1.3 535-559 police road mulgrave extension to the existing … · 2016-08-26 · council meeting,...

Council Meeting, 30 August 2016 Section 1.3 –

535-559 Police Road, Mulgrave - Extension To The Existing Hospital

1.3 535-559 POLICE ROAD MULGRAVE EXTENSION TO THE EXISTING HOSPITAL (TPA/45776)

EXECUTIVE SUMMARY:

This application proposes the development of a new emergency and imaging department associated with The Valley Private Hospital. The proposed additions will be located above the recently approved relocated emergency department and car park within the Blanton Drive frontage. The application was subject to public notification. Two (2) objections to the proposal have been received. Key issues raised within objections relate to residential amenity, adequacy of car parking and increased traffic. This report assesses the proposal against the provisions of Monash Planning Scheme including relevant state and local planning policy framework, along with issues raised by objectors. The reason for presenting this report to Council is the proposed development cost of $4.1 million.

The proposal is considered appropriate having regard to the relevant provisions of the Monash Planning Scheme. It is recommended that Council resolve to issue a Notice of Decision to Grant a Planning Permit, subject to conditions. RESPONSIBLE DIRECTOR: Peter Panagakos

RESPONSIBLE MANAGER: Angela Hughes

RESPONSIBLE PLANNER: James Heitmann

WARD: Mulgrave

PROPERTY ADDRESS: 535-559 Police Road, Mulgrave

PRE-APPLICATION MEETING: Yes

NUMBER OF OBJECTIONS: Two (2)

ZONING: General Residential – Schedule 2

EXISTING LAND USE: Hospital

OVERLAY: No Overlays

RELEVANT CLAUSES: State Planning Policy Framework Clause 10.01 (Purpose)

Local Planning Policy Framework Clause 21 (Municipal Strategic



Clause 10.02 (Goal) Clause 10.04 (Integrated Decision Making) Clause 11 (Settlement) Clause 11.04 (Metropolitan Melbourne) Clause 14.02-1 (Catchment Planning and Management) Clause 15 (Built Environment and Heritage)

Statement) Clause 21.04 (Residential Development) Clause 21.08 (Transport and Traffic) Clause 22.09 (Key Regional Assets) Clause 22.01 (Residential Development and Character Policy) Clause 22.04 (Stormwater Management Policy) Clause 22.09 (Non-Residential Use and Development in Residential Areas Policy) Particular Provisions Clause 52.06: Car parking Clause 52.34: Bicycle Facilities General Provisions Clause 65: Decision Guidelines

STATUTORY PROCESSING DATE: 12 June 2016

DEVELOPMENT COST: $4.1 million



LOCALITY PLAN

NEIGHBOURHOOD PLAN

SUBJECT SITE



RECOMMENDATION:

That Council resolves to issue a Notice of Decision to Grant a Planning Permit (TPA/45776) for the use and development of the land for alterations and extension to the existing hospital comprising in accordance with the submitted plans, at 535-559 Police Road, Mulgrave subject to the following conditions: 1. Before the development starts, three copies of amended plans drawn to

scale and dimensioned, must be submitted to and approved by the Responsible Authority. The submitted plans must clearly delineate and highlight any changes. When approved the plans will be endorsed and will then form part of the permit. The plans must be generally in accordance with the plans submitted with the application, but modified to show:

a) The maintenance bays provided with wheelstops to ensure that vehicles do not overhang into the Ground Floor car park access entry.

b) The 4 bicycle parking spaces on the First Level car park (just south of the 30 bed ward footprint) relocated or modified to ensure no impact on the ability of vehicles to exit in a forwards direction.

c) A minimum 4.0m headroom to be provided between the first floor level car park and the proposed ward extension to facilitate ambulance access through the car park.

d) Bicycle parking and associated amenities in accordance with the requirements of Clause 52.34. A minimum of 23 bicycle parking spaces (including 15 employee and 8 visitor) and associated showers/change rooms should be provided.

e) The location and design of any required fire services, electricity supply, gas and water meter boxes discreetly located and/or screened to compliment the development.

2. The development as shown on the endorsed plans must not be altered

without the written consent of the Responsible Authority.

3. The amenity of the area must not be detrimentally affected by the use or development, through the:

(a) transport of materials, goods or commodities to or from the land;

(b) appearance of any building, works or materials;

(c) emission of noise, artificial light, vibration, smell, fumes, smoke, vapour, steam, soot, ash, dust, waste water, waste products, grit or oil;

(d) presence of vermin;



4. No goods must be stored or left exposed outside the building so as to be visible from any public road or thoroughfare.

5. No bin or receptacle or any form of rubbish or refuse shall be allowed to remain in view of the public and no odour shall be emitted from any receptacle so as to cause offence to persons outside the land.

6. Prior to the commencement of works on the site, the owner shall prepare a Waste Management Plan for the collection and disposal of garbage and recyclables for all uses on the site. The Waste Management Plan shall provide for:

a) The method of collection of garbage and recyclables for uses;

b) Designation of methods of collection including the need to provide for private services or utilisation of council services;

c) Appropriate areas of bin storage on site and areas for bin storage on collection days;

d) Measures to minimise the impact upon local amenity and on the operation, management and maintenance of car parking areas;

e) Litter management. A copy of this plan must be submitted to Council.

7. No equipment, services, architectural features or structures of any kind, including telecommunication facilities, other than those shown on the endorsed plans shall be permitted above the roof level of the building unless otherwise agreed to in writing by the Responsible Authority.

8. Before the development starts, a construction management plan must be prepared and submitted to the Responsible Authority for approval. The plan must be to the satisfaction of the Responsible Authority. Once approved, the plan must be implemented to the satisfaction of the Responsible Authority. The plan must address the following issues:

a) measures to control noise, dust and water runoff;

b) prevention of silt or other pollutants from entering into the Council’s underground drainage system or road network;

c) the location of where building materials are to be kept during construction;

d) site security;

e) maintenance of safe movements of vehicles to and from the site during the construction phase;

f) on site parking of vehicles associated with construction of the development;



g) wash down areas for trucks and vehicles associated with construction activities;

h) cleaning and maintaining surrounding road surfaces;

i) a requirement that construction works must only be carried out during the following hours: • Monday to Friday (inclusive) – 7.00am to 6.00pm; • Saturday – 9.00am to 1.00pm; • Saturday – 1.00pm to 5.00pm (Only activities associated with the

erection of buildings. This does not include excavation or the use of heavy machinery).

9. Before the development permitted is completed, areas set aside for parked

vehicles and access lanes as shown on the endorsed plans must be:

a) constructed to the satisfaction of the Responsible Authority;

b) properly formed to such levels that they can be used in accordance with the plans;

c) surfaced with an all-weather sealcoat to the satisfaction of the Responsible Authority;

d) drained, maintained and not used for any other purpose to the satisfaction of the Responsible Authority;

e) line-marked to indicate each car space and all access lanes to the satisfaction of the Responsible Authority.

Parking areas and access lanes must be kept available for these purposes at all times.

10. Outdoor lighting including the car parking areas must be designed, baffled and located to the satisfaction of the Responsible Authority to prevent any adverse effect on adjoining land.

11. The loading and unloading of goods from vehicles must only be carried out on the land.

12. The layout of the development shall generally follow the Design Standards for car parking set out in Clause 52.06-8 of the Monash Planning Scheme.

13. The occupier of the premises must ensure that any noise emanating from the premises, during and post construction, must not exceed the standards of the State Environment Protection Policies No. N1 and N2 and must on request provide evidence to Council of Compliance with the policies.

14. Air-conditioning and other plant and equipment installed on or within the buildings must be so positioned and baffled that any noise emitted complies with the appropriate Australian Standards and EPA requirements.



At the request of the Responsible Authority the owner must undertake immediate noise testing must be undertaken to demonstrate compliance with EPA noise requirements. Noise testing is to be undertaken at no cost to the Responsible Authority and provided to the Responsible Authority.

15. Before the development starts, a site layout plan drawn to scale and dimensioned must be approved by the Responsible Authority. The plans must show a drainage scheme providing for the collection of stormwater to the existing on-site drainage system. If the point of discharge cannot be located then notify Council’s Engineering Division immediately.

16. All on site stormwater is to be collected from hard surface areas and must not be allowed to flow uncontrolled into adjoining properties.

17. Stormwater discharge is to be detained on site to the predevelopment level of peak stormwater discharge. Approval of any detention system is required by the City of Monash, the Responsible Authority, prior to works commencing.

18. The motorcycle parking spaces should be designed in accordance with the Australian Standard for Off-Street Parking, AS/NZS 2890.1:2004 with minimum dimensions of 1.2m in width and 2.5m in length.

19. The accessible parking spaces should generally be designed (other than length of space which may encroach into the adjacent accessway width by 500mm) in accordance with the Australian Standard for Off-Street Parking for people with disabilities, AS/NZS 2890.6. The vehicle path to and from each accessible space shall have a minimum headroom of 2200mm. The headroom above each dedicated space and adjacent shared area shall be a minimum of 2500mm.

20. This permit will expire in accordance with section 68 of the Planning and Environment Act 1987, if one of the following circumstances applies: • The development is not started before 2 years from the date of issue. • The development is not completed before 4 years from the date of

issue. In accordance with section 69 of the Planning and Environment Act 1987, the responsible authority may extend the periods referred to if a request is made in writing before the permit expires, or within six months of the permit expiry date, where the development allowed by the permit has not yet started; or within 12 months of the permit expiry date, where the development has lawfully started before the permit expires.



NOTES- 1. Building approval must be obtained prior to the commencement of the

above approved works.

2. Premises used for the sale or storage of food in any manner whatsoever are to be registered under the Food Act and require Council approval via the Chief Environmental Health Officer before occupation.

3. Building Permit approval for this development must take into consideration the location of future subdivision boundaries and their compliance with the Fire Separation Provisions of the Building Code of Australia, including Separating Walls and Openings near Boundaries, as well as the requirements of the Building Regulations.

4. Any new drainage work within the road reserve requires the approval of the City of Monash’s Engineering Division prior to the works commencing. Three copies of the plans (A3-A1 size) for the drainage works must be submitted to and approved by the Engineering Division. The plans are to show sufficient information to determine that the drainage works will meet all drainage conditions of the permit.

5. Engineering permits must be obtained for new or altered vehicle crossings and for connections to Councils drains and these works are to be inspected by Council (tel. 9518 3555).

6. Stormwater detention requirements may be obtained from Council’s Engineering Department prior to the design of any stormwater detention system.

7. An on site detention system for storm events up to the 1% AEP event to be retained on site for the basement car park.

8. A Licensed Surveyor or Civil Engineer (who is a Registered Building Practitioner) must certify that the stormwater detention system including all levels, pits, pipes and storage volumes is constructed in accordance with the approved plans. The certifier’s registration number must be included on the certificate.

9. A continuous path of travel from each accessible space into the building is required in accordance with the Australian Standard for Design for access and mobility - General requirements for access - New building work, AS1428.1:2009.



BACKGROUND:

Recent Permit History Numerous permits have been issued over time allowing the progressive expansion of the hospital and various ancillary services including consulting suites. Planning Permit No. TPA/38413 was issued on 10 December 2010 allowing alterations and additions to the hospital. The approved development has been completed. Planning Permit No. TPA/42220 was issued on 1 October 2014 allowing expansion of the existing hospital complex comprising of 61 additional hospital beds, construction of a three storey building with basement car parking, internal re-arrangement to the existing hospital premises and car park layout, installation of an oxygen tank and chiller, and associated works including landscaping. The approved development has been completed. Planning Permit No. TPA/43310 was issued on 14 April 2015 allowing use and development of the land for a medical centre within a four storey building comprising two levels of consulting suites and a two level multi-deck basement car park and associated works, construction of the western at grade car park, relocation of existing car parks associated with the hospital, construction of an enclosed walkway link, business identification signage and a two lot subdivision in accordance with the plans submitted. Works associated with the approved medical centre development are expected to commene later this year. Planning Permit No. TPA/44144 was issued on 1 September 2015 allowing the use and development of the land for alterations and extension to the existing hospital comprising a two storey building with an emergency department, imaging department and operating theatres and under croft carparking, refurbishment of the existing hospital, illuminated and business identification signage and associated works. The approved development is yet to commence construction. The Site and Surrounds The subject land is located on the north-east corner of Police Road and Blanton Drive in Mulgrave. The Valley Private Hospital has occupied the subject land since 1983. The hospital building is located on the northern half of the site with parking areas available towards the north, east and south of the existing building. The main entry to the hospital is on the southern side of the building with the existing emergency department entrance located on the northern side of the building. The land has a significant fall across the site of approximately 11 metres from north-west to south-east. The site is relatively rectangular in shape and has an overall site area of approximately 3.23 hectares. As a consequence of the substantial slope across



the site, extensive earthworks have taken place along the northern section of the site to reduce the height of buildings. Existing development on the land ranges in height from 2-3 storeys. The grounds of the hospital are presently grassed with scattered trees. The hospital is constructed over multiple levels as a response to the significant fall across the land. Medical consulting rooms, maintenance, kitchen, store room and plant equipment are located at the lower ground floor level with the emergency department, surgical theatres, hospital wards and an administration area located at ground and first floor level. Surrounding properties can be described as follows: • North- residential properties with the rear yards orientated to the subject

land. • East – more recently constructed residential properties with the rear yards

orientated to the subject land. • South – Police Road reservation with an aged care residential village

opposite. • West – medical consulting suites across Blanton Drive. An aerial photograph of the subject site and surrounding land can be found attached to this report (Attachment 2).

PROPOSAL:

The application proposes the construction of a new hospital ward providing for 30 additional hospital beds. The proposed new ward will be constructed above the recently approved new emergency department and multi-deck car park area within the Blanton Drive frontage. Key aspects of the proposed development can be sumarised as:

• Provision of an additional thirty (30) beds within a new ward on level two at the western end of the hospital in the vicinity of the new Emergency Department (yet to be constructed permitted by TPA/44144).

• Internal alteration to the hospital including a new lift lobby with three lifts, a new medical records room and a new waste room/bin store, and adjustments to the car park on ground level.

• Administration room (223m2) to be located on the mezzanine level to the east of the new car park deck.

• Pedestrian access via a new lift lobby connected to the adjoining car park.

• Provision of an oxygen tank store located to the south of the bin store.

• Services associated with the development are proposed to be located on the roof of the building above the new ward.

• Materials and finishes including a mix of tinted and clear glazing and metal cladding complimentary to existing development on the land.



• Maximum building height of 16.69m. Attachment 1 details plans forming part of the application.

PERMIT TRIGGERS:

Zoning The subject site is located within a General Residential Zone (Schedule 2) under the provisions of the Monash Planning Scheme. Pursuant to the requirements of Clause 32.08-1 a permit is required for use of premises as a hospital within the General Residential Zone. Pursuant to the requirements of Clause 32.08-6 a permit is required to construct a building or carry out works for works associated with a hospital. Particular Provisions Clause 52.06: Car parking Prior to a new building being occupied the required parking spaces must be provided on the land or as approved by the responsible authority. No car parking requirement is specified for a hospital under the provisions of Clause 52.06-5. Where no car parking requirement is specified, car parking must be provided to the satisfaction of the responsible authority. Attachment 3 details the zoning and overlays applicable to the subject site and surrounding land.

CONSULTATION:

Public Notice Notice of the application was given in accordance with Section 52 of the Planning and Environment Act 1987 to the surrounding property owners and occupiers, and along with the display of four (4) signs on the site. Two (2) objections to the proposal have been received. Issues raised in the objections can be summarised as:

• Residential amenity.

• Location of waste storage areas and oxygen storage room.

• Vehicle access and increased traffic;

• Adequacy of car parking. Attachment 4 details the location of objector properties.



Referrals

Traffic Council’s Traffic Engineers have recommended the inclusion of conditions on any permit that may be issued. Relevant comments relating to adequacy of car parking and traffic impact are further discussed within the assessment section of this report. Drainage Council’s Drainage Engineers have recommended the inclusion of conditions on any permit that may be issued.

DISCUSSION:

Consistency with State and Local Planning Policies The proposed development of the site is considered to be consistent with State and Local Policy Framework including the Municipal Strategic Statement. Clause 11.02 – Urban Growth The objective of Clause 11.02-1 is:

“To ensure a sufficient supply of land is available for residential, commercial, retail, industrial, recreational, institutional and other community uses.”

The proposed development meets this objective by utilising existing land which is devoid of major development constraints whilst also balancing community expectations in regards to neighbourhood character, off site amenity impacts and ongoing hospital service provision to the community. Clause 15.01 Built Environment and Heritage The objective of Clause 15.01-1 is:

“To create urban environments that are safe, functional and provide good quality environments with a sense of place and cultural identity.”

This Clause requires that development achieves architectural and urban design outcomes that contribute positively to a local urban character and enhance the public realm, while minimising detrimental impacts on neighbouring properties.

Relevant strategies seek to:

“Promote good urban design to make the environment more liveable and attractive.

Ensure new development or redevelopment contributes to community and cultural life by improving safety, diversity and choice, the quality of living and working environments, accessibility and inclusiveness and environmental sustainability.

Require development to respond to its context in terms of urban character, cultural heritage, natural features, surrounding landscape and climate.”



The proposed development reasonably responds to its urban context. The form, materials of construction, external finish and scale of the proposed addition is compatible with the existing hospital building and recently approved extensions ensuring a seamless integration between the existing, and the new. The proposed new premises significantly upgrade the hospitals presentation to Blanton Drive to more contemporary architectural styling. Clause 19.02-1 Health Facilities The objective of this policy is:

“To assist the integration of health facilities with local and regional communities.”

Strategies of the policy seek to:

“Facilitate the location of health-related facilities (including acute health, aged care, disability services and community care facilities) with consideration given to demographic trends, the existing and future demand requirements and the integration of services into communities.

Plan public and private developments together, where possible, including some degree of flexibility in use.

Locate hospitals and other large health service facilities in areas highly accessible to public and private transport.

Adequate car parking facilities should be provided for staff and visitors.” The proposed development provides for expanded hospital facilities to service local residents and the wider surrounding area. The additional hospital ward will provide for a larger health facility on a site that is considered to be a much needed resource for the community. Municipal Strategic Statement Clause 21.03-5 A vision for Monash

“The Garden City Character is a core value held by Council and is an important consideration in all land use and development decisions. Planning decisions should seek outcomes which continue to contribute to, consolidate and enhance this character and image. The Garden City vision aims to maintain and enhance the established canopy treed environment throughout the municipality, continuing its significance in defining the character of Monash. This vision covers all land use types including residential, industrial, business, commercial, public land, special purpose, transport and open space areas.”

New development should have regard for overarching Garden City Character principals consistent with Council policy. The development sits within the existing building setbacks which provide for meaningful landscaping elements consistent with the Garden City Character objectives.



Clause 21.09 (Key Regional Asset) acknowledges the role and function of private hospitals as assets to the municipality and the community. A key objective of council is:

“To retain and encourage development of private health facilities as an adjunct to key community medical resources.”

The proposed expansion and ongoing investment in health services on the site is consistent within this objective. Hospital Expansion & Residential Amenity The large size of the land and substantial setback of the development results in minimal off site amenity impacts on surrounding residential areas. The proposal is appropriate given the zoning of the land and consistent with various objectives of the State and Local Planning Policy Framework along with other strategic policy documents and strategies which seek ongoing investment in health facilities and services. Objectives of Clause 22.09-1 (Non-residential development in residential areas policy) seek:

“To ensure that development is appropriate having regard to the residential environment of the surrounds and that the amenity of the neighbourhood is not adversely affected by a business conducted in a residential area. To ensure that all built form in residential areas is respectful of residential character. To ensure that adequate and well-located vehicle parking is provided for all new developments.”

Critical in determining the appropriateness of the expanded use is to minimise and mitigate the impact of the use on adjoining residential amenity and ensuring the built form suitably integrates with the surrounding residential context. The subject land has a long established use as a private hospital offering a large range of medical related services including inpatient and outpatient care, casualty and emergency department, specialist services, testing and diagnostic functions. The large site provides the opportunity for progressive expansion over time to meet the increased demand for such facilities by the community. Noise generating operations including waste storage, oxygen storage, loading bay and rooftop plant facilities have been centrally located within the site in excess of 55 metres from adjoining residential properties to the north. The hospital has previously experienced issues associated with noise on the adjoining residential area to the north. The hospital has demonstrated a willingness to work with the Council and neighbours to achieving compliance with EPA noise requirements.



The site provides good access to Police Road and Gladstone Road, both being designated Road Zone – Category 1, and its location is easily accessible via EastLink. Therefore it should not have an adverse impact on local residential streets. Appropriate conditions can be specified should a permit issue to ensure ongoing compliance with EPA noise regulations, limit the permitted number of inpatient beds, and specify the required number of onsite car parking spaces. Built Form, Design Detail & Building Setback The height of the building has been designed having regard to the topography of the land, the scale and height of the existing development on the land and the surrounding context. The proposed new ward will be approximately 3.15 metres higher than the Emergency Department below (yet to be constructed). From Blanton Drive the development will present as a two storey form with buildings setback 18 metres from the street. The car parking areas below the proposed development are setback 6 metres allowing for landscaping provision along the Blanton Drive frontage. The new ward will provide for a minimum setback of 43.58 metres from adjoining residential properties to the north and will have no adverse visual massing impact given the substantial setback and existing structures within the intervening space. The height and scale of the development is considered acceptable. The architecture of the proposal is consistent with the styling of recent additions to the hospital complex. The basement and ground level parking areas have been appropriately screened from the public interface. The façade treatment provides for an appropriate degree of visual interest through use of varied materials and finishes, along with vertical and horizontal articulation elements. The palette of materials includes textured painted concrete, coloured aluminium panelling and cladding, and timber screens to the car park. Car Parking, Traffic & Access Under the provisions of Clause 52.06, no car parking requirement is specified for hospital use. Where no car parking requirement is specified, car parking must be provided to the satisfaction of the responsible authority. Post development, the hospital will provide for a total of 230 patient beds (200 existing and 30 proposed), consulting suites and outpatient service, emergency department, x-ray and imaging facilities serviced by a total of 746 on-site car spaces. A Car Parking Demand Assessment prepared by GTA Traffic Consultants (April 2016) has been undertaken to determine the anticipated likely car parking demands of the proposal. The report indicated that all services provided on the site would generate a car parking demand of 489 car spaces, and that adequate car parking is provided for the proposed 30 additional hospital beds.



It is noteworthy that the approved expansion (yet to be constructed) emergency department and medical centre will substantially increase parking supply on the site. These car parking spaces would be constructed and operational prior to the additional ward being occupied. Future expansion of the hospital will need to undertake further car parking surveys to ascertain actual car parking demand generated by various medical related services across the hospital campus. The predicted traffic generation with this proposal is low and is expected to have an acceptable impact on the local traffic network. The subject land has direct access to Police Road via Blanton Drive which becomes a Road Zone at its intersection with Gladstone Road. The local road network has limited egress onto the arterial road network (accessible only via Police Road/Gladstone Road) resulting in some waiting and congestion at peak times. Some minor modification is required to the proposed layout of car parking areas to improve internal movements and comply with the planning scheme design standards. Bicycle Parking Bicycle parking is required to be provided in accordance with the requirement specified by Clause 52.34-3 of the Monash Planning Scheme. The table below details the number of bicycle parking spaces required:

Use No. of beds Clause 52.34-3 Requirement

Bike parking requirement generated

Hospital 230 1 to each 15 beds (employee)

1 to each 30 beds

(visitor)

15

7

TOTAL REQUIRED 22 bike spaces

Amended plans will need to be provided to demonstrate the required on-site provision of bicycle parking and associated amenities. Noise Appropriate conditions relating to noise impacts and the requirement to comply with relevant EPA requirements will be placed on any permit that is to issue. Construction Management A construction management plan including details of staging of construction works and construction vehicle access traffic management detail will be a permit requirement. Construction management plan requirements will seek to minimise amenity impacts of the proposed development on the surrounding area.



CONCLUSION:

The proposal is considered to be appropriate given the zoning of the land and the design response is generally consistent with the objectives and applicable requirements of state and local policies. The proposed development will provide for additional medical related services to service the wider surrounding area consistent with state and local policy. The design response is generally site responsive and will not result in any unreasonable amenity impacts on the surrounding properties. The proposal should be approved subject to conditions. The proposal should be approved subject to conditions.



LIST OF ATTACHMENTS: Attachment 1 – Proposed Development Plans. Attachment 2 – Aerial Photograph (October 2014). Attachment 3 – Zoning and Overlays Map. Attachment 4 – Objector Properties Location Map.

1.3 535-559 police road mulgrave extension to the existing … · 2016-08-26 · council meeting,...

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