1.2 6-30 brandon park drive, wheelers hill … · 12/13/2016 · council meeting, 13 december 2016...

Council Meeting, 13 December 2016 Section 1.2 –

6-30 Brandon Park Drive, Wheelers Hill - Development Plan – Ryman Healthcare

1.2 6-30 BRANDON PARK DRIVE, WHEELERS HILL DEVELOPMENT PLAN – RYMAN HEALTHCARE AGED CARE AND RETIRMENT LIVING (TP433)

EXECUTIVE SUMMARY:

This application seeks approval of a Development Plan for the former Brandon Park Secondary College site. The Development Plan proposes a broad master plan for the future development of the land for Aged Care Facility and retirement living (independent living apartments). The Development Plan is required pursuant to the provisions of the Development Plan Overlay 4 (DPO4) provisions in the Monash Planning Scheme and must satisfy the specific components of the DPO4 to the satisfaction of the Responsible Authority. The application was the subject of extensive community consultation including notification by mail to all owners and occupiers of properties within a 1 kilometre radius of the site. Two public information sessions were also held in September 2016 where residents were able to view the plans and speak with Council officers and the permit applicant. A total of 229 submissions to the proposal have been received comprising 80 submissions supporting the development and 149 submissions opposing the development. Key issues to be considered relate to the traffic and car parking, scale of buildings, vegetation and provision of public open space. This report assesses the proposal against the provisions of the Monash Planning Scheme including the relevant state and local planning policy framework and the provisions of the Development Plan Overlay 4 (DPO4). The submitted Development Plan satisfies the requirements of DPO4 and should be supported. RESPONSIBLE DIRECTOR: Peter Panagakos

RESPONSIBLE MANAGER: Angela Hughes

RESPONSIBLE OFFICER: Sue Monagle

WARD: Mulgrave

PROPERTY ADDRESS: 6-30 Brandon Park Drive, Wheelers Hill

PRE-APPLICATION MEETING: Yes

NUMBER OF OBJECTIONS: (229) Two hundred and Twenty Nine



ZONING: General Residential 1 Zone (GRZ1)

EXISTING LAND USE: Vacant

OVERLAY: Development Plan Overlay 4 (DPO4) Heritage Overlay 104 (HO104) covers the row of Sugar Gum trees along Strada Crescent frontage to site

RELEVANT CLAUSES: State Planning Policy Framework Clause 11 (Settlement) Clause 11.02 (Urban growth) Clause 11.04 (Metropolitan Melbourne) Clause 15 (Built Environment & Heritage) Clause 16 (Housing) Clause 16.01-2 (Location of Residential Development) 16.01-3 (Strategic Redevelopment Sites) Clause 16.01-4 (Housing Diversity) 16-02-3 (Residential Aged Care facilities) 16.02-4 (Design and Location of residential aged care facilities) Clause 18 (Transport) Clause 19 (Infrastructure)

Local Planning Policy Framework Clause 21 (Municipal Strategic Statement) Clause 21.04 (Residential Development) Clause 22.01 (Residential Development and Character Policy) Clause 22.04 (Storm Water Management Policy) Clause 22.05 (Tree Conservation Policy) Clause 22.13 ( Environmentally Sustainable Development Policy) Particular Provisions Clause 52.06 (Car Parking) Clause 52.34 (Bicycle facilities) General Provisions Clause 65 (Decision Guidelines)



LOCALITY PLAN

NEIGHBOURHOOD PLAN

SUBJECT SITE



RECOMMENDATION:

That Council resolves to advise the applicant that the submitted Development Plan for 6-30 Brandon Park Drive, Wheelers Hill is satisfactory and it is recommended that it be approved by Council subject to the following modifications to the plan. 1. The provision of additional kerb side parking along the southern side of

Collegium Avenue to the satisfaction of Council and at full cost to the applicant. Any new street tree planting / streetscape works required/ proposed will be at full cost to the applicant.

2. The provision of a pedestrian crossing across Brandon Park Drive. The location and type of crossing will be to the satisfaction of Council and installed at full cost to the applicant.

3. Any subsequent planning permit application for this Development Plan

must provide a full assessment against clause 52.17 of the Monash Planning Scheme in relation to any existing trees on site which are earmarked to be removed, and which are identified as being native to Victoria.

4. Planting of at least 6 mature trees (minimum 3 metres in height when

planted) to replace those trees rated as having ‘moderate’ retention value which will be removed from ‘tree group 6’ in the Treelogic Arboricultural Assessment 26 April 2013.

BACKGROUND:

History The subject site is the former Brandon Park Secondary School which was closed in 2003. In 2014, the former State Government rezoned the former school site to General Residential Zone 1 (GRZ1) and included it in the Development Plan Overlay Schedule 4 (DPO4) (Amendment GC5). The site has been cleared of all former school buildings, however maintains established vegetation. No previous planning applications or planning permits apply to the site. Title Details The land is known as 6-30 Brandon Park Drive and described in Certificate of Title Volume 11488 Folio 769 being Crown Allotment 2017 Parish of Mulgrave.



No covenants are registered on title. Easement encumbrances extend along the southern and eastern sections of the site. Site Context

The Site The subject site is located just east of Brandon Park Shopping Centre and is bordered by Brandon Park Drive, Collegium Avenue, Strada Crescent and Academy Avenue providing four direct street abuttals. It is a large ‘L’ shaped lot with a total site area of 5.56 hectares. The majority of the site is generally flat, however the site does fall away towards its south west corner (i.e. area of site not proposed to be developed located immediately west of Monash Special Development School). The site has been cleared of all buildings. A number of established trees remain on the site, grouped in the centre of the site and at residential interfaces. The row of native Sugar Gums extending along the Strada Crescent frontage to the site are also protected by Heritage Overlay controls (HO102). These trees will be retained as part of the proposal. A section of the site facing Collegium Avenue (close to the corner of Strada Crescent) has been previously subdivided out and has existing planning permit approval (TPA/41209 issued 24 April 2013) for six single storey dwellings which will be developed in collaboration with the TAC (Transport Accident Commission) to provide assisted living for victims rehabilitating after motor vehicle accidents. Surrounding Residential Neighbourhood. The site is located at the western interface of an established post war residential neighbourhood (circa 1960’s/70’s) and the commercial precinct of the Brandon Park Activity Centre. Although bordered by four street frontages, the site is highly exposed from the main frontages to Brandon Park Drive (west) and Collegium Avenue (north). Surrounding residential development is generally characterised by double fronted, regular shaped housing lots, generally ranging between 650 to 700 square metres in area. Single storey, detached brick dwellings, capped with hipped tiled roofs prevail throughout the neighbourhood. Medium density housing developments, generally in the form of town house style developments are scattered throughout the neighbourhood, but in smaller numbers. Housing lots are all provided with on site car parking provision. Front gardens are generally visible from the street, set back behind low front fences, and containing established vegetation reflecting the general age of the neighbourhood. Features of surrounding streets Brandon Park Drive is a fairly busy collector road winding its way from Ferntree Gully Road through the residential neighbourhood to its southern exit at Wellington Road. ‘No Standing’ restrictions prevent kerb side parking along both sides of Brandon Park Drive in the vicinity of the site.



Collegium Avenue is a fairly narrow residential street extending east-west from Brandon Park Drive through to Strada Crescent. A total of thirteen residential properties are located on the northern side of the street facing the subject site. The western end of the street is zoned Commercial 1 and is developed with a three storey office development and child care centre. Strada Crescent to the east is generally residential in nature. Parking restrictions exist south of the subject site adjacent to adjoining school sites. The eastern side of Strada Crescent opposite the subject site is characterised by wide nature strips. A shared pedestrian/bike path extends along the western side of the street at the front of the subject site. Academy Avenue to the south is a short street extending east-west from Brandon Park Drive through to Strada Crescent. Two schools front Academy Avenue, these being Monash Special Developmental School and Good Shepherd Primary School. Eleven residential frontages exist on the southern side of the street. No residential properties abut the subject site. Broader Neighbourhood Context The site forms part of the Brandon Park Activity Centre (BPAC) which is centred at the intersection of Ferntree Gully Road and Springvale Road and adjacent to entry/exit points to the Monash Freeway. The BPAC is one of five main activity centres within the City of Monash, the others being Glen Waverley, Mount Waverley, Oakleigh and Clayton. It contains a diverse range of land uses such as retail shops, offices, hotel, car sales, petrol stations, childcare centres, and residential and corresponding land zonings of Commercial 1 Zone, Industrial 1 Zone and General Residential Zones 1 and 2. The major components of the BPAC are:- • Brandon Park Shopping Centre, • Brandon Office Park, • Village Green Hotel, • The subject site (former Brandon Park Secondary College), • Barlow World car sales. The site is also located within close walking distance of Brandon Park Reserve and Brentwood Reserve with access to a range of good public transport options including bus routes along both Ferntree Gully Road and Springvale Road providing direct connections to metropolitan railway stations, education and larger Activity Centres such as Glen Waverley and Chadstone.

PROPOSAL:

The application seeks approval of a Development Plan as required by Clause 43.03 Development Plan Overlay (DPO4) of the Monash Planning Scheme. The Development Plan provides a broad master plan for how the applicant proposes to use and develop the site.



The submitted Development Plan proposes that the site will be developed for comprehensive aged care and retirement living. The proposal seeks to develop a series of buildings (3 to 5 storeys in height) across the site which will cater for independent retirement living, and comprehensive aged care facilities. The applicant for the Development Plan is Ryman Healthcare, the same company which developed and operates the Weary Dunlop aged care and retirement complex in Jells Road, Wheelers Hill. Features of the proposal are as follows; Residential facilities • Aged care/retirement village to accommodate over 700 residents across

five buildings incorporating; o 199 care beds (aged care element), o 94 assisted living suites (aged care element); and o 340 independent living apartments (retirement village element).

Car parking and Access Vehicle access to the site will be provided at two locations. The main entry point to the Aged Care Facility will be from Collegium Avenue (located towards its western end) which will provide access to the porte cochere entry and car park area as well as the internal road network. The second entry point is from Brandon Park Drive and is located approximately 20 metres south of the Brandon Park Shopping Centre access point. The Brandon Park entry point will be gated and operate as a secure access point to be used by residents. The gated entry point is located within the site, offset 7.3 metres from the property boundary. A total of 519 parking spaces will be provided on site with the following allocation: Independent Living Units • Resident parking - 1 space per apartment (340 spaces) • Visitor parking - 0.2 spaces per apartment (68 spaces) Assisted Living suites and care beds • Staff - 0.28 spaces per suite/care bed (82 spaces) • Visitor - 0.09 spaces per suite/care bed (29 spaces) Of the 519 car spaces proposed on site, 431 are located within basement car parks beneath each of the 5 buildings, 76 are provided at grade throughout the site and 12 spaces are available in the car park adjacent to Building 1’s Porte Cochere. In addition to the 519 on site car spaces proposed, an additional 10 kerb side car spaces are proposed along the southern side of Collegium Avenue opposite the Kindergarten and Child Infant Welfare Centre. Throughout the application process, the applicant has also offered to extend kerb side parking along the full length of Collegium Avenue.



Layout and Scale of buildings proposed. Five separate buildings are proposed to be constructed across the site, all designed to maximise northern exposure and garden outlook for future residents.

Building 1 is the main building on the site, providing 199 high care rooms offering full continuum of care, catering predominantly for moderate to high needs residents. Ninety four (94) assisted living suites will also be located in Building 1 where extra assistance from qualified staff is always close at hand, 24 hours a day. Assisted living suites are designed with a bedroom, living room and tea and coffee making facilities, however residents dine in the main dining room as no cooking facilities are available in assisted living suites.

Building 1 rises gradually from 2 to 5 storeys in height. It represents the main entry point for visitors to the complex and as such, a grand porte cochere is proposed. The main spine of the building is 5 storeys in height and orientated across the east to west axis. Northern and southern wings intersect with the main spine to create a shape similar in configuration to the letter ‘H’. This configuration increases the opportunity for natural light to filter into the building, whilst creating a pleasant garden outlook for residents. Building 2 is the largest of the buildings proposed on site. It fronts Collegium Avenue and rises progressively from 2 to 5 levels with its higher levels located towards the centre of the site. Building 2 will accommodate 159 independent living units. Building 3 is located adjacent to Brandon Park Drive and will be 5 storeys in height and comprise 76 independent living units. Building 4 is an ‘L’ shaped building located adjacent to Strada Crescent and part of the southern boundary of the site adjacent to the Monash Special Developmental School. For the most part, the building will be three levels in height, with a small section adjacent to the southern boundary rising to 5 levels. It contains a total of 64 independent living units. Building 5 is located at the south west corner of the complex. It is a five storey building containing 41 independent living units. Open Space and landscaping A private bowling green for use by residents of the complex is proposed at the Collegium Avenue frontage to the site at the front of Building 1. Low building site coverage of 28% allows for generous landscaped garden areas to be incorporated into the development. Where possible, established trees and shrubs will be retained. Heritage protected trees along the Strada Crescent frontage to the site will continue to be protected. The group of trees in the



centre of the site, along with the trees at the corner of Collegium Avenue and Brandon Park Drive will also be retained. Throughout the application process, the applicant has increased the amount of public open space provision with 18% of the site now set aside for public open space. These areas include the row of heritage protected trees along Strada Crescent, the east-west pedestrian link and park environs, and the treed area at the corner of Collegium Avenue and Brandon Park Drive. The east-west pedestrian link and park environs will provide a functional space for the passive recreational needs of the broader local community. Surplus Land The south west corner of the site (Brandon Park Drive/Academy Avenue frontages) is not included in this Development Plan application and the applicant has advised that this land is surplus to their needs at present. Attachment 1 details plans forming part of the application.

PLANNING SCHEME PROVISIONS

Zoning The site is zoned General Residential 1 (GRZ1). The purpose of the zone is;

‘To implement the State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies.

To encourage development that respects the neighbourhood character of the area.

To implement neighbourhood character policy and adopted neighbourhood character guidelines.

To provide a diversity of housing types and moderate housing growth in locations offering good access to services and transport.

To allow educational, recreational, religious, community and a limited range of other non-residential uses to serve local community needs in appropriate locations.’

The renewal of the site for residential purposes is generally consistent with the stated purposes of the General Residential Zone. A more detailed assessment of the design components of the development plan is provided throughout the report. Development Plan Requirements The Development Plan Overlay – Schedule 4 (DPO4) affects the site. The purpose of the Development Plan overlay is, among other things;



‘To implement the State Planning Policy Framework and the Local Planning Policy Framework including the Municipal Strategic Statement and local planning policies.’

Pursuant to the provisions of the Development Plan Overlay, ‘a permit must not be granted to use or subdivide land, construct a building or construct or carry out works until a development plan has been prepared to the satisfaction of the responsible authority’. Schedule 4 of the overlay sets out the requirements for the development plan.

These include, among others, • Where residential uses are proposed, a diverse mix of housing types. • Preferred building heights that allow for a graduation in building heights

between 2 to 5 storeys across the site. • Minimum development setbacks opposite existing houses and to

accommodate the retention of large trees. • Provision of 6 indented car spaces on Collegium Avenue opposite the

existing kindergarten and Infant Welfare Centre for short term parking associated with these uses.

• Provision of 15% open space, including Public Open Space and complemented by the 15 metre wide plantation reserve adjacent to Strada Crescent within the Heritage Overlay, and any areas of the site that are nominated for drainage/wetland purposes.

• Retention of large trees within front setbacks to buildings, public open space and street reserves of mature canopy trees that were rated as ‘moderate’ by the Tree Logic Assessment dated 26 April. In particular the design should incorporate the retention of groups of trees in the centre of the site, the row of trees along Strada Crescent that are within the Heritage Overlay, and large trees within 15 metres of the Collegium Avenue and Academy Avenue frontages of the site.

• The design philosophy for the site and indicative architectural themes including car parking areas and garages so that they do not dominate the street or any public open space.

• A traffic management report and car parking plan. • A landscaping concept plan for the site. • Principal feature of the drainage systems, in particular works proposed to

manage on-site stormwater detention. • Proposed staging of the development. BRANDON PARK STRUCTURE PLAN OCTOBER 2013 The Brandon Park Major Activity Centre Structure Plan was adopted by Council on 29 October 2013. It functions as a plan to guide the future growth of the



activity centre in order to manage change to the physical environment and activities within it. The structure plan divides the BPMAC into eight ‘Precincts’. The subject site is located within Precinct 3 which includes all the land bounded by Collegium Avenue, Brandon Park Drive, Academy Avenue and Strada Crescent. It includes the subject site, Monash Special Developmental School and the proposed TAC accessible dwellings development at 30-32 Collegium Avenue. The Development Plan proposal is generally consistent with the guidelines of the BPMAC Structure Plan, noting that the DPO4 provisions hold more statutory weight given that they have been gazetted into the Planning Scheme. Attachment 3 details the zoning and overlays applicable to the subject site and surrounding land.

CONSULTATION:

Display of the Development Plan Pursuant to the provisions of Section 4 of DPO4, the submitted Development Plan was displayed for public comment. The owner(s) and occupier(s) of properties within a 1 kilometre radius of the site were notified of the proposal. The formal consultation period extended from 24 August 2016 to 26 September 2016. A copy of the documentation forming part of the Development Plan was made available to view on Council’s website, as well as hard copies for viewing at the Glen Waverley Civic Centre throughout the consultation period. Public Information Session Two public information sessions (an afternoon and evening session) were held at the Wheelers Hill Library during the consultation period and were attended by in excess of 100 interested residents. A number of residents attending the meetings were supportive of the application, whilst others expressed concern with the development and the impact it may have on traffic and car parking in local streets, road safety for the increased number of pedestrians expected and the scale of the development. Council Officers and representatives for the applicant were in attendance to provide information and answer questions about the proposal. Community Submissions A total of 229 submissions have been received comprising 149 objections and 80 letters of support. Key issues raised in the submissions objecting to the proposal include;



• Proposal generally has community support however there are concerns that development plan will not provide 15% public open space.

• Good quality open space should be provided in one area. • Retention of trees. • Drainage issues should be addressed so as not to impact on local residents. • The scale of buildings is out of character with the neighbourhood. • Existing traffic congestion issues will be exacerbated. Collegium Avenue is

used as a ‘rat run’ and this development will add to the congestion. • Lack of car parking provided. • Overlooking and Overshadowing of proposed accessible living units

(approved under TPA/41209) at 30-32 Collegium Avenue (subdivided lot at north east corner of site facing Collegium Avenue. This lot was subdivided and sold separately prior to the sale of the subject site). The location of the substation abutting the boundary to 30-32 Collegium Avenue will adversely impact on the residential amenity of the accessible units proposed to be developed on that lot. Minimal setback to the common boundary is also proposed.

Submissions lodged in support of the application spruiked the benefits of developing a new aged care facility in the local area.

Attachment 4 details the location of properties which have made a submission to the proposal within the nearby surrounding area. Referrals

Internal The application was referred internally to the following departments: • Drainage engineers. • Traffic engineers. Relevant comments from these departments form part of the assessment of the application. External There is no requirement to refer the Development Plan application to external referral authorities.

DISCUSSION:

Consistency with State and Local Planning Policies Plan Melbourne is the Metropolitan Strategy that planning authorities must consider when assessing applications for planning permits. The key directions that are of particular relevance to the proposal are:

“Understand and plan for expected housing needs.”



“Reduce the cost of living by increasing housing supply near services and public transport.” “Facilitate the supply of affordable housing.”

Initiatives seek to locate a substantial proportion of new housing in or close to locations that offer good access to services and transport and employment areas. The raft of State Planning Policy relevant to the current proposal all promote the: • Timely development of residential aged care facilities to meet existing and

future needs (16.02-3); • To encourage well-designed and appropriately located residential aged

care facilities (16.02-4); • Provision of a diversity of housing types that meets community needs

(Clause 16.01-4); • Encouragement of housing types at higher densities in and around activity

centres (Clause 11.01-2); • Location of new housing in or close to activity centres, employment

corridors and areas that offer good access to services and transport (Clause 16.01-2 and clause 11.04-2);

• Provision of housing that recognises and protects neighbourhood character and achieves architectural and urban design outcomes that contribute positively to local urban character (Clause 15).

Clause 16.02-4 (Design and location of residential aged care facilities) in particular, lists a number of strategies to help achieve a well designed and appropriately located aged care facility. These are;

• ‘Recognise that residential aged care facilities contribute to housing diversity and choice and are an appropriate use in a residential area.

• Recognise that residential aged care facilities are different to dwellings in their purpose and function, and will have a different built form (including height, scale and mass).

• Provide a mix of housing for older people with appropriate access to care and support services.

• Ensure that residential aged care facilities are located in residential areas, activity centres and strategic redevelopment areas, close to services and public transport.

Ensure that: • Proposals to establish residential aged care facilities early in the life of a

growth area are in locations that will have early access to services and public transport.

• Residential aged care facilities are designed to respond to the site and its context.

• Residential aged care facilities are designed to respond to the site and its context.



• Residential aged care facilities aspire to high urban design and architectural standards.’

The Local Planning Policy Framework seeks to expand on these broader State objectives and in doing so, identifies the ‘Garden City Character’ as a core value held by the community and Council. Garden City Character policy objectives are significant and important considerations in all land use and development decisions throughout the municipality. Clause 21.04 (Residential Development Policy); seeks to balance residential development within the city by providing a variety of housing styles whilst remaining sympathetic to existing neighbourhood character. Council’s Residential Development and Character Policy (Clause 22.01) aims to ensure that new development is successfully integrated into existing residential environments with minimal streetscape or amenity impact and to achieve outcomes that enhance the Garden City Character of the area. Council’s Tree Conservation Policy (Clause 22.05) also contains objectives designed to maintain, enhance and extend the Garden City Character throughout the municipality. The current proposal to develop and use the land for a mix of independent retirement living and comprehensive aged care accommodation is considered consistent with the relevant broader State Planning Policy objectives. In particular, the development will;

• Provide residential aged care facilities to meet existing and future needs of residents from both within and beyond the boundaries of the municipality.

• Provide residential aged care in an established residential area directly adjacent to the Brandon Park Activity Centre providing excellent access to shopping, community and public transport services.

• Provide the opportunity for local residents to downsize whilst remaining in the local community.

• Provides a mix of housing choice within one development allowing residents to age in place.

• Proposes a development which sits within a formal garden setting and provides excellent amenity on site for future residents.

• Provides a choice of housing for the elderly where they can feel supported, secure and part of established local community.

Assessment against Development Plan Overlay Schedule 4 (DPO4)

Overall objective of Development Plan Overlay 4 (DPO4) The main objective of DPO4 provisions is to provide guidelines for the future use and development of the subject site for residential purposes. The site is zoned



for residential purposes and residential use is identified as the preferred land use for the site under the Brandon Park Structure Plan, February 2013. Although not specifically mentioned in the DPO4 provisions, residential aged care and retirement living is defined as a residential use and therefore is an appropriate use in a residential area. It is also recognised that residential aged care facilities are different to a normal residential dwelling in their purpose and function, and will have a different built form (including height, scale and mass). DPO4 provisions applying to the subject site do envisage a more intense level of development on this site and this is reflected in the preferred building heights stated in the provisions, of building scale up to 5 storeys. The proposed development plan proposes building scale within these parameters. The Development Plan also responds well to other design parameters of DDO4 which aim to protect and retain established vegetation on the site, ensure adequate car parking is provided and traffic management measures are implemented, and a good level of public open space is made available to the local community. These specific elements are discussed in more detail throughout the report. In relation to the existing trees/vegetation on site, the DPO4 states that mature canopy trees rated as having “moderate” value by the Tree Logic Arboricultural Assessment dated 26 April should be retained. This differs from the DPO controls that apply to the other former school sites where the control states that trees rated as having a moderate and high value by the Tree Logic Arboricultural Assessment must be retained. The DPO control for this site gives Council the discretion to allow the removal of trees/vegetation from the site. Some of the provisions of DPO4 appear to assume that the site would be developed as an integrated residential neighbourhood envisaging rows of townhouses facing existing and new internal street networks, and a central area of open space. This did not eventuate and in many ways, the local neighbourhood and community may benefit more from the current proposal to develop the land for aged care/retirement living, with a guarantee that the garden setbacks will be maintained to a high level by the operators, many of the residents will not drive, and the facility is designed for retired and elderly people who integrate well into the community. It is also evident by the number of submissions lodged in support of the proposal that there is a healthy demand from local residents who are seeking to downsize from their homes of 50 years, but are keen to stay in their local community.

Neighbourhood Character and Design Response With any development, large or small, it is important that it is designed in a manner which is sympathetic to the existing and preferred character of the neighbourhood, and respectful of the amenity of its neighbours. In this instance, the immediate context of the site is generally residential around its eastern and north eastern end (Strada Crescent and eastern end of Collegium Avenue) but is also opposite quite intense commercial and community activity. Non residential



interfaces include the Brandon Park Shopping Centre, three storey office development, the Monash Special Developmental School, kindergarten, maternal health centre and medical clinics. The current proposal is therefore required to respond to its eclectic context, and in doing so, balance the larger mass and scale of development envisaged by the DPO4 provisions with the need to respect the more sensitive residential interfaces. Elements of the proposed plan which will ensure the development integrates with the neighbourhood appropriately include; • Ensuring buildings are adequately setback from residential street frontages

and providing open style front fencing to allow the landscaped front setback to be visible from adjacent streets.

• Where possible, retaining established trees within front setbacks and at the interface to residential uses, as well as those scattered throughout the site.

• Providing functional public open space which can be used by the local community and which are complemented by the retention of existing vegetation.

• Adopting an architectural theme and facade treatment which is sympathetic to the built form character of the neighbourhood.

• Proposing gradual increases in building height from residential interfaces and articulated building form which avoids continual building facades.

• Locating the majority of on site car parking below ground (basement car parking) so vehicles do not dominate the site.

• Providing sufficient, accessible and allocated on site car parking to minimise overflow onto neighbourhood streets.

Each of these design responses are discussed in more detail below. Built form and scale Building height parameters of DPO4 are not mandatory requirements. In relation to building height, Section 3 of DPO4 states; ‘The Brandon Park Residential Development Plan should show:

• Preferred building heights that allow for a graduation in building heights across the site as follows: o 2 storey opposite existing single storey residential development in

Collegium and Academy Avenues; o 3 storeys opposite residential development in Strada Crescent ;and o Up to 5 storeys towards the central and western portions of the site,

sited and designed with reference to an analysis of sight lines from the residential interfaces in Strada Crescent and Collegium and Academy Avenues, that identifies where built form of up to 5 storeys can be integrated without significant visual impact on the residential environments.’



Across the site, building height is gradually increased to remain within the parameters of the DPO4 requirements. Buildings opposite existing single storey residential development in Collegium Avenue will graduate from two storeys to reach four and five storey height in the central and western areas away from the more sensitive residential abuttals. In addition, articulation of building frontages and substantial separation between building wings effectively reduces the perceived mass of the building complex as viewed from Collegium Avenue. Where building height exceeds two storeys adjacent to Collegium Avenue, significant setback has been provided to reduce any impact on the streetscape and facing residential dwellings. For example the central wing of building 2 (W shaped building to east of Bowling Green) will be 4 storeys in height. It is however setback 18.4 metres from the Collegium Avenue frontage. The front setback to this section of the building will be landscaped and the absence of basement level below means that the deep soil zone extends from the front boundary to the front building facade, allowing for medium and large trees to be supported at this location which will filter views towards the building facade. Building 4 located adjacent to Strada Crescent does not exceed the three storey building height being sought by DP04 provisions. This building is also setback behind the existing row of Sugar Gums located on the subject site adjacent to the Strada Crescent title boundary and protected by Heritage overlay controls. Building 4 will be setback a minimum of 19.6 metres from Strada Crescent and its eastern facade will be obscured to a fair degree by the Large Sugar Gum trees. Proposed 5 storey elements of the complex are sited away from residential interfaces, and towards the less sensitive interfaces to the west and through the central area of the site as required by DP04 provisions. For the most part, Building 3 is 5 storeys in scale and is located adjacent to the western boundary of the site opposite Brandon Park Shopping Centre. A large proportion of Building 1 (main building) will also be 5 storeys in height, however it will be setback significantly (between 27 and 36 metres) from Collegium Avenue, and for the most part is located opposite the commercially zoned western end of the street which is developed with a three storey office development, childcare centre, and medical centre. The five storey section of Building 2 is confined to the main east-west spine which is located centrally on the site and setback over 60 metres from the Collegium Avenue frontage to the site. Small sections of Buildings 4 and 5 will also rise to 5 storeys in height and these are located away from residential interfaces so as not to dominate view lines. Building heights proposed in the Development Plan satisfy the preferred height requirements of DP04. Higher sections of the development are sited appropriately away from sensitive residential street interfaces. The architecture and form of the buildings is effectively broken up by varied colours and facade



treatments, and gradually increase in height towards the centre of the site. Generous front setbacks to Collegium Avenue coupled with extensive garden areas and the retention of existing established trees and shrubs will minimise the scale of buildings by providing a softer green filter. Street Setback DPO4 seeks to ensure future development on the site is ‘setback a minimum of 4.5 metres opposite existing houses, except in those parts of the site where there are large trees rated as ‘moderate’ within the Tree Logic Arboricultural Assessment (dated 26 April 2013) that are located within 15 metres of the frontage to Collegium Avenue, Strada Crescent or Academy Avenue, in which case the development setback should be sufficient to accommodate retention of the identified large tree(s)’ As discussed in the previous section generous front setbacks are proposed across the site, especially adjacent to Collegium Avenue and Strada Crescent. A minimum front setback of 7 metres is proposed along Collegium Avenue with the majority of buildings setback between 18 to 39 metres. Strada Crescent setbacks do not fall below 19.6 metres. Trees rated as ‘moderate’ that are located within 15 metres of the frontage to adjacent residential streets will all be retained. These trees are located in the group of trees located at the corner of Collegium Avenue and Brandon Park Drive and along the site’s interface to Academy Avenue. None of the Sugar Gums located along the Strada Crescent frontage to the site will be removed. These are protected by Heritage Overlay controls. Architectural Theme Facades are fairly traditional in appearance finished in a mix of brick and render. Gently pitched roof forms and extended eaves provide the residential feel to the larger scale of the development, whilst paying homage to the typical roof form prevailing throughout the broader residential neighbourhood. Vertical facade treatments of varied colour and material help to fragment the building facade and, when coupled with the modulated building form effectively break the overall scale of development proposed. This is a residential use and this is reflected in the proposed architecture which has been designed to reflect the use within, whilst providing a sympathetic response to the prevailing built form characteristics of the broader residential neighbourhood. Shadowing The project architect has provided shadow plans for 9.00 am, 12 midday and 3 pm at 22 September (Equinox). For the most part, shadows cast by the development will fall across internal access ways and car parking spaces. A small



amount of additional shadow will be cast across a small section of the Monash Special Development School to the south, however the shadow is not considered unreasonable. Retention of trees on the site Section 3 of DPO4 states that the Development Plan for this site should show ‘Retention within the front setbacks of buildings, public open space an street reserves of mature canopy trees that were rated as ‘moderate’ by Tree Logic Arboricultural Assessment dated 26 April. In particular the design should incorporate the retention of groups of trees in the centre of the site (including tree groups 1, 2 and 6 identified in the Tree Logic assessment) the row of trees along Strada Crescent that are within the Heritage Overlay, and large trees within 15 metres of the Collegium Avenue and Academy Avenue frontages of the site. The current proposal successfully incorporates the majority of existing trees rated as having ‘moderate’ retention value on the site. The Aboricultural assessment prepared by Tree Logic identified 125 individual trees and six tree groups, of which 41 trees and three tree groups (Groups 1, 2 and 6) were rated as having moderate retention value. No trees were rated as having high retention value. Of particular note; • Tree Group 1 which encompasses the row of Heritage protected Sugar

Gums along the Strada Crescent frontage to the site will be retained. These trees will continue to be protected by Heritage Overlay 102 controls.

• Tree Group 2 which encompasses the group of Sugar Gums in the centre of the site is proposed to be retained as part of the Development Plan proposal. These trees will be located in the area set aside for public open space and will provide an informal treed area. The east-west shared pedestrian/bike link will wind its way through the group of trees.

• Tree Group 6 comprises a small group of Sugar Gums located at the north-west corner of Group 2. Under the current design proposal, it will not be possible to retain these trees. There are a total of 6 trees in this group. Their removal is considered acceptable given that they are located away from street interfaces and it will be very difficult to incorporate them into the plan of development. The applicant has advised that additional individual trees with moderate retention value will be incorporated into a new, extensive landscape arrangement. This can be required as a condition of approval.

A significant group of trees located at the north-west corner of the site (corner of Collegium Avenue and Brandon Park Drive), including 8 individual trees rated as having moderate retention value will also be retained providing natural screening and amenity at this location.



Due to the scattered nature, some trees will have to be removed because their size and location create a challenge to retain these trees. The majority of the trees proposed to be removed have been identified as having a ‘low’ retention value. It is noted that the Arborist report does identify trees as being native to Victoria. A condition of approval should require that further information be provided about these trees and, if the Development Plan is approved, the subsequent planning permit application must identify and provide an assessment of these trees against clause 52.17 (Native Vegetation) of the Monash Planning Scheme.

Future Landscaping of site One of the pleasing elements of the proposed development plan is the low building site coverage which has allowed fairly extensive garden areas to be incorporated through the site. Buildings have been designed to maximise the outlook across garden areas below and the generous street setbacks to buildings will allow the layering of landscaping and provide a soft, natural green filter at residential interfaces. The nature of the use (aged care) does require that garden areas are of a formal nature (to avoid uneven ground) and the planting of large trees is avoided though the centre of the site in order so that residents have extended views across the garden below. This is not dissimilar to a normal dwelling where owners strategically place larger trees/hedges around the perimeter of the backyard or front yard, and design the central area using lower growing species manicured garden beds and lawn area. The current proposal adopts a similar design response, but on a larger scale. It is also noted that the footprint of basement car parks is generally consistent with the building footprint allowing for generous areas of ‘deep soil’ planting to be available throughout the site. The concept landscape plan is considered satisfactory and its details will be further assessed at Planning permit stage. Public open space Section 3.0 of DP04 seeks;-

• ‘provision of 15% open space including Public Open Space and complemented by the 15 metre wide plantation reserve adjacent to Strada Crescent within the Heritage Overlay, and any areas of the site that are nominated for drainage/wetland purposes.

DPO4 provisions also require

• ‘the provision of an east- west pedestrian and bicycle link form Strada Crescent through to Brandon Park Drive and the shopping centre’



Throughout the course of the application, Council’s Planning Unit has been in ongoing discussions with the applicant to ensure that the provision of public open space satisfies the provisions of DPO4 and meets community and Council expectation for this site. The result of these discussions is that 18% of the site will now be set aside as public open space (including the row of Heritage protected Sugar Gums along the Strada Crescent frontage to the site). The public open space provision is made up of the following parts. • Row of Heritage Trees along Strada Crescent – 1899 square metres. • East – west shared path and park environment – 7220 square metres. • Treed reserve at corner of Collegium and Brandon Park Drive – 901 square

metres. A total of 10,020 square metres of open space will be available for public use representing 18.01% of the site and satisfying DP04 provisions. This equates to 15% in open space areas and 3% made up of the stand of heritage trees. The main portion of public open space will be the shared east-west path link, central treed environment and park area adjacent to Brandon Park Drive (south of Building 5). Given the nature of residential use proposed, the provision of public open space does need to be separated from the private grounds of the Aged Care facility for security reasons. The layout of the proposed open space is fluid, and provides a functional space for passive recreational activities. It provides a pleasant link between Strada Avenue and Brandon Park Drive and improves public open space availability for the local neighbourhood. Although the subject site has been used by local residents for passive recreational activities for a number of years now (since the school was closed), the land was never formally reserved for this purpose and the former state government rezoned the land for residential development purposes before selling to the current owner. The current Development Plan proposal satisfies the DP04 requirements for the provision of public open space. Independent Living Units Each of the 340 independent living units will be provided with one resident car space and visitor car parking will be provided at a rate of 0.2 spaces per unit. In total 408 on site car parking spaces are proposed to support the independent living units (retirement village element of proposal). A short fall of 38 car parking spaces is proposed, all of which stem from the 3 bedroom units which under planning scheme requirements generate a 2 car space requirement. The applicant has advised that their data indicates that on average, only 30% of residents occupying Independent Living units are ‘couples’ and with the average age of residents being 80 years, Ryman often find that occupiers do not want a second car space, preferring to downsize to a one car household to avoid the fee charged for the second space. It is also often the case that residents moving in choose not to have a car.



Aged Care Facility A total of 111 car parking spaces will be made available to support the Aged Care element of the village. Under current planning scheme requirements the aged care element generates a total car parking requirement of 87 spaces, hence the proposed allocation provides an additional 24 car spaces for the Aged Care beds. The following table provides a summary of Car parking requirements/provision. Summary of Car parking Provision

Use Component Number of Clause 52.06 requirement

Car spaces Required

Car spaces provided

Retirement Village

1 bedroom apartment

5 1 space/dwelling 5 5

2 bedroom apartment


3 bedroom apartment


Visitors All apartments 340 0.2 spaces/dwelling 68 68 Subtotal 470 408

Residential Aged Care

Facility

Assisted living suites

94 0.3 spaces/lodging room

28 82

Aged care beds 199 0.3 spaces/lodging room

59

Visitors 293 Included in lodging room provision

29

Subtotal 87 111 TOTAL 557 519

Other specific car parking and traffic requirements of DPO4 A detailed Traffic Engineering Assessment report (prepared by Traffix Group) as required by the DPO4 provisions has been submitted with the Development Plan application. In addition to the Traffic Assessment report, section 3.0 of DPO4 states that the Development Plan for the site show the ‘provision of at least six indented car spaces on Collegiums Avenue opposite the existing Kindergarten and Infant Welfare centre for short term parking associated with these uses’. In addition to the provision of onsite car parking spaces (as detailed in the above table), an additional 10 parallel indented parking spaces (which exceeds the requirement for 6 spaces under the Development Plan) are proposed to be constructed along the southern side of Collegium Avenue opposite the existing kindergarten and infant welfare centre. Throughout the application there has also been discussion between the applicant, Council and local residents about the benefits of additional indented kerb side parking being introduced along the entire southern side of Collegium Avenue. This would result in approximately 20 to 23 car spaces in total being created along the southern side of the street and would be beneficial to the neighbourhood. It is noted however that there



are a number of established street trees along the southern side of the street and further consideration of the impact on the streetscape, and whether or not these trees should be retained or replaced with a new planting theme. These matters can be explored further throughout the planning permit application stage. A condition of approval will be included to provide flexibility in relation to this matter. Deliveries/waste collection Although a formal loading bay is not required by the Planning Scheme, the proposed village will required the deliveries of food, medical supplies etc. Deliveries are typically expected to be undertaken by smaller trucks and vans and will generally occur via the porte cochere area. Waste is generally stored at basement level and a loading area is located within the site (east of Building 5) away from street frontages. Waste will be transferred to this location for private collection. This is considered an acceptable approach and allows rubbish to be collected from a designated central area. Traffic Referral Comments The Traffic Engineering Assessment prepared by Traffix Group (3 August 2016) provides an assessment of all car parking, access, traffic generation and impact, waste collection (accessibility) and bicycle storage facilities. The Development Plan and supporting Traffic advice was considered by Council’s Traffic Engineering Department who have provided the following comments (summarised): • The proposed allocation of car parking spaces for the Aged Care

component of the development is considered to be acceptable, comprising 82 allocated staff parking spaces and 29 visitor parking spaces (total 111 car spaces).

• According to the report, ABS statistics of car ownership data in Wheelers Hill indicate that around 60% of residents living in three bedroom apartments own one or no cars. The report suggests that as the independent living units component of the development will accommodate people who are retired, lower car ownership rates can be expected. It is also anticipated that some residents may be physically unable to drive, which would further reduce the expected car ownership. There is reasonable access to public transport availability in the form of bus services as well as excellent access to goods and services within the Brandon Park shopping centre. Consequently, it is considered that the reduction of parking to one space per dwelling together with a reasonable level of allocated staff parking and increased visitor parking provision is an acceptable outcome in this instance.

• The parking spaces for the various users have been reasonably distributed throughout the site, which will assist in the efficient operation of the development. The report notes that Building 1 and Building 3 will be



connected via an underground tunnel and therefore the parking facilities are expected to be shared.

• The development is estimated to generate 56 trips in the AM commuter peak hour and 112 trips in the evening commuter peak hour. The site is expected to generate its highest traffic (168 trips) from 10 to 11 am which is outside the main commuter peak. This level of traffic is expected to have a minimal impact on the local street network. The SIDRA analysis of local road intersections does not indicate any major traffic impacts associated with the development.

Pedestrian connectivity and safety The subject site is conveniently located directly adjacent to the Brandon Park Shopping Centre and it is envisaged that this will generate increased pedestrian traffic with residents of the village (independent living units) choosing to walk across to the shopping centre. An existing pedestrian refuge is located at the corner of Collegium Avenue and Brandon Park Drive and will continue to service residents accessing the shopping centre from the village (to Collegium Avenue). To improve pedestrian access to and from the village, a secondary pedestrian pathway and pedestrian link is proposed through Building 3 and providing pedestrian access through to Brandon Park Drive. Throughout the consultation period, a number of local residents raised concerns with existing and future pedestrian safety, in particular suggesting that a pedestrian crossing should be considered for Brandon Park Drive adjacent to the development site. This matter was further discussed with the applicant and representatives from Council’s Traffic Engineering Department and it was considered that some form of additional pedestrian crossing would be beneficial for the development and the surrounding residential neighbourhood. The details of what type of crossing would be the most appropriate can be dealt with during the construction period, however, the new crossing installation would be installed at full cost to the applicant. This will be covered by a condition of approval. Council will continue to monitor the existing traffic management issues (not caused by the proposed development), in the neighbourhood that have been raised as a concern(s) by surrounding residents. The east-west shared path also provides a direct linkage connecting Strada Crescent to Brandon Park Drive, providing a pleasant linkage path from the residential neighbourhood to the east through to the activity centre and Brandon Park Shopping Centre. The need to provide a secure/safe complex for residents does require that the public pathway and open space be separated from the village grounds, hence the pathway extends adjacent to the southern boundary of the village and its exit to Brandon Park Drive can be configured to encourage pedestrians to head north to the existing/proposed pedestrian crossing. This may be achieved by aligning the pathway to direct pedestrians northward at its intersection with Brandon Park Drive.



Within the site itself, an extensive pedestrian path network connects all areas of the village complex and provides a safe pedestrian network throughout the facility. Drainage On site stormwater detention and management system is proposed to provide appropriately connect and discharge to Council’s stormwater management system. Council’s Drainage Engineers have reviewed the Development Plan proposal and provided appropriate planning permit conditions for future planning permit approval. The development will be required to ensure that it retards stormwater so that these peak flows do not increase off the site. Staging of Development. The construction of the proposed development will be undertaken in stages to minimise potential impacts to the surrounding area. Staging of construction will incorporate sequential construction of buildings and infrastructure to reduce the active construction footprint as much as possible. This approach in turn, is likely to minimise on-site traffic, noise, dust and loss of amenity during the construction phase. These matters will undergo a detailed assessment at planning permit stage.

CONCLUSION:

The current proposal represents a level of change for the subject site which is both consistent with, and envisaged by the design guidelines and requirements of the Development Plan Overlay 4 (DPO4) provisions. The proposal to develop a retirement village/aged care facility on the site will benefit the local and broader community, allowing retirees to downsize with the opportunity to stay within their local community. The site is also ideally located immediately adjacent to Brandon Park Shopping Centre and with access to excellent public transport and community services infrastructure. In terms of the development’s impact on the immediate neighbourhood, although of a larger scale, the development has a low site coverage and will sit within a formal garden setting which will be maintained to a high standard by the operator, something which could not be guaranteed if the site was to be developed into small residential lots for an integrated residential neighbourhood. Vehicle ownership among residents is relatively low, with most residents having just the one car, whilst residents of the high care unit and assisted living (Building 1- total 293 lodging rooms) would not own a car. The nature of the use also means that it is not subject to the normal peak time traffic movements. No detrimental impacts will result in regard to overlooking and overshadowing and conditions of any future planning permit will be used to manage these detailed components of the design.



The Development Plan proposes that 18% of the site will be set aside for public open space which is a good result for Council. The form of open space proposed is functional and provides the local neighbourhood with the continued provision of space for passive recreational needs such as walking the dog, whilst providing an east-west link through the site connecting Strada Crescent to Brandon Park Drive. Pedestrian safety across Brandon Park Drive is acknowledged and the applicant has agreed to work with Council to ensure appropriate crossing facilities are provided. The Development Plan for 6-30 Brandon Park Drive is considered satisfactory and should be supported subject to the conditions outlined in this report.



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

1.2 6-30 brandon park drive, wheelers hill … · 12/13/2016 · council meeting, 13 december 2016...

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