Nillumbik Shire Planning Scheme - Amendment C85 expert evidence - Craig Czarny
Nillumbik Shire Planning Scheme
Amendment C85
Lot 1 Graysharps Road, Hurstbridge
Statement of Urban Design Evidence, by Craig Czarny
Hansen Partnership for Nillumbik Shire Council
June 2015
Introduction
My name is Craig Czarny and I am a director at Hansen Partnership. I have over 26 years’ experience in urban design and landscape projects in Australia and overseas. I hold a Bachelor degree in Planning and a Masters degree in Landscape Architecture and have provided urban design, streetscape and public domain advice on a number of development projects of varying scale. Projects that I have managed have received awards from the Planning Institute of Australia (PIA) and Australian Institute of Landscape Architects (AILA). I have an appreciation of the urban form, streetscape and landscape issues associated with residential, commercial, industrial and townscape settings, having provided advice on a number of Activity Centre and Neighbourhood Character Studies. I also have a sound appreciation of townscape and character issues in the Nillumbik Shire, having previously prepared urban design advice on behalf of both Council and private clients for a number of development proposals in the municipality.
On this occasion, I have been engaged by Nillumbik Shire Council to provide expert urban design commentary of the key urban design matters relating to proposed Amendment C85 to the Nillumbik Shire Planning Scheme. The Amendment seeks to rezone land at Lot 1 Graysharps Road, Hurtsbridge and apply development controls in the form of Development Plan Overlay (DPO7). The Amendment also seeks to retain existing controls including the Design and Development Overlay (DDO5), the Land Subject to Inundation Overlay (LSIO) and the Environmental Significant Overlay (ESO1).
I have inspected the site on a number of occasions, most recently on the 25th May 2015. I have reviewed relevant background to the proposal, including exhibited Amendment documentation, Council reports and corresponding submissions in association with relevant sections of existing State and Local Planning Policy. I also have an awareness of the site’s development context having contributed to the preparation of Council’s Hurstbridge Design Guidelines: Heidelberg – Kinglake Road (Main Road) Precinct (2013) and the Guidelines of November 2014.
In summary, I support proposed Amendment C85 to the Nillumbik Shire Planning Scheme as it demonstrates an appropriate township development opportunity and serves as a natural extension of the residential threshold within the existing Urban Growth Boundary. The proposed Amendment is grounded in a sound urban design rationale and presents a suitably flexible planning and design regime that allows for various forms of compatible intergenerational residential growth.
The site and context
Proposed Amendment C85 to the Nillumbik Shire Planning Scheme applies to 1 particular land holding on the western side of Heidelberg – Kinglake Road, identified as a ‘strategic development site’ suitable for change within the Hurstbridge Concept Plan (adopted 2010). The site is located at Lot 1 Graysharps Road, approximately 330m from the Hurstbridge Town Centre. It is an irregularly shaped vacant lot with a total land area of 1.8ha. It has a narrow frontage to an existing at-grade car park to the east (accessible via Graysharps Road), which serves Hurstbridge Family Centre and recreational uses. The site is generally flat and located on elevated ground overlooking Diamond Creek parklands to the west and wetlands to the south. The site has the following abuttals:
· To the north, the site adjoins the Hurstbridge Memorial Park which encompasses Ben Frilay Oval and the Hurstbridge Bowling Club. Canopy vegetation frames this site from east to west, bordered by Diamond Creek.
· To the west is the Diamond Creek reserve comprising dense bushland, native canopy vegetation and pedestrian trails. A pedestrian bridge across Diamond Creek connects the trail from Heidelberg- Kinglake Road (east) to Knowle Grove and elevated residential precincts to the west of Diamond Creek.
· To the south, the site abuts the recently established wetlands and the Hurstbridge East Oval. Diamond Creek borders this site to the south and west. A continuous walking trail wraps around the northern, western and southern boundary of the site, winding between the community recreational facilities and public open spaces, terminating at the Hurstbridge East Oval.
· To the east, the site has a direct interface to the rear of the Hurstbridge Community Hub comprising a public car park, detached gymnasium and landscaped gardens. Further to the east is a rail reserve which services the Hurstbridge line to Melbourne CBD and Heidelberg-Kinglake Road which is the main road to and from the Hurstbridge Town Centre.
In the broader context, the site is located within the Hurstbridge Township (Precinct 2: Former Hurstbridge Secondary College Precinct of the Hurstbridge Concept Plan, 2010). The precinct is located in proximity to the following facilities (within 500m radius):
Hurstbridge Town Centre and associated Hurstbridge Railway Station, Police Station, the Allwood house, the Bowls Club and Childcare Centres.
Community uses: the Hurstbridge Community Hub and Hurstbridge Gym, the Hurstbridge Primary School and the Hurstbridge Farmers Market site.
Open space and recreational uses: Ben Frilay Oval, Hurstbridge Memorial Park, Hurstbridge East Oval, recently established wetlands and Ferguson Park and Diamond Creek corridor.
Due to the constrained boundary of the Hurstbridge Township, main street format and typically low building scale, the area has a dominant ‘rural village’ character as espoused in Clause 22.12 – Neighbourhood Character Policy, the Township Zoned land within Hurstbridge is also nominated as SB4- Semi Bush precinct. This image is reinforced by historic buildings, informal street layout, significant native canopy vegetation and panoramic views towards the hills from the Town Centre. Residential streetscapes are wide with low, or no fencing and dense vegetation creating an enclosed effect within the varied front setbacks.
Built form characteristics of dwellings in the surrounds typically comprise traditional residential materials (brick, timber and corrugated iron), in earthy colours and muted tones. Roof forms vary with a mixture of pitched, gabled and angled presentations.
The site and the context are represented in the place values diagram overleaf.
Existing Planning Regime
The site is currently located within Public use Zone – Education (PUZ2), the purpose of the zone is;
· To implement the State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies.
· To recognise public land use for public utility and community services and facilities.
· To provide for associated uses that are consistent with the intent of the public land reservation or purpose.
The site is also subject to a number of Overlay controls, including:
· A Design and Development Overlay (DDO5) applies to the site which provides urban design guidelines for the Hurstbridge Township which reiterates the importance of its ‘rural village’ character.
· A Land Subject for Inundation Overlay (LSIO) applies along the southern boundary of the site which relates to area affected by the 1 in 100 year flood.
· An Environmental Significance Overlay (ESO1) also applies along the site’s western boundary which relates to protection and enhancement of the environmentally significance and strengthening of habitat links. It is currently under Council’s review (Stage 3) with recommendation for removal via a separate Planning Scheme Amendment process.
Relevant State and Local polices relating to urban design are as follows:
· Clause 11.00 – Settlement
· Clause 15.01 - Urban Environment
· Clause 16.01 - Residential Development
· Clause 21.02 – Municipal Overview & Regional Context
· Clause 21.03 – Municipal Profile & Key Influences
· Clause 21.04 – Vision – Strategic Framework
· Clause 21.06 – Future Strategic Work & Education
· Clause 22.12 – Neighbourhood Character Policy
In addition to State and Local Policy, the following reference and background documents are identified:
· Plan Melbourne (MPA, 2014)
· Hurstbridge Township Strategy (2000)
· Hurstbridge Concept Plan (2010)
· Hurstbridge Design Guidelines Heidelberg – Kinglake Road (Main Road) Precinct (March 2013)
· Lot 1 Graysharps Road, Hurstbridge Neighbourhood and Site Description and Urban Design Guidelines (November 2014)
The Proposed Amendment C85
The Proposed Amendment C85 to the Nillumbik Shire Planning Scheme seeks to:
· Rezone the former Hurstbridge Secondary College site (Lot 1 on 44 Graysharps Road, Hurstbridge) from the Public Use Zone (PUZ2) to Township Zone (TZ) without particular Schedule, to facilitate the development of intergenerational housing.
· Apply a new Development Plan Overlay (DPO) to the site with Schedule No.7, specifying particular Design Objectives, Conditions and Requirements for Permits, Requirements for Development Plan and Decision Guidelines.
The broad ambitions for the Township are set out in Council’s Municipal Strategic Statement (MSS) at Clause 21.03 - Municipal Profile & Key Influences. The principal instrument in managing future development within the Hurstbridge Town Centre is through the implementation of Heidelberg – Kinglake Road (Main Road) Precinct Character Guidelines (2013) through DDO5, which remains applicable to the subject site.
The proposed rezoning of the land into Township Zone (TZ), with a new Development Plan Overlay (DPO7) and associated design controls contained within the existing DDO5 represents a significant step in the redevelopment opportunity of this site. Importantly, the proposed planning controls have sought to ensure retention of the valued neighbourhood and landscape character, whilst accommodating for potential diverse residential offering.
Urban Design Assessment
In reviewing proposed Amendment C85 to the Nillumbik Shire Planning Scheme, I have considered the key urban design and development plan ambitions spelt out in supporting background documents, strategies and the various design based issues raised in submissions following exhibition of the proposed Amendment. I note that a total of 68 submissions were received which outlined a range of concerns and supports. While some submissions expressed no objections, 28 submissions opposed the Amendment, either due to concerns about the prospect of medium density residential development of the land or the threat of eroding neighbourhood character due to possible overdevelopment. Based on my review of this material and the particular instructions provided to me, I believe that the key urban design questions that require consideration relate to:
a. The site’s potential as a redevelopment parcel.
b. The kind of urban design tools available for implementation, and
c. The likely development outcome in terms of character and ‘fit’.
I have addressed these matters individually below:
The site’s potential as a redevelopment parcel
Proposed Amendment C85 to the Nillumbik Planning Scheme seeks to facilitate the future redevelopment of the former Hurstbridge Secondary College site into an integrated housing precinct that fits comfortably within the context of the site and within the construct of the broader Hurstbridge Township. While a review of Amendment documentation in isolation suggests that the proposed rezoning of the land is a freestanding initiative, it is very important to recognise that the project has been identified as a potential development site in support of housing diversity and 'ageing in place' for over a decade – as outlined in the earlier Hurstbridge Township Strategy (2000) and subsequent Hurstbridge Concept Plan (2010). Council’s proactive role in purchasing the site from the Victorian Department of Education and Early Childhood Development (VDEECD) means that it can carefully manage and monitor development outcomes so that they are generally compatible with the strategic ambitions for the Township. In relation to the potential of the site as a redevelopment parcel, I note;
· The site is generous in area, comprising a 1.8ha parcel within the urban growth boundary of the Hurstbridge Township. The site can be recognised as a ‘strategic development parcel’ due to its size and location.
· The site is particularly well- positioned with respect to community services and facilities and has excellent and direct physical links to the Hurstbridge Community Hub and associated gym and recreational precinct. It is also closely aligned to the Hurstbridge Railway Station and subsequently connected to local commercial services and facilities across the railway line.
· A feature of the site is its relationship to the Diamond Creek corridor and a suite of passive and active recreational facilities that line its eastern bank, in particular the recently established wetlands to the south in tandem with recreational walking trails. The Ben Frilay Oval and Hurstbridge Bowling Club accord successfully with the recently opened Hurstbridge Community Hub. As a residential development parcel, I consider the site to be complimentary in terms of its potential aspect and attributes.
· Importantly, the site is serviceable and readily available for development with relatively limited constraints (other than those imposed by the Nillumbik Planning Scheme in relation to design and character). The site is broadly flat and does not contain significant vegetation assets. It is viably accessible via Graysharps Road to the north, which is connected to Anzac Avenue across the railway line. It provides an excellent opportunity for a well-designed urban interface with the Creek corridor and associated open spaces, noting the potential for surveillance and improved activation of these assets.
· Subject to the successful management of flooding under the LSIO, bushfire and community safety parameters (as defined by the CFA) and associated interface management matters, I consider the former Secondary College site to be well placed to accommodate for moderate housing growth within the Hurstbridge Township.
Due to the location and nature of the site, there is a potential for a development format that is both distinct and grounded in what is traditionally found within the Hurstbridge Township. Whereas much of the surrounding Township Zone comprises standard suburban or large lot subdivision on undulating terrain with a strong native landscape overlay, the former College site on Graysharps Road presents quite different characteristics, which suggests an alternative design response (in terms of a site planning model). To this end, the proposed Amendment seeks to indicate that a 'village lifestyle' model of development is more compatible to a standard suburban subdivision or other more intense opportunities, such as medium or high rise apartment configurations. In relation to the residential development opportunities, I note;