Draft Parramatta CBD Masterplan

--- tags: NSW, Masterplan, Draft --- # Draft Parramatta CBD Masterplan *Date Uploaded* *15/12/2020* *Date Released* *04/03/2020* *URL* * http://cityofparradev.prod.acquia-sites.com/sites/council/files/2020-03/Draft%20Parramatta%20CBD%20Planning%20Proposal%20-%20March%202020.PDF ### PLANNING PROPOSAL ### Parramatta CBD ### AMENDMENT TO PARRAMATTA LEP 2011 ### March 2020 ## TABLE OF CONTENTS TABLE OF CONTENTS.......................................................................................1 INTRODUCTION .................................................................................................4 PART 1 – OBJECTIVES OR INTENDED OUTCOMES .....................................50 PART 2 – EXPLANATION OF PROVISIONS ....................................................51 PART 3 – JUSTIFICATION................................................................................60 PART 4 – MAPPING..........................................................................................98 PART 5 – COMMUNITY CONSULTATION .......................................................99 PART 6 – PROJECT TIMELINE ...................................................................... 100 Appendix 1a – Part 7 of PLEP 2011 instrument affecting Parramatta CBD...... 101 Appendix 1b – PLEP 2011 Maps affecting Parramatta CBD............................ 112 Appendix 2a – Proposed LEP Amending Instrument ....................................... 113 Appendix 2b – Proposed LEP Maps ................................................................ 114 Appendix 3 – CBD Planning Strategy (2015)................................................... 115 Appendix 4a – Gateway determination ............................................................ 116 Appendix 4b – Satisfying the Gateway conditions............................................ 123 Appendix 5 – Heritage Study (Urbis) 2015....................................................... 129 Appendix 6a – Heritage Study of Interface Areas (Hector Abraham Architects) 2019130 Appendix 6b – Council’s response to Hector Abraham Architects report ......... 131 Appendix 7 – Omitted ...................................................................................... 132 Appendix 8 – Marion Street Precinct Plan........................................................ 133 Appendix 9a – Urban Design & Feasibility Study – Church Street Precinct (Council) June 2019......................................................................................... 134 Appendix 9b – Heritage Study - Church Street Precinct (City Plan) June 2019 135 Appendix 10a – Overshadowing Technical Paper (October 2019)................... 136 Appendix 10b – Market and Feasibility Analysis (October 2019) ..................... 137 Appendix 11a – Opportunity Sites Report (October 2019) ............................... 138 Appendix 11b – Parramatta CBD Opportunity Sites – Heritage Review by LSJ (October 2019) ................................................................................................ 139 Appendix 12 – Economic Review – Achieving A-Grade Office......................... 140 Appendix 13 – Strategic Transport Study (2017) ............................................. 141 Appendix 14a – Updated Flood Risk Management Plans (2019)..................... 142 Appendix 14b – Flood Evacuation Assessment (2019).................................... 143 Appendix 14c – Parramatta CBD Horizontal Evacuation Pilot Study (2017) by SJB 144 Appendix 15a – Preliminary Site Investigation Study for the Auto Alley area (2016).............................................................................................................. 145 Appendix 15b – Addendum to Preliminary Site Investigation Study (2019)...... 146 Appendix 16a – Sustainability and Infrastructure Study (2019)........................ 147 Appendix 16b – Review of High Performing Buildings Study (2019) ................ 148 Appendix 17a – Community Facilities Needs Study (2016).............................. 149 Appendix 17b – Infrastructure Funding Models Study (2016) .......................... 150 Appendix 17c – Discussion Paper on Infrastructure Planning and Funding in the Parramatta CBD (2017)................................................................................... 151 Appendix 17d – Draft Infrastructure Needs Analysis (2017)............................. 152 Appendix 17e – Independent Peer Review of Council’s past work on community infrastructure – by Aurecon (2017)................................................................... 153 Appendix 17f – Memo on the Parramatta CBD Community Infrastructure Funding Study (2019).................................................................................................... 154 ### Planning Proposal drafts Council versions: | No. | Author | Version | | -------- | -------- | -------- | | 1. | City of Parramatta Council | 3 December 2015 – Internal comment on Draft Report | | 2. | City of Parramatta Council | 19 February 2016 – Changes following Council Meeting on 14 December 2015 – Council Report on Key Policy Areas for CBD Planning Proposal | | 3. | City of Parramatta Council | 11 April 2016 - Council Meeting recommending Gateway Determination | | 4. | City of Parramatta Council | 20 April 2016 – Amendments following Council Meeting on 11 April 2016 | | 5. | City of Parramatta Council | 12 November 2019 – Amendments following Gateway Determination and Council meetings on 28 October 2019 and 11 November 2019 | | 6. | City of Parramatta Council | 6 December 2019 – Amendments following Council meeting on 25 November 2019 | | 7. | City of Parramatta Council | 4 March 2020 – Amendments following pre-exhibition consultation with public authorities under Condition 2 of the Gateway determination. | ## INTRODUCTION Parramatta is Sydney’s Central City. Located in the heart of the Sydney metropolitan area, the Parramatta Central Business District performs key economic, social and cultural roles, particularly for Western Sydney, which is home to nearly half of Sydney’s population. The metropolitan importance of the Parramatta CBD will increase as Western Sydney’s population grows and regional transport infrastructure connects people faster to Parramatta. The City of Parramatta Council is preparing a new planning framework to facilitate and strengthen the Parramatta CBD as a metropolitan centre. The new framework is guided by the vision for growth established in the Parramatta CBD Planning Strategy 2015 and gives effect to the priorities and actions of the Central City District Plan to manage growth in the context of economic, social and environmental matters and grow a stronger and more competitive Greater Parramatta. The Parramatta CBD Planning Proposal will deliver a new planning framework for the Parramatta CBD through amendments to Parramatta Local Environmental Plan 2011. The amendments expand and intensify commercial activities and support higher density mixed use and residential development. The vision is for new buildings to define streets and public spaces to deliver a comfortable, functional and attractive public domain; while the towers above are tall and slender and are set back to allow daylight, views and circulation of air to the streets and public spaces below. The heritage significance of heritage items and conservation areas is respected and managed within the city form and buildings perform to high environmental standards. This Planning Proposal has been prepared in accordance with 3.31 of the Environmental Planning and Assessment Act 1979 (the EPA Act), the Standard Instrument – Principal Local Environmental Plan (Standard Instrument) and guidelines published by the Department of Planning, Industry and Environment, including A guide to preparing planning proposals and A guide to preparing local environmental plans. This Planning Proposal explains the intent of, and justification for, the amendments to Parramatta Local Environmental Plan 2011 (Parramatta LEP 2011) and is supported by technical studies and documentation. The amendments proposed by this planning proposal include: * rezoning of some land; * an increase in the floor space ratio permitted on some land; * an increase in the height of buildings permitted on some land; * the removal of the height of buildings clause on some land; * an amendment to the sun access protection clause; * an amendment to the airspace operations clause; * a new clause to permit additional floor space and height on some land; * an amendment to the design excellence clause; * a requirement for non-residential floor space in parts of the mixed use zone; * a requirement for end of journey facilities; * an amendment to encourage high yielding employment uses; * a new clause to encourage high performing buildings; * a new clause to encourage the provision of community infrastructure; * a new clause to preserve existing controls in the ‘Park Edge Highly Sensitive’ area, * Parramatta Park and Parramatta Stadium; * some additions to Schedule 1 – Additional Permitted Uses; * a new clause to require active frontages to certain streets and public spaces; * a new heritage clause to require a higher standard of development that affects heritage; * new clauses for the Marion Street precinct; * amendments to the following maps in the Parramatta LEP 2011: * o Land Application Map * o Additional Local Provisions Map * o Land Zoning Map * o Floor Space Ratio Map * o Height of Buildings Map * o Additional Permitted Uses Map * o Special Provisions Area Map * o Heritage Map * o Land Reservation Acquisition Map * create new maps for inclusion in the Parramatta LEP 2011: * o Incentive Floor Space Ratio Map * o Incentive Height of Buildings Map * o Sun Access Protection Map * o Active Frontages Map * o Opportunity Sites Map * o Floodplain Risk Management Map Amendments to the Parramatta Development Control Plan 2011 (Parramatta DCP 2011) will beprepared and exhibited to support the planning provisions in the CBD PP. ### Affected Land This planning proposal applies to land collectively referred to as the ‘Parramatta CBD’, within the City of Parramatta Council Local Government Area (LGA) (refer to Figure 1). Consistent with the Implementation Plan in the Parramatta CBD Planning Strategy 2015, this Planning Proposal does not make any changes to the planning controls that apply to the ‘Park Edge (Highly Sensitive)’ area on the western edge of the CBD adjacent to the World Heritage listed Old Government House and Domain. Council has an existing Conservation Agreement with the Commonwealth and State Governments regarding development in this area and for this reason, further review of the planning controls for this precinct is not warranted. Some provisions will be necessary in the Planning Proposal to make it clear that only the existing planning controls currently in place for the Park Edge (Highly Sensitive) area will apply to this precinct, instead of the new controls proposed in the Planning Proposal. This is referenced on the Special Provisions Area Map as Area A. Similarly, this Planning Proposal does not make any changes to the planning controls that apply to two areas on the fringe of the Parramatta City Centre, being certain land zoned B5 Business Development west of Church Street (behind Auto Alley); and land zoned B4 Mixed Use at the intersection of Church Street and Pennant Hills Road. These areas are also marked ‘Area A’ on the Parramatta CBD Planning Proposal - Special Provisions Map. The inclusion of these areas within the Planning Proposal reflects the Council resolution of 25 November 2019 to remove land proposed to be zoned R4 High Density Residential from the Planning Proposal to enable further heritage analysis to be undertaken. However, like the ‘Park Edge (Highly Sensitive)’ area, these areas are within the Parramatta City Centre boundary and subject to planning controls in Part 7 of Parramatta Local Environmental Plan 2011. Therefore, some provisions are necessary in the Planning Proposal to make it clear that only the existing planning controls currently in place for these areas will apply, instead of the new controls proposed in the Planning Proposal. ### Current Planning Controls The current planning controls for the Parramatta CBD are set out in Part 7 of Parramatta LEP 2011. An extract of the critical controls are provided at Appendix 1 and a full copy of the controls are available at https://www.legislation.nsw.gov.au ### Proposed Planning Controls The proposed planning controls for the Parramatta CBD are provided in Appendix 2a – Proposed draft LEP amending instrument and Appendix 2b – Proposed LEP maps. ![](https://i.imgur.com/dSL698l.jpg) ### Background to this Planning Proposal #### Parramatta CBD Planning Strategy In recognition of Parramatta’s growing role, Council resolved in 2013 to prepare a study based on world’s best practice to develop and implement a planning framework to create a ‘world-class’ city. In 2014, Council commissioned urban design and economic consultants to prepare planning framework studies for the Parramatta CBD and the Auto Alley precinct within the CBD. These studies were publicly exhibited in 2014 and, together with stakeholder feedback, were integrated into the Parramatta CBD Planning Strategy 2015. The purpose of this Strategy was: 1. To set the vision for the growth of the Parramatta CBD as Australia’s next great city. 2. To establish principles and actions to guide a new planning framework for the Parramatta CBD. 3. To provide a clear implementation plan for the delivery of the new planning framework for the Parramatta CBD. The Actions within the Parramatta CBD Planning Strategy identified the research and technical studies required to inform the preparation of new planning controls and amendments to Parramatta LEP 2011. Actions within the Strategy were: * investigate the potential expansion of the CBD boundaries * conduct detailed testing of the proposed FSR controls o removal of any height controls, except in some key areas * investigation of potential sun access controls to key public spaces o investigate impacts of expanding the commercial core and potentially opening it up to some residential uses (subject to commercial also being provided) * setting an employment growth target of 27,000 additional jobs and residential growth target of 7,500 additional dwellings by 2036 for the CBD * investigation of infrastructure needs, including funding mechanisms * promotion of tower slenderness and design excellence A copy of the Parramatta CBD Planning Strategy is provided at Appendix 3. #### Parramatta CBD Planning Proposal - Gateway Application Following Council endorsement of the Parramatta CBD Planning Strategy in April 2015, Council officers began the work to prepare a planning proposal to amend the controls within Parramatta LEP 2011 – Part 7 Parramatta City Centre. In April 2016 Council resolved to endorse the Parramatta CBD Planning Proposal and forward it to the Department of Planning, Industry and Environment (DPIE) for assessment and issuing of a Gateway determination. During the Gateway assessment period, Council endorsed several amendments and studies and these were also forwarded to DPIE in support of Council’s Gateway Application. The council report (Items 10.4) can be accessed via: * https://businesspapers.parracity.nsw.gov.au/Open/2016/RC_11042016_AGN_AT. PDF (pp. 380-387); o * https://businesspapers.parracity.nsw.gov.au/Open/2016/RC_11042016_AGN_AT_ SUP.PDF - supplementary Report; o * https://businesspapers.parracity.nsw.gov.au/Open/2016/RC_11042016_MIN.PDF - Council minutes. * #### Greater Sydney Commission’s Region Plan and District Plans In March 2018 the Greater Sydney Commission (GSC) released the Greater Sydney Region Plan, A Metropolis of Three Cities and five District Plans. The 40-year vision of the Region Plan to transform Greater Sydney into a metropolis of three cities puts Parramatta CBD within the Central River City, and together with the Western Parkland City and Eastern Harbour City, will connect residents within 30 minutes to jobs, education and health facilities, services and recreation. The City of Parramatta Council together with Blacktown, Cumberland and The Hills councils are within the Central City District. This 20-year Plan to manage growth in the context of economic, social and environmental matters to achieve the 40-year vision of Greater Sydney supports Parramatta CBD’s “emergence as a powerhouse of new administrative, business services, judicial and educational jobs, with Parramatta Square as its heart and Western Sydney University as its knowledge-producing engine”. #### Parramatta CBD Planning Proposal - Gateway determination In December 2018, the DPIE issued a conditional Gateway determination in respect of the Parramatta CBD Planning Proposal. The Gateway determination allows the Planning Proposal to proceed subject to 34 conditions. The conditions require preparation of further clarification or evidence and then re-submission to DPIE for approval prior to the planning proposal being publicly exhibited. A copy of the Gateway determination is at Appendix 4a and a summary of the work undertaken to address each condition is at Appendix 4b. #### The Gateway determination conditions can be broadly grouped as follows: * Technical updates to the CBD PP * Policy changes and/or further evidence to support the CBD PP * Submission of additional information to support the CBD PP * Consultation requirements with public authorities, public exhibition requirements and timeframes for completing the LEP amendment Council is required to finalise the amendments to the LEP within 24 months of the Gateway Determination by December 2020. The Minister may direct the Secretary of DPIE to take action under section 3.32 (2)(d) of the Act if the timeframe outlined in the determination is not met. There are no conditions in the Gateway to make Council the local plan-making authority. This planning proposal has been prepared in accordance with the conditions of the Gateway Determination, as required by the DPIE. #### Research and Technical Study process informing this Planning Proposal The initial research and technical studies prepared to support a new planning framework for the Parramatta CBD is as per the ‘Implementation Plan’ in the Parramatta CBD Planning Strategy. These studies include heritage, flood management, contamination, sustainability, economic, urban design, infrastructure needs and infrastructure funding and formed the evidence base for Council’s Gateway request in April 2016. Additional research and technical studies undertaken between April 2017 and September 2018 to support refinements to the CBD PP include transport, heritage, sustainability, flood management, heritage and policy matters. The Gateway determination issued in December 2018 identified further research and technical studies to be prepared. This included updating the original studies prepared to support Council’s Gateway request as detailed above; new studies to address specific issues identified in the Gateway, and new studies to support Council resolved pathways for some of the Gateway conditions. The Gateway determination also identified the relevant section 9.1 Directions that Council needs to obtain agreement from the Department’s Secretary. Direction 9.1 – 2.3 Heritage Conservation and 4.3 Flood Prone Land are addressed in commissioned studies. The studies prepared to inform the CBD PP and respond to the Gateway determination are detailed in Table 1 and explained below in further detail. **Table 1** – List of technical studies informing the Parramatta CBD PP | Research and Technical Studies undertaken to inform the Parramatta CBD Planning Proposal 1 | | | -------- | -------- | | Parramatta CBD Heritage Study, prepared by consultants Urbis | October 2015 | | Heritage Study of Interface Areas, prepared by consultants Hector Abraham Architects (HAA); with a Response to the HAA Heritage Study of Interface Areas, prepared by Council | July 2017 | | Church Street Precinct: Urban Design, Feasibility and Heritage Study, prepared by Council with heritage input from consultants City Plan Heritage | June 2019 | | Marion Street Precinct Plan, prepared by consultants SJB with heritage input from heritage consultant Paul Davies | September 2019 | | Opportunity Sites Study, prepared by Council with heritage input from Lucas, Stapleton, Johnson and Partners (LSJ) | October 2019 | | Overshadowing Technical Paper and analysis, prepared by Council with market and feasibility analysis for specific blocks by JLL consultants (September 2019) | June 2019, updated October 2019 | | **Sustainability, Infrastructure and High Performing Buildings** | | | Sustainability and Infrastructure Study, prepared by consultants Kinesis | November 2015, updated June 2019 | | High Performance Building Bonus Study, prepared by consultants Kinesis | February 2016, updated in July 2017 and July 2019 | | **Economic** | | | Economic Review – Achieving A-Grade Office development, prepared by consultants Urbis | October 2015, updated September 2019 | | **Contamination** | | | Preliminary Site Investigation Study for the Auto Alley Area (2016), prepared by consultants JSB&G and updated with an addendum (2019) | February 2016, updated August 2019 | | **Stormwater and Flood Risk Management** | | | Update to the draft Parramatta Floodplain Risk Management Plans (FRMP) for the Upper and Lower Parramatta River, prepared by consultants Molino Stewart | February 2016, updated in September 2019 | | Parramatta CBD Flood Evacuation Assessment, prepared by consultants Molino Stewart, with a High Level Evacuation Route Concept Design, prepared by Studio GL | September 2017, updated in September 2019 | | Horizontal Evacuation Pilot Study for Parramatta CBD, prepared by consultants SJB| August 2017 | | **Community Infrastructure Funding** | | | Infrastructure Funding Models Study, prepared by consultants GLN | May 2016 | | Discussion Paper: Infrastructure Planning and Funding, prepared by Council and Aurecon| March 2017 | | Parramatta CBD Infrastructure Funding Peer Review, prepared by Aurecon | February 2017 | | Draft CBD Infrastructure Needs Analysis, prepared by Council | | | Draft Infrastructure Strategy (formerly called ‘Delivery Plan’) | 2016 | | Community Infrastructure Funding Study - Memo, prepared by consultants GLN Planning with economic input from AEC | October 2019 | | **Transport**| | | Parramatta CBD Strategic Transport Plan and Technical Papers, prepared by consultants Aecom | April 2017 | The research and technical studies undertaken to inform the CBD PP and the recommendations contained within are discussed in detail below: ### Heritage The key heritage issue for this Planning Proposal is providing for urban intensification and integration of new development while protecting and enhancing the heritage values of Parramatta’s local, state, national and world significant European and Aboriginal heritage items, conservation areas, places and views. Specific issues considered include, * Planning controls for heritage items and adjacent development; * Planning controls for areas on the edge of the CBD adjacent to heritage conservation areas; * Matters raised by the Heritage Office of NSW * Ministerial Direction 9.1(2) – 2.3 Heritage Conservation * Heritage matters raised by the DPIE in the Gateway Determination dated 13 December 2018. Consistent with the Implementation Plan in the adopted CBD Planning Strategy, this planning proposal retains the existing planning controls the ‘Park Edge Highly Sensitive Area’ adjacent to the World Heritage listed Old Government House and Domain. The Implementation Plan also identified the need to prepare a heritage study to ensure the planning proposal facilitated the conservation and management of listed items, areas, objects and places of environmental heritage significance and indigenous heritage significance. Council commissioned a heritage study of the Parramatta CBD in 2015 to investigate heritage issues for the entire Parramatta CBD Planning proposal boundary and provide recommendations for the protection of heritage while supporting the vision for growth. A further heritage study of the ‘interface areas’ was commissioned by Council in 2017 in response to issues raised by the DPIE and Heritage Council of NSW arising during the assessment of certain site-specific planning proposals. The interface areas within the Parramatta CBD are located generally between the Parramatta CBD core and heritage conservation / lower scale residential areas. This heritage study recommended amendments to the 2015 heritage study provisions for sites within the interface areas of the CBD PP, and also recommended a new heritage provision to apply to the entire CBD PP to ensure the relationships between heritage items and development sites is conserved and managed. Following receipt of the Gateway determination in December 2018, further heritage studies were prepared to address specific Gateway conditions. These included heritage studies to address inconsistencies between the planning proposal outcomes and heritage reports prepared; overshadowing impacts on heritage conservation areas; and planning and heritage outcomes for the Church Street precinct. Some of the recommended amendments in these further heritage studies amend the provisions in the original 2015 and 2017 heritage studies. The evolution of the heritage analysis, studies and Council resolutions informing the planning proposal outcomes are summarised as follows: 1. Council endorsed draft FSR and HOB controls to protect heritage significance based on recommendations in the Parramatta CBD Heritage Study 2015. 2. Council endorsed amendments to the draft FSR and HOB controls within the ‘interface areas’ of the CBD and a new heritage clause to apply to all land in the CBD PP boundary based on recommendations in the Heritage Study of Interface Areas 2017. 3. Separate Council resolutions amended the draft FSR and HOB controls for sites within areas of the CBD now referred to as ‘the Church Street Precinct’ (between the River and Macquarie Street), and ‘the Marion Street Precinct’.