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NSW Crest

Land and Environment Court
New South Wales

Medium Neutral Citation:
Bettar v Council of the City of Sydney [2014] NSWLEC 1070
Hearing dates:
8 April 2014
Decision date:
17 April 2014
Jurisdiction:
Class 1
Before:
O'Neill C
Decision:

1. The appeal is upheld.

2. Development Application No. D/2013/1336 for the retention of existing townhouses on the site, demolition of the existing hotel building and construction of a four and five storey residential flat building is approved, subject to the conditions of consent at Annexure A.

3. The exhibits, other than exhibits 1 and A, are returned.

Catchwords:
DEVELOPMENT APPLICATION: construction of a residential flat building; height; internal amenity; whether the development represents a high standard of architectural design
Legislation Cited:
Environmental Planning and Assessment Act 1979
Land and Environment Court Act 1979
Category:
Principal judgment
Parties:
Mr Paul Bettar (Applicant)
Council of the City of Sydney (Respondent)
Representation:
Ms S. Duggan SC (Applicant)
Ms F. Berglund Barrister (Respondent)
Conomos Legal (Applicant)
Council of the City of Sydney (Respondent)
File Number(s):
10803 of 2013

Judgment

1COMMISSIONER: This is an appeal pursuant to the provisions of s 97 of the Environmental Planning and Assessment Act 1979 against the refusal of Development Application No. D/2013/1336 for a four and five storey residential flat building and the retention of existing townhouses at 4 Boundary Street, Alexandria (the site) by the Council of the City of Sydney (the Council).

2The appeal was subject to mandatory conciliation on 17 December 2013, in accordance with the provisions of s34 of the Land and Environment Court Act 1979 (LEC Act). As no agreement was reached during the conciliation phase, the conciliation conference was terminated on 20 January, 2014, pursuant to s 34(4) of the LEC Act.

3On 11 February, 2014, the Court granted leave to the applicant to rely upon amended plans. The plans were further amended following the joint conferencing of the urban design and planning experts and leave was granted by the Court for the applicant to rely on the amended plans on the basis agreed by the parties, pursuant to s 97B of the Environmental Planning and Assessment Act 1979 (the proposal).

Issues

4The Council's contentions in the matter can be summarised as:

  • The proposal is excessive in height and exceeds the 15m height limit as stipulated in cl 4.3 of Sydney Local Environment Plan 2012 (LEP 2012) and the proposal is inconsistent with the storey limit in Sydney Development Control Plan 2012 (DCP 2012) and this will result in a building which is inconsistent with the other development along Wyndham Street.
  • The applicant's version of the height limit is incorrect as it measures the height from the finished ground floor level of the existing building, instead of the existing ground level. The height limit should be measured from the footpath level at the site boundary and extrapolated across the site, as this better reflects the sloping topography of the site.
  • The proposal does not provide any common open space.
  • The proposal locates the ground floor retail area approximately 1.2m below the footpath of Wyndham Street, with entry from Boundary Street and this does not activate the Wyndham Street facade at ground level.
  • The proposal should include an awning on the Wyndham Street and Boundary Street facades, as the existing building on the site includes an awning and it provides shelter to commuters at the bus stop and pedestrians waiting at the pedestrian crossing.
  • The proposal does not comply with the requirements of the City of Sydney Policy for Waste Minimisation in New Developments 2005 (the Waste Code), provision A16, requiring paths of travel for Council's residential waste collection workers to be level and without steps and not more than 10m from the entrance point. Council further contends that the current arrangement for the townhouses on the site of putting bins on the footpath is unsatisfactory for the proposal.
  • The proposal does not provide mechanical ventilation ducting and discharge points for the ground floor commercial tenancy, which may preclude this area being used as a food and drink premises in the future.

5The applicant requested that a deferred condition of consent, Schedule 1(B), be altered to provide a 24 month period from the date of the approval, instead of a 12 month period, for the applicant to submit evidence to Council that the matters identified in the deferred commencement condition Schedule 1(A)(1) have been satisfied. This was not opposed by the Council. The matters identified in the deferred commencement condition Schedule 1(A)(1) are in regard to construction details proximate to RailCorp's easement and rail tunnel and require the applicant to provide specific information to RailCorp for approval/certification. The parties agreed that the Court has power to make this alteration, pursuant to s 39(6A)(c) of the Land and Environment Court Act 1979. Accordingly, the deferred condition of consent, Schedule 1(B) is altered to provide a 24 month period from the date of approval.

The site and its context

6The site is on the south-western corner of Wyndham and Boundary Streets and is bounded to the west by Garden Street. The site contains a two storey hotel at the eastern end, dating from the Victorian period, with an awning on the Wyndham and Boundary Street facades. The site also contains 7 recently constructed three storey terraced townhouses fronting Boundary Street, with basement parking, accessed from Boundary Street.

7To the south of the site and fronting Wyndham Street is a contemporary two storey town house and further to the south there are contemporary three storey residential flat buildings.

8On the opposite side of Wyndham Street is a park, the 'Daniel Dawson Playground', with children's play equipment and seats.

9Technology Park is on the western side of Garden Street. Opposite the site, on the Technology Park site, is a five to six storey contemporary building.

10Diagonally opposite the site on the intersection of Wyndham and Boundary Street, is a contemporary four storey residential flat building and further down Wyndham Street, to the south and on the opposite side of Wyndham Street to the site, is a four and five storey shop top housing development.

11Wyndham Street is a busy, one way street with traffic heading north towards the city.

The proposal

12The proposal is to demolish the existing hotel on the corner of Wyndham and Boundary Streets and to construct a four and five storey residential flat building with retail at ground level and a basement below. The basement will connect via a doorway to the existing basement of the townhouse development on the site.

Planning Framework

13The proposal is subject to the provisions of State Environmental Planning Policy No 65 - Design Quality of Residential Flat Buildings (SEPP 65) at cl 4(1)(a).

14Consideration is to be given to the design quality of the residential flat development, when evaluated in accordance with the design quality principles, at cl 30(2)(b) of SEPP 65 and the publication Residential Flat Design Code (RFDC) at cl 30(2)(c).

15The RFDC supports the ten design quality principles identified in SEPP 65 and gives greater detail in how to achieve these principles in development proposals.

16The RFDC objectives for open space are as follows:

  • To provide residents with passive and active recreational opportunities.
  • To provide an area on site that enables soft landscaping and deep soil planting.
  • To ensure that communal open space is consolidated, configured and designed to be useable and attractive.
  • To provide a pleasant outlook.

17The relevant RFDC Better Design Practice recommendations for open space include the following:

  • where communal open space is difficult to accommodate on site, councils may need to consider the adequacy of public open space provision in the locality; and
  • communal open space may be reduced as a trade off for increased private open space in smaller developments.

18The RFDC rule of thumb for open space suggests that communal open space should be at least between 25 and 30 percent of the site area and where developments are unable to achieve the recommended communal open space, such as those in dense urban areas, they must demonstrate that residential amenity is provided in the form of increased private open space and/or in a contribution to public open space.

19The RFDC objectives for awnings and signage includes providing shelter for public streets.

20The site is zoned B4 Mixed Use and the proposal is permissible with consent (LEP 2012, Land Zoning Map, Sheet 010 exhibit 2, ff 75, 79). The objectives of the B4 Mixed Use zone are:

To provide a mixture of compatible land uses.
To integrate suitable business, office, residential, retail and other development in accessible locations so as to maximise public transport patronage and encourage walking and cycling.
To ensure uses support the viability of centres.

21The site is within the 15m building height limit (LEP 2012 Height of Buildings Map Sheet 010, exhibit 2, f 74). The blocks to the north of the site are within the B4 Mixed Use zone and have a height limit of 18m.

22The relevant objective for the height of buildings, at cl 4.3(1)(a) of LEP 2012 is to ensure that the height of development is appropriate to the condition of the site and its context. The parties agreed that the proposal either complies with the remaining objectives or they are not relevant.

23Clause 6.21(4) of LEP 2012 includes the following in relation to design excellence:

In considering whether development to which this clause applies exhibits design excellence, the consent authority must have regard to the following matters:
(a) whether a high standard of architectural design, materials and detailing appropriate to the building type and location will be achieved,
(b) whether the form and external appearance of the proposed development will improve the quality and amenity of the public domain,
(c) whether the proposed development detrimentally impacts on view corridors,
(d) how the proposed development addresses the following matters:
(i) the suitability of the land for development,
(ii) the existing and proposed uses and use mix,
(x) the impact on, and any proposed improvements to, the public domain,
(xii) achieving appropriate interfaces at ground level between the building and the public domain.

24The following definitions in the dictionary of LEP 2012 are relevant:

basement means the space of a building where the floor level of that space is predominantly below ground level (existing) and where the floor level of the storey immediately above is less than 1 metre above ground level (existing).
building height (or height of building) means the vertical distance between ground level (existing) and the highest point of the building, including plant and lift overruns, but excluding communication devices, antennae, satellite dishes, masts, flagpoles, chimneys, flues and the like.
ground level (existing) means the existing level of a site at any point.

25The amended proposal is subject to the provisions of Sydney Development Control Plan 2012 (DCP 2012). Section 2 of DCP 2012 includes the locality statements. The site is within the Alexandria Park and Wyndham Street locality, at 2.7.7 (exhibit 2, ff 131-2). According to the statement, the locality consists of two distinct localities and the site is within the 'former industrial area blocks to the north'. The relevant principles for this area are:

(i) design buildings to align to and address the street at ground level;
(v) retain and encourage active uses on the ground floor of Wyndham Street, Henderson Road and blocks to the north of Henderson Road including commercial, retail, professional services, cafe and dining uses;
(vi) encourage mixed commercial and residential on Wyndham Street to create an appropriate transition between the adjacent commercial development on Botany Road;

26Section 3.2 of DCP 2012, 'Defining the Public Domain', includes the following at 3.2.2:

Addressing the street and public domain
A person's experience of the city will be formed by the public domain as well as private developments which adjoin the public domain. It is important that development adjacent to the public domain is attractive, comfortable, safe, functional and accessible for all. The public domain and pedestrian environment should be characterised by excellence in design, high quality materials and well integrated public art.
Provisions
(4) Ground floor tenancies and building entry lobbies on sites not flood affected are to, where possible:
(a) have entries at the same level as the adjacent footpath or public domain;
(b) have finished floor levels no greater than 500mm above or below the adjacent footpath or public domain entry on sites with a cross fall of less than 1 in 10;

27The objective for footpath awnings, at 3.2.4 of DCP 2012, is to encourage awnings to enhance pedestrian amenity and provide weather protection.

28Section 4.2 of DCP 2012, 'Residential Flat, Commercial and Mixed Use Developments', includes the following:

4.2.1.1 Height in storeys and street frontage height in storeys
Provisions
(1) Development must not exceed the maximum number of storeys as shown in the Building height in storeys map.
(2) The maximum may only be achieved where it can be demonstrated that the proposed development:
(a) reinforces the neighbourhood character
4.2.3.7 Private open space and balconies
(1) Private open space may be in the form of courtyards, decks and balconies and is to be provided for at least 75% of dwellings in a development.
(3) Private open space is to be directly accessible from the living area of the dwelling and capable of serving as an extension of the living area.
4.2.3.8 Common open space
(1) Provide an area of common open space under common title that is at least 25% of the total site area and has a minimum dimension of 6m. The calculation of the required area of common open space is to exclude driveways, parking areas, essential access paths such as fire escape routes, indoor gymnasiums and outdoor clothes drying areas.

Public submissions

29One written objection to the proposal was included in the Council's bundle (exhibit 2, tab 4). The resident objector would like the existing building to be retained.

Expert evidence

30Expert planning evidence was provided by Mr Ben Chamie on behalf of the Council and Mr Anthony Betros on behalf of the applicant. Expert urban design evidence was provided by Ms Cindy Ch'ng on behalf of the Council and Ms Gabrielle Morrish on behalf of the applicant.

31The experts agreed on the following:

  • a four storey street wall and scale on the corner of Boundary and Wyndham Streets is appropriate;
  • the proposal complies with the floor space ratio development standard for the site;
  • Level 4 does not create any additional amenity impacts on adjoining development;
  • the two locations where Level 4 will be visible from the public domain does not warrant refusal of the amended proposal; and
  • the proposed mixed use development, including a commercial tenancy at ground level and residential apartments on the upper levels, is an appropriate use for this site.

Height of the amended proposal

Calculation of the height of the proposal

Evidence

32The planning experts disagreed on the level/s that constituted the existing ground level on the site.

33According to Mr Betros, the existing ground level of this site is the finished floor level of the ground floor of the existing building on the site and the existing level of the basement, which occupies a small area in the north eastern corner of the site. The vertical distance between the ground floor level of the existing building (RL26.19) and the roof of the amended proposal (RL41.06) is 14.87m, which complies with the 15m building height development standard. However, a tiny portion of Level 4 overlaps the small basement at the north-western corner of the existing hotel and it is the applicant's position that is the area of non-compliance with the 15m building height development standard, as the vertical height for the portion of Level 4 that overlaps the basement is measured from the floor level of the basement. Mr Betros supported this approach with a recent example of a consent issued by the Council for a site with an existing two storey basement, where the existing ground level was taken to be the lower floor level of the existing basement.

34According to Mr Chamie, the existing ground level of the site is the level of the footpath at the site boundary and this level is extrapolated across the site to measure the vertical distance to the highest point of the building. Mr Chamie used the ground level of the footpath (RL25.0) at the north-western corner of the site, resulting in a maximum height of 16.06m for the north-western corner of Level 4 and a non-compliance with the building height development standard of 1.06m.

Findings

35As building height is defined in LEP 2012 as the vertical distance between ground level (existing) and the highest point of the building, including plant and lift overruns, but excluding communication devices, antennae, satellite dishes, masts, flagpoles, chimneys, flues and the like, it is essential to nominate an existing ground level in order to be able to determine the height of the building. This is usually achieved by taking the lowest level on an existing site, as shown on the site survey, directly beneath the highest part of the proposed development, to determine a maximum building height dimension.

36The definitions of basement, height of buildings and ground level in LEP 2012 have come from the dictionary of the standard instrument (Standard Instrument - Principal Local Environment Plan). Ground level (existing) is defined in LEP 2012 as the existing level of the site at any point. This definition of existing ground level is sufficiently vague that both expert planners' reasoning can be argued, because the particular difficulty in applying this definition to this site is that the existing building occupies the whole of the site area and so there is no 'ground' (as in soil/garden/paving) around the building and on the site, from which the existing ground level can be determined by a site survey.

37It is relevant to consider the objectives of the building height development standard in considering how best to determine the maximum height of the building using the dictionary definitions in LEP 2012. The objectives include, at cl 4.3(a) of LEP 2012, to ensure the height of development is appropriate to the condition of the site and its context. As one of the purposes of the development standard is to relate the proposal to its context, it follows that the determination of the existing ground level should bear some relationship to the overall topography that includes the site.

38Mr Betros' approach focuses entirely on the existing building on the site. Once the existing building is demolished, the point at which the height of the building was measured from will no longer be discernable or relevant. Importantly, this approach does not relate the building height development standard to the context of the site, it only relates it to the building to be demolished. Using this method, it is conceivable that on one property, the existing ground level will be taken as two storeys below ground level where there is a basement (as in the example raised by Mr Betros) and on the adjoining property, the existing ground level will be taken as being well above ground level where a building occupies the entire site and the finished floor level is higher than the footpath, resulting in adjoining sites with starkly different height limits arising from the same development standard.

39Furthermore, the definition of basement in LEP 2012 is the space of a building where the floor level of that space is predominantly below existing ground level and where the floor level of the storey immediately above is less than 1 metre above existing ground level [italics added]. From this definition, it does not follow that existing ground level becomes the level of the basement floor or the soil beneath the basement following the construction of a basement. A basement is, by definition, below ground level and so the level of the basement floor cannot be taken to be existing ground level.

40For these reasons, I do not accept Mr Betros' approach of defining existing ground level as the ground floor level of the existing building and then dropping it down to the basement level in the north-eastern corner of the site where the existing basement is located. This results in an absurd height plane with a large and distinct full storey dip in it as it moves across the site and crosses the basement of the existing building, which relates only to a building that is to be demolished and has no relationship to the context of the site. This is not a criticism of Mr Betros' reasoning, however, as I understand he has adopted the approach taken by Council in previous assessments, which is reasonable.

41I prefer Mr Chamie's approach to determining the existing ground level because the level of the footpath at the boundary bears a relationship to the context and the overall topography that includes the site and remains relevant once the existing building is demolished. RL25.0 is the footpath level adjacent to the site boundary at the north-western corner of the site on Boundary Street, which is the lowest point on the site (as there are only levels for the northern boundary along Boundary Street and the eastern boundary along Wyndham Street). Considering the topography around the site, the highest point along the site's boundaries is the north-eastern corner, on the corner of Wyndham and Boundary Streets (RL26.11) and the lowest point is likely to be the opposite corner, the south-western corner. Level 4 of the amended proposal is setback 4.51m from the eastern boundary and 4.77m from the northern boundary. So the height above ground level on north-western corner of Level 4 is approximately 1m over the 15m building height development standard and the exceedance is less than 1m on the eastern side of the Level 4, as it is closer to the highest point of the site at the north-eastern corner.

42However, nothing turns on which definition I prefer, as the amended proposal exceeds the building height development standard on both experts' determination of the existing ground level (the difference between the experts being the quantum and location of the exceedance) and the applicant has provided a written request for the contravention of the building height development standard, pursuant to cl 4.6 of LEP 2012, which is dealt with in the following paragraphs.

Contravention of the height of buildings development standard

Evidence

43According to the applicant's written request, it is unreasonable and unnecessary for the proposal to comply with the building height development standard for the following reasons:

  • the locality is characterised by a diverse range of density, heights and building forms which include developments ranging from two to eight storeys and the height of the amended proposal is appropriate in its context and because it is a corner site;
  • the portion of Level 4 that exceeds the 15m buiding height development standard is substantially recessed from the perimiter of the site along the respective street frontages;
  • the amended proposal presents as a four storey street wall and this street wall is lower than 15m in height;
  • the degree of variation is not significant;
  • the variation to the building height development standard is on the lower side of the site and is due to the sloping nature of Boundary Street;
  • the minor component of the development above the 15m building height development standard will not be readily percieved from the public domain, as it is substantially recessed from the perimter of the built form;
  • there are no adverse overshadowing, privacy or view impacts as a result of the exceedence of the 15m height development standard;
  • the overall height is associated with a compliant FSR on the site.

44In Mr Chamie's opinion, the written request to vary the building height development standard is not well founded as a compliant scheme could be achieved on the site, with a better outcome.

45According to Council's experts, their primary concern, in regard to Level 4, is that it does not comply with the height of buildings development standard and in their view, the roof of the amended proposal should be set aside for communal open space.

Findings

46In order for development consent to be granted for a development that contravenes a development standard in LEP 2012, I must be satisfied that the proposal is consistent with the objectives of the development standard and the objectives for development within the zone (cl 4.6(4)(a)(ii) of LEP 2012) and that the applicant's written request has adequately addressed that compliance with the development standard is unreasonable or unnecessary in the circumstances (cl 4.6(3)(a) of LEP 2012) and that there are sufficient environmental planning grounds to justify contravening the development standard (cl 4.6(3)(b) of LEP 2012).

47The relevant objective for the height of buildings, at cl 4.3(1)(a) of LEP 2012 is to ensure that the height of development is appropriate to the condition of the site and its context. The parties agreed that the amended proposal either complies with the remaining objectives or they are not relevant.

48I accept the agreement of the experts that a four storey street wall and scale on the corner of Boundary and Wyndham Streets is appropriate and that the dispute between the parties in regard to the height of the proposal centres on whether or not the partial fifth floor (Level 4), which is setback from the elevations to Wyndham and Boundary Streets, is acceptable.

49I accept the agreement of the experts that Level 4 does not create any additional amenity impacts on adjoining development and that the two locations where Level 4 will be visible from the public domain does not warrant refusal of the amended proposal. As there are no amenity impacts caused as a result of Level 4 and as the views of Level 4 from the public domain are acceptable, I am satisfied that the height of the proposal and the number of storeys is appropriate to the conditions of the site and its context and the proposal is consistent with the variety of other development in the locality. Compliance with the development standard is therefore unnecessary in the circumstances.

50The written request seeking to justify the contravention of the building height development standard adequately addresses the matters required to be demonstrated in cl 4.6(3)(a) and (b) and the proposal is in the public interest because it is consistent with the objectives of the height of buildings development standard and the objectives for development within the B4 Mixed Use zone, in which the development is proposed to be carried out.

Common open space

Evidence

51According to Council's experts, the roof of the amended proposal should be devoted to communal open space.

52According to Ms Morrish, seven units have an area of private open space and the area of private open space provided is generous.

Findings

53Seven of the total nine units have an external terrace, which meets the requirement of cl 4.2.3.7 of DCP 2012 for 75% of apartments to have private open space. I agree with Ms Morrish that the external terrace area for each of the seven units is generous, considering the compact size of each unit and each terrace is accessed directly from the living room and capable of serving as an extension of the living area (except for unit 3.01, where the large terrace is accessed from a hallway on the upper level). As the proposal is for small and compact units in a dense urban environment, I am satisfied that the trade off of no communal open space for a generous area of open space for most of the units is acceptable. Furthermore, there is ample public open space in the vicinity of the proposal for passive and active recreation, including the Daniel Dawson Playground across Wyndham Street and Technology Park.

Ground floor level of the commercial tenancy

Evidence

54According to Ms Ch'ng, the commercial tenancy should be raised to the Wyndham Street footpath level as this is the primary address of the site and it provides a better outcome for activating the streetfront to Wyndham Street and the Boundary Street entry should be treated as a secondary entry.

55According to Mr Betros, the primary retail frontage to Boundary Street makes sense on this corner site as it activates both ground level facades and avoids high walls along Boundary Street, as the footpath would fall below the floor level of the tenancy if it were at the Wynhdam Street level. According to Ms Morrish, the proposal still maintains a good presence to Wyndham Street as pedestrians can see through the glazing on the ground level of the Wyndham Street elevation. In Ms Morrish's view, raising the ground floor tenancy to the level of the footpath of Wyndham Street would result in a noise impact to the tenancy from the heavy traffic on Wynhdam Street. Ms Morrish said in oral evidence that the only issue with having a commercial tenancy floor level below that of the footpath is when the ceiling of the ground floor is at eye level for a pedestrian standing on the footpath and that is not the case for the proposal, as the underside of the slab of the level over is 2.6m higher than the footpath on Wyndham Street.

Findings

56I am satisfied that the ground floor level of the commercial tenancy at RL25.0, being approximately 1.2m below the Wyndham Street footpath, is acceptable for the following reasons:

  • The basement level (RL20.9) matches the level of the existing basement of the townhouses on the site, which allows the basement of the proposal to be accessed via the entry to the existing basement and provides a continuous level between the basements for access and residential waste disposal. While the level of the basement does not preclude the level over, the ground floor, from being raised to the Wyndham Street level, it would result in an excessive floor to ceiling space within the basement.
  • The ground floor level (RL25.0) provides level access from Boundary Street to the residential lobby.
  • The entry to the commercial tenancy from Wyndham Street provides a generous foyer inside the entry door, with stairs and an accessible platform for easy access to the floor level of the commercial tenancy. There is a second entry from Boundary Street. The entries are denoted by the awnings over each entry to provide legibility.
  • I disagree with the Council's experts that a floor level in a commercial tenancy below the level of the footpath to Wynhdam Street is necessarily inferior to a floor level at the footpath level. I agree with Ms Morrish that a floor level below the footpath level requires a generous floor to ceiling height, so that anyone standing on the footpath of Wynhdam Street can see into the commercial tennancy and the ceiling of the commercial tennancy is well above their head and not at eye level. This arrangement is reminicent of some of the basement bars and restaurants in Flinders Lane, Melbourne, where the floor levels are substantially lower than the footpath, entry is from a laneway at the side or via stairs and the ceiling height is generous so that one can stand on the footpath of Flinders Lane and see through the windows into the restaurant/bar below.
  • The traffic noise from Wyndham Street discourages an arrangement of opening doors along the Wyndham Street facade and an interior spilling onto the footpath. In my view, given the busy and noisy location, it is likely that the future use of the commercial tenancy will be contained to the interior of the space, even if the floor level was to be at the Wyndham Street level.
  • The glazing of both street facades at ground level clearly denotes the use as commercial.

Awning to Wyndham and Boundary Streets

Contention

57The Council's position is that the proposal should include an awning on the Wyndham Street and Boundary Street facades, as the existing building on the site includes an awning and it provides shelter to commuters at the bus stop and pedestrians waiting at the pedestrian crossing.

Findings

58The proposal includes discrete awnings over the entry to the commercial tenancy on Wyndham Street and the entries to the commercial tenancy and residential apartments on Boundary Street. The Wyndham Street awning will provide protection for the the area on the footpath directly adjacent to the bus stop and can be used by commuters during inclement weather.

59The awnings over the entries to the proposal will contribute to the legibility of the development.

60There is no justification for requiring a continuous awning around the streetfront elevations, because the site is not part of a retail strip requiring continuous cover over the footpath and there are no fixed awnings over any other building in the vicinity of the site.

Waste and ducting

Contentions

61The Council's contends that the proposal does not comply with the requirements of the Waste Code, provision A16, requiring paths of travel for Council's residential waste collection workers to be level and without steps and not more than 10m from the entrance point. Council further contends that the current arrangement for the townhouses on the site of putting bins on the footpath is unsatisfactory for the proposal.

62The applicant has provided a Basement Waste Path (exhibit 3, tab K), which denotes an on grade path from the residential waste room in the basement of the proposal to Boundary Streeet, via the existing basement of the townhouses.

63The Council contends that the proposal does not provide mechanical ventilation ducting and discharge points for the ground floor commercial tenancy, which may preclude this area being used as a food and drink premises in the future.

64The applicant's response to this contention is that if ducting is required for a food and drink premises in the commercial tenancy, an exhaust system with horizontal ducting could be incorporated into the commercial tenancy (an example of an exhaust system is provided at exhibit 3, tab I).

Findings

65Given the small footprint of the proposal, it is reasonable to make use of the existing basement access on the site. As Boundary Street falls to the west, the entry to the existing basement is located at the western end of Boundary Street and is on grade with the street at the point of entry. The basement of the proposal is at the same level as the basement of the townhouses on the site, providing level access from the residential waste room to the existing basement entry. This is a convenient and satisfactory arrangement for the disposal of residential waste.

66The use and fitout of the commercial tenancy will be the subject of a future development application. If the commercial tenancy is unsuitable for use as a food and drink premises, this is a commercial consideration that is the prerogative of the applicant.

Conclusion

67Having regard to the relevant planning controls and the evidence provided, I find that the amended proposal can be granted consent, for the reasons set out in the judgment.

68As the experts agreed there are no amenity impacts caused as a result of the partial fifth level (Level 4) and as the views of Level 4 from the public domain are acceptable, I am satisfied that the height of the proposal and the number of storeys is appropriate to the context and that the proposal is consistent with the variety of other development in the locality. Therefore compliance with the building height development standard is unnecessary in the circumstances.

69The trade off of not providing communal open space for providing a generous area of open space for most of the units is acceptable, given the dense, urban context of the proposal and the small and compact size of the units. There is ample public open space in the vicinity of the proposal for passive and active recreation, including the Daniel Dawson Playground across Wyndham Street and Technology Park.

70The ground floor level of the commercial tenancy, which is approximately 1.2m below the Wyndham Street footpath, achieves an appropriate interfaces at ground level between the building and the public domain. There is no justification for requiring a continuous awning around the streetfront elevations, as the site is not part of a retail strip requiring continuous cover over the footpath and there are no fixed awnings over any other building in the vicinity of the site.

71I am satisfied that the proposal is consistent with the relevant design principles of SEPP 65 and exhibits design excellence, pursuant to cl 6.21(4) of LEP 2012.

Orders

72The orders of the Court are:

1. The appeal is upheld.

2. Development Application No. D/2013/1336 for a retention of the existing townhouses on the site, demolition of the existing building and construction of a four and five storey residential flat building is approved, subject to the conditions of consent at Annexure A.

3. The exhibits, other than exhibits 1 and A, are returned.

Susan O'Neill

Commissioner of the Court

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Decision last updated: 17 April 2014