agenda item 3.4 24 september 2015 - dac.sa.gov.au · 24 september 2015 p2 imdac agenda item: 3.4...
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24 September 2015
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AGENDA ITEM 3.4
24 September 2015
Officer: Gabrielle McMahon Assessment | Investment Management Department of Planning, Transport & Infrastructure
TABLE OF CONTENTS
PLANNING REPORT
AGENDA REPORT
APPENDIX 1.DEVELOPMENT PLAN PROVISIONS
ATTACHMENTS
ATTACHMENT A - LOCALITY MAP, ZONE MAPS CERTIFICATES OF TITLE
ATTACHMENT B – APPLICATION PLANS, ELEVATIONS
ATTACHMENT C - APPLICATION CONSULTANT REPORTS
Planning statement from Future Urban (including Architectural Statement by BDA
Architects), dated May 2015
Response to request for further information from Future Urban, dated 17 July 2015
Heritage Impact Statement by Hosking Willis, East End Apartments, dated July
2015
Conservation Management Plan Review by BB Architects, 292-300 Rundle Street,
Adelaide 1987, dated March 2015
Traffic Impact Statement by GTA, dated 17 May 2015
Environmental Wind Assessment by JDR#1 Pty Ltd, dated 14 May 2015
Letter on landscaping by Outer Space, dated 10 March 2015
Preliminary Environmental Noise Assessment by Sonus, dated April 2015
Veolia Environmental Services - quote for waste and recycling services, dated April
2015
ATTACHMENT D - GOVERNMENT ARCHITECT COMMENT, STATE HERITAGE UNIT
ATTACHMENT E – COUNCIL COMMENTS
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IMDAC AGENDA ITEM: 3.4
Application No: 020/A022/15 KNET Reference: 2015/04305/01 (#9806970) Applicant: C Projects Proposal: A mixed use development, comprising works affecting State
and Local Heritage places and the construction of a 23 level
residential tower above with associated car parking
Subject Land: 292-300 Rundle Street, Adelaide Relevant Authority: Inner Metropolitan Development Assessment Committee of
the Development Assessment Commission
Role of the
Commission:
Schedule 10 section 4B(1) of the Development Regulations
2008: Development that exceeds $10m in the City of Adelaide
Zone / Policy Area: Capital City Zone: Main Street Policy Area 14
Categorisation: Merit
Notification: Category 1
Council: Adelaide City Council
Development Plan: Adelaide (City) Development Plan, consolidated 2 April 2015
Statutory Referral
Agencies:
State Heritage Unit, Government Architect
Officers Report: Gabrielle McMahon
Recommendation: Refusal
EXECUTIVE SUMMARY
The applicant seeks approval to retain and conserve existing Local and State Heritage
places on the northern corner of Rundle Street and East Terrace and for a residential
tower (in the order of 76 metres in height) to be constructed above. The mix of uses and
retail on ground level is supported, continuing the activation of the adjoining streets.
The subject site is an important city location in a remarkably intact heritage precinct,
being a gateway into the city from the East and the entry to the historic character of
Rundle Street East. The site is located within the Capital City Zone and Main Street Policy
Area. Nominally the height limits are 34 metres within the Main Street and 53 metres
elsewhere. However, the proposal meets the over height criteria in the Development Plan
and therefore no height limit applies.
Rundle Street is a Main Street and development is expected to be consistent with the
intimate scale and intricate and diverse architectural features of the street to reinforce
the existing two and three storey built scale which is derived from buildings of relatively
uniform height and scale, mostly built in the nineteenth and early twentieth century. The
Development Plan seeks exemplary designs and contemporary juxtapositions for new
settings for heritage places and development that is sensitive to the scale, diversity and
character of the context of the locality.
The Government Architect and the State Heritage Unit do not support the proposal,
forming the view that the proposal is inconsistent with the scale, quality and fine
grain of Rundle Street East and the existing streetscape qualities which define the
historic low-rise urban character of the precinct. The State Heritage Unit also
considers that the proposal negates the landmark quality of the State Heritage listed
Stag Hotel.
While the proposal does meet a number of provisions of the Development Plan, I have
given significant weight to the provisions relating to the contextual setting, given this
highly important location and the current strong urban form evident in the locality.
Overall the proposal is considered to result in a development which will have a
significant impact on the character of the locality and I therefore do not support the
application and recommend refusal.
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ASSESSMENT REPORT
1. BACKGROUND
1.1 Strategic context
In March 2012, the Minister for Planning rezoned land in the Adelaide CBD to increase
building heights and provide additional development opportunities that would help
enliven the city and main street precincts. As part of this initiative, policies were
introduced that provide for a more performance based planning approach and place a
stronger emphasis on the overall planning and design merit of an individual proposal. In
particular, the policies place an emphasis on design quality, interface relationships and
remove prescriptive requirements around height and setbacks.
1.2 Pre-lodgement Process
The proponent entered the pre-lodgement process and undertook three design review
sessions and one Pre-lodgement Panel meeting. They lodged the application prior to
reaching any pre-lodgement agreements. The proposal did progress thorough this
process. However, during these sessions concerns were raised with the height of the
development in the context of the historical character of the area and the heritage
interface as well as other technical issues.
2. DESCRIPTION OF PROPOSAL
The proposal is for a mixed use development and comprises construction and
conservation works affecting one State and two Local Heritage listed buildings with retail
and office uses in the existing buildings and the construction of a 23 level tower,
including 6 levels of ancillary car parking and 17 levels for residential apartments.
More specifically the proposal comprises the following:
Retention and minor conservation works to a State Heritage listed Place and two
Local Heritage (townscapes) places (see below for more details). These buildings are
to provide a podium element to Rundle Street and East Terrace. No change is
proposed to the existing uses within these buildings.
A total building height of 79.1m (to the top of the screen on the rooftop) and 76.2 metres to the top of the roof.
81 apartments (45 two bedroom and 30 one bedroom, 6 three bedroom)
55 car parks on levels ground to 5
78 bicycle parks on levels 3 to 5
Vehicle access to the car park is via an existing access on East Terrace
Balconies will be setback approximately 7.7m from Rundle Street and 8.3m from East Terrace
Ground Retail uses facing East Terrace and Rundle Street
Services, bin store, loading area, access to car lift, 3 car parks.
Access is via East Terrace
Level 1 Existing offices facing East Terrace and Rundle Street
9 car parks / storage
Level 2 9 car parks / storage/ services
Level 3 12 car parks / 32 bicycle parks / storage / services
Level 4 12 car parks / 16 bicycle parks / storage / services /
outside community area on balcony
Level 5 12 car parks / 32 bicycle parks / storage / services /
outside community area on balcony
Levels 6 -20 Residential - 5 apartments per floor
Level 21-23 Residential - 2 apartments per floor
Roof top Lift overrun / services located towards the west and screen
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Materials:
The applicant has provided a detailed design statement. Refer to Page 19 of the planning
report for details. The balustrade glazing is an important element of the proposal and
the quality of the final outcome is reliant on the quality of this glazing and how it is
constructed to be seamless. A materials samples board will be available at the meeting. Below is an elevation showing the proposed materials
Figure 1: Proposed materials
Conservation Works
The proposed works affecting the Stage Heritage Place include:
a) Demolition of a later single-storey rear addition of no heritage value.
b) Demolition of a recent external stair and roofed balcony of no heritage value
behind the southern carriageway.
c) New construction hard against the rear wall and open southern carriageway of the
historic building.
d) Adaptation of the southern carriageway as a retail tenancy including enclosure
with a new shopfront and the construction of new wet areas and lobby within the
space.
e) Conservation works
Conservation works to the Local Heritage listed buildings are reasonably minor and
include stripping paint and restoring brick work, removal of service mounted cabling,
where necessary the restoration of timber window frames, verandah columns, box
gutters, restoration of shopfronts, restoration of parapet walls etc (refer to the letter from Future Urban Group dated 17 July 2015).
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Images of the proposal
Figure 2: Figure 3:
Figure 4:
View looking east along Rundle Street
Figure 5: Figure 6: Figure 7:
Rundle Street / East Terrace Western view North eastern view
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Figure 8 Figure 9:
View from East Terrace looking north
Figure 10: Figure 11:
View from East Terrace looking south View from Rundle Street looking east
Source: BDA Architects
Application details are contained in Attachment B.
3. DESCRIPTION OF THE SITE AND LOCALITY
The subject site is located on the corner of East Terrace and Rundle Street, Adelaide and
is described as follows:
Lot No Deposited Plan Street Suburb Hundred CT Reference
104 30990 Rundle Street Adelaide Adelaide 6021/376
The subject site has a total area of approximately 1,200m2 with a frontage of 21.9
metres to Rundle Street and 48.9 metres to East Terrace. The land contains the following
buildings:
14-16 East Terrace - State Heritage listed East end Market Office and Entrances
294 and 296 Rundle Street - Local Heritage (townscape) East End company office
300 Rundle Street – Local heritage (townscape) shops
292 Rundle Street – not heritage listed – shop
The site is subject to various easements, including reciprocal rights of way, with
limitations. This includes easement marked N which owned by the adjoining property
owner and allows access to the site. It is noted the proposed northern balconies encroach
onto this land.
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Figure 12: Locality Plan
On both frontages there is a continuous row of two storey commercial and retail
buildings. The site frontage to Rundle Street consists of four separate buildings,
constructed to the footpath alignment and with consistent parapet heights and
alignments. On the corner of Rundle Street and East Terrace is a café with access from
both frontages. Further north is vehicle access via the former East End Markets entry.
Refer to the photos below.
Looking west from Rundle Road and East Terrace near the parklands
Subject site Stag Hotel
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Looking north west on East Terrace
Subject land (State Heritage listed) – East Terrace
Looking north west from Rundle Road and East Terrace
North western side of Rundle Street and East Terrace
Subject site
Subject site
Subject site
Subject site
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Northern side of Rundle Street
Looking south west from Rundle Road and East Terrace
Looking east down Rundle Street
Looking south along East Terrace (corner of North Terrace)
Subject site
Subject site
Stag Hotel
Subject site
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View from the subject land to the north
Access into the site via the existing right of way marked N, immediately north of the site (looking west)
Locality
The site is located on the eastern quadrant of the city, adjacent the Park Lands Zone and
is directly opposite Rymill Park in the East Parklands. This is a gateway to the City from
Rundle Road and is a highly visible site from the east.
The locality is characterised by small to medium scale retail or hospitality based land
uses, compromising hotels (Stag Hotel, now vacant), cafes, bars and restaurants. The
built form along Rundle Street and East Terrace presents a consistent massing and
streetscape alignment with a two storey boundary wall height with generous setbacks to
apartment buildings behind. The locality has a strong heritage character comprising
many State and Local heritage items and character buildings. There is a strong context
for Rundle Street East and East Terrace that reinforces the pedestrian scale, fine grain
material verticality (see map below).
Medium scale residential development is also located in the vicinity in the form of
apartments and townhouses. These range in height and style and include an apartment
building immediately north west of the site on Botanic Lane (8 levels), the Garden East
End Apartments on the south side behind Rundle Street, the tallest being 9 East Terrace
(8 levels with a penthouse). Neither building is prominent in longer views from the east
across the parklands because of their relatively modest height, but also because the
alignment of the roads through the parklands and the screening effect of the trees do not
allow for long linear views. Refer to the State Heritage Unit advice for commentary on
the character of the area and the architectural design of these buildings.
Subject site
Subject site
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Figure 9. Locality Plan
4. STATUTORY REFERRAL BODY COMMENTS
Referral responses are contained in the Attachment D
Government Architect
The Government Architect is a mandatory referral in accordance with Schedule 8 of the
Development Regulations 2008. The Commission must have regard to this advice. The
Government Architect advises the following:
Overall, I support the intent for a mixed-use development proposal on
this site.
While the proposal for a residential building and the retention of the
existing streetscape have merit, the location at the edge of the city and
facing the Park Lands indicates that development of this scale will be in
stark contrast to the heritage adjacencies for the foreseeable future. As
well as having a responsibility to provide an exemplar precedent for the
future character of the area, development must be sensitive to the scale,
diversity and character of the current context.
The design intent of the scheme is to create a tall slender building above
the existing listed two storey buildings. The overall height of the proposal
in its current form is 77 meters (24 levels overall). However, given the
existing low scale and fixed nature of the immediate heritage setting of
Rundle Street and East Terrace, I am of the view that the proposed
height results in a building that is of an inappropriate scale for the
context.
Any future development in this location must be justified in terms of
overall design merit, and is expected to address the Principles of good
design, published as guidance to participants in Design Review. These call
for development to be contextual, durable, inclusive, sustainable, to add
value and perform well. In this instance, the contextual response is of
foremost importance.
Development of this scale has a responsibility to offer a considered
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response to the low rise adjacent built form, negotiate the interface
between the heritage-listed neighbours with appropriate setbacks and
contribute to the quality and character of Rundle Street East in the
proportion and composition of the façade expression.
I am of the view this proposal is not consistent with the scale, quality and
fine grain of Rundle Street East, and challenges the existing streetscape
qualities which define the character of the precinct.
State Heritage Unit
The State Heritage Unit (SHU) is a mandatory referral in accordance with Schedule 8 of
the Development Regulations 2008 and the Commission must have regard to their
comments.
The SHU does not support the proposal on heritage grounds for the following reasons.
The proposed development is considered to negate the landmark quality of the
Stag Hotel.
The proposed development is considered to be incompatible with and to diminish
the historic low-rise urban context of the many State heritage places within the
East Terrace precinct between Pirie Street and North Terrace.
Should the Commission determine support for the application, a number of conditions are
recommended (refer to the advice letter).
Heritage advice is contained in Attachment C.
5. TECHNICAL ADVICE
Adelaide City Council
While no statutory referral to Adelaide City Council is required, advice was sought from
Council’s Administration regarding technical matters and the administration made
comments regarding car parking and waste. In summary the following issues were
raised:
Traffic -There are concerns on the position of first (northern) car lift which
requires residents to undertake complex manoeuvres with very limited sight
distance to gain access. Additionally, reversing into the first (northern) car lift
may not be an option for residents when other vehicles are using the access lane.
Loading - The extension of the loading zone on East Terrace for waste collection
requires community consultation to be undertaken by the developer and the
approval of Adelaide City Council. There is a risk that on-street loading/parking
might not be available in the near future at this location due to the O-Bahn
project that DPTI is currently progressing, with plans not yet finalised. Any
reversing out from service lanes is undertaken with very limited sight distance to
pedestrians on footpaths and should not be done without a spotter.
Waste – any previous observations or advice provided by Council should not be
considered the preferred option with regards to waste management. It is a
compromised outcome. It is always Council’s preference for safe on site collection
to minimise impact with the public realm.
Council comments are contained in Attachment D.
6. PUBLIC NOTIFICATION
The development is deemed a Category 1 development by PDC 37(a) for the Capital City
Zone. No notification is therefore required.
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7. POLICY OVERVIEW
The subject site is located within the Capital City Zone of the Adelaide (City)
Development Plan (consolidated 2 April 2015). The southern portion of the site is located
in the Main Street Policy Area 14 while the balance of the land to the north is not within a
policy area. This site straddles two prescribed height limits as shown in the Concept Plan
for the Capital City Zone, being 53 metres in the no policy area and 34 metres within
Policy Area 14.
The Capital City Zone (PDC 19) specifies that development should generally be
compatible with the overall desired form and not exceed the maximum building
height/s unless it meets at least one of the listed criteria. The proposal does qualify
for consideration for consideration for additional height, based on it meets parts
19(a)(i)(iii) and (d), namely its location adjacent East Terrace; is within 200 metres
of a high concentration public transport route; and incorporates the retention and
conservation of a character building. No specific policy guidance is given to the
additional height - the context of the locality and the quality of building design, its
relationship to the context of the locality and apartment amenity and pedestrian
amenity are expected to be exceptional.
Policy Area – Map (Adel/51)
Capital City Zone – concept Plan Fig CC/2
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The following is a summary of the main provisions in the Development Plan
Buildings fronting the Terraces should contribute to a continuous built form to frame
the City edge. East Terrace will be characterised by buildings that maximise views
through to the Park Lands and provide a distinct City edge
The area is identified as a Main Street in Concept Plan CC/2. The main streets,
including Rundle Street are envisaged to have an intimately scaled built form with
narrow and frequent building frontages
The site is located within a Primary Pedestrian Area. To the east is the Adelaide Park
Lands (Rymill Park) with the Park Lands Zone.
The design of development in close proximity with heritage places will reconcile
optimal site development and appropriate design-based responses with the built
form of the heritage places. Contemporary juxtapositions of new and old will provide
new settings for the heritage places appropriate to their roles in this capital.
There will be a consistency and continuity in the height of verandahs and floor to
ceiling heights where development occurs adjacent to buildings of desirable character such as heritage places
A wide range of employment, community, educational, entertainment, tourism and residential land uses, reinforcing the city as a place of diversity and vibrancy
The Zone will be active during the day, evening and late at night
As the most intensely developed area of the city, development in this Zone will be
recognised for its design excellence
An interesting pedestrian environment and human scale will be created at ground
floor level through careful building articulation and fenestration, frequent openings in
building façades, verandahs, balconies, awnings and other features that provide weather protection
Non-residential land uses at ground floor level that generate high levels of pedestrian
activity such as shops and restaurants will also occur throughout the Zone
Council Wide
The Council Wide provisions provide further guidance on design parameters,
development impacting heritage buildings, interface, environmental initiatives and
impacts, requirements for affordable housing. For City Living and Medium to High Scale
apartments there is guidance to appropriate housing choice, private open space,
minimum unit sizes and the extent of natural light, ventilation, outlook, and effective
design outcomes. Of particular relevance for this development are the provisions on
height bulk and scale, and provisions relating to context when there is an existing and
predominant character to the locality.
Relevant planning policies are contained in the concluding appendices and relevant
zoning maps are in the attachments.
8. PLANNING ASSESSMENT
The relevance provisions of the Development Plan are provided in APPENDIX 1 at the
conclusion of this report.
Land use / Ground plane
The proposal incorporates the retention of existing buildings with minimal change to
these buildings, with the exception of a new construction hard against the rear wall and
open carriageway of the original market entrance on East Terrace. While the legibility of
the original market context is compromised by this change and will need suitable
interpretation, the legibility of the heritage places in the streetscape is otherwise
retained. In addition, the established width, rhythm and pattern of facades with narrow
frontages is maintained on the lower levels as desired by PDCs 8 and 12 for the Main
Street Policy Area. The existing retail uses will continue the active street frontages
presently enjoyed. The proposal will therefore generally accord with the provisions
relating to the continuation of small scale diverse land uses on the street level which
activate the pedestrian environment. The following provisions are of importance:
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Main Street
Land Use 1 At ground level along any main street (including Rundle Mall) and in minor streets leading to them, development should provide active and vibrant frontages that contribute to continuous interest at street level.
Design and Appearance 5 The ground level street frontage of buildings should be designed as activate street frontages, provide pedestrian interest, and maximise passive surveillance by: (a) providing at least 70 percent of the frontage as a non-residential use; and (b) 50 percent of the frontage as visually permeable, transparent or clear glazed and may include an entry/foyer or display window to a shop (including a café or
restaurant).
8 Development should strengthen the established character of narrow building frontage widths, vertical massing and above street level fenestrations, balconies, parapets, architectural detailing and ornamentation.
12 Development of both internal and external spaces on Rundle Street should maintain an environment which is intimately scaled, intricate and diverse. Capital City Zone The Zone also includes a number of Main Street areas, encompassing Rundle Mall, Rundle Street, Hindley Street and Gouger Street, which are envisaged to have a wide
range of retail, commercial and community uses that generate high levels of activity. These areas will have an intimately scaled built form with narrow and frequent building frontages. These areas are shown on Concept Plan Figures CC/1 and 2. Objective 3: Design and management of City living to ensure the compatibility of residential amenity with the essential commercial and leisure functions of the Zone.
Objective 4: City streets that provide a comfortable pedestrian environment.
Objective 8: Development that contributes to the Desired Character of the Zone. 5 Development should be consistent with the Desired Character for the Zone. 7 Buildings should present an attractive pedestrian-oriented frontage that adds
interest and vitality to City streets and laneways. 8 The finished ground floor level of buildings should be at grade and/or level with the footpath to provide direct pedestrian access and street level activation. 9 Providing footpath widths and street tree growth permit, development should
contribute to the comfort of pedestrians through the incorporation of verandahs, balconies, awnings and/or canopies that provide pedestrian shelter.
10 Buildings should be positioned regularly on the site and built to the street frontage,
except where a setback is required to accommodate outdoor dining or provide a contextual response to a heritage place.
Building height
The proposal has a maximum height of 79.1 metres to the roof top screen, however the
roof top sits at 76.2 metres. The Concept Plan (CC/2) identifies Rundle Street East as an
area with a maximum height of 34 metres (within 17 metres of the property boundary to
Rundle Street) and a 53 metre maximum height for the remainder of the site.
Notwithstanding the above, PDC 19 of the Capital City Zone outlines criteria whereby
development may be considered when it exceeds the maximum building height.
Building Height 19 Development should generally be compatible with the overall desired city form and not exceed the maximum building height shown in Concept Plan Figures CC/1 and 2; unless it meets one or more of the following:
(a) the proposed building is located in one of the following areas:
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(i) fronting North Terrace, West Terrace or East Terrace and/or at the junction of two
City boulevards shown in Concept Plan Figures CC/1 and 2;
(ii) on an allotment with frontage to Light Square; (iii) within 200 metres of a high concentration public transport route identified on Map Adel/1 (Overlay 4); (b) the site area is greater than 1500 square metres and has side or rear vehicle access;
(c) the development provides an orderly transition up to an existing taller building or prescribed maximum building height in an adjoining Zone or Policy Area; (d) the proposal incorporates the retention and conservation of a character building.
The proposal satisfies criteria (a)(i) whereby the site is fronting East Terrace and part (iii)
whereby the site is within 200 metres of a high concentration public transport route and
part (d) whereby the proposal incorporates the retention and conservation of a character
building. Consideration of over height development may therefore be contemplated on
this site. However, the height limits must be considered with regard to the overall
provisions in the Development Plan and most especially the context of the locality and in
some cases the height within the concept plan may not always be possible to achieve.
The Development Plan specifies that the greatest consideration is given to the desired
character of the Policy Area and then the Capital City Zone, followed by Council Wide
provisions.
Setbacks
The Main Street Policy Area provisions aim to have a consistent podium height along
Rundle Street and for taller buildings which step up in increments to the maximum height
of 53 metres, with an overall setback of at least 6 metres (see provisions below). The
proposal is 9.3 metres to the top of the existing buildings along Rundle Street with a
setback in the order of 7.9 metres. The tower will then abruptly rise to a height of
approximately 76.2 metres (with minor variations due to balconies). While the tower
does not step up in two increments, the overall setback is in excess of 6 metres and the
development therefore meets the general intent of PDC 11. The Capital City Zone has a
setback requirement of 6 metres which applies for part of East Terrace site. The East
Terrace setback is in the order of 9 metres to the lower balcony and therefore achieves
this provision.
Notwithstanding that the setback policies are achieved the building at 76.2 metres in
height is considered to be overly dominant within 8 and 9 metres of the two footpaths. I
consider the form and scale of the building to be overbearing to this streetscape and is
not sympathetic to the scale of other development in the location. It is also important to
note that a portion of this land is within the Main Street Policy area where the height is
nominally 34 metres. While acknowledged that the proposal meets over height provisions
and there is no specific height limit, the provisions do seek exemplary development that
is compatible with its context and reflect and respond to the role of the street it fronts. It
is considered that the proposal does not appropriately respond to the role of Rundle
Street (CW PDC 168).
The State Heritage Unit advice has provided useful commentary on the wider context of
the locality of the three blocks between Pirie Street and North Terrace and considered the
impact on the heritage buildings and more modern townhouses in comparison with the
proposed development – with the new development having a much greater impact on the
view corridors to East Terrace and Rundle Street. This advice is provided in the section
below (under context).
The proposed height, scale and massing of the tower is considered incompatible with the
existing scale of development along Rundle Street and East Terrace and does not
reinforce the desired character of the streetscape as contemplated within the policy area
and zone (CW PDC 169). The tower will be a dominant feature in the landscape that is at
odds with the established character of the area. The scale of the building will be
particularly evident when viewed from the east, however will also be significant from all
other perspectives.
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Main Street Policy Area
11 Buildings with frontage to Rundle Street, east of Frome Street should be designed
to reinforce the prevailing datum heights and parapet levels of the street through: (a) a maximum podium/street wall height that is consistent with one of the adjacent buildings facing the street and does not exceed 13 metres; (b) an upper level setback, measured from the street wall, of at least 3 metres stepping up to a height of 6 storeys, then a further setback of at least 3 metres
stepping up to the maximum overall height shown on Concept Plan Figures CC/1 and 2; and (c) design elements that create a clear distinction between the 13 metre and 22 metre datum lines.
Capital City Zone
11 Other than in the Central Business Policy Area, buildings should be designed to include a podium/street wall height and upper level setback (in the order of 3-6 metres) that: (a) relates to the width of the street and achieves a suitable level of enclosure to the public realm;
(b) provides a human scale at street level; (c) creates a well-defined and continuity of frontage;
(d) gives emphasis and definition to street corners to clearly define the street grid; (e) contributes to the interest, vitality and security of the pedestrian environment; (f) maintains a sense of openness to the sky for pedestrians and brings daylight to the street; and (g) achieves pedestrian comfort by minimising micro climatic impacts (particularly wind tunnelling and downward drafts).
Council Wide 168 The height and scale of development and the type of land use should reflect and respond to the role of the street it fronts as illustrated on Map Adel/1 (Overlay 1).
State Heritage listed places directly affected
BB Architects provided a Conservation Management Plan review, dated 23 March 2015
and subsequently a Heritage Impact Statement was provided by Hosking Willis, dated
July 2015. Refer to Attachment C.
State Heritage
The applicant seeks to undertake works that will directly affect the State heritage Office,
East End Market Buildings, 14-16 East Terrace (SH/13924), including demolition of items
of no heritage value, new construction hard against the rear wall and open southern
carriageway of the historic building and adaptation of the southern carriageway as a
retail tenancy including enclosure with a new shopfront and conservation works.
The State Heritage Unit advises that the proposed works are considered generally
acceptable in their physical impact on the State heritage place for the following reasons.
Fabric of heritage value is retained.
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The legibility of the heritage place in the streetscape is retained (although
legibility of the original market context, including the function of the southern
carriageway, is further compromised and will need suitable interpretation).
The proposal includes conservation works to the State heritage place.
Local Heritage
The applicant also seeks to undertake works that will directly affect two Local Heritage
Places
294 and 296 Rundle Street - Local Heritage (townscape) East End company office
300 Rundle Street – Local heritage (townscape) shops.
The proposed works affecting the Local Heritage Places are considered to be relatively
minor and include checking for waterproofing, checking for paint deterioration, upgrade
to shop fronts, conservation to verandas, reinstatement of the urn to the corner parapet
for 300 Rundle Street. Refer to section 3 of the BB Architects Conservation Management
Plan review.
The Hosking Willis Heritage Impact Statement states that the proposal will not negatively
impact on the heritage value of these buildings. Council was consulted on the application
and provided no commentary on the impacts to the local heritage items. Given the
relatively minor nature of the works proposed and the conservation elements proposed
there are not considered to be any direct impacts to these buildings.
The proposal is consistent with the following provisions which seek the retention and
reuse of heritage items.
Objective 43: Development that retains the heritage value and setting of a heritage place and its built form contribution to the locality.
Objective 44:Continued use or adaptive reuse of the land, buildings and structures
comprising a heritage place. 136 Development of a heritage place should conserve the elements of heritage value as identified in the relevant Tables 137 Development affecting a State heritage place (Table Adel/1), Local heritage place
(Table Adel/2),Local heritage place (City Significance) (Table Adel/3) or Local heritage place (Townscape)(Table Adel/4), including: (a) adaptation to a new use; (b) additional construction; (c) part demolition; (d) alterations; or (e) conservation works;
should facilitate its continued or adaptive use, and utilise materials, finishes, setbacks, scale and other built form qualities that are complementary to the heritage place.
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138 A local heritage place (as identified in Tables Adel/2, 3 or 4) or the Elements of
Heritage Value (as identified in Table Adel/2) should not be demolished unless it can be demonstrated that the place, or those Elements of Heritage Value that are proposed to be demolished, have become so distressed in condition or diminished in integrity that the remaining fabric is no longer capable of adequately representing its heritage value as a local heritage place.
Heritage Adjacency - Streetscape
There are a number of State heritage places in the near vicinity which include:
Stag Hotel, 299 Rundle Street
Office, East End Market Buildings, 6-9a East Terrace
P J O’Brien’s (former East End Market Hotel), 10-12 East Terrace
Former Butcher’s Shop, 288a-290 Rundle Street
The Stag Hotel is identified in the Statement of Significance as a landmark building as it
dominates the approach to the City and the East End across the eastern parklands to
Rundle Street.
The State Heritage Unit advice is that the scale of the proposed building overrides the
relationship between the Stag Hotel and its neighbouring buildings to an extent that
negates its present landmark status and has an adverse impact on its landmark status.
Both the subject site and the Stag Hotel are located in prominent locations where the
heritage adjacency provisions (particularly PDCs 162 and 163 below) desire a strong
presence and where development is compatible in scale, bulk, setbacks, proportion and
composition of design elements of heritage buildings. Given the advice above, the
proposal is considered to be at variance with these provisions for the Stag Hotel. While it
is not considered practical that development match the existing building levels with the
heritage buildings (PDCs 164, 165), as sites would not reach their full potential of the
subject site, it is expected that the form and scale of development would be mindful of
their heritage context. The proposal does not achieve this.
Development on Land Adjacent to a Heritage Place 162 Development on land adjacent to land containing a Heritage Place should demonstrate design consideration of the relationship with the Heritage Place (without necessarily replicating its historic detailing) by establishing compatible: (a) scale, bulk and setbacks; (b) proportion and composition of design elements;
(c) form and visual interest (as determined by play of light and shade, treatments of openings and depths of reveals, roofline and silhouette, colour and texture of materials and details, landscaping and fencing); (d) width of frontage and boundary set-back patterns; and (e) vehicle access and carparking arrangements.
163 Development on land adjacent to a Heritage Place and sited in prominent locations, such as corners or at the termination of vistas where a strong presence is
desirable, should have a scale and detail equal to that of the Heritage Place. 164 In a locality where single-storey Heritage Places prevail at or close to the primary street frontage, single storey development and a consistent building set-back should be maintained. Sympathetically designed second storey components that utilise or
extend roof space to the rear of a building may be appropriate subject to scale, views from the street, overshadowing and privacy considerations. 165 Development that is visible from the street should match the building levels and storey heights of adjacent Heritage Places.
The proposal is also considered to have an adverse impact on the wider urban context in
relation to East Terrace and the parklands. This is discussed below.
Context in the heritage setting
The subject site is an important city location in a remarkably intact heritage precinct,
being a gateway into the city from the East and the entry to the historic character of
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Rundle Street East. Rundle Street and East Terrace have a relatively uniform scale and
massing that frames the street. The landmark Stag Hotel provides a context for the
southern corner site that is important in the streetscape.
The Development Plan expects building design to be exemplary and enhance and
complement the colourful and visually rich and intimate character of the area and the
provision of contemporary juxtapositions for new settings for heritage places.
Development should be sensitive to the intimate scale and intricate and diverse
architectural features of the current context and should reinforce the existing two and
three storey built scale. The importance of this location in a heritage setting and the
precedent the development will set for this historic precinct are critical to the
assessment.
The State Heritage Unit has provided a contextual summary of the locality (see below)
and has concluded that the proposal has a significant impact in the wider context with
regards to the uniform heritage character of the locality. They have also identified in the
map in Attachment D, State Heritage places in the vicinity which are affected by the
proposal.
The following is an extract from the State Heritage advice which relates to the
contextual impact on historic urban form:
The large proportion of heritage places (both State and local) in the locality is
reflected in the homogenous scale of the urban form at this edge of the city, at its
interface with the parklands. In the three blocks between Pirie Street and North
Terrace that constitute the built form parklands frontage of this leg of East Terrace,
there are only a few aberrations in the historic low scale urban form—one being the
apartment building on the Grenfell Street/East Terrace corner and another the
Adelaide Central Luxury Apartments building at 9 East Terrace.
The heights of these two buildings make them prominent above the general two-
storey silhouette of the streetscape between Grenfell Street and North Terrace, but
with a visual impact that is moderated by several factors.
In the case of the Grenfell Street/East Terrace corner building, its vertical articulation
in materials, architectural design and setbacks helps to play down its height and
respond to its context. Its well-defined podium level reinforces the adjacent historic
built form of the Adelaide Fruit and Produce Exchange buildings, the red brick of the
levels above responds to the materiality of its historic context, the upper (eighth)
floor is differentiated by setbacks and a change in materiality, and the penthouse
level is barely apparent above the strong projecting roof line of the eighth floor.
In the case of the apartment building at 9 East Terrace (of similar height to the
above building), its position set right back behind the front row of other buildings
lining Rundle Street, East Terrace and North Terrace moderates its visual presence to
a rising and falling of the mid-block skyline, despite its considerable bulk.
Importantly, neither building is prominent in longer views of the city from the east
across the parklands because of their relatively modest height, but also because the
alignment of the roads through the parklands and the screening effect of the trees
preclude long linear views.
By contrast, the alignment of Rundle Road affords an uninterrupted view across the
parklands from Dequetteville Terrace towards the site of the subject building at the
corner of Rundle Street and East Terrace. The proposed building introduces a very
different scale relationship with the existing historic urban form, in contrast to the
current ‘pushing and stretching’ of the scale and silhouette of the historic built form
envelope. The contrast is strong and dramatic, all the more so with the building’s
broadest dimension seen from the Rundle Road view corridor.
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In considering the heritage impact of this proposal, I am of the opinion that it
significantly diminishes the historic low-rise urban context of the many State
heritage places within this remarkably intact precinct, the character and scale of
which will continue to be strongly defined by the high proportion of State and local
heritage listings.
While it is acknowledged that taller buildings are supported by planning provisions for
the zone they are required to be sympathetic to the heritage scale and context of the
locality. The Government Architect advises that the proposed height results in a
building that is of an inappropriate scale for the context, is not consistent with the
scale, quality and fine grain of Rundle Street East, and challenges the existing
streetscape qualities which define the character of the precinct.
Furthermore the proposal is sited in a prominent corner location and entry to the city
where a strong presence is desirable with a scale and detail equal to that of the Heritage
Place. The impact of the development on the view corridor and the wider city context is
well described by the State Heritage Unit. As identified by the State Heritage Unit the
proposal introduces a very different scale relationship with the existing historic urban
form in contrast to the current scale and silhouette of the historic built form envelope.
The contrast is strong and dramatic, all the more so with the building’s broadest
dimension seen from the Rundle Road view corridor.
In addition, the proposal is not considered to positively contribute to the architectural
detail and fenestration evident in the area and will not contribute to the rich visual
texture of this area that has such a strong heritage presence. While new buildings are
not expected to replicate heritage form, the bulk, scale and mass should be
complementary to the uniform built form character of the locality. The upper levels of the
tower are not sufficiently recessed to maintain a sense of spaciousness and openness to
the sky for Rundle Street.
The proposed tower as a dominant feature in the landscape does not reinforce the
desired character as contemplated for Rundle Street or East Terrace and is not
compatible in height, bulk, scale, setbacks, proportion and composition of design
elements within the locality. The proposal is therefore not considered to accord with the
desired character for the Main Street Policy Area as it relates to the scale of new
development and compatibility with the intimate scale and diverse architectural features
of Rundle Street nor Objective 6 and PDCs 6, 7 and CC Zone Objective 7 and CW PDCs
PDCs 162 a-c, 167(a), 168, 169(a), 181, 187, 190, 219(c)(ii) or the majority of the
heritage adjacency provisions (discussed earlier in the report).
In summary, based on the agency advice and for the reasons outlined I do not support
the proposal due to its scale and overall design in the context of this location. I have
formed the opinion that the proposal is not an exemplary or innovative building design in
this location and does not appropriately respond to the context as expected in areas of
identified street character and will not provide a contemporary juxtaposition with the
heritage places.
The provisions below are particularly relevant: Main Street Policy Area 14 - Desired Character Rundle Street Development will be consistent with the intimate scale and intricate and diverse architectural features of Rundle Street and will reinforce the existing two and three
storey built scale. This is derived from buildings of relatively uniform height and scale, mostly built in the nineteenth and early twentieth century. Existing façades typically encompass a high proportion of solid to void and a high level of architectural detail (including ornamentation and fenestration and through a combination of materials).
Horizontal emphasis is achieved through the integration of masonry coursing, parapets, verandahs and balconies. The subtle variety of scale and massing adds
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texture to the streetscape. Upper levels of buildings are to be recessed to maintain a
sense of spaciousness and openness to the sky.
Objective 6: Development that contributes to the Desired Character of the Policy Area Form and Character 6 Development should conserve, enhance and complement the colourful and visually
rich and intimate character of the area. 7 Development should include a variety of architectural expression and finishes compatible with the many existing older buildings. Verandahs, balconies, awnings and parapets should be designed to complement those existing.
Capital City Zone
Exemplary and outstanding building design is desired in recognition of the location as South Australia’s capital. Contemporary juxtapositions will provide new settings for heritage places. Innovative forms are expected in areas of identified street character, referencing the past, but with emphasis on modern design-based responses that support optimal site development.
Objective 5: Innovative design approaches and contemporary architecture that respond to a building’s context.
Objective 7: Large sites developed to their full potential while ensuring a cohesive scale of development and responding to a building’s context. 6 Development should be of a high standard of architectural design and finish which is appropriate to the City’s role and image as the capital of the State.
13 Buildings, advertisements, site landscaping, street planting and paving should have an integrated, coordinated appearance and should enhance the urban environment. 14 Building façades should be strongly modelled, incorporate a vertical composition which reflects the proportions of existing frontages, and ensure that architectural detailing is consistent around corners and along minor streets and laneways.
Council Wide Built Form and Townscape Objective 47: Buildings should be designed to: (a) reinforce the desired character of the area as contemplated by the minimum and maximum building heights in the Zone and Policy Area provisions; (b) maintain a sense of openness to the sky and daylight to public spaces, open space
areas and existing buildings; (c) contribute to pedestrian safety and comfort; and (d) provide for a transition of building heights between Zone and Policy Areas where building height guidelines differ. Objective 48: Development which incorporates a high level of design excellence
in terms of scale, bulk, massing, materials, finishes, colours and architectural treatment.
Height, Bulk and Scale 167 Development should be of a high standard of design and should reinforce the grid layout and distinctive urban character of the City by maintaining a clear distinction between the following:
(a) the intense urban development and built-form of the town acres in the Capital City, Main Street, City Frame and Residential Zones; (b) the less intense and more informal groupings of buildings set within the landscaped environment of the Institutional Zones; (c) The historic character of the North Adelaide Historic (Conservation) Zone; and (d) the open landscape of the Park Lands Zone.
168 The height and scale of development and the type of land use should reflect and respond to the role of the street it fronts as illustrated on Map Adel/1 (Overlay 1). 169 The height, scale and massing of buildings should reinforce:
(a) the desired character, built form, public environment and scale of the streetscape as contemplated within the Zone and Policy Area, and have regard to:
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(i) maintaining consistent parapet lines, floor levels, height and massing with existing
buildings consistent with the areas desired character;
(ii) reflecting the prevailing pattern of visual sub-division of neighbouring building frontages where frontages display a character pattern of vertical and horizontal sub-divisions; and (iii) avoiding massive unbroken facades. (b) a comfortable proportion of human scale at street level by:
(i) building ground level to the street frontage where zero set-backs prevail; (ii) breaking up the building facade into distinct elements; (iii) incorporating art work and wall and window detailing; and (iv) including attractive planting, seating and pedestrian shelter. Composition and Proportion 179 Development should respect the composition and proportion of architectural
elements of building facades that form an important pattern which contributes to the streetscape’s distinctive character in a manner consistent with the desired character of a locality by: (a) establishing visual links with neighbouring buildings by reflecting and reinforcing
the prevailing pattern of visual sub-division in building facades where a pattern of vertical and/or horizontal sub-divisions is evident and desirable, for example, there may be strong horizontal lines of verandahs, masonry courses, podia or openings, or
there may be vertical proportions in the divisions of facades or windows; and (b) clearly defining ground, middle and roof top levels. Articulation and Modelling 181 Building facades fronting street frontages, access ways, driveways or public spaces should be composed with an appropriate scale, rhythm and proportion which
responds to the use of the building, the desired character of the locality and the modelling and proportions of adjacent buildings Materials, Colours and Finishes 186 The design, external materials, colours and finishes of buildings should have regard to their surrounding townscape context, built form and public environment, consistent with the desired character of the relevant Zone and Policy Area.
187 Development should be finished with materials that are sympathetic to the design and setting of the new building and which incorporate recycled or low embodied energy materials. The form, colour, texture and quality of materials should be of high quality, durable and contribute to the desired character of the locality. Materials, colours and finishes should not necessarily imitate materials and colours of an existing streetscape.
Corner Sites 190 New development on major corner sites should define and reinforce the townscape importance of these sites with appropriately scaled buildings that: (a) establish an architectural form on the corner; (b) abut the street frontage; and
(c) address all street frontages.
219 Development fronting public spaces should be of a high standard of design and should reinforce the distinctive urban character of the City by: (c) defining the major streets as important linear public spaces which display a formal townscape character by: (i) ensuring that buildings in the Capital City Zone maintain or re-establish, a
continuous edge of built-form abutting or situated close to major street frontages; (ii) emphasising the townscape importance of development at the intersections of major streets, and intersections of major streets with City Squares, with corner buildings of a scale and form appropriate to their location and situated close to or abutting both street frontages; (iii) ensuring that buildings fronting on to such streets are of a shape and orientation which relate to and reinforce the rectilinear grid pattern of the City; and
(iv) requiring that any substantial set-back, open space or plaza be behind a built-form or landscape element which maintains or reinforces the continuity and line of the street frontage; (d) maintaining the existing pattern and structure of streets and laneways;
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(e) restricting building over minor streets and laneways to avoid over-shadowing and
preserve the built-form pattern established by traditional land sub-division in the City;
and (f) allowing for ease of pedestrian circulation and through access where possible Heritage adjacency (provisions discussed in the section above)
Boulevards
The proposal is generally consistent with the policies which relate to development
maximising views and activating the Park Lands (second part of PDC 17 and the intent of
CW Objective 46 – refer below).
The proposal will also not alter the alignment of the buildings on the ground level,
thereby maintaining the street grid pattern and strong edge on the ground plane to both
East Terrace and Rundle Street.
The tower will be setback from the boundaries and while it generally aligns with the grid
pattern, the free form nature of the design is not in keeping with the rectilinear nature of
the street pattern. This is further reinforced by the scale and mass of the tower, whereby
it is dominant in this streetscape, and not reflective of the intimate character of the
locality nor forming an edge to the street corner. It is considered that the tower element
will not provide an appropriate transition in scale between the CBD and the Rundle Street
main street. The tower therefore is not considered to accord with the desired pattern of
streets and Objective 6 nor does it provide an appropriate distinct edge to frame the city
and is at variance with the intent of Objective 46 and PDC 167. Capital City Zone Desired Character In important pedestrian areas, buildings will be set back at higher levels above the street wall to provide views to the sky and create a comfortable pedestrian environment.
Views to important civic landmarks, the Park Lands and the Adelaide Hills will be retained as an important part of the City’s charm and character. The City’s boulevards, terraces and Squares will be developed as follows: (d) East Terrace will be characterised by buildings that maximise views through to the Park Lands and provide a distinct City edge.
Adelaide’s pattern of streets and squares The distinctive grid pattern of Adelaide will be reinforced through the creation of a series of attractive boulevards as shown on Concept Plan Figures CC/1 and 2. These boulevards will provide a clear sense of arrival into the City and be characterised by buildings that are aligned to the street pattern, particularly at ground level.
Objective 6: Buildings that reinforce the gridded layout of Adelaide’s streets and respond to the underlying built-form framework of the City.
The Terraces (North, East and West) 17 Development along the terraces should contribute to a continuous built form to frame the City edge and activate the Park Lands.
Council Wide Built Form and Townscape Objective 46: Reinforcement of the city’s grid pattern of streets through: (a) high rise development framing city boulevards, the Squares and Park Lands (b) vibrant main streets of a more intimate scale that help bring the city to life
(c) unique and interesting laneways that provide a sense of enclosure and intimacy
167 Development should be of a high standard of design and should reinforce the grid layout and distinctive urban character of the City by maintaining a clear distinction between the following: (a) the intense urban development and built-form of the town acres in the Capital City,
Main Street, City Frame and Residential Zones; and (d) the open landscape of the Park Lands Zone.
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Design
The building is described by the applicant as an organic ribbon composition organised
around five strong components. These incorporate transparent and coloured glazing, gray
glass windows, solid balconies, screens. Refer to the applicant’s architectural statement on page 19 of the planning report for details on the design philosophy.
Above level car parking in the city is generally not considered favourably unless it is
sleeved with an active use or suitably designed so as to screen the vehicles. The lower
two levels are screened by the existing buildings and the upper levels will be screened.
There are wide balconies proposed for levels 4-6 and level 3 has a screening device. This
space is the junction between the old building and the new.
While the building design may have merit in another location the proportion and
composition of the façade expression does not contribute to the quality and character of
Rundle Street. This has been discussed in depth elsewhere in this report and will not be repeated here.
If the Commission is of a mind to support the application, it is recommended that further advice be obtained from the Government Architect on the quality of the design.
Affordable housing
New development comprising 20 or more dwellings should include a minimum of 15
percent affordable housing that is integrated into residential and mixed use development
and comprises a range of affordable dwelling types that caters for a variety of household
structures (CW Overlay 1 - Affordable Housing, Objectives 1 to 4.).
The proposal does not incorporate any affordable housing and it therefore does not meet
the Development Plan requirements outlined below.
Overlay 1 - Affordable Housing The following objectives and principles of development control that follow apply to the ‘designated area’ marked on Map Adel/1 (Overlay 15a , 15b and 15c). They are additional to those expressed for the whole of the council area and those expressed for the relevant Zone and, if applicable, Policy Area.
INTERPRETATION Where the Objectives and/or Principles of Development Control that apply in relation to this overlay are in conflict with the relevant Council-wide Objectives and/or Principles of Development Control in the Development Plan, the overlay will prevail. Objective 1: Affordable housing that is integrated with residential and mixed use
development. Objective 2: Development that comprises a range of affordable dwelling types that
cater for a variety of household structures. Objective 3: Affordable housing that deliver whole-of-life cost savings to the
occupants. Objective 4: Affordable housing that is provided in a wide range of locations and integrated into the City. 1 Development comprising 20 or more dwellings should include a minimum of 15 percent affordable housing.
2 Where development includes affordable housing, then the quantitative provisions in respect to the following elements are not applicable to the affordable housing component provided the qualitative outcomes can be achieved: (a) allotment area and dimensions; (b) building height;
(c) site area and dimensions;
(d) site coverage;
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(e) front, side and rear setbacks to boundaries;
(f) area and dimensions of private open space;
(g) minimum unit sizes; (h) minimum storage areas; (i) plot ratio; (j) dwelling unit factor; and (k) landscaped open space.
APARTMENT AMENITY
Medium to high scale residential development should provide for a high standard of
amenity and environmental performance as sought by Council Wide Objective 22 and
Principles 48-74. These provisions provide guidance with respect to the design of building
entrances, levels of natural light and ventilation, private open space, privacy, outlook and
minimum apartment sizes. These provisions require medium to high scale residential
development to have a high quality environment. Refer to the table below for a summary
of the quantitative requirements.
Apartments will maximise the northern and eastern outlook and the views to the
parklands and the hills beyond. There are 5 apartments per floor for levels 6 to 20 and 2
apartments per level on floors 21-23. Lifts and services are located centrally and are
convenient. On the whole, the apartments have a good level of amenity in terms of unit
sizes, private open space, outlook, functionality, natural light and generally accord with
the minimum requirements in the Development Plan. Overall it is considered that the
proposal will provide a good level of amenity for future occupants.
However, there is a concern in relation to the proposed setback of apartment balconies
on the northern façade. The building encroaches over an easement not on the applicant’s
land (at varying depths) to the top balcony and is therefore not consistent with PDC 67
which required a 3 metre setback from the boundary for balconies and habitable rooms.
This easement, marked N is for access purposes and also notes that the height of any
encroachments is restricted to 43.05 metres AHD. The AHD is approximately 40m at this
location and therefore buildings can only encroach over the easement to a height of
approximately 3 metres. As the building encroaches over the easement approval will be
required from the neighbouring land owner to waiver or amend this requirement over
land that the applicant does not own or control.
Some of these balconies to the north east of the site are approximately 2.2 metres from
the adjacent apartment building (being an 8 level building, including 2 levels of car
parking). The proposal incorporates communal balconies on levels 4 and 5 and private
balconies (1 per floor) on levels 6 and above which will be close to the existing
apartment balconies. Given the existing building is 8 levels, future residents may have
direct views into approximately 3 of the existing apartments to the north. The lower
residents may also be affected by overlooking onto balconies. From levels 8 and below
there will be some impacts from the loss of outlook, light and ventilation.
I consider that the northern balconies to the west of the site should be set back further
from the existing residential development to maintain good levels of light and ventilation
between buildings and increase privacy levels and to accord with PDC 67 (and if required
subject to approval from the adjacent owner for any encroachments over the easement).
Refer below for a photo of the adjoining residential apartments and the proposed floor
plans and a location plan from the applicant to gain an appreciation of the impacts.
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Quantitative requirements
Proposed DP Guideline Assessment
Site Area 1,200m2 N/A N/A
Building
Height
Maximum of 79.1m to the rooftop screen
76.2m to the rooftop
34m in the Main Street Policy Area 14
53m in the Capital City Zone
28m minimum
The proposal meets the over height provisions in PDC 19
The contextual relationship is an important consideration in the assessment of the overall
height - Refer to the report for details
Private Open Space
Varying sized balconies which range from 12m2
to 20.5m2 and communal areas
1 bed – 8m2
2 bed - 11m2
3 bed - 15m2
√
Apartment
size
81 Apartments (45 two bedroom and 30 one bedroom, 6 three bedroom)
1 bed – 59.5m2
2 bed – 105 m2
(includes small walk through study)
3 Bed - 167m2
1 bed – 502
2 bed - 65m2
3 bed - 80m2
√
Open space dimensions
Exceed 2m in width Minimum dimension of
2m and well proportioned, off living rooms
√
Access to
natural light
All but 7 bedrooms
have bedrooms and
Maximum distance of
a habitable room from
√
Source BDA Architects
Right of way
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and ventilation
living areas with a window
a source of natural light should be no less than 6m
CW PDC 58
2 hours direct sunlight at Winter Solstice to at least one habitable room window, at least 20% of the POS & communal open space
Storage
areas – residential apartments
Variety of apartment types
1 bed – 8m3
2 bed -10m3
3 bed -12m3
√
Minimum of 10m3 provided
Car parking 57 spaces Nil N/A
Bicycle
Parking
78 spaces will be
provided over levels 3 to 5
There is no change to the uses on the lower levels so bicycle parking for the retail/office component has not been assessed
Residential is 1per
apartment under 150 sq metre = 70 and 2 spaces per apartment over 150 sq metres = 12.
Office / retail – 1 per 200 sq metre
(plus 2 and 1 per 1,000 sq metre for visitors)
Total required is 87. The
proposal falls short by 9 spaces which is considered insignificant in the context of the development and is not fundamental to the proposal
Access Access is via the
existing entry from East Terrace
Side street (if applicable)
Discussed later in report
Setbacks The setbacks vary due
to the curvilinear shape of the balconies. The
allotments are also not rectangular
The setbacks range from:
South - 7.9m to 10.4m from Rundle Street
East -8.9m to 12.4m from East Terrace
West – on the boundary at some locations and 1.2m at the northern side. A small portion of the balcony is near the boundary on the southern side
North – 2.2m at the western side and 4.2m at the eastern side
Habitable rooms and
balconies should be setback 3m from
adjacent property boundaries
The intent of the policy is to:
allow for solar penetration and
ventilation to apartments and for a reasonable external outlook; and
so as not to impact on the future development of adjoining sites
Not achieved for northern
apartments which encroach over the
property boundary (refer above).
Otherwise balconies face
either east, north or south where possible and have good dimensions.
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ADAPTABILITY
The proposal retains and reuses an existing heritage building which is strongly supported.
The proposal incorporates 1, 2 and 3 bedroom apartments which is also supported,
although it is noted there is little variety of apartment type within these. The apartment
layout is generally good with usable and functional private open space and additional
common areas. Adaptability 72 Within medium to high scale residential or serviced apartment development,
dwelling/apartment layouts should be adaptable to accommodate: (a) a range of activities and privacy levels between different spaces; (b) flexible room sizes and proportions; (c) efficient circulation to optimise the functionality of floor space within rooms; and (d) the future reuse of student accommodation as residential apartments through a design and layout that allows individual apartments to be reconfigured into a larger
dwelling or other alternative use.
Transport, access and parking
A traffic report has been provided by GTA Consultants, dated 17 April 2015. Car parking
is proposed over 6 levels (ground to level 5) utilising a car lift and accommodates up to
55 cars. Access will be via an existing crossover on East Terrace onto a right of way that
is currently used for loading and unloading for developments on the subject land.
Car parking is not required at this location, however ancillary parking is also not
specifically excluded or discouraged. It would be preferable if there was no parking in this
city location, to minimise the increase in traffic and disruption to the East Terrace
footpath. A reduction in cars in the city is also encouraged from a strategic perspective
with an emphasis on the use of other sustainable modes of transport. Notwithstanding
this, it is not considered detrimental to the proposal.
The loading and unloading arrangements will occur both on the ground level (smaller
vehicles – SRV) and on East Terrace for larger vehicles. It is noted that the existing
shops/ cafes currently utilise the rear laneway for loading and unloading and waste
collection and this will be relocated to the street. Waste collection will now be from the
proposed extended loading area on East Terrace.
From a technical perspective there are concerns with the vehicle access into the car lift
and potentially the location for the waste collection, which have been raised by Council.
These are summarised as:
The location of the northern car lift does not allow for adequate space for complex
manoeuvres into it and has the potential to result in operational issues, queuing
etc. Refer to the Council comments for details. .
Source: GTA Consultants, Traffic Impact Assessment
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The extension of the loading zone for the waste collection area on East Terrace
will require public consultation by the proponent and the approval of Council.
Council advise that there is a risk that on-street loading/parking at this location
might not be available in the near future due to the O-Bahn project.
These concerns were raised with the applicant. Additional turning circles were requested,
which provide a variety of scenarios for vehicles entering and exiting the lifts in both a
forward and reversing direction to demonstrate how potential hazards are resolved. The
applicant advised that they consider that the GTA response is adequate and the vehicles
movements are safe and convenient.
I am not confident that the access arrangements are safe and convenient. The proposed
car park arrangement is likely to require either reconfiguring or operational guidelines for
residents. If the Commission is of a mind to approve the development it may choose to
seek its own independent traffic advice prior to granting Planning Consent or include a
reserve matter that the applicant investigate these issues further, prior to final
Development Approval.
Environmental
Overshadowing
The Council Wide micro-climate and sunlight provisions seek to ensure that new
developments do not unreasonably impact on existing residents or the southern side of
footpaths. As the site is within the Capital City Zone and is not adjacent a residential
zone there are no specific policies regarding the amount of sunlight expected. The Capital
City Zone PDC 12 envisages slender towers and spaces between buildings and design
techniques to enable sunlight to the southern footpath. The following provisions are
particular relevant:
Capital City Zone
12 Buildings north of Rundle Mall, Rundle Street, Hindley Street and Gouger Street should have
a built form that incorporates slender tower elements, spaces between buildings or other design techniques that enable sunlight access to the southern footpath.
Council Wide Micro-climate and Sunlight Objective 33: Buildings which are designed and sited to be energy efficient and to minimise micro-climatic and solar access impacts on land or other buildings.
119 Development should be designed and sited to minimise micro-climatic and solar access impact on adjacent land or buildings, including effects of patterns of wind, temperature, daylight, sunlight, glare and shadow. 120 Development should be designed and sited to ensure an adequate level of daylight, minimise overshadowing of buildings, and public and private outdoor spaces, particularly during
the lunch time hours.
The shadow diagrams shown below, prepared by BDA Architects illustrate the shadow
impact for the Winter Solstice, comparing the 53 metres height limit, the proposal at 77
metres and a building at 90 metres. It is noted the applicant initially considered a
building height of 90 metres on this site.
The proposed tower is in the order of 24 metres in width (at the widest point on level 4)
and is not considered a slender tower. At 79.1 metres high by 24 metres wide it will
affect the pedestrian environment by overshadowing of Rundle Street and East Terrace
and also a portion of the Park Lands. This will significantly impact on the southern side of
the footpath and extend into Ebenezer Place and beyond into the East End apartments
which currently receive good levels of sunlight. This is at odds with the provisions
mentioned to minimise solar access for land, buildings and southern footpaths.
It is acknowledged that a building consistent with the heights in the concept plan (53
metres) would also result in overshadowing of these public areas. However, while the
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Development Plan allows for a 34 metres and 53 metre height on the subject land, it may
not be applicable in all circumstances to maximise this height, based on the contextual
arrangements. This is considered to be an important corner site in a special location with
a strong predominant character. An approval of a development at this height would set a
precedent that could lead to the majority of Rundle Street being in shadow.
Source: bda Architecture
Acoustics
A preliminary noise assessment has been provided by Sonus, dated April 2015. The key
noise issues identified for the site are the impact of the traffic corridors and nearby
entertainment venues on the amenity of the proposed apartments. Recommended noise
criteria have been provided in the report on the lower end of the range provided in the
Development Plan. The applicant was advised by DPTI planning staff that a detailed
acoustic report will be required which ensure the dwellings are appropriately attenuated
from nearby entertainment venues, the Fringe events and the car park. The applicant
advised that this would be provided in the detailed design phase.
If the Commission is of a mind to support the application a reserve matter or condition is
recommended to deal with this issue.
Wind
A desktop wind analysis has been provided by JDR#1 Pty Ltd. The report addresses only
the general wind effects and any localised effects that are identifiable by visual
inspection. Any recommendations in this report are made only in principle and are based
upon our experience in the study of wind environment effects around buildings.
The author concludes that wind impact from the proposed development is assessed as
negligible to minor to pedestrian traffic on Rundle Street and East Terrace.
Environmental Efficiency
The intent is achieve an average rating of not less than 6-Star NatHERS house energy
rating for the apartments in accordance with current BCA requirements with
comprehensive NatHERS modelling for all apartment types/orientation to occur prior to
Building Rules Consent to confirm the minimum energy efficiency target is met.
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The building incorporates passive design techniques to assist in environmental efficiency
including:
maximising outlook to the parklands and the hills beyond and the use of northern
light wherever possible, minimising western windows to reduce heat load
Useable private open space is provides which opens out from living rooms
Direct access to natural light and ventilation to minimise the need for and use of
mechanical and lighting systems
Avoiding deep and narrow apartments to maximise ventilation to minimise the
need for mechanical ventilation systems
Incorporating thermal insulation of roof, walls, floors and ceilings and draught
proofing doors, windows and openings
Applying light colours to external surfaces that receive a high degree of sun
exposure
High efficiency solar glazing
Solar boost central gas fired hot water, efficient lighting design and inverter
driven air conditioning
The proposal does not provide a high level of ESD technologies for renewal energy for
heating and cooling (such as solar panels, solar hot water, wind power, co-generation
facilities etc). However, the proposal generally meets the policies for adequate thermal
comfort through passive design techniques and is generally consistent with council wide
provisions.
Crime Prevention through Urban Design
The proposal provides for passive surveillance of the site with the mix of land uses and
overlooking into the public realm, particularly from the upper level balconies and
windows. There are no significant crime prevention issues, however it is recommended
that entrance and exit areas from the fire escape stairs be illuminated during the hours of
darkness and have CCTV coverage. The proposal generally meets the requirements for
CPTUD (CW Objective 24, PDCs 82 -85).
Landscaping
Raised planter boxes are proposed on balconies to screen the functional use of the car
park and to create a transition from the parklands. In the letter from Outer Space, dated
10 March 2015, have provided information to the applicant as to an appropriate design
solution for the landscaping – including planter boxes which are the same level as the
balustrades (nominally 1200mm high) to enclose the community outdoor spaces and
create a safe barrier to the balcony edge.
Shrubs and trees are proposed in addition to smaller plants as well as cascading or
climbing plant varieties to soften the balcony edge. Another option is hanging planters
that attach to the balustrade. A holistic drainage plan will need to be prepared which
considers both drainage from the raised planters and the recessed lower garden bed/
hanging planters.
Source: Outer Space, dated 10March 2015
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The applicant has not identified which approach will be undertaken. If the Commission is
of a mind to support the application a reserve matter or condition is recommended to
deal with this.
Waste Management
A waste management plan has not been provided – however the applicant has advised
that all waste will be collected by a private contractor by wheeling bins to and from the
waste rooms to the loading zone on East Terrace where the waste truck will be parked.
Reports provided by Veolia identify that the trucks will be rear lift trucks and collection
will occur three times a week. In order to undertake this waste collection on East
Terrace the applicant has recommended that the loading zone be extended in length and
time of operation to accommodate waste collection. This will need approval from
Council, who have not guaranteed this approach.
The advice from Council is that what is proposed by the applicant is not an optimal
outcome. It is always Council’s preference for safe on site collection to minimise impact
with the public realm. Any existing reversing trucks witnessed by the applicant should
not be considered an endorsement of better designed collection practices. These services
and risk mitigation will change with future contracts.
If the Commission is of a mind to support the application a reserve matter or condition is
recommended whereby a Waste Management Plan be provided prior to final Development
Approval.
9. CONCLUSION
The mix of uses and retention of the heritage buildings is supported on the site. However
I consider that the proposed scale of the development is significantly at odds with the
uniform low to mid scale heritage adjacencies and does not provide an exemplar building
in the context or set a precedent of a character of development desired for the locality. I
have had regard to the comments from the Government Architect and the State Heritage
Unit who do not support the proposal based on the scale of the development - which they
consider is in stark contrast and inconsistent with the streetscape qualities which define
the character of the precinct.
While the proposal does meet a number of provisions of the Development Plan, the
contextual setting is considered to be critical in the assessment of this application and
overall the proposal is considered to result in a development which will have a
significant impact on the character of the locality. I have given significant weight to
the provisions relating to the contextual setting, given this highly important location
and the current strong urban form evident in the locality.
Based on the agency advice and the relevant provisions of the Development Plan,
particularly relating to the desired character for the Rundle Street Main Street, height,
bulk, scale, heritage adjacencies and contextual relationships for character areas and the
parklands, I do not support the proposal in its current form and recommend refusal of
the application.
10. RECOMMENDATION
I recommend that the Development Assessment Commission:
1) RESOLVE that the proposed development is NOT seriously at variance with the
policies in the Development Plan.
2) RESOLVE to REFUSE Development Plan Consent to Development Application
020/A022/15, for a mixed use development, comprising works affecting State and
Local Heritage places and the construction of a 23 level tower above for residential
uses and associated car parking at 292-300 Rundle Street, Adelaide the reasons
listed below:
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The proposed scale of the development is not sensitive to the intimate scale
and intricate and diverse architectural features of Rundle Street and East
Terrace and is not in keeping with the desired character for Rundle Street as
a main street.
The proposal is of such a form and scale that it negates the landmark quality
of the Stag Hotel and is at odds with the provisions relating to heritage
adjacency
The proposal does not provide affordable housing
The proposal is considered to be at odds with the following provisions within
the Adelaide (City) Development Plan, dated 2 April 2015:
Main Street Policy Area 14
Objectives 6
Principles of Development Control: 6, 7
Capital City Zone
Objectives: 5, 7
Principles of Development Control: 6, 12, 13
Council Wide
Objectives: 33, 47(a)(b)(d), 48
Principles of Development Control: 119, 120, 162(a-d), 163, 164, 165, 167(a),
168(a)(i), 179(a), 181, 186, 187, 190, 219(c)(ii)
………………………………………………….
Gabrielle McMahon
PRINCIPAL PLANNING OFFICER
ASSESSMENT: INVESTMENT MANAGEMENT
DEPARTMENT OF PLANNING, TRANSPORT AND INFRASTRUCTURE
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ATTACHMENT A – RELEVANT POLICIES
Adelaide (City) Development Plan Policies – 2 April 2015
RELEVANT DEVELOPMENT PLAN PROVISIONS
The Objectives and Principles of Development Control in the Development Plan most
relevant to the assessment of the application are outlined as follows. These are contained
in the Adelaide (City) Development Plan (consolidated 2 April 2015).
CAPITAL CITY ZONE
Introduction
The Desired Character, Objectives and Principles of Development Control that follow
apply in the whole of the Capital City Zone shown on Maps Adel/17 to 20, 23 to 26 and
29 to 31. They are additional to those expressed for the whole of the Council area and in
cases of apparent conflict, take precedence over the more general provisions. In the
assessment of development, the greatest weight is to be applied to satisfying the Desired
Character for the Zone.
Desired Character
This Zone is the economic and cultural focus of the State and includes a range of
employment, community, educational, tourism and entertainment facilities. It is
anticipated that an increased population within the Zone will complement the range of
opportunities and experiences provided in the City and increase its vibrancy.
The Zone will be active during the day, evening and late night. Licensed entertainment
premises, nightclubs and bars are encouraged throughout the Zone, particularly where
they are located above or below ground floor level to maintain street level activation
during the day and evening.
High-scale development is envisaged in the Zone with high street walls that frame the
streets. However an interesting pedestrian environment and human scale will be created
at ground floor levels through careful building articulation and fenestration, frequent
openings in building façades, verandahs, balconies, awnings and other features that
provide weather protection.
In important pedestrian areas, buildings will be set back at higher levels above the street
wall to provide views to the sky and create a comfortable pedestrian environment. In
narrow streets and laneways the street setback above the street wall may be relatively
shallow or non-existent to create intimate spaces through a greater sense of enclosure.
In the Central Business Policy Areas, upper level setbacks are not envisaged.
Non-residential land uses at ground floor level that generate high levels of pedestrian
activity such as shops, cafés and restaurants will occur throughout the Zone. Within the
Central Business Policy Area, residential land uses at ground level are discouraged. At
ground level, development will continue to provide visual interest after hours by being
well lit and having no external shutters.
There will also be a rich display of art that is accessible to the public and contextually
relevant.
Exemplary and outstanding building design is desired in recognition of the location as
South Australia’s capital. Contemporary juxtapositions will provide new settings for
heritage places. Innovative forms are expected in areas of identified street character,
referencing the past, but with emphasis on modern design-based responses that support
optimal site development.
Adelaide’s pattern of streets and squares
The distinctive grid pattern of Adelaide will be reinforced through the creation of a series
of attractive boulevards as shown on Concept Plan Figures CC/1 and 2. These boulevards
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will provide a clear sense of arrival into the City and be characterised by buildings that
are aligned to the street pattern, particularly at ground level.
Views to important civic landmarks, the Park Lands and the Adelaide Hills will be retained
as an important part of the City’s charm and character.
The City’s boulevards, terraces and Squares will be developed as follows:
(d) East Terrace will be characterised by buildings that maximise views through to the
Park Lands and provide a distinct City edge.
The Zone also includes a number of Main Street areas, encompassing Rundle Mall,
Rundle Street, Hindley Street and Gouger Street, which are envisaged to have a wide
range of retail, commercial and community uses that generate high levels of activity.
These areas will have an intimately scaled built form with narrow and frequent building
frontages. These areas are shown on Concept Plan Figures CC/1 and 2.
Minor streets and laneways will have a sense of enclosure (a tall street wall compared to
street width) and an intimate, welcoming and comfortable pedestrian environment with
buildings sited and composed in a way that responds to the buildings’ context. There will
be a strong emphasis on ground level activation through frequent window openings, land
uses that spill out onto the footpath, and control of wind impacts.
Development in minor streets and laneways with a high value character will respond to
important character elements and provide a comfortable pedestrian environment,
particularly in the following streets: Gray, Leigh, Union, Chesser, Coromandel, Tucker,
Cardwell, Kenton, Market, Ruthven, Cannon, Tatham, Benthem streets, Murrays Lane
and Wright Court.
A comprehensive, safe and convenient movement network throughout the City will
develop, focusing on the provision of linkages on both public and private land between
important destinations and public transport. A high quality system of bicycle or shared
pedestrian and bicycle routes will be established within the Zone.
OBJECTIVES
General
Objective 1: The principal focus for the economic, social and political life of metropolitan
Adelaide and the State.
Objective 2: A vibrant mix of commercial, retail, professional services, hospitality,
entertainment, educational facilities, and medium and high density living.
Objective 3: Design and management of City living to ensure the compatibility of
residential amenity with the essential commercial and leisure functions of the Zone.
Objective 4: City streets that provide a comfortable pedestrian environment.
Objective 5: Innovative design approaches and contemporary architecture that respond
to a building’s context.
Objective 6: Buildings that reinforce the gridded layout of Adelaide’s streets and
respond to the underlying built-form framework of the City.
Objective 7: Large sites developed to their full potential while ensuring a cohesive scale
of development and responding to a building’s context.
Objective 8: Development that contributes to the Desired Character of the Zone.
Land Use
1 The following types of development, or combinations thereof, are envisaged:
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Office
Residential flat building
2 Land uses that are typically closed during the day should be designed to maximise
daytime and evening activation at street level and be compatible with surrounding land
uses, in particular residential development.
Form and Character
5 Development should be consistent with the Desired Character for the Zone.
Design and Appearance
6 Development should be of a high standard of architectural design and finish which is
appropriate to the City’s role and image as the capital of the State.
7 Buildings should present an attractive pedestrian-oriented frontage that adds interest
and vitality to City streets and laneways.
8 The finished ground floor level of buildings should be at grade and/or level with the
footpath to provide direct pedestrian access and street level activation.
9 Providing footpath widths and street tree growth permit, development should
contribute to the comfort of pedestrians through the incorporation of verandahs,
balconies, awnings and/or canopies that provide pedestrian shelter.
10 Buildings should be positioned regularly on the site and built to the street frontage,
except where a setback is required to accommodate outdoor dining or provide a
contextual response to a heritage place.
11 Other than in the Central Business Policy Area, buildings should be designed to
include a podium/street wall height and upper level setback (in the order of 3-6 metres)
that:
(a) relates to the width of the street and achieves a suitable level of enclosure to the
public realm;
(b) provides a human scale at street level;
(c) creates a well-defined and continuity of frontage;
(d) gives emphasis and definition to street corners to clearly define the street grid;
(e) contributes to the interest, vitality and security of the pedestrian environment;
(f) maintains a sense of openness to the sky for pedestrians and brings daylight to the
street; and
(g) achieves pedestrian comfort by minimising micro climatic impacts (particularly wind
tunnelling and downward drafts).
12 Buildings north of Rundle Mall, Rundle Street, Hindley Street and Gouger Street
should have a built form that incorporates slender tower elements, spaces between
buildings or other design techniques that enable sunlight access to the southern footpath.
13 Buildings, advertisements, site landscaping, street planting and paving should have
an integrated, coordinated appearance and should enhance the urban environment.
14 Building façades should be strongly modelled, incorporate a vertical composition
which reflects the proportions of existing frontages, and ensure that architectural
detailing is consistent around corners and along minor streets and laneways.
The Terraces (North, East and West)
17 Development along the terraces should contribute to a continuous built form to frame
the City edge and activate the Park Lands.
Building Height
19 Development should generally be compatible with the overall desired city form and
not exceed the maximum building height shown in Concept Plan Figures CC/1 and 2;
unless it meets one or more of the following:
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(a) the proposed building is located in one of the following areas:
(i) fronting North Terrace, West Terrace or East Terrace and/or at the junction of two City
boulevards shown in Concept Plan Figures CC/1 and 2;
(ii) on an allotment with frontage to Light Square;
(iii) within 200 metres of a high concentration public transport route identified on Map
Adel/1 (Overlay 4);
(b) the site area is greater than 1500 square metres and has side or rear vehicle access;
(c) the development provides an orderly transition up to an existing taller building or
prescribed maximum building height in an adjoining Zone or Policy Area;
(d) the proposal incorporates the retention and conservation of a character building.
20 Development should have optimal height and floor space yields to take advantage of
the premium City location and should have a building height no less than half the
maximum shown on Concept Plan Figures CC/1 and 2, or 28 metres in the Central
Business Policy Area, except where one or more of the following applies:
(a) a lower building height is necessary to achieve compliance with the Commonwealth
Airports (Protection of Airspace) Regulations;
(b) the site is adjacent to the City Living Zone or the Adelaide Historic (Conservation)
Zone and a lesser building height is required to manage the interface with low-rise
residential development;
(c) the site is adjacent to a heritage place, or includes a heritage place;
(d) the development includes the construction of a building in the same, or substantially
the same, position as a building which was demolished, as a result of significant damage
caused by an event, within the previous 3 years where the new building has the same, or
substantially the same, layout and external appearance as the previous building.
Movement
23 Pedestrian movement should be based on a network of pedestrian malls, arcades and
lanes, linking the surrounding Zones and giving a variety of north-south and east-west
links.
24 Development should provide pedestrian linkages for safe and convenient movement
with arcades and lanes clearly designated and well-lit to encourage pedestrian access to
public transport and areas of activity. Blank surfaces, shutters and solid infills lining such
routes should be avoided.
25 Development should ensure existing through-site and on-street pedestrian links are
maintained and new pedestrian links are developed in accordance with Map Adel/1
(Overlay 2A).
26 Car parking should be provided in accordance with Table Adel/7.
27 Multi-level car parks should locate vehicle access points away from the primary street
frontage wherever possible and should not be located:
(a) within any of the following areas:
(i) the Core Pedestrian Area identified in Map Adel/1 (Overlays 2, 2A and 3)
(ii) on frontages to North Terrace, East Terrace, Rundle Street, Hindley Street, Currie
Street, Waymouth Street (east of Light Square), Victoria Square or King William Street;
(b) where they conflict with existing or projected pedestrian movement and/or activity;
(c) where they would cause undue disruption to traffic flow; and
(d) where it involves creating new crossovers in North Terrace, Rundle Street, Hindley
Street, Currie Street and Waymouth Street (east of Light Square), Grenfell Street and
Pirie Street (west of Pulteney Street), Victoria Square, Light Square, Hindmarsh Square,
Gawler Place and King William Street or access across primary City access and secondary
City access roads identified in Map Adel/1 (Overlay 1).
29 Vehicle parking spaces and multi-level vehicle parking structures within buildings
should:
(a) enhance active street frontages by providing land uses such as commercial, retail or
other non-car park uses along ground floor street frontages;
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(b) complement the surrounding built form in terms of height, massing and scale; and
(c) incorporate façade treatments along major street frontages that are sufficiently
enclosed and detailed to complement neighbouring buildings consistent with the Desired
Character of the locality.
Advertising
30 Other than signs along Hindley Street, advertisements should use simple graphics and
be restrained in their size, design and colour.
31 In minor streets and laneways, a greater diversity of type, shape, numbers and
design of advertisements are appropriate provided they are of a small-scale and located
to present a consistent message band to pedestrians.
32 There should be an overall consistency achieved by advertisements along individual
street frontages.
PROCEDURAL MATTERS
Public Notification
37 Categories of public notification are prescribed in Schedule 9 of the Development
Regulations 2008.
In addition, the following forms of development, or any combination of (except where the
development is non-complying), are assigned:
(a) Category 1, public notification not required:
All forms of development other than where it is assigned Category 2.
(b) Category 2, public notification required. Third parties do not have any appeal rights.
Any development where the site of the development is adjacent land to land in the City
Living Zone or Adelaide Historic (Conservation) Zone and it exceeds 22 metres in building
height. Note: For Category 3 development, public notification is required. Third parties may make written representations, appear before the relevant authority on the matter, and may appeal against a development consent. This includes any development not classified as either Category 1 or Category 2.
Main Street Policy Area 14
Introduction
The Objectives and Principles of Development Control that follow apply to the Policy Area
as shown on Maps Adel/48, 49, 50, 51 and 55. They are additional to those expressed for
the Zone and, in cases of apparent conflict, take precedence over the Zone provisions. In
the assessment of development, the greatest weight is to be applied to satisfying the
Desired Character for the Policy Area.
Desired Character
Main streets provide an important shopping, hospitality and gathering place that are a
vital part of the City’s identity and image.
An atmosphere of bustle, excitement and activity is created by a vibrant mixture of land
uses that support a strong retail base and a continuing program of on-street arts and
activities. Activities including retail, restaurants, cafés and licensed premises will
contribute to the day and evening economies and be managed to ensure a positive
contribution to the character of the precinct. Licensed entertainment premises, nightclubs
and bars will contribute to activation during the day and evening by generally being small
in scale and located above or below ground floor level.
Development will abut the footpath and continue the established width, rhythm and
pattern of façades to generally support a variety of tenancies with narrow frontages.
Horizontally massed buildings will be broken into smaller façade elements. Above street
level fenestration, balconies, parapets, architectural detailing and ornamentation will be
used to contribute to a rich visual texture.
Upper levels of buildings are to be recessed behind a moderately scaled building street
wall to maintain a sense of spaciousness and openness to the sky. At lower levels, the
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continuity of verandahs and other canopies or pedestrian shelters, and ceiling heights is
desired to maintain a sheltered, high amenity pedestrian environment at a human scale.
Rundle Street
Development will be consistent with the intimate scale and intricate and diverse
architectural features of Rundle Street and will reinforce the existing two and three
storey built scale. This is derived from buildings of relatively uniform height and scale,
mostly built in the nineteenth and early twentieth century.
Existing façades typically encompass a high proportion of solid to void and a high level of
architectural detail (including ornamentation and fenestration and through a combination
of materials).
Horizontal emphasis is achieved through the integration of masonry coursing, parapets,
verandahs and balconies. The subtle variety of scale and massing adds texture to the
streetscape. Upper levels of buildings are to be recessed to maintain a sense of
spaciousness and openness to the sky.
Objective 1: Rundle Street enhanced as an important shopping, leisure and gathering
place for metropolitan Adelaide.
Objective 6: Development that contributes to the Desired Character of the Policy Area.
Land Use
1 At ground level along any main street (including Rundle Mall) and in minor streets
leading to them, development should provide active and vibrant frontages that contribute
to continuous interest at street level.
2 Land uses that add to the vitality of the area and extend activities outside shop hours
are envisaged, including restaurants; educational, community and cultural facilities; and
visitor and residential accommodation.
3 To enable an activated street level, residential development or similar should be
located above ground floor level.
Design and Appearance
5 The ground level street frontage of buildings should be designed as activate street
frontages, provide pedestrian interest, and maximise passive surveillance by:
(a) providing at least 70 percent of the frontage as a non-residential use; and
(b) 50 percent of the frontage as visually permeable, transparent or clear glazed and
may include an entry/foyer or display window to a shop (including a café or restaurant).
Form and Character
6 Development should conserve, enhance and complement the colourful and visually rich
and intimate character of the area.
7 Development should include a variety of architectural expression and finishes
compatible with the many existing older buildings. Verandahs, balconies, awnings and
parapets should be designed to complement those existing.
8 Development should strengthen the established character of narrow building frontage
widths, vertical massing and above street level fenestrations, balconies, parapets,
architectural detailing and ornamentation.
11 Buildings with frontage to Rundle Street, east of Frome Street should be designed to
reinforce the prevailing datum heights and parapet levels of the street through:
(a) a maximum podium/street wall height that is consistent with one of the adjacent
buildings facing the street and does not exceed 13 metres;
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(b) an upper level setback, measured from the street wall, of at least 3 metres stepping
up to a height of 6 storeys, then a further setback of at least 3 metres stepping up to the
maximum overall height shown on Concept Plan Figures CC/1 and 2; and
(c) design elements that create a clear distinction between the 13 metre and 22 metre
datum lines.
12 Development of both internal and external spaces on Rundle Street should maintain
an environment which is intimately scaled, intricate and diverse.
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COUNCIL WIDE
Heritage and Conservation
Objective 42: Acknowledge the diversity of Adelaide’s cultural heritage from pre-
European occupation to current time through the conservation of
heritage places and retention of their heritage value.
Objective 43: Development that retains the heritage value and setting of a heritage
place and its built form contribution to the locality.
Objective 44: Continued use or adaptive reuse of the land, buildings and structures
comprising a heritage place.
Objective 45: Recognition of Aboriginal sites, items and areas which are of social,
archaeological, cultural, mythological or anthropological significance.
General
136 Development of a heritage place should conserve the elements of heritage value
as identified in the relevant Tables
137 Development affecting a State heritage place (Table Adel/1), Local heritage place
(Table Adel/2),Local heritage place (City Significance) (Table Adel/3) or Local
heritage place (Townscape)(Table Adel/4), including:
(a) adaptation to a new use;
(b) additional construction;
(c) part demolition;
(d) alterations; or
(e) conservation works;
should facilitate its continued or adaptive use, and utilise materials, finishes,
setbacks, scale and other built form qualities that are complementary to the
heritage place.
138 A local heritage place (as identified in Tables Adel/2, 3 or 4) or the Elements of
Heritage Value (as identified in Table Adel/2) should not be demolished unless it
can be demonstrated that the place, or those Elements of Heritage Value that are
proposed to be demolished, have become so distressed in condition or diminished
in integrity that the remaining fabric is no longer capable of adequately
representing its heritage value as a local heritage place.
139 Development of Local Heritage Places (Townscape) should occur behind retention
depths (as established from the street facade of the heritage place) of 6 metres in
non-residential Zones and Policy Areas, and 4 metres in the City Living Zone or
the Adelaide Historic (Conservation) Zone or as otherwise indicated in the
heritage Tables in respect of frontages and side wall returns.
140 Development on land adjacent to a heritage place in non-residential Zones or
Policy Areas should incorporate design elements, including where it comprises an
innovative contemporary design, that:
(a) utilise materials, finishes, and other built form qualities that complement the
adjacent heritage place; and
(b) is located no closer to the primary street frontage than the adjacent heritage
place.
142 Development that abuts the built form/fabric of a heritage place should be
carefully integrated, generally being located behind or at the side of the heritage
place and without necessarily replicating historic detailing, so as to retain the
heritage value of the heritage place.
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Aboriginal Heritage
148 Development should recognise historical and cultural relationships associated with
the past, prior and current use of a place which is of significance to Aboriginal
people.
Development on Land Adjacent to a Heritage Place
162 Development on land adjacent to land containing a Heritage Place should
demonstrate design consideration of the relationship with the Heritage Place
(without necessarily replicating its historic detailing) by establishing compatible:
(a) scale, bulk and setbacks;
(b) proportion and composition of design elements;
(c) form and visual interest (as determined by play of light and shade, treatments
of openings and depths of reveals, roofline and silhouette, colour and texture
of materials and details, landscaping and fencing);
(d) width of frontage and boundary set-back patterns; and
(e) vehicle access and carparking arrangements.
163 Development on land adjacent to a Heritage Place and sited in prominent
locations, such as corners or at the termination of vistas where a strong presence
is desirable, should have a scale and detail equal to that of the Heritage Place.
164 In a locality where single-storey Heritage Places prevail at or close to the primary
street frontage, single storey development and a consistent building set-back
should be maintained. Sympathetically designed second storey components that
utilise or extend roof space to the rear of a building may be appropriate subject to
scale, views from the street, overshadowing and privacy considerations.
165 Development that is visible from the street should match the building levels and
storey heights of adjacent Heritage Places.
Living Culture
Objective 1: The City of Adelaide as the prime meeting place and cultural focus for the
people of metropolitan Adelaide and the State.
Objective 2: The City of Adelaide as a major focus for tourism, conventions, leisure,
entertainment, sport and recreation, education, cultural development and
the arts.
Objective 3: Development that enhances the public environment and provides interest
at street level.
1 Development should, where appropriate, integrate public art into the design of
new or refurbished building sites in a manner which is integrated with and
commensurate in scale with, the new or refurbished buildings. For the purpose of
enhancing the public environment, public art should:
(a) demonstrate artistic excellence and innovation in design;
(b) be made of high quality materials;
(c) enhance the setting of new development;
(d) be integrated into the design of the building and the surrounding
environment;
(e) consider any existing public art works; and
(f) not hinder sight lines or create entrapment spots.
City Living
Housing Choice
Objective 6: A variety of housing options which supplement existing types of housing
and suit the widely differing social, cultural and economic needs of all
existing and future residents.
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Objective 7: A range of long and short term residential opportunities to increase the
number and range of dwellings available whilst protecting identified areas
of special character and improving the quality of the residential
environment.
Objective 8: A broad range of accommodation to meet the needs of low income,
disadvantaged and groups with complex needs whilst ensuring integration
with existing residential communities.
5 Development should comprise of a range of housing types, tenures and cost, to
meet the widely differing social and economic needs of residents.
6 Development should provide a variety of accommodation to meet the needs of low
income people, student housing, social housing, housing for single people, large
and small families, people with disabilities and people with other complex needs.
These forms of housing should be distributed throughout the Council area to avoid
over-concentration of similar types of housing in a particular area and should be
of a scale and appearance that reinforces and achieves the desired character of
the locality, as expressed in the relevant Zone and Policy Area.
7 Residential development should be designed to be adaptable to meet people’s
needs throughout their lifespan to ensure that changes associated with old age,
special access and mobility can be accommodated.
Overlay 1 - Affordable Housing
The following objectives and principles of development control that follow apply to the
‘designated area’ marked on Map Adel/1 (Overlay 15a , 15b and 15c). They are
additional to those expressed for the whole of the council area and those expressed for
the relevant Zone and, if applicable, Policy Area.
INTERPRETATION
Where the Objectives and/or Principles of Development Control that apply in relation to
this overlay are in conflict with the relevant Council-wide Objectives and/or Principles of
Development Control in the Development Plan, the overlay will prevail.
Objective 1: Affordable housing that is integrated with residential and mixed use
development.
Objective 2: Development that comprises a range of affordable dwelling types that cater
for a variety of household structures.
Objective 3: Affordable housing that deliver whole-of-life cost savings to the occupants.
Objective 4: Affordable housing that is provided in a wide range of locations and
integrated into the City.
1 Development comprising 20 or more dwellings should include a minimum of 15
percent affordable housing.
2 Where development includes affordable housing, then the quantitative provisions
in respect to the following elements are not applicable to the affordable housing
component provided the qualitative outcomes can be achieved:
(a) allotment area and dimensions;
(b) building height;
(c) site area and dimensions;
(d) site coverage;
(e) front, side and rear setbacks to boundaries;
(f) area and dimensions of private open space;
(g) minimum unit sizes;
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(h) minimum storage areas;
(i) plot ratio;
(j) dwelling unit factor; and
(k) landscaped open space.
Medium to High Scale Residential/Serviced Apartment
Objective 22: Medium to high scale residential (including student accommodation) or
serviced apartment development that:
(a) has a high standard of amenity and environmental performance;
(b) comprises functional internal layouts;
(c) is adaptable to meet a variety of accommodation and living needs;
and
(d) includes well-designed and functional recreation and storage areas.
Building Entrances
48 Entrances to medium to high scale residential or serviced apartment development
should:
(a) be oriented towards the street;
(b) be visible and easily identifiable from the street; and
(c) provide shelter, a sense of personal address and transitional space around the
entry.
49 Entrances to individual dwellings or apartments within medium to high scale
residential or serviced apartment development should:
(a) be located as close as practical to the lift and/or lobby access and minimise
the need for long access corridors;
(b) be clearly identifiable; and
(c) avoid the creation of potential areas for entrapment.
Daylight, Sunlight and Ventilation
50 Medium to high scale residential or serviced apartment development should be
designed to maximise opportunities to facilitate natural ventilation and capitalise
on natural daylight and minimise the need for artificial lighting during daylight
hours.
51 Medium to high scale residential or serviced apartment development should be
designed and located to maximise solar access to dwellings and communal open
space on the northern facade.
52 Ceiling heights that promote the use of taller windows, highlight windows, fan
lights and light shelves should be utilised to facilitate access to natural light,
improve daylight distribution and enhance air circulation, particularly in dwellings
with limited light access and deep interiors.
53 All new medium to high scale residential or serviced apartment development
should have direct ventilation and natural light.
54 The maximum distance of a habitable room such as a living, dining, bedroom or
kitchen from a window providing natural light and ventilation to that room is 8
metres.
55 Light wells should not be used as the primary source of daylight for living rooms
to ensure a sufficient level of outlook and daylight.
567 Medium to high scale residential or serviced apartment development should be
designed to ensure living areas, private open space or communal open space,
where such communal open space provides the primary area of private open
space, are the main recipients of sunlight.
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57 Medium to high scale residential or serviced apartment development should locate
living areas, private open space and communal open space, where such
communal open space provides the primary area of private open space, where
they will receive sunlight and, where possible, should maintain at least two hours
of direct sunlight solar time on 22 June to:
(a) at least one habitable room window (excluding bathroom, toilet, laundry or
storage room windows);
(b) to at least 20 percent of the private open space; and
(c) communal open space, where such communal open space provides the
primary private open space for any adjacent residential development.
58 Natural cross ventilation of habitable rooms should be achieved by the following
methods:
(a) positioning window and door openings in different directions to encourage
cross ventilation from cooling summer breezes;
(b) installing small low level windows on the windward side and larger raised
openings on the leeward side to maximise airspeed in the room;
(c) installing higher level casement or sash windows, clerestory windows or
operable fanlight windows to facilitate convective currents;
(d) selecting windows which the occupants can reconfigure to funnel breezes such
as vertical louvred, casement windows and externally opening doors;
(e) ensuring the internal layout minimises interruptions to airflow;
(f) limiting building depth to allow for ease of cross ventilation; and/or
(g) draught proofing doors, windows and other openings.
Private Open Space
59 Medium to high scale residential development and serviced apartments should
provide the following private open space:
(a) studio (where there is no separate bedroom): no minimum requirement but
some provision is desirable.
(b) 1 bedroom dwelling/apartment: 8 square metres.
(c) 2 bedroom dwelling/apartment: 11 square metres.
(d) 3+ bedroom dwelling/apartment: 15 square metres.
A lesser amount of private open space may be considered appropriate in
circumstances where the equivalent amount of open space is provided in a
communal open space accessible to all occupants of the development.
Private open space for 2 or more bedroom dwellings/apartments may be divided
into different areas whilst private open space for studios or 1 bedroom
dwelling/apartments should be in a single area.
Areas used for parking of motor vehicles are not included as private open space. Note: In Residential, Main Street and Institutional Zones, specific landscaped open space and private landscaped open space provisions apply.
60 Medium to high scale residential (other than student accommodation) or serviced
apartment development in the Capital City Zone should ensure direct access from
living areas to private open space areas, which may take the form of balconies,
terraces, decks or other elevated outdoor areas provided the amenity and visual
privacy of adjacent properties is protected.
61 Other than for student accommodation, private open space should have a
minimum dimension of 2 metres and should be well proportioned to be functional
and promote indoor/outdoor living.
62 Balconies should be integrated into the overall architectural form and detail of the
development and should:
(a) utilise sun screens, pergolas, shutters and openable walls to control sunlight
and wind;
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(b) be cantilevered, partially cantilevered and/or recessed in response to daylight,
wind, acoustic and visual privacy;
(c) be of a depth that ensures sunlight can enter the dwelling below; and
(d) allow views and casual surveillance of the street while providing for safety and
visual privacy.
63 Secondary balconies, including Juliet balconies or operable walls with balustrades
should be considered, subject to overlooking and privacy, for additional amenity
and choice.
64 For clothes drying, balconies off laundries or bathrooms and roof top areas should
be screened from public view.
65 The incorporation of roof top gardens is encouraged providing it does not result in
unreasonable overlooking or loss of privacy.
Visual Privacy
66 Medium to high scale residential or serviced apartment development should be
designed and sited to minimise the potential overlooking of habitable rooms such
as bedrooms and living areas of adjacent development.
67 A habitable room window, balcony, roof garden, terrace or deck should be set-
back from boundaries with adjacent sites at least three metres to provide an
adequate level of amenity and privacy and to not restrict the reasonable
development of adjacent sites.
Noise and Internal Layout
68 Medium to high scale residential or serviced apartment development close to high
noise sources (e.g. major roads, established places of entertainment and centres
of activity) should be designed to locate noise sensitive rooms and private open
space away from noise sources, or be protected by appropriate shielding
techniques.
69 Attached or abutting dwellings/apartments should be designed to minimise the
transmission of sound between dwellings and, in particular, to protect bedrooms
from possible noise intrusions.
Minimum Unit Sizes
70 Medium to high scale residential or serviced apartment development should
provide a high quality living environment by ensuring the following minimum
internal floor areas:
(a) studio (where there is no separate bedroom): 35 square metres.
(b) 1 bedroom dwelling/apartment: 50 square metres
(c) 2 bedroom dwelling/apartment: 65 square metres
(d) 3+ bedroom dwelling/apartment: 80 square metres plus an additional 15
square metres for every additional bedroom over 3 bedrooms. Note: Dwelling/apartment “unit size” includes internal storage areas but does not include balconies or car parking as part of the calculation.
71 Internal structural columns should correspond with the position of internal walls to
ensure that the space within the dwelling/apartment is useable.
Adaptability
72 Within medium to high scale residential or serviced apartment development,
dwelling/apartment layouts should be adaptable to accommodate:
(a) a range of activities and privacy levels between different spaces;
(b) flexible room sizes and proportions;
(c) efficient circulation to optimise the functionality of floor space within rooms;
and
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(d) the future reuse of student accommodation as residential apartments through
a design and layout that allows individual apartments to be reconfigured into a
larger dwelling or other alternative use.
Outlook
73 All medium to high scale residential or serviced apartment development should be
designed to ensure the living rooms have a satisfactory external outlook. Living
rooms that do not have an outlook or the only source of outlook is through high
level windows or a skylight are not considered to provide an appropriate level of
amenity for the occupiers.
Note: Outlook is a short range prospect and is distinct from a view which is more extensive and long range to particular objects or geographic features.
74 Light wells may be used as a source of daylight, ventilation, outlook and sunlight
for medium to high scale residential or serviced apartment development provided
that:
(a) living rooms do not have lightwells as their only source of outlook;
(b) lightwells up to 18 metres in height have a minimum horizontal dimension of 3
metres or 6 metres if overlooked by bedrooms; and
(c) lightwells higher than 18 metres in height have a minimum horizontal
dimension of 6 metres or 9 metres if overlooked by bedrooms.
On-Site Parking and Fencing
Objective 23: Safe and convenient on-site car parking for resident and visitor vehicles.
75 To ensure an adequate provision of on-site parking, car parking should be
provided for medium to high scale residential (other than student
accommodation) or serviced apartment development in accordance with Table
Adel/7.
76 Garages and parking structures associated with medium to high scale residential
or serviced apartment development should be located so that they do not visually
dominate the street frontage.
77 Car parking areas should be designed and located to:
(a) be close and convenient to dwellings/apartments;
(b) be lit at night;
(c) be well ventilated if enclosed;
(d) avoid headlight glare into windows; and
(e) clearly define visitor parking.
78 Where garages are located within a basement or undercroft:
(a) the width of access driveways should be kept to a minimum and should not
detract from the streetscape;
(b) driveways should be designed to ensure safe and convenient access and
egress;
(c) access should be restricted to one driveway or one point of access and egress;
(d) vehicles should be able to safely exit in a forward direction and should not
compromise pedestrian safety or cause conflict with other vehicles; and
(e) the height of the car park ceiling should not exceed one metre above the
finished ground floor level to ensure minimal impact on the streetscape.
79 Fencing and walls should:
(a) be articulated and detailed to provide visual interest;
(b) assist the development to address the street;
(c) assist in the provision of safety and surveillance;
(d) assist in highlighting entrances; and
(e) enable visibility of buildings from and to the street.
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Storage Areas
80 Site facilities should be readily accessible to each dwelling/serviced apartment,
complement the development and relevant desired character and should include:
(a) a common mail box structure located close to the main pedestrian entrance;
(b) areas for the storage and collection of goods, materials, refuse and waste
including facilities to enable the separation of recyclable materials as
appropriate to the size and nature of the development and screened from
public view; and
(c) external clothes drying areas for residential dwellings that do not incorporate
ground level open space.
81 Medium to high scale residential (other than student accommodation) or serviced
apartment development should provide adequate and accessible storage facilities
for the occupants at the following minimum rates:
(a) studio: 6 cubic metres
(b) 1 bedroom dwelling/apartment: 8 cubic metres
(c) 2 bedroom dwelling/apartment: 10 cubic metres
(d) 3+ bedroom dwelling/apartment: 12 cubic metres
50 percent of the storage space should be provided within the dwelling/apartment
with the remainder provided in the basement or other communal areas.
Built Form and Townscape
Objective 46: Reinforcement of the city’s grid pattern of streets through:
(a) high rise development framing city boulevards, the Squares and Park
Lands
(b) vibrant main streets of a more intimate scale that help bring the city
to life
(c) unique and interesting laneways that provide a sense of enclosure
and intimacy
Objective 47: Buildings should be designed to:
(a) reinforce the desired character of the area as contemplated by the
minimum and maximum building heights in the Zone and Policy Area
provisions;
(b) maintain a sense of openness to the sky and daylight to public
spaces, open space areas and existing buildings;
(c) contribute to pedestrian safety and comfort; and
(d) provide for a transition of building heights between Zone and Policy
Areas where building height guidelines differ.
Objective 48: Development which incorporates a high level of design excellence in
terms of scale, bulk, massing, materials, finishes, colours and
architectural treatment.
Height, Bulk and Scale
167 Development should be of a high standard of design and should reinforce the grid
layout and distinctive urban character of the City by maintaining a clear distinction
between the following:
(a) the intense urban development and built-form of the town acres in the Capital
City, Main Street, City Frame and Residential Zones;
(b) the less intense and more informal groupings of buildings set within the
landscaped environment of the Institutional Zones;
(c) The historic character of the North Adelaide Historic (Conservation) Zone; and
(d) the open landscape of the Park Lands Zone.
168 The height and scale of development and the type of land use should reflect and
respond to the role of the street it fronts as illustrated on Map Adel/1 (Overlay 1).
169 The height, scale and massing of buildings should reinforce:
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(a) the desired character, built form, public environment and scale of the
streetscape as contemplated within the Zone and Policy Area, and have regard
to:
(i) maintaining consistent parapet lines, floor levels, height and massing with
existing buildings consistent with the areas desired character;
(ii) reflecting the prevailing pattern of visual sub-division of neighbouring
building frontages where frontages display a character pattern of vertical
and horizontal sub-divisions; and
(iii) avoiding massive unbroken facades.
(b) a comfortable proportion of human scale at street level by:
(i) building ground level to the street frontage where zero set-backs prevail;
(ii) breaking up the building facade into distinct elements;
(iii) incorporating art work and wall and window detailing; and
(iv) including attractive planting, seating and pedestrian shelter.
170 Where possible, large sites should incorporate pedestrian links and combine them
with publicly accessible open space.
171 Buildings and structures should not adversely affect by way of their height and
location the longterm operational, safety and commercial requirements of
Adelaide International Airport. Buildings and structures which exceed the heights
shown in Map Adel/1 (Overlay 5) and which penetrate the Obstacle Limitation
Surfaces (OLS) should be designed, marked or lit to ensure the safe operation of
aircraft within the airspace around the Adelaide International Airport.
Composition and Proportion
179 Development should respect the composition and proportion of architectural
elements of building facades that form an important pattern which contributes to
the streetscape’s distinctive character in a manner consistent with the desired
character of a locality by:
(a) establishing visual links with neighbouring buildings by reflecting and
reinforcing the prevailing pattern of visual sub-division in building facades
where a pattern of vertical and/or horizontal sub-divisions is evident and
desirable, for example, there may be strong horizontal lines of verandahs,
masonry courses, podia or openings, or there may be vertical proportions in
the divisions of facades or windows; and
(b) clearly defining ground, middle and roof top levels.
180 Where there is little or no established building pattern, new buildings should
create new features which contribute to an areas desired character and the way
the urban environment is understood by:
(a) frontages creating clearly defined edges;
(b) generating new compositions and points of interest;
(c) introducing elements for future neighbouring buildings; and
(d) emphasising the importance of the building according to the street hierarchy.
Articulation and Modelling
181 Building facades fronting street frontages, access ways, driveways or public
spaces should be composed with an appropriate scale, rhythm and proportion
which responds to the use of the building, the desired character of the locality and
the modelling and proportions of adjacent buildings
182 Balconies should be designed to give shelter to the street or public space at first
floor levels.
183 Balconies should:
(a) respond to the street context and building orientation; and
(b) incorporate balustrade detailing to reflect the balcony type and location and
the materials and detail of the building facade.
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184 No part of any fully enclosed building should extend over property boundaries,
including streets and public spaces, whether above a balcony at a lower level or
not.
185 Building services such as drainage pipes together with security grills/screens,
ventilation louvers and car park entry doors, should be coordinated and integrated
with the overall facade design.
Materials, Colours and Finishes
186 The design, external materials, colours and finishes of buildings should have
regard to their surrounding townscape context, built form and public environment,
consistent with the desired character of the relevant Zone and Policy Area.
187 Development should be finished with materials that are sympathetic to the design
and setting of the new building and which incorporate recycled or low embodied
energy materials. The form, colour, texture and quality of materials should be of
high quality, durable and contribute to the desired character of the locality.
Materials, colours and finishes should not necessarily imitate materials and colours
of an existing streetscape.
188 Materials and finishes that are easily maintained and do not readily stain,
discolour or deteriorate should be utilised.
189 Development should avoid the use of large expanses of highly reflective materials
and large areas of monotonous, sheer materials (such as polished granite and
curtained wall glazing).
Corner Sites
190 New development on major corner sites should define and reinforce the
townscape importance of these sites with appropriately scaled buildings that:
(a) establish an architectural form on the corner;
(b) abut the street frontage; and
(c) address all street frontages.
Sky and Roof Lines
Objective 49: Innovative and interesting skylines which contribute to the overall
design and performance of the building.
191 Where a prevailing pattern of roof form assists in establishing the desired
character of the locality, new roof forms should be complementary to the shape,
pitch, angle and materials of adjacent building roofs.
192 Buildings should be designed to incorporate well designed roof tops that:
(a) reinforce the desired character of the locality, as expressed in the relevant
Zone or Policy Area;
(b) enhance the skyline and local views;
(c) contribute to the architectural quality of the building;
(d) provide a compositional relationship between the upper-most levels and the
lower portions of the building;
(e) provide an expression of identity;
(f) articulate the roof, breaking down its massing on large buildings to minimise
apparent bulk;
(g) respond to the orientation of the site; and
(h) create minimal glare.
193 Roof top plant and ancillary equipment that projects above the ceiling of the top
storey should:
(a) be designed to minimise the visual impact; and
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(b) be screened from view, including the potential view looking down or across
from existing or possible higher buildings, or be included in a decorative roof
form that is integrated into the design of the building.
194 Roof design should facilitate future use for sustainable functions such as:
(a) rainwater tanks for water conservation;
(b) roof surfaces orientated, angled and of suitable material for photovoltaic
applications; and/or
(c) “green” roofs (ie roof top gardens structurally capable of supporting
vegetation) or water features.
Active Street Frontages
Objective 50: Development that enhances the public environment and, where
appropriate provides activity and interest at street level, reinforcing a
locality’s desired character.
Objective 51: Development designed to promote pedestrian activity and provide a high
quality experience for City residents, workers and visitors by:
(a) enlivening building edges;
(b) creating welcoming, safe and vibrant spaces;
(c) improving perceptions of public safety through passive surveillance;
and
(d) creating interesting and lively pedestrian environments.
195 Development should be designed to create active street frontages that provide
activity and interest to passing pedestrians and contribute to the liveliness, vitality
and security of the public realm.
196 Retail frontages should be designed to provide interest to passing pedestrians at
street level and relief to building mass.
197 Commercial buildings should be designed to ensure that ground floor facades are
rich in detail so they are exciting to walk by, interesting to look at and to stand
beside
198 Residential development should be designed to create interesting pedestrian
environments and resident surveillance of any street, accessway and driveway.
DEMOLITION
Objective 53: Where demolition of an existing building is proposed, the replacement
building is designed and sited to achieve the purposes of the relevant
Zone and Policy Area and to provide for quality urban design.
202 The demolition of any building should not occur unless Development Approval for
a replacement development has been granted. Exceptions may only be granted:
(a) for documented reasons of public health or safety agreed by the planning
authority or alternatively agreed by a statutory order; or
(b) where located within the Park Lands Zone.
Should the replacement development not commence within 12 months of the
granting of Development Approval, then landscaping of the site should be
undertaken.
Environmental
Crime Prevention Through Urban Design
Objective 24: A safe and secure, crime resistant environment that:
(a) ensures that land uses are integrated and designed to facilitate
natural surveillance;
(b) promotes building and site security; and
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(c) promotes visibility through the incorporation of clear lines of sight
and appropriate lighting.
82 Development should promote the safety and security of the community in the
public realm and within development. Development should:
(a) promote natural surveillance of the public realm, including open space, car
parks, pedestrian routes, service lanes, public transport stops and residential
areas, through the design and location of physical features, electrical and
mechanical devices, activities and people to maximise visibility by:
(i) orientating windows, doors and building entrances towards the street,
open spaces, car parks, pedestrian routes and public transport stops;
(ii) avoiding high walls, blank facades, carports and landscaping that
obscures direct views to public areas
(iii) arranging living areas, windows, pedestrian paths and balconies to
overlook recreation areas, entrances and car parks;
(iv) positioning recreational and public space areas so they are bound by
roads on at least two road frontages or overlooked by development;
(v) creating a complementary mix of day and night-time activities, such as
residential, commercial, recreational and community uses, that extend
the duration and level of intensity of public activity;
(vi) locating public toilets, telephones and other public facilities with direct
access and good visibility from well-trafficked public spaces;
(vii) ensuring that rear service areas and access lanes are either secured or
exposed to surveillance; and
(viii) ensuring the surveillance of isolated locations through the use of audio
monitors, emergency telephones or alarms, video cameras or staff eg by
surveillance of lift and toilet areas within car parks.
(b) provide access control by facilitating communication, escape and path finding
within development through legible design by:
(i) incorporating clear directional devices;
(ii) avoiding opportunities for concealment near well travelled routes;
(iii) closing off or locking areas during off-peak hours, such as stairwells, to
concentrate access/exit points to a particular route;
(iv) use of devices such as stainless steel mirrors where a passage has a
bend;
(v) locating main entrances and exits at the front of a site and in view of a
street;
(vi) providing open space and pedestrian routes which are clearly defined and
have clear and direct sightlines for the users; and
(vii) locating elevators and stairwells where they can be viewed by a
maximum number of people, near the edge of buildings where there is a
glass wall at the entrance.
(c) promote territoriality or sense of ownership through physical features that
express ownership and control over the environment and provide a clear
delineation of public and private space by:
(i) clear delineation of boundaries marking public, private and semi-private
space, such as by paving, lighting, walls and planting;
(ii) dividing large development sites into territorial zones to create a sense of
ownership of common space by smaller groups of dwellings; and
(iii) locating main entrances and exits at the front of a site and in view of a
street.
(d) provide awareness through design of what is around and what is ahead so that
legitimate users and observers can make an accurate assessment of the
safety of a locality and site and plan their behaviour accordingly by:
(i) avoiding blind sharp corners, pillars, tall solid fences and a sudden change
in grade of pathways, stairs or corridors so that movement can be
predicted;
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(ii) using devices such as convex security mirrors or reflective surfaces where
lines of sight are impeded;
(iii) ensuring barriers along pathways such as landscaping, fencing and walls
are permeable;
(iv) planting shrubs that have a mature height less than one metre and trees
with a canopy that begins at two metres;
(v) adequate and consistent lighting of open spaces, building entrances,
parking and pedestrian areas to avoid the creation of shadowed areas;
and
(vi) use of robust and durable design features to discourage vandalism.
83 Residential development should be designed to overlook streets, public and
communal open space to allow casual surveillance.
84 To maximise security and safety, buildings should be designed to minimise access
between roofs, balconies and windows of adjacent buildings.
85 Security features should be incorporated within the design of shop fronts to
complement the design of the frontage and allow window shopping out of hours. If
security grilles are provided, these should:
(a) be transparent and illuminated to complement the appearance of the frontage;
(b) provide for window shopping; and
(c) allow for the spill of light from the shop front onto the street.
Solid shutters with less than 75 percent permeability are not acceptable.
Noise Emissions
Objective 26: Development that does not unreasonably interfere with the desired
character of the locality by generating unduly annoying or disturbing
noise.
Objective 27: Noise sensitive development designed to protect its occupants from
existing noise sources and from noise sources contemplated within the
relevant Zone or Policy Area and that does not unreasonably interfere
with the operation of non-residential uses contemplated within the
relevant Zone or Policy Area.
Noise Sources
89 Development with potential to emit significant noise (including licensed
entertainment premises and licensed premises) should incorporate appropriate
noise attenuation measures in to their design to prevent noise from causing
unreasonable interference with the amenity and desired character of the locality,
as contemplated in the relevant Zone and Policy Area.
90 Development of licensed premises or licensed entertainment premises or similar in
the Capital City, Main Street and City Frame Zones should include noise
attenuation measures to achieve the following when assessed at:
(a) the nearest existing noise sensitive location in or adjacent to that Zone:
(i) music noise (L10, 15 min) less than 8 dB above the level of background
noise
(L90,15 min) in any octave band of the sound spectrum; and (ii) music noise
(LA10, 15 min) less than 5 dB(A) above the level of background noise
(LA90,15 min) for the overall (sum of all octave bands) A-weighted levels;
or
(b) the nearest envisaged future noise sensitive location in or adjacent to that
Zone:
(i) music noise (L10, 15 min) less than 8dB above the level of background
noise (L90,15 min) in any octave band of the sound spectrum and music
noise (L10, 15 min) less than 5dB(A) above the level of background noise
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(LA90,15 min) for the overall (sum of all octave bands) A-weighted levels;
or
(ii) music noise (L10, 15 min) less than 60dB(Lin) in any octave band of the
sound spectrum and the overall (LA10,15 min) noise level is less than 55
dB(A).
92 Speakers should not be placed on the fascias of premises or on the pavement
adjacent to the premises to ensure development does not diminish the enjoyment
of other land in the locality.
93 Mechanical plant or equipment, should be designed, sited and screened to
minimise noise impact on adjacent premises or properties. The noise level
associated with the combined operation of plant and equipment such as air
conditioning, ventilation and refrigeration systems when assessed at the nearest
existing or envisaged noise sensitive location in or adjacent to the site should not
exceed:
(a) N/A
(b) 50 dB(A) during daytime (7.00am to 10.00pm) and 40 dB(A) during night
time (10.00pm to 7.00am) in or adjacent to a Residential Zone, the North
Adelaide Historic (Conservation) Zone or the Park Lands Zone when measured
and adjusted in accordance with the relevant environmental noise legislation
except where it can be demonstrated that a high background noise exists.
94 To ensure minimal disturbance to residents:
(a) ancillary activities such as deliveries, collection, movement of private waste
bins, goods, empty bottles and the like should not occur:
(i) after 10.00pm; and
(ii) before 7.00am Monday to Saturday or before 9.00am on a Sunday or
Public Holiday.
(b) typical activity within any car park area including vehicles being started, doors
closing and vehicles moving away from the premises should not result in sleep
disturbance when proposed for use after 10.00pm as defined by the limits
recommended by the World Health Organisation.
Noise Receivers
95 Noise sensitive development should incorporate adequate noise attenuation
measures into their design and construction to provide occupants with reasonable
amenity when exposed to noise sources such as major transport corridors (road,
rail, tram and aircraft), commercial centres, entertainment premises and the like,
and from activities and land uses contemplated in the relevant Zone and Policy
Area provisions.
96 Noise sensitive development in mixed use areas should not unreasonably interfere
with the operation of surrounding non-residential uses that generate noise levels
that are commensurate with the envisaged amenity of the locality.
97 Noise sensitive development adjacent to noise sources should include noise
attenuation measures to achieve the following:
(a) satisfaction of the sleep disturbance criteria in the bedrooms or sleeping areas
of the development as defined by the limits recommended by the World Health
Organisation;
(b) the maximum satisfactory levels in any habitable room for development near
major roads, as provided in the Australian/New Zealand Standard AS/NZS
2107:2000 - ‘Acoustics - Recommended Design Sound Levels and
Reverberation Times for Building Interiors’; and
(c) noise level in any bedroom, when exposed to music noise (L10) from existing
entertainment premises, being:
(i) less than 8 dB above the level of background noise (L90,15 min) in any
octave band
of the sound spectrum; and
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(ii) less than 5 dB(A) above the level of background noise (LA90,15 min) for
the overall
(sum of all octave bands) A-weighted levels.
Background noise within the habitable room can be taken to be that expected in a
typical residential/apartment development of the type proposed, that is inclusive
of internal noise sources such as air conditioning systems, refrigerators and the
like as deemed appropriate.
Unless otherwise demonstrated, the minimum background noise to be used will
be:
Octave Band Centre Frequency(Hz) Minimum Background Noise Level (LA90, 15) dB (A) 63 10 125 12 250 14 500 14 1000 12 2000 10 4000 8 Overall Sum 21
on the basis of the windows being closed for the noise sensitive development and
any existing entertainment premises complying with the relevant legislation
relating to noise emission
98 Attached dwellings/serviced apartments should be designed to minimise the
transmission of sound between dwellings/serviced apartments and should
particularly protect bedrooms from possible noise intrusion.
99 The number of dwellings/serviced apartments within a development sharing a
common entry should be minimised to limit noise generation in internal access
ways.
100 Development on land affected by aircraft noise exceeding 20 ANEF, as shown on
Map/1 (Overlay 6), should be designed, constructed and insulated to minimise the
impact of aircraft noise by being built in accordance with the Australian Standard
AS2021-2000: ‘Acoustics - Aircraft Noise Intrusion - Building Siting and
Construction’.
Waste Management
Objective 28: Development which supports high local environmental quality, promotes
waste minimisation, re-use and recycling, encourages waste water, grey
water and stormwater re-use and does not generate unacceptable levels
of air, liquid or solid pollution.
101 A dedicated area for on-site collection and sorting of recyclable materials and
refuse should be provided within all new development.
102 A dedicated area for the collection and sorting of construction waste and the
recycling of building materials during construction as appropriate to the size and
nature of the development should be provided and screened from public view.
103 Development greater than 2,000 square metres of total floor area should manage
waste by:
(a) containing a dedicated area for the collection and sorting of construction waste
and recyclable building materials;
(b) on-site storage and management of waste;
(c) disposal of non-recyclable waste; and
(d) incorporating waste water and stormwater re-use including the treatment and
re-use of grey water.
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104 Development should not result in emission of atmospheric, liquid or other
pollutants, or cause unacceptable levels of smell and odour which would
detrimentally affect the amenity of adjacent properties or its locality. Land uses
such as restaurants, shops, cafés or other uses that generate smell and odour
should:
(a) ensure extraction flues, ventilation and plant equipment are located in
appropriate locations that will not detrimentally affect the amenity of adjacent
occupiers in terms of noise, odours and the appearance of the equipment;
(b) ensure ventilation and extraction equipment and ducting have the capacity to
clean and filter the air before being released into the atmosphere; and
(c) ensure the size of the ventilation and extraction equipment is suitable and has
the capacity to adequately cater for the demand generated by the potential
number of patrons.
Contaminated Sites
Objective 29: A safe and healthy living and working environment.
105 Where there is evidence of, or reasonable suspicion that land, buildings and/or
water, including underground water, may have been contaminated, or there is
evidence of past potentially contaminating activity/ies, development should only
occur where it is demonstrated that the land, buildings and/or water can be made
suitable for its intended use prior to commencement of that use.
Note: Information of the suitability of land for the proposed land use should be provided as part of the development application and should include:
(a) the provision of a report of the land use history and condition of the site; (b) where the report reveals that contamination is suspected or identified, a detailed site assessment report that determines whether site contamination poses an actual or potential risk to human health and the environment, either on or off the site, of sufficient magnitude to warrant remediation appropriate to the proposed land use; (c) where remediation is warranted, a remediation and/or management strategy prepared in consultation with an independent Environmental Auditor, Contaminated Land, endorsed by the EPA; (d) a site audit report, prepared by an independent Environmental Auditor, Contaminated Land, endorsed by the EPA, that states that in the opinion of the Auditor, the site is suitable for the intended uses(s), or for certain stated uses(s) and also states any conditions pertaining to the use(s).
Energy Efficiency
Objective 30: Development which is compatible with the long term sustainability of
the environment, minimises consumption of non-renewable resources
and utilises alternative energy generation systems.
All Development
106 Buildings should provide adequate thermal comfort for occupants and minimise
the need for energy use for heating, cooling and lighting by:
(a) providing an internal day living area with a north-facing window, other than
for minor additions*, by:
(i) arranging and concentrating main activity areas of a building to the north
for solar penetration; and
(ii) placing buildings on east-west allotments against or close to the southern
boundary to maximise northern solar access and separation to other
buildings to the north.
(b) efficient layout, such as zoning house layout to enable main living areas to be
separately heated and cooled, other than for minor additions;
(c) locating, sizing and shading windows to reduce summer heat loads and permit
entry of winter sun;
(d) allowing for natural cross ventilation to enable cooling breezes to reduce
internal temperatures in summer;
(e) including thermal insulation of roof, walls, floors and ceilings and by draught
proofing doors, windows and openings;
(f) ensuring light colours are applied to external surfaces that receive a high
degree of sun exposure, but not to an extent that will cause glare which
produces discomfort or danger to pedestrians, occupants of adjacent buildings
and users of vehicles;
(g) providing an external clothes line for residential development; and
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(h) use of landscaping.
107 All development should be designed to promote naturally ventilated and day lit
buildings to minimise the need for mechanical ventilation and lighting systems.
108 Energy reductions should, where possible, be achieved by the following:
(a) appropriate orientation of the building by:
(i) maximising north/south facing facades;
(ii) designing and locating the building so the north facade receives good
direct solar radiation;
(iii) minimising east/west facades to protect the building from summer sun
and winter winds;
(iv) narrow floor plates to maximise the amount of floor area receiving good
daylight; and/or
(v) minimising the ratio of wall surface to floor area.
(b) window orientation and shading;
(c) adequate thermal mass including night time purging to cool thermal mass;
(d) appropriate insulation by:
(i) insulating windows, walls, floors and roofs; and
(ii) sealing of external openings to minimise infiltration.
(e) maximising natural ventilation including the provision of openable windows;
(f) appropriate selection of materials, colours and finishes; and
(g) introduction of efficient energy use technologies such as geo-exchange and
embedded, distributed energy generation systems such as cogeneration*,
wind power, fuel cells and solar photovoltaic panels that supplement the
energy needs of the building and in some cases, export surplus energy to the
electricity grid.
109 Orientation and pitch of the roof should facilitate the efficient use of solar
collectors and photovoltaic cells
110 Buildings, where practical, should be refurbished, adapted and reused to ensure
an efficient use of resources.
111 New buildings should be readily adaptable to future alternative uses.
112 Selection of internal materials for all buildings should be made with regard to
internal air quality and ensure low toxic emissions, particularly with respect to
paint and joinery products.
Residential Development
113 New residential development and residential extensions should be designed to
minimise energy consumption and limit greenhouse gas emissions.
114 Development is encouraged to avoid heat loss by incorporating treatments, such
as double glazing of windows along the southern elevation, or by minimizing the
extent of windows facing south.
Office Development
115 The following principles of sustainable design and construction are required for
new office development, and additions and refurbishments to existing office
development, to minimise energy consumption and limit greenhouse gas
emissions:
(a) passive solar consideration in the design, planning and placement of buildings;
(b) re-using and/or improving existing structures or buildings;
(c) designing for the life-cycle of the development to allow for future adaptation;
(d) considering low levels of embodied energy in the selection and use of
materials;
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(e) developing energy efficiency solutions including passive designs using natural
light, solar control, air movement and thermal mass. Systems should be zoned
to minimise use of energy;
(f) using low carbon and renewable energy sources, such as Combined Heat and
Power (CHP) systems and photovoltaics; and
(g) preserving and enhancing local biodiversity, such as by incorporating roof top
gardens.
Renewable Energy
Objective 31: The development of renewable energy facilities, such as wind and
biomass energy facilities, in appropriate locations.
Objective 32: Renewable energy facilities located, sited, designed and operated to
avoid or minimise adverse impacts and maximise positive impacts
on the environment, local community and the State.
116 Renewable energy facilities, including wind farms, should be located, sited,
designed and operated in a manner which avoids or minimises adverse impacts
and maximises positive impacts on the environment, local community and the
State.
117 Renewable energy facilities, including wind farms, and ancillary developments
should be located in areas that maximise efficient generation and supply of
electricity.
Micro-climate and Sunlight
Objective 33: Buildings which are designed and sited to be energy efficient and to
minimise micro-climatic and solar access impacts on land or other
buildings.
Objective 34: Protection from rain, wind and sun without causing detriment to
heritage places, street trees or the integrity of the streetscape.
119 Development should be designed and sited to minimise micro-climatic and solar
access impact on adjacent land or buildings, including effects of patterns of wind,
temperature, daylight, sunlight, glare and shadow.
120 Development should be designed and sited to ensure an adequate level of
daylight, minimise overshadowing of buildings, and public and private outdoor
spaces, particularly during the lunch time hours.
121 Development should not significantly reduce daylight to private open space,
communal open space, where such communal open space provides the primary
private open space, and habitable rooms in adjacent City Living Zones.
122 Glazing on building facades should not result in glare which produces discomfort
or danger to pedestrians, occupants of adjacent buildings and users of vehicles.
123 Buildings within the Core and Primary Pedestrian Areas identified in Map Adel/1
(Overlays 2, 2A and 3), unless specified otherwise within the relevant Zone or
Policy Area, should be designed to provide weather protection for pedestrians
against rain, wind and sun. The design of canopies, verandahs and awnings
should be compatible with the style and character of the building and adjoining
buildings, as well as the desired character, both in scale and detail.
124 Weather protection should not be introduced where it would interfere with the
integrity or heritage value of heritage places or unduly affect street trees.
125 Development that is over 21 metres in building height and is to be built at or on
the street frontage should minimise wind tunnel effect.
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Stormwater Management
Objective 35: Development which maximises the use of stormwater.
Objective 36: Development designed and located to protect stormwater from
pollution sources.
Surface water (inland, marine, estuarine) and ground water has the
potential to be detrimentally affected by water run-off from
development containing solid and liquid wastes. Minimising and
possibly eliminating sources of pollution will reduce the potential for
degrading water quality and enable increased use of stormwater for a
range of applications with environmental, economic and social benefits.
Objective 37: Development designed and located to protect or enhance the
environmental values of receiving waters.
Objective 38: Development designed and located to prevent erosion.
Development involving soil disturbance may result in erosion and
subsequently sedimentation and pollutants entering receiving waters.
Design techniques should be incorporated during both the construction
and operation phases of development to minimise the transportation of
sediment and pollutants off-site.
Objective 39: Development designed and located to prevent or minimise the risk of
downstream flooding.
126 Development of stormwater management systems should be designed and located
to improve the quality of stormwater, minimise pollutant transfer to receiving
waters, and protect downstream receiving waters from high levels of flow.
127 Development affecting existing stormwater management systems should be
designed and located to improve the quality of stormwater, minimise pollutant
transfer to receiving waters, and protect downstream receiving waters from high
levels of flow.
128 Development should incorporate appropriate measures to minimise any
concentrated stormwater discharge from the site.
129 Development should incorporate appropriate measures to minimise the discharge
of sediment, suspended solids, organic matter, nutrients, bacteria and litter and
other contaminants to the stormwater system and may incorporate systems for
treatment or use on site.
130 Development should not cause deleterious affect on the quality or hydrology of
groundwater.
131 Development should manage stormwater to ensure that the design capacity of
existing or planned downstream systems are not exceeded, and other property or
environments are not adversely affected as a result of any concentrated
stormwater discharge from the site.
Infrastructure
Objective 40: Minimisation of the visual impact of infrastructure facilities.
Objective 41: Provision of services and infrastructure that are appropriate for the
intended development and the desired character of the Zone or
Policy Area.
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132 Provision should be made for utility services to the site of a development,
including provision for the supply of water, gas and electricity and for the
satisfactory disposal and potential re-use of sewage and waste water, drainage
and storm water from the site of the development.
133 Service structures, plant and equipment within a site should be designed to be an
integral part of the development and should be suitably screened from public
spaces or streets.
134 Infrastructure and utility services, including provision for the supply of water, gas
and electricity should be put in common trenches or conduits.
135 Development should only occur where it has access to adequate utilities and
services, including:
(a) electricity supply;
(b) water supply;
(c) drainage and stormwater systems;
(d) effluent disposal systems;
(e) formed all-weather public roads;
(f) telecommunications services; and
(g) gas services.
Landscaping
Objective 55: Water conserving landscaping that enhances the local landscape
character and creates a pleasant, safe and attractive living environment.
206 Landscaping should:
(a) be selected and designed for water conservation;
(b) form an integral part of the design of development; and
(c) be used to foster human scale, define spaces, reinforce paths and edges,
screen utility areas and enhance the visual amenity of the area.
207 Landscaping should incorporate local indigenous species suited to the site and
development, provided such landscaping is consistent with the desired character
of the locality and any heritage place.
208 Landscaping should be provided to all areas of communal space, driveways and
shared car parking areas.
209 Landscaping between the road and dwellings should be provided to screen and
protect the dwellings from dust and visual impacts of the road.
Transport and Access
Access and Movement
Objective 60: Access to and movement within the City that is easy, safe, comfortable
and convenient with priority given to pedestrian and cyclist safety and
access.
223 Development should provide safe, convenient and comfortable access and
movement.
224 Vehicle access points along primary and secondary city access roads and local
connector roads, as shown on Map Adel/1 (Overlay 1) should be restricted.
Pedestrian Access
Objective 61: Development that promotes the comfort, enjoyment and security of
pedestrians by providing shelter and reducing conflict with motor
vehicles.
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Objective 62: Development that contributes to the quality of the public realm as a
safe, secure and attractive environment for pedestrian movement and
social interaction.
Objective 63: Safe and convenient design of and access to buildings and public spaces,
particularly for people with disabilities.
225 Development should reflect the significance of the paths and increase the
permeability of the pedestrian network identified within Map Adel/1 (Overlay 2) by
ensuring:
(a) pedestrians are not disrupted or inconvenienced by badly designed or located
vehicle access ramps in footpaths or streets; and
(b) vehicle and service entry points are kept to a minimum to avoid adverse
impact on pedestrian amenity.
227 Development should provide and maintain pedestrian shelter, access and through-
site links in accordance with the walking routes identified within Map Adel/1
(Overlays 2, 2A and 3) and the provisions of the Zone or Policy Area in which it is
located. Such facilities should be appropriately designed and detailed to enhance
the pedestrian environment, have regard to the mobility needs of people with
disabilities, and be safe, suitable and accessible.
228 Corner buildings in the Central Business Policy Area of the Capital City Zone,
buildings adjacent to street intersections and buildings along a high concentration
public transport route or along public transport pedestrian routes identified within
Map Adel/1 (Overlay 4) should provide weather protection for pedestrians in the
form of verandahs, awnings or canopies. Where verandahs or awnings are
provided which block street lighting, they should include additional lighting
beneath the canopy.
229 Permanent structures over a footpath should have a minimum clearance of 3.0
metres above the existing footpath level, except for advertisements which should
have a minimum clearance of 2.5 metres and temporary structures and
retractable canopies which should have a minimum clearance of 2.3 metres above
the existing footpath level.
230 Where posts are required to support permanent structures, they should be located
at least 600 millimetres from the kerb line.
231 Access for people with disabilities should be provided to and within all buildings to
which members of the public have access in accordance with the relevant
Australian Standards. Such access should be provided through the principal
entrance, subject to heritage considerations and for exemptions under the
relevant legislation.
Bicycle Access
Objective 64: Greater use of bicycles for travel to and within the City and the
improvement of conditions, safety and facilities for cyclists.
Objective 65: Adequate supply of secure, short stay and long stay bicycle parking to
support desired growth in City activities.
232 Development should have regard to the bicycle routes identified within Map Adel/1
(Overlay 3) by:
(a) limiting vehicular access points; and
(b) ensuring that vehicles can enter and leave the site in a forward direction,
thereby avoiding reverse manoeuvres.
233 An adequate supply of on-site secure bicycle parking should be provided to meet
the demand generated by the development within the site area of the
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development. Bicycle parking should be provided in accordance with the
requirements set out in Table Adel/6.
Table Adel/6 Bicycle Parking Provisions
Type of development Bicycle parking space standard for employees and/or residents
Bicycle parking space standard for customers, visitors and / or shoppers
Medium to high scale residential 1 per dwelling /apartment with a total floor area less than 150 sq metres 2 per dwelling /apartment with a total floor area greater than 150 sq metres
1 for every 10 dwellings
Office/Ancillary retail services
1 per 200 sq metres of GLA 2 plus 1 per 1000 sq metres of GLA
234 Onsite secure bicycle parking facilities for short stay users (i.e. bicycle rails)
should be:
(a) directly associated with the main entrance;
(b) located at ground floor level;
(c) located undercover;
(d) well lit and well signed;
(e) located where passive surveillance is possible, or covered by CCTV; and
(f) accessible by cycling along a safe, well lit route.
236 Access to bicycle parking should be designed to:
(a) minimise conflict with motor vehicles and pedestrians;
(b) ensure the route is well signed and well lit including the use of road markings
such as a bicycle logo if appropriate to help guide cyclists; and
(c) ensure the route is unhindered by low roof heights.
237 To facilitate and encourage the use of bicycles and walking as a means of travel to
and from the place of work, commercial and institutional development should
provide on-site shower and changing facilities.
Public Transport
Objective 66: Development that promotes the use of sustainable transport consistent
with State Government objectives and initiatives.
Objective 67: Accessible public transport for all metropolitan residents and visitors and
safe and attractive facilities for public transport users.
238 Development along a high concentration public transport route should be designed
to ensure that activity and interest for public transport passengers is maximised
through the incorporation of active street frontages.
239 Development along high concentration public transport routes identified in Map
Adel/1 (Overlay 4) should:
(a) ensure there are pedestrian links through the site if needed to provide access
to public transport;
(b) provide shelter (e.g. verandahs) for pedestrians against wind, sun and rain;
(c) provide interest and activity at street level; and
(d) where possible, avoid vehicle access across high concentration public transport
routes identified in Map Adel/1 (Overlay 4). Where unavoidable, vehicle access
should be integrated into the design of the development whilst retaining active
street frontages.
Traffic and Vehicle Access
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Objective 68: Development that supports a shift toward active and sustainable
transport modes (i.e. public transport, cycling and walking).
Objective 69: An enhanced City environment and the maintenance of an appropriate
hierarchy of roads to distribute traffic into the City to serve development
in preference to through traffic.
Objective 70: Adequate off-street facilities for loading and unloading of courier,
delivery and service vehicles and access for emergency vehicles.
240 Development should be designed so that vehicle access points for parking,
servicing or deliveries, and pedestrian access to a site, are located to minimise
traffic hazards and vehicle queuing on public roads. Access should be safe,
convenient and suitable for the development on the site, and should be obtained
from minor streets and lanes unless otherwise stated in the provisions for the
relevant Zone or Policy Area and provided residential amenity is not unreasonably
affected.
241 Facilities for the loading and unloading of courier, delivery and service vehicles
and access for emergency vehicles should be provided on-site as appropriate to
the size and nature of the development. Such facilities should be screened from
public view and designed, where possible, so that vehicles may enter and leave in
a forward direction.
242 Where practicable, development sites should contain sufficient space for the
location of construction equipment during the course of building construction, so
that development does not rely on the use of Council road reserves to locate such
equipment.
248 Access roads within residential development should:
(a) provide convenient access for emergency vehicles, visitors and residents;
(b) enable vehicles to enter and leave a site in a forward direction;
(c) provide a comfortable and safe pedestrian environment; and
(d) be well lit.
Car Parking
Objective 71: To meet community expectation for parking supply while supporting a
shift toward active and sustainable transport modes.
Objective 72: An adequate supply of short-stay and long-stay parking to support
desired growth in City activities without detrimental affect on traffic and
pedestrian flows.
250 Car parking areas should be located and designed to:
(a) ensure safe and convenient pedestrian movement and traffic circulation
through and within the car parking area;
(b) include adequate provision for manoeuvring and individually accessible car
standing areas;
(c) enable, where practical, vehicles to enter and leave the site in a forward
direction;
(d) minimise interruption to the pattern of built form along street frontages;
(e) provide for access off minor streets and for the screening from public view of
such car parking areas by buildings on the site wherever possible;
(f) minimise adverse impacts on adjoining residential properties in relation to
noise and access and egress;
(g) minimise loss of existing on-street parking spaces arising through crossovers
and access;
(h) incorporate secure bicycle parking spaces and facilitate convenient, safe and
comfortable access to these spaces by cyclists; and
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(i) provide landscaping, such as semi-mature trees, to shade parked vehicles and
reduce the visual impact of the car parking area while maintaining direct sight
lines and informal visual surveillance.
251 All development should provide car parking spaces for people with disabilities in
accordance with the requirements in the Building Code of Australia (BCA). For
classes of buildings not covered by the requirements of the BCA, the number of
spaces should be provided in accordance with Table Adel/7 and such car parking
spaces should comply with Australian Standard 2890.1: ‘Parking Facilities - Off-
street Car Parking’.
252 Within City Living Zone, Adelaide Historic (Conservation) Zone, Main Street, Mixed
Use and Institutional Zones:
(a) adequate car parking should be provided within the site area of the
development to meet the demand generated by the development;
(b) car parking should be provided in accordance with Table Adel/7; and
(c) car parking rates lower than the minimum in Table Adel/7 may be appropriate
where there is readily accessible and frequent public transport in the locality or
it can be demonstrated that a lower provision is warranted, such as for the
following reasons:
(i) the nature of development;
(ii) existing heritage places on or adjacent to the development site which
dictates the development of the site in a manner which hampers the
provision of on-site parking;
(iii) the opportunity to exploit shared car parking areas between uses based
upon compatible hours of peak operation; or
(iv) suitable arrangements for any parking shortfall to be met elsewhere or by
other means.
Note: A development application should include an estimate of the car parking required by the proposed development and an indication of how the parking need will be met. It should take into account the availability of on-street parking spaces on the site frontage and available capacity in off-street car parking facilities which are accessible by members of the public in the locality.
253 Off-street parking should:
(a) be controlled in accordance with the provisions for the relevant Policy Area;
(b) be located away from street frontages or designed as an integral part of
buildings on the site. Provision of parking at basement level is encouraged;
and
(c) not include separate garages or carports in front of buildings within front set-
backs.
262 In areas outside the Core and Primary Pedestrian Areas identified in Map Adel/1
(Overlays 2, 2A and 3), car parking may be provided to serve a development
within the site of the development or elsewhere. Where car parking is provided, it
should be:
(a) provided with vehicle access points that do not cross major walking routes
identified in Map Adel/1 (Overlay 2); and
(b) located away from frontages to major streets wherever possible.
Economic Growth and Land Use
Objective 73: The role of the City enhanced as:
(a) the community, civic and cultural heart of South Australia and as a
driving force in the prosperity of the State;
(b) the State centre for business, administration, services, employment,
education, political and cultural activities, government and public
administration;
(c) a welcoming, secure, attractive and accessible meeting place for the
people of metropolitan Adelaide and beyond for leisure,
entertainment, civic and cultural activity, specialty shopping,
personal and community services;
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(d) a centre for education and research built on key academic strengths
and on the excellent learning environment and student
accommodation available in the City;
(e) a supportive environment for the development of new enterprises
drawing on the cultural, educational, research, commercial and
information technology strengths of the City centre;
(f) the gateway to the attractions of South Australia for international and
interstate visitors by developing a wide range of visitor
accommodation, facilities and attractions, particularly attractions
which showcase the particular strengths of South Australia; and
(g) a great place to live, with a growing diversity of accommodation for
different incomes and lifestyles.
Objective 74: A business environment which encourages investment from domestic
and foreign sources, business development and employment.
Objective 75: Development which reinforces clusters and nodes of activity and
distinctive local character.
Objective 76: A diverse mix of commercial, community, civic and residential activities
to meet the future needs of the Capital City of South Australia.
265 Development, particularly within the Capital City and Institutional Zones,
is encouraged to:
(a) provide a range of shopping facilities in locations that are readily
accessible;
(b) provide for the growth in economic activities that sustain and
enhance the variety and mix of land uses and the character and
function of the City;
(c) maximise opportunities for co-location, multiple use and sharing of
facilities;
(d) be accessible to all modes of transport (particularly public transport)
and safe pedestrian and cycling routes; and
(e) have minimal impact on the amenity of residential areas.
267 Development is encouraged to develop and expand upon the existing or create
new tourism activities to maximise employment and the long-term economic,
social and cultural benefits of developing the City as a competitive domestic and
international tourist destination.
270 Development should not unreasonably restrict the development potential of
adjacent sites, and should have regard to possible future impacts such as loss of
daylight/sunlight access, privacy and outlook.
Squares and Public Spaces*
Objective 57: High quality, readily accessible external and internal open spaces in
appropriate locations that form an integral part of the public domain,
provide sanctuary, visual pleasure and a range of recreational and leisure
opportunities and contribute to the City’s pedestrian and bicycle network.
Objective 58: Development that conserves and enhances the City’s squares, improves
their visual amenity, increases their range of uses, and maximises
pedestrian accessibility to their landscaped areas.
Objective 59: A distinctive Adelaide streetscape identity through the use of street
furniture, graphics, public art, signs, lighting and landscaping, recognising
existing visually significant buildings and trees.
218 The Squares should be for the relaxation, enjoyment and leisure of the City's
workers, residents, students and visitors. The landscaped area of the Squares
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should where possible, be enlarged to improve visual and functional amenity.
Development should:
(a) maximise pedestrian convenience, safety and access to the landscaped area of
the Squares and reduce conflict between pedestrians and vehicles;
(b) contribute to the amenity of the City through the provision of tall trees and
other suitable drought tolerant planting;
(c) provide facilities such as seating, rest areas, and weather protection to
enhance cultural, social and outdoor recreational activity;
(d) maintain a high quality of lighting for security and amenity;
(e) minimise buildings, structures, utilities and service facilities; and
(f) maintain a high quality of design.
219 Development fronting public spaces should be of a high standard of design and
should reinforce the distinctive urban character of the City by:
(a) defining and enclosing the City Squares with a continuous edge of peripheral
buildings which:
(i) are of relatively consistent height and scale as appropriate to the desired
character
surrounding each of the Squares;
(ii) are designed to maintain the continuity of the streetscape;
(iii) are situated close to or abutting the Square frontages;
(iv) provide ground floor activities that support the public use of the space;
and
(v) are designed and sited to minimise overshadowing of the Square’s garden
areas.
(b) enhancing interest, use, safety and a range of activities by ensuring:
(i) facades abutting public spaces provide visual interest; and
(ii) appropriate elements of public art;
(c) defining the major streets as important linear public spaces which display a
formal townscape character by:
(i) ensuring that buildings in the Capital City Zone maintain or re-establish, a
continuous edge of built-form abutting or situated close to major street
frontages;
(ii) emphasising the townscape importance of development at the intersections
of major streets, and intersections of major streets with City Squares,
with corner buildings of a scale and form appropriate to their location and
situated close to or abutting both street frontages;
(iii) ensuring that buildings fronting on to such streets are of a shape and
orientation which relate to and reinforce the rectilinear grid pattern of the
City; and
(iv) requiring that any substantial set-back, open space or plaza be behind a
built-form or landscape element which maintains or reinforces the
continuity and line of the street frontage;
(d) maintaining the existing pattern and structure of streets and laneways;
(e) restricting building over minor streets and laneways to avoid over-shadowing
and preserve the built-form pattern established by traditional land sub-division
in the City; and
(f) allowing for ease of pedestrian circulation and through access where possible
220 Development on, over, encroaching upon, or opening on to public spaces should
not endanger public safety or cause undue inconvenience to either pedestrians,
including persons with disabilities, or users of vehicles, and should ensure
adequate alignment of building levels to surface levels.
Advertising
Objective 56: Outdoor advertisements that are designed and located to:
(a) reinforce the desired character and amenity of the locality within
which it is located and rectify existing unsatisfactory situations;
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(b) be concise and efficient in communicating with the public, avoiding a
proliferation of confusing and cluttered displays or a large number
of advertisements; and
(c) not create a hazard.
210 Advertisements should be designed to respect and enhance the desired character
and amenity of the locality by the means listed below:
(a) the scale, type, design, location, materials, colour, style and illumination of
any advertisements should be compatible with the design and character of
the buildings and land to which it is related, and should be in accordance with
provisions for the Zone and Policy Area in which it is situated and any
relevant adjacent Zones or Policy Areas;
(b) advertisements should be integrated with the architectural form, style and
colour of buildings and wherever possible, requirements for advertisements
should be considered in the design of new buildings;
(c) advertisements should not detrimentally affect residential amenity in the
Residential Zones or the North Adelaide Historic (Conservation) Zone;
(d) advertisements should be artistically interesting in terms of graphics and
construction with intricacy and individuality in design encouraged while
maintaining consistency in design and style where co-ordinated
advertisements are appropriate;
(e) structural supports should be concealed from public view or of minimal visual
impact;
(f) advertisements on individual premises should be co-ordinated in terms of type
and design and should be limited in number to minimize visual clutter;
(g) advertisements should be displayed on fascia signs or located below canopy
level;
(h) advertisements on buildings or sites occupied by a number of tenants should
be coordinated,complementary and the number kept to a minimum; and
(i) advertisements on or adjacent to a heritage place should be designed and
located to respect the heritage value of the heritage place.
211 Advertisements are inappropriate on premises used for a dwelling. This does not
include business plates associated with a home activity which does not exceed 0.2
square metres.
212 Advertisements at roof level where the building forms the backdrop (i.e. plant
room) are inappropriate within the Residential Zones or the North Adelaide
Historic (Conservation) Zone.
213 Product advertisements illustrating products sold on the premises in conjunction
with the business name should not exceed 25 percent of the area of any
advertisement.
214 Development of vending machines, automatic teller machines and fast food
outlets should:
(a) be consistent with the relevant Zone and Policy Area provisions;
(b) maintain the character and continuity of activity along street frontages;
(c) maintain good visibility from the street or public places for security; and
(d) not impede pedestrian movement.
215 Advertisements relating to vending machines and automatic teller machines
should be restrained in size and style.
216 Advertisements should not endanger public safety or detrimentally affect the
amenity of adjacent premises by reason of their location, position, construction or
design and should:
(a) not emit excessive glare or reflection from internal or external illumination;
(b) not obscure road users’ and pedestrians’ views of vehicles, pedestrians or
potentially hazardous road features;
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(c) not cause confusion with, or reduce the effectiveness of traffic control devices;
(d) have a clearance between the footpath and base or underside of projecting
signage of at least 2.5 metres for permanent advertisements and 2.3 metres
for temporary advertisements, and between the kerb face and outside edge of
the sign of at least 600 millimetres; and
(e) permit safe and convenient pedestrian movement.