1.6 2-4 doynton parade, mount waverley construction …

Council Meeting, 28 March 2017 Section 1.6 –

2-4 Doynton Parade, Mount Waverley - Construction Of Twelve (12) Dwellings Comprising Eleven

Triple Storey And One Double Storey Dwelling And Waiver Of Two Visitor Car Spaces

1.6 2-4 DOYNTON PARADE, MOUNT WAVERLEY CONSTRUCTION OF TWELVE (12) DWELLINGS COMPRISING ELEVEN TRIPLE STOREY AND ONE DOUBLE STOREY DWELLING AND WAIVER OF TWO VISITOR CAR SPACES (TPA/46363)

EXECUTIVE SUMMARY:

This application proposes the construction of twelve (12) dwellings comprising eleven triple storey and one double storey dwelling and waiver of two visitor car spaces. The application was subject to public notification. Three (3) objections to the proposal have been received. Key issues to be considered relate to building bulk and massing, landscaping opportunities, private open space, amenity impacts, car parking and vehicle access. This report assesses the proposal against the provisions of the Monash Planning Scheme including the relevant state and local planning policy framework, Clause 55 and issues raised by objectors The reason for presenting this report to Council is the proposed development cost of $3.6 Million. The proposal is considered inconsistent with the relevant provisions of the Monash Planning Scheme and it is recommended that the application be refused. RESPONSIBLE DIRECTOR: Peter Panagakos

RESPONSIBLE MANAGER: Angela Hughes

RESPONSIBLE PLANNER: Craig Smith

WARD: Mount Waverley

PROPERTY ADDRESS: 2-4 Doynton Parade, Mount Waverley

PRE-APPLICATION MEETING: Yes

NUMBER OF OBJECTIONS: Three (3)

ZONING: General Residential Zone 2

EXISTING LAND USE: Informal car park and dwelling

OVERLAY: None

RELEVANT CLAUSES: State Planning Policy Framework Clause 11.02 Urban Growth

Local Planning Policy Framework Clause 21.04 Residential Development




Clause 11.04 Metropolitan Melbourne Clause 15 Built Environment and Heritage Clause 16.01-1 Integrated Housing Clause 16.01-4 Housing Diversity Clause 16.01-5 Housing Affordability

Clause 21.06 Activity Centres Clause 22.01 Residential Development and Character Policy Clause 22.05 Tree Conservation Policy Particular Provisions Clause 52.06 Car Parking Clause 55 Two or More Dwellings on a Lot

STATUTORY PROCESSING DATE: 4 January 2017

DEVELOPMENT COST: $3.6 million




LOCALITY PLAN

NEIGHBOURHOOD PLAN

SUBJECT SITE




RECOMMENDATION:

That Council resolves to issue a Notice of Refusal to Grant a Planning Permit (TPA/46363) for the construction of twelve (12) dwellings comprising eleven triple storey and one double storey dwelling and waiver of two visitor car spaces at 2-4 Doynton Parade, Mount Waverley subject to the following grounds: 1. The proposal does not meet the objectives of Clause 15 Built Environment

and Heritage, Clause 21.04 Residential Development, Clause 22.01 Residential Development and Character Policy and Clause 22.05 Tree Conservation Policy in terms of building bulk and massing, insufficient landscaping opportunities, design detail and dwelling integration with the street.

2. The proposal does not meet the following objectives of Clause 55 of the

Monash Planning Scheme: • Clause 55.02-1 Neighbourhood Character • Clause 55.02-5 Integration with the Street • Clause 55.03-1 Street Setback • Clause 55.03-7 Safety • Clause 55.03-8 Landscaping • Clause 55.04-1 Side and Rear Setbacks • Clause 55.04-2 Walls on Boundaries • Clause 55.04-6 Overlooking • Clause 55.05-2 Dwelling Entry • Clause 55.05-4 Private Open Space • Clause 55.05-6 Storage • Clause 55.06-1 Design Detail

3. The proposal does not meet the objectives of Clause 52.06 Car Parking of

the Monash Planning Scheme in relation to car parking and vehicle access.

4. The proposal is an overdevelopment of the site.

BACKGROUND:

History No planning permits have been issued to the land. CONSULTATION WITH APPLICANT Further information was requested of the Permit Applicant on 12 August 2016. In this letter, officers also raised the following preliminary concerns:




• The development is not sympathetic to the character of the area in terms

of building bulk and massing and does not provide an adequate transition between the commercial centre and the low scale, garden city character of the adjacent residential area.

• Utilisation of the public lane to service 16 car spaces would exceed the capacity of the lane.

• The waiver of visitor spaces is not supported, given the existing demand for parking in the area.

• Concern regarding the removal of a significant tree at the front and rear of 4 Doynton Parade is discouraged.

• The dwelling entries to Dwelling 6, 7, 8 and 9 are obscured and isolated from the street.

• The location of the bin housing in the front setback to Doynton Parade is not sympathetic to the character or amenity of the street.

Officers advised the Applicant in writing that should these concerns not be addressed, that this application was unlikely to be supported.

The Permit Applicant provided the requested information. In relation to the preliminary concerns, the Applicant advised they are is not prepared to make any changes to the proposal. The Applicant was advised on 14 March 2017 that this application was coming to the March Council meeting, in addition to a letter that was sent to the Applicant formally informing them of the details of the Council meeting. The Applicant has been advised that this application is recommended for refusal. The Site and Surrounds The site is located on the south-east side of Doynton Parade, adjoining (to the rear) the Syndal Activity Centre which runs along Blackburn Road. It consists of two lots with a combined area of 1,912 square metres. The site is irregular in shape and is triangular in shape. The topography of the site has a moderate rise from east to west by approximately 5 metres. The south of the site contains a single storey dwelling and eight trees. The north of the site has no buildings or vegetation and is used as an informal car park. There is currently one vehicle crossing to Doynton Parade. No easements affect the land.

The adjoining land to the south contains a single storey, dual occupancy development. The land to the east comprises a public lane and the commercial properties fronting Blackburn Road. The commercial buildings include two 3-storey modern office buildings, a 2-storey office building of brick construction and a row of single storey shops. The commercial buildings have vehicle access from the




public lane. The lane is sealed, 3.6 metres wide and connects to Doynton Parade and Blackburn Road. The land to the north-west (on the opposite side of Doynton Parade) comprises single storey dwellings with some examples of single storey multi-dwelling development. The site is located at the interface between a low scale residential area and the more intensive development within the activity centre. Doynton Parade is characterised by low scale, detached, single and double storey dwellings constructed in the 1950’s and 1960’s of brick veneer and pitched tiled roof construction. Some limited examples of multi-dwelling development have occurred in the area. The garden city character remains intact with dwellings nestled amongst well landscaped front and rear gardens. On the east side of Blackburn Road (on the periphery of the activity centre) are two apartment buildings. 286 Blackburn Road is a 3-storeys apartment building constructed in 2010, with a terrace layout to Blackburn Road and concrete block and rendered finish. 278 Blackburn Road is a 4-storeys apartment building constructed in 2010, with a terrace layout to Blackburn Road and rendered finish. The fourth storey of the apartment is heavily recessed, resulting in the appearance of a 3-storey building. Modest landscaping is provided to the front setback of both apartments.

An aerial photograph of the subject site and surrounding land can be found attached to this report (Attachment 2).

PROPOSAL:

This application proposes the development of twelve (12) dwellings. Key elements of the development include:

• Eleven triple storey dwellings and one double storey towhouse style dwellings, comprising: o One dwelling with 2 bedrooms. o Five dwellings with 3 bedrooms. o Six dwellings with 4 bedrooms.

• Car parking by way of double garages and single garages with tandem car spaces. Dwelling 1, 10, 11 and 12 are accessed from Doyton Parade via three vehicle crossings. Dwellings 2 to 9 are accessed from the laneway. A waiver of two visitor car spaces is sought.

• Reverse living arrangements with first floor balconies to all dwellings. There is no ground floor secluded private open space.

• Maximum building heights as follows: o Dwelling 1 (three storey): 10.1 metres.




o Dwelling 10 (three storey): 11 metres. o Dwelling 12 (two storey): 6.5 metres. o All other dwellings (three storey): 10.7 metres

Attachment 1 details plans forming part of the application.

PERMIT TRIGGERS:

The land is zoned General Residential Zone 2 and not affected by any overlays.

A planning permit is required for the following: • General Residential Zone 2 – construct two or more dwellings on a lot. • Clause 52.06 Car Parking – to waive the requirement for visitor car spaces.

Attachment 3 details the zoning and overlays applicable to the subject site and surrounding land.

COMMUNITY CONSULTATION:

Public Notice The application was advertised in accordance with section 52 of the Planning and Environment Act 1987 by way of letters sent to the surrounding property owners/occupiers, and signs displayed at the Doynton Parade frontage of the site.

Council has received three (3) objections to date. The grounds of objection can be summarised as follows: • Building bulk and massing. • Over-crowded housing design. • “Box-like” design is not in keeping with the character of the area. • Increased traffic in local streets, including the rear lane. • Increased car parking demand to the street. • Close proximity of the driveway to the driveway of 6 Doynton Parade is

unsafe. • Increased demand on local stormwater drainage infrastructure. • Overlooking. • Overshadowing. • Noise. • Poor internal amenity due to lack of separation between dwellings. • Overdevelopment of the site. • Overcrowding in the area. • Potential damage to property through excavation. • Loss of property value.

Attachment 4 details the location of objector properties.




Referrals The application was referred to the following departments: • Traffic – The rear lane is utilised by the commercial properties fronting

Blackburn Road. The integration of residential traffic (16 car spaces) with the commercial traffic would result in potential traffic conflicts and is not considered a safe, convenient or efficient design response. The waiver of the two visitor car spaces is not supported as there is a high demand for parking associated with the proximity to Syndal Station and the activity centre. The location of the Dwelling 12 vehicle crossing at the south-west corner of the subject site is unacceptable as it affects an existing pram crossing and is too close to the intersection.

• Drainage – No objection subject to standard conditions relating to stormwater drainage.

DISCUSSION:

Consistency with State and Local Planning Policies Clause 16.01 Housing seeks to: • “Increase the supply of housing in existing urban areas by facilitating

increased housing yield in appropriate locations, including under-utilised urban land.”

• “Locate new housing in or close to activity centres and employment corridors and at other strategic redevelopment sites that offer good access to services and transport.”

• “Encourage higher density housing development on sites that are well located in relation to activity centres, employment corridors and public transport.”

Clause 21.04 Residential Development has the objectives:

• “To encourage the provision of a variety of housing styles and sizes that will accommodate future housing needs and preferences of the Monash community that complement and enhance the Garden City Character of the City.”

• “To provide accommodation for a diverse population that caters for different family and lifestyle preferences and a variety of residential environments and urban experiences.”

• “To recognise and provide for housing needs of an ageing population.”

The proposal makes a positive contribution to the supply and diversity of housing in the municipality to meet the growing population and changing needs of the local community. The site is located adjacent to the Syndal Activty Centre and within walking distance to the Syndal Railway Station.




Monash Housing Strategy The site is located in Accessible Areas (Category 2) of the Monash Housing Strategy 2014. Accessible Areas seeks moderate housing change and diversification serving as a transition between commercial and residential areas. Development will be respectful of neighbourhood character and amenity, with greater emphasis placed on these objectives in proportion to the distance from commercial zones and transport nodes. Residential outcomes seek lower density unit and townhouse style developments at the interface with surrounding residential areas. There is the potential for apartment development in context with the scale of development of the Activity Centre, at the interface with the activity centre subject to careful and sensitive design. On larger sites, in suitable locations, increased density may be appropriate, subject to careful design and the provision of appropriate landscaped setbacks. The scale of the proposal does not respect the neighbourhood character and amenity of the area or provide an appropriate transition between the activity centre and the lower scale residential area. This is discussed in more detail below.

RESCODE ASSESSMENT Neighbourhood Character The site is located in Character Type “C” of Clause 22.01 (Residential Development and Character Policy). The desired future character statement seeks well planted gardens as the dominant element amongst modest scale buildings. The site is located at the interface between a low scale suburban residential area and the more intensive development within the Syndal Activity Centre along Blackburn Road. Built form should provide a transition between the two distinctly different areas. Building bulk and massing is substantial and not sympathetic to the low scale character of Doynton Parade. The maximum building height is 11 metres (Dwelling 10) and more typically 10.7 metres (most other dwellings), dominating the streetscape and surrounding properties along the front and rear boundary. Considering the proposal is of similar scale to the activity centre, the proposal will not visually dominate the commercial properties. Rather, concerns discussed in this report relate to the impacts to the surrounding lower scale suburban residential area. There is insufficient separation between dwellings, with continuous built form at all storeys. The development reads as a single building mass, failing to maintain the rhythm of separation between dwellings in Doynton Parade. First and second




floor walls lack sufficient recession from the ground floors below. The proposed buildings lack sufficient articulation to break up building lines. Traditional housing styles and pitched tiled roofs are the predominant form in Doynton Parade. The contemporary ‘box-like’ design, flat roof forms and terrace layout is not in keeping with the traditional housing styles in Doynton Parade and does not provide an appropriate transition from the activity centre. External materials of brick, render and timber wall cladding are in keeping with the area. They provide a mix of materials to create visual interest, but are not sufficient alone to break up building lines. The facades of the building provide sufficient window fenestration. The front setbacks of the dwellings at the ground floors meet the minimum requirement of 7.6 metres for approximately two thirds of the frontage and graduates to 4 metres at north end of the site. This provides an appropriate transition between the low scale of Doynton Parade and the higher scale development within the activity centre. Whilst the ground floor street setback is considered appropriate, first and second floor street setbacks of 4 to 5 metres are insufficient and result in built form that dominates the streetscape. Three vehicle crossings are proposed to Doynton Parade. This is reasonable considering the frontage is 77 metres wide, providing sufficient landscaping opportunities within the front setback. However, the row of eight double garages along the lane, spanning 46 metres, is not sympathetic to the character of the area. Neighbourhood character is not limited to the presentation of the development to Doynton Parade and must be also be considered from the lane. Whilst the commercial properties have parking facilities and other structures facing the laneway they generally consist of open car spaces and articulated buildings setback from the lane. An unarticulated 46 metre length of garage double doors is considered a significant departure from the way the commercial developments address the lane and has an industrial presentation to the laneway.

The Dwelling 1 east wall is proposed to be constructed on the east boundary to a height of 10.1 metres. There is a similar height wall on the opposite side of the lane of the office building at 255 Blackburn Road. The cumulative effect of these walls is not appropriate at the interface with the low scale development in Doynton Parade. Whilst the height wall may be appropriate for a commercial building in the Commercial 1 Zone and within the activity centre, it is not appropriate for a residential development in a residential zone, located outside the activity centre and at the interface with a low scale residential area.

A 1.2 metre high front fence is proposed along the Doynton Parade boundary. The low fence height provides sufficient dwelling and landscaping integration with the street. However, the bin housing area is located on the front boundary




to Doynton Parade, which is not considered site responsive and would present poorly to the street. The trees on the site are not significant and their removal is supported. However, there is insufficient space available for replacement canopy tree planting along the south side of the site adjacent to the residential property. Amenity The degree of overshadowing to the secluded private open space of 2/6 Doynton Parade is reasonable as adequate sunlight will still be received through the day at the Equinox. All other shadows fall to the driveway of 6 Doynton Parade, the rear lane and the car parking areas of the commercial properties to the east. Overlooking to the secluded private open space and habitable room windows of the adjoining residential properties to the south is minimised through the use of highlight windows and screens at the first and second floors. However, the Dwelling 12 ground floor is elevated above natural ground level to an extent that results in overlooking to the secluded private open space of 1/6 Doynton Parade. This is only partially mitigated with a proposed fence extension. This would need to extend to in front of the bedroom 1 window. The fence extension creates a boundary fence with a height of 2.4 metres, which is visually imposing and not an appropriate design response. All other elevations face Doynton Parade, the rear lane and commercial property for which window treatments to screen against overlooking are not required.

The proposal presents significant visual bulk to the residential property at 2/6 Doynton Parade and is visually obstrusive. Dwelling 9 is sited immediately adjacent to the secluded private open space of 2/6 Doynton Parade. Dwelling 9 has an overall height of 10.7 metres and is elongated north-south over a length of 13 metres. The south wall of Dwelling 9 has a height of 9.9 metres and is setback only 4.2 metres from the south boundary, failing to meet the side setback requirements of the planning scheme of 5 metres. The cumulative length of the Dwelling 9 and 12 south walls is 32 metres, presenting an unreasonable degree of bulk and massing to the secluded private open space and habitable room windows of 1/6 Doynton Parade. The common driveway of 6 Doynton Parade does not provide a sufficient buffer to mitigate the visual bulk. Meaningful landscaping breaks are not provided along the south boundary to maintain the garden city character of the area, break up built form or mitigate visual bulk to 1/6 Doynton Parade and 2/6 Doynton Parade.




Site Coverage and Permeability The site coverage and permeable area is acceptable (approximately 53% and 27% respectively) and complies with the maximum requirements. The permeable area is sufficient to limit the impact of stormwater runoff subject to drainage conditions to maintain overland flows. On site amenity and internal amenity The layout of the development provides west facing windows to the principle living areas, which have reasonable solar access. The development would not unreasonably reduce the solar access to habitable room windows on adjoining lots. The Dwelling 6, 7, 8 and 9 lack a sense of address and their entries are obscured and isolated from the street. Car Parking, traffic and access The requisite car parking spaces required under Clause 52.06 would not be provided as shown in the following table:

Use Number of Dwellings

Clause 52.06 Requirement

Car space required

Car spaces provided

One or two bedroom dwelling

1

(1 spaces per dwelling) 1 1

Three or more bedroom dwelling

11 (2 spaces per dwelling) 22 22

Visitor Parking (1 space for every 5 dwellings)

2 -

Total Provided 23

Total Required 25

The rear lane is utilised by the commercial properties fronting Blackburn Road. The integration of residential traffic (16 car spaces) with the commercial traffic would result in potential traffic conflicts and is not considered a safe, convenient or efficient design response.

Council’s Traffic Engineers advised the waiver of the two visitor car spaces is not supported as there is a high demand for parking associated with the proximity to Syndal Station and the activity centre. This is a large site with capacity to provide visitor parking. As such, the provision of visitor parking is a reasonable expectation.




The location of the Dwelling 12 vehicle crossing is unacceptable as it affects an existing pram crossing and is too close to the intersection.

A single driveway to Doynton Parade to service the car spaces would avoid the conflict with commercial traffic in the lane, vehicle crossing conflicts and provide opportunity for visitor spaces. However, this cannot be addressed by condition of permit as a complete redesign would be required. Private Open Space The proposal fails to meet Council’s requirement for a minimum of 75 square metres private open space to each dwelling (Clause 55.05-4 Private Open Space) and is not sufficient to meet the recreation and service needs of residents. First floor balconies to all dwellings are provided in place of ground level secluded private open space. Whilst this may be appropriate for apartment style developments within activity centres, towhouse style developments in residential areas should provide requisite open space at ground levels. The balconies are oriented north-west and west and have reasonable solar access and have covenient access from the living areas.

Objections not previously addressed

Increased demand on local stormwater drainage infrastructure The proposal would not result in stormwater runoff that would exceed the capacity of local drains. A drainage plan would be required prior to construction.

Noise Noise from the proposal would be residential noise subject to EPA regulations.

Poor internal amenity due lack of separation between dwellings The Monash Planning Scheme encourages greater housing diversity and choice and not all people require detached living to achieve an acceptable level internal amenity.

Overcrowding in the area Population density should be directed in and around activity centres and there the increased number of people resulting from the proposal would not, in itself, result in unreasonable detriment to the immediate area. Potential damage to property through excavation Whilst an important matter, asset protection is regulated through the building permit process. Loss of property value Loss of property value is not a planning consideration.




CONCLUSION:

The proposal is inconsistent with the relevant policies and objectives of the Monash Planning Scheme, including the State and Local Planning Policy Framework and Clause 55. The proposal is not sympathetic to the character of the area in terms of building bulk and massing and insufficient landscaping opportunities. Sufficient private open space is not provided to meet the recreation and service needs of residents. Car parking and vehicle access arrangements are not satisfactory.




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.

1.6 2-4 doynton parade, mount waverley construction …

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