will be substantially satisfied by development in the Mascot Town
Centre. Development elsewhere will provide a useful addition to the number of dwellings and
jobs in the Mascot Town Centre but these numbers will only ever be subsidiary to the Town
Centre.
2.2
Constraints and opportunities
A starting point for any such study is the mapping of constraints and opportunities for the
study area. Chief amongst constraints are the numbers of allotments which have been
recently developed or are developed already to a level which may not be replicated under
current or future planning controls. Another very important constraint is that set by strata
plan development in the residential areas of the municipality. This was particularly noticeable
in Hillsdale and Eastlakes where the planning strategy had suggested a concentration of
future residential development of medium to high density. It is the assessment of this study
that redevelopment of sites which are already subject to strata plan title is not feasible even
under the changes currently under consideration by the New South Wales State Government.
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The study also mapped opportunities for development and the most important of these were
large sites or groups of sites held in a single ownership. Mascot Town Centre is characterised
by large sites and this enhances the possibility of the use of these sites for residential and
business development. The area of residential development in Mascot Town Centre will be
able to be increased due to revised ANEF noise mapping which has increased the area below
the ANEF 25 contour. Development in this area is permissible subject to the imposition of
conditions requiring residences to meet AS2021 ‘Aircraft Noise.’ An increase in the residential
and employment capacity of the Mascot Station precinct will only be possible if traffic and
transport issues are resolved. We recommend as the next step in the LEP and DCP making
process that Council undertake a Transport Management and Accessibility Plan (TMAP).
2.3
Dwelling targets
In order to establish dwelling and employment capacities, the study has assumed that the
Mascot Town Centre will be developed by 2031 and that where ever possible, developers will
incorporate apartments as these are the highest and best return. Generally speaking, the
Mascot Town Centre is divided north from south along a line traversing the railway station. To
the north, in an area now no longer subject to aircraft noise constraints, the study proposes
extensive residential development. To the south, in an area more vulnerable to aircraft noise,
the study proposes business development at a high density in order to ensure sufficient gross
floor space to meet the employment targets set for the municipality. By concentrating
development in the Mascot Station precinct the dwelling and employment targets can be
achieved without requiring a radical transformation in areas of single dwellings.
Other areas that were designated for residential development in the planning strategy were
proposed to be rezoned to R3 in the draft local environmental plan. However these areas are
often comprised of very small allotments and development of these allotments to produce
medium to high density development is not considered realistic. For that reason the study
recommends two possible alternatives, either subdivision into narrow 6m allotments or
alternatively small amalgamations to create low scale residential flat buildings. These
residential flat buildings will be restricted in their car parking to numbers no greater than are
already accommodated on the allotments. That is, amalgamating two allotments and creating
four apartments will not allow each apartment to have parking. On-site parking levels will be
restricted to parking already available.
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This recommendation for restricted parking for new small apartment buildings has been the
subject of some discussion with Council and the Department due to potential street impacts
associated with this proposal. It is unlikely that it will be supported by Council. If subdivision
is to be the only method of increasing the density of residential development in the R3 zones,
then there is no need to zone these residential areas to R3, instead leaving them as R2. This
is a matter for Council and Department decision-making.
In general, the City of Botany Bay is able to achieve its dwelling targets based upon the
important consideration that the targets are set in regard to a 2004 baseline. The study
forecasts an increased residential dwelling capacity of 7,460 to 8,242 compared with a target
of 6,500 dwellings. 1,015 are already constructed. As previously stated, the ability for
Botany Bay to achieve its residential target is dependent on the findings of the TMAP study.
2.4
Employment targets
Employment targets for the municipality were generally seen to be more easily achieved than
the dwelling targets. The largest concentration of jobs will be in the Mascot Town Centre. A
number of jobs can be created in a number of small strip centres which form part of the
fragmented study area which was examined.
Again, the employment targets are set from a 2001 baseline. The study allows sufficient
development to provide for between 17,900 and 23,500 additional jobs outside Sydney
Airport and Port Botany. The target is sufficient floor space for 16,700 employment by 2031.
2.5
Vision for the City of Botany Bay
A vision for the City of Botany Bay has been created in order to guide how Botany Bay will
accommodate the increase in population growth. Our vision has been reinforced by the
findings of our study which has principally sought to define how the BBPS could be translated
into specific LEP and DCP controls that would enable the City of Botany Bay to achieve the
dwelling and employment targets set by the State Government.
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The City of Botany Bay is to grow by the encouragement of higher density
residential and commercial development along its main arteries, Botany and
Gardeners Roads and by the development of a vibrant and creative Mascot Town
Centre around the Mascot railway station. Intrusion of higher density residential
development into single dwelling areas is to be limited generally and, where
permitted, restricted to a scale in context with existing building stock.
2.5.1
Dwelling increases
Already the centre of new development, the Mascot Town Centre will be the major residential
and commercial hub of the city with its high density residential development around the
relatively new railway station. This area has the potential to be Sydney’s creative new
work/civic suburb. A TMAP, as previously stated, is essential to ascertain how the proposed
duplication of the M5 east will affect the Mascot area. Other studies such as an LGA wide
Open Space Strategy as well as the urban design of the Mascot Town Centre public domain
are considered essential next steps.
Large sections of the study areas, particularly Study Areas 2 and 5, were designated for
medium density residential development zoned R3. Neither Council nor the planning team
wishes to see the replication of three-storey development such as occurs in Eastlakes and
Hillsdale. With the very small allotments characteristic of these areas, the only alternatives
proposed by the study were subdivision into narrow allotments or small site amalgamation of
up to three sites. Neither of these two methods produces large increases in dwelling numbers
and, were it not for the Mascot Town Centre, Botany Bay would not be able to reach its
designated dwelling target. The study recommends, as a minimum, allowing subdivision of
sites in the areas currently proposed to be designated R3 to produce allotments of not less
than 6m width. No allowance is made for the redevelopment of existing three-storey walk-up
apartment buildings which are subject to strata title and therefore unlikely to be available for
higher density redevelopment.
The BBPS did designate Botany and Gardeners Roads for mixed-use redevelopment, with
apartments in those areas that not subject to aircraft noise constraints. The current study
recommends that Botany and Gardeners Roads, which are the City's arteries, be lined with
development of up to six stories along most of their length, to take advantage of public
transport. Existing development along these arteries is often two to three storeys in height
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and Council has rarely permitted building heights greater than four storeys. Six storey
development, as recommended along the arteries, might be seen as discordant, but the study
recognises that new development will be strata titled and a much longer perspective is
required for such buildings as they have a life in excess of 50 years. The numbers of
dwellings and employment space generated by this arterial development will be an important
addition to municipal numbers but nevertheless subsidiary to the Mascot Town Centre.
A number of small sub-areas are also included in the study areas (such as Eastlakes and
Botany Road near Mascot in Study Area 2) and for most of these, four-storey mixed use
development is recommended. The purpose behind this development is to increase levels of
activity and density in small concentrations which will give some street life to their respective
locations.
2.5.2
Employment increases
Concentrated, medium rise development for business purposes in the southern half of the
Mascot Town Centre will, by itself, ensure that the municipality meet its employment targets.
From studies carried out previously by this firm, the natural development potential of these
areas is in the order of FSR 3.0:1. Employment numbers are based on a range from one
person per 25 m² for office type development to one person per 80 m² of gross floor space
for warehouse and distribution uses.
Along the arteries of Botany and Gardeners Roads, particularly where aircraft noise restricts
apartments, business development is proposed. Increasing density along these
thoroughfares will intensify street life, and, it is hoped, will reinforce the public transport
network of the municipality. The number of jobs to be generated by this type of development
is not great but the economic activity should greatly enliven the municipality.
Employment generation in other locations, the fragmented individual sites of the study area,
is not expected to be great enough to bolster the figures. Development on Wentworth
Avenue has particularly good prospects.
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2.6
Capacity testing
In general, the following capacity assumptions were made. In Mascot Town Centre, most
development will be in place by 2031 and that the current traffic issues have been addressed
by the recommended TMAP. This assumption is based on the large lot subdivision which is
currently there and the ability of developers to use the large sites quickly and without
needing further site amalgamation.
Elsewhere, it is generally assumed that 25% of all available sites will be developed in the
short term and 50% by 2031.
Capacity testing was based on these assumptions and it was found that the municipality will
meet its requirements for dwelling numbers and employment by 2031. The study again notes
that the baseline for the employment target is 2001 and 2004 for the residential.
2.7
Proposed planning/urban design controls
A range of urban design/planning controls have been proposed to reflect the assessment and
capacity testing carried out in the study. Particularly in existing single dwelling areas,
planning controls have been based on the proposition that change should be evolutionary and
not revolutionary. This means that in residential areas, new development should not be
greatly taller than existing development. Opportunistic sites, for which bonuses in floor space
and height are available, are an exception to this rule and will need to be assessed on merit.
It is recommended that this be achieved through the implementation of a local provision, as
stated in more detail in Chapter 11.
In Mascot Town Centre, without the constraints of existing surrounding residential
development, the level of development is to be greatly expanded. Although this area will
need to be subject to further studies such as a TMAP and town centre design study.
The study proposes an abbreviated range of development controls in which detail on the
architectural solutions required is not given (Chapter 11). An enhanced role is recommended
for Council‘s Design Review Panel in order to free developers and their architects from
unnecessary restriction on innovation whilst at the same time promoting good design. All
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residential development should be subject to the Residential Flat Design Code referenced
under SEPP 65. Between the design panel and the code, architectural excellence is expected.
It is important to recognise that while the study does recommend LEP and DCP controls,
these can only apply to the five study areas, which is only a small part of the Botany Bay
LGA. Additional work will be required to incorporate these controls into an LGA wide LEP and
DCP that is prepared in accordance with the Standard LEP template. Chapter 12 makes a
number of recommendations for areas of further research that are recommended as the next
step in the preparation of the Botany Bay LEP and DCP.
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