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Planning Proposal - Bega Valley Shire Council
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Planning Proposal Lot 33 and Lot 34, Corner of Sapphire Coast Drive and Tura Beach Drive, Tura Beach Prepared for: Bunnings Group Ltd July 2017, revised January 2018, revised April 2018 revised August 2018 Further revised October 2018 Further revised February 2019 PO Box 230 Pennant Hills NSW 1715 | P 02 9980 6933 | www.dfpplanning.com.au
11 Dartford Road Thornleigh NSW 2120 PO Box 230 Pennant Hills NSW 1715 t: 02 9980 6933 f: 02 9980 6217 e: dfp@dfpplanning.com.au DFP Planning Pty Limited ACN 002 263 998 www.dfpplanning.com.au Printed: 19 February 2019 File Name: P:\PROJECTS\9123C Sapphire Coast Dr, Tura Beach\Reports\9123C_PP_Further Revised Final_February 2019.docx Project Manager: E.
Robertshaw Client: Bunnings Group Ltd Project Number: 9123C Document Control Version Prepared By Reviewed By Issued To Date Rev_1, Draft E. Robertshaw D. Kettle Client 4 July 2017 Final E. Robertshaw Client Bega Valley Council 7 July 2017 Revised Final E. Robertshaw Client Bega Valley Council 10 January 2018 Further revised Final E. Robertshaw D. Kettle Client Bega Valley Council 19 April 2018 Further revised final E. Robertshaw D. Kettle Client Bega Valley Council 3 August 2018 Further revised final E. Robertshaw Client Bega Valley Council 3 October 2018 Further revised final E. Robertshaw Client Bega Valley Council 19 February 2019
dfp | Planning Proposal | Lots 33 and 34, Sapphire Coast Drive, Tura Beach | Revised February 2019 ii Contents 1 Introduction 1 1.1 Introduction 1 1.2 Purpose of this Statement 1 1.3 Material Relied Upon 1 1.4 Summary of Conclusions and Recommendations 1 2 Background 2 2.1 2014 Planning Proposal 2 2.2 2016 Planning Proposal 2 2.3 Gateway Review 3 2.4 Bega Valley Council’s Commercial Centres Review – Review of Merimbula, Pambula and Tura Beach 5 3 Site Context 6 3.1 The Site 6 3.2 Surrounding Development 6 3.3 Existing Zoning 9 4 Concept Proposal 11 4.1 Summary and Development Statistics 11 4.2 Design Considerations 12 4.3 Employment Numbers 16 5 Guide to Preparing Planning Proposals 17 5.1 Introduction 17 5.2 Criterion 1 Consistency with Regional Plans 17 5.3 Criterion 2 Consistency with Council Strategies 19 5.4 Criterion 3 Responding to a change in circumstances 21 5.5 Conclusion 21 6 Matters Required by s3.33 of the EP&A Act 22 6.1 Introduction 22 6.2 Part 1 - Objectives or Intended Outcomes 22 6.2.1 Objectives and Outcomes 22 6.2.2 Proposed Amendments to Bega Valley LEP 2013 23 6.2.3 Existing Zone objectives and permissible uses 25 6.3 Part 2 - Explanation of Provisions 26 6.3.1 Proposed Amendments to Bega Valley LEP 2013 26 6.4 Part 3 – Justification 27 6.4.1 Is the planning proposal a result of any strategic study or report? 27 6.4.2 Is the planning proposal the best means of achieving the objectives or intended outcomes, or is there a better way? 27
Contents dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 iii 6.5 Section B – Relationship to Strategic Planning Framework 27 6.5.1 Is the planning proposal consistent with the objectives and actions of the applicable regional or subregional strategy? 27 6.5.2 Is the planning proposal consistent with a Council’s local strategy or other local strategic plan? 30 6.5.3 Is the planning proposal consistent with applicable State Environmental Planning Policies? 33 6.5.4 Is the planning proposal consistent with applicable Ministerial Directions (s.9.1 directions)? 34 6.6 Section C – Environmental, Social and Economic Impact 39 6.6.1 Employment 39 6.6.2 Economic Impacts 39 6.6.3 Traffic and Parking 45 6.6.4 Adjoining Development 46 6.6.5 Contamination 46 6.6.6 Water and Ecology 46 6.6.7 Terrestrial Biodiversity 47 6.7 Section D – State and Commonwealth Interests 47 6.7.1 Is there adequate public infrastructure for the planning proposal? 47 6.7.2 What are the views of state and Commonwealth public authorities consulted in accordance with the Gateway determination? 48 6.8 Part 4 – Mapping 48 6.9 Part 5 - Consultation 48 6.10 Part 6 – Project Timeline 49 7 Conclusion 50 Figures Figure 1 Location of site 6 Figure 2 Location of Site in Bega Valley LGA 7 Figure 3 Locality plan of site 7 Figure 4 Aerial photograph of site 8 Figure 5 Looking east towards Tura Beach Drive 8 Figure 6 Looking north east towards intersection of Sapphire Coast Drive and Tura Beach Drive 9 Figure 7 Looking south from Tura Beach Drive towards Sanananda Park seniors housing development 9 Figure 8 Extract from Bega Valley LEP Lot Size maps 020B and 020C showing the existing minimum lot size provisions that apply to the site 25 Figure 9 Extract from Bega Valley LEP Land Use zoning map showing site as a deferred matter 27 Figure 10 Extract from Bega Valley LEP 2013 Riparian Lands and Watercourses map 47 Tables Table 1 Design Considerations 13 Table 2 Consistency with Relevant State Environmental Planning Policies 33 Table 3 Net community benefit test evaluation criteria 42
Contents dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 iv Appendices 1. Report of Southern JRPP in relation to Gateway Review of February 2016 Planning Proposal 2. Concept Plans and Montages, Revised 18 July 2018 3. Concept Landscape Plans 4. Economic Impact Assessment 5. Plan of Land Application Area
dfp | Planning Proposal | Lots 33 and 34, Sapphire Coast Drive, Tura Beach | Revised February 2019 1 1 Introduction 1.1 Introduction DFP has been commissioned by Bunnings Group Ltd (Bunnings) to prepare a Planning Proposal in respect of the land at Lots 33 and 34 DP 243029, corner Sapphire Drive and Tura Beach Drive, Tura Beach (the site).
Bunnings is seeking to establish a small format Bunnings Warehouse on the site, which is referred to in this report as Bunnings Merimbula. Currently the site remains a deferred matter under Bega Valley Local Environmental Plan (LEP) 2013 and retains its previous 1(c) zoning under Bega Valley LEP 2002. The Planning Proposal seeks to rezone the site from 1(c) – Rural Small Holdings Zone under the Bega Valley Local Environmental Plan 2002 (Bega Valley LEP 2002) to R5 Large Lot Residential with the site being included in Schedule 1 to Bega Valley Local Environmental Plan 2013 (Bega Valley LEP 2013) to facilitate the development of a Bunnings Warehouse on the site as an additional permitted use.
This is consistent with the recommendations of the Southern Joint Regional Planning Panel (JRPP) and the Gateway determination issued by NSW Department of Planning and Environment on 20 December 2018. 1.2 Purpose of this Statement The purpose of this report is update the report previously submitted to Council and the Department of Planning and Environment (DPE) to accord with the Gateway determination issued by DPE on 20 December 2018. This report will be placed on exhibition with the other material, in accordance with the conditions of the Gateway determination, 1.3 Material Relied Upon This report has been prepared by DFP based on information referred to herein and/or appended to this report and site inspections undertaken on 15 September 2015 and 11 April 2017.
1.4 Summary of Conclusions and Recommendations This report concludes that the proposal to rezone the site to allow for the development of a Bunnings Warehouse:
Is consistent with regional and subregional planning and transport strategies as well as local planning studies and draft regional planning strategies;
Is not inconsistent or is justifiably inconsistent with relevant SEPPs and Section 9.1 Directions;
Services the needs of the surrounding and nearby residential population and the business community; and
Promotes job creation in Bega Valley. Furthermore, the concept plan for the site demonstrates that environmental factors can be adequately addressed and subject to more detailed assessment at the DA stage. The economic assessment accompanying this Planning Proposal demonstrates that the future intended use will have a positive economic impact upon the local community.
dfp | Planning Proposal | Lots 33 and 34, Sapphire Coast Drive, Tura Beach | Revised February 2019 2 2 Background 2.1 2014 Planning Proposal As part of its Standard Instrument LEP process, which was informed by planning strategies, Council proposed to rezone the site to R2 Low Density Residential. The owner of the site at that time requested the land be zoned R3 Medium Density Residential and Council supported that request. During consideration of the draft comprehensive LEP, Council received a further request from the then land owner to rezone the land to B5 Business Development. This request was subject to a report to Council on 18 December 2013.
The recommendation of the report did not support the proposed B5 zoning, however, following a site inspection by Councillors, at the meeting of 12 February 2014, Council resolved to proceed with a Planning Proposal to rezone the land to B5.
The Gateway Determination issued in relation to that Planning Proposal determined that the Planning Proposal should not proceed for a number of reasons including:
Incompatibility with the existing adjoining use (seniors housing);
Inconsistency with the strategic framework which seeks to protect the coastal village character of Tura Beach and to retain Bega as the major regional centre;
Council did not provide sufficient justification to demonstrate that the proposal would not potentially undermine the existing neighbourhood business precinct;
Justification as to why appropriately zoned land in South Bega and Pambula was unsuitable had not been provided;
The proposal would allow for the consideration of a major ‘out of centre’ retail development in Tura Beach.
A review of the documentation submitted with the Gateway request in relation to that Planning Proposal has revealed that Planning Proposal did not adequately consider the Local and Regional Planning Strategies nor were the potential economic impacts of a B5 zoning in this location assessed or justified. 2.2 2016 Planning Proposal Following issue of the Gateway Determination for the previous Planning Proposal in December 2014, discussions were held with DPE’s Regional General Manager at the time to ascertain what additional information would be required to accompany a new Planning Proposal to allow a Bunnings Warehouse to be developed on the land.
In the absence of any review of Council’s strategic plans and retail hierarchy, it was recommended by DPE’s Regional Manager that a comprehensive economic impact assessment which considers the potential impacts on the network of centres be prepared.
Based on those discussions, a new Planning Proposal was lodged with Bega Valley Shire Council in February 2016. That Planning Proposal proposed to rezone the site to B5 Business Development and was submitted with a comprehensive Economic Impact Assessment which considered the potential impacts of the development of a Bunnings Warehouse in this location on the network of centres in the Bega Valley Local Government Area (LGA). This Planning Proposal was supported by Council and submitted to DPE for a Gateway Determination. Council’s support of the Planning Proposal to zone the site B5 Business Development demonstrates that Council is of the opinion that the Planning Proposal is not inconsistent with their adopted strategies.
The Gateway Determination for the Planning Proposal was issued on 15 August 2016. The delegate of the Minister for Planning determined that the Planning Proposal should not proceed for the following reasons:
2 Background dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 3 1. The location of the proposed business zone adjoins a residential zone that contains an existing seniors living development. The planning proposal will allow a range of uses that are not compatible with adjoining uses and has the potential to introduce significant land use conflict.
2. Council has not adequately justified why the subject land is suitable for the proposed business and commercial land uses having regard to alternative sites, including sites not currently zoned for commercial use, elsewhere in Bega.
3. The proposal has not adequately justified the inconsistency with s117 Direction 1.1 Business and Industrial Zones. The objectives in this s117 Direction encourage employment growth in suitable locations and development that supports the viability of identified strategic centres. The use of the site for a major commercial development is inconsistent with the Bega Valley Shire centres hierarchy and does not support the growth of the Bega centre as a regional commercial hub. 4. The Planning Proposal is inconsistent with the current planning restrictions on retail development in Tura Beach and the adopted Bega Valley Shire Council Commercial Strategy 2006, the South Coast Regional Strategy and the Department commissioned study by Hill PDA in 2008, which establish the strategic role and function of the retail hierarchy in the Bega Valley, including protecting the character of Tura Beach and retaining Bega as the major regional centre.
5. The Planning Proposal has not adequately justified the inconsistency with s117 Direction 5.1 Implementation of Regional Strategies. The South Coast Regional Strategy requires Councils to introduce mechanisms to preserve and support the hierarchy of centres. Bega is identified as a major regional centre under the Strategy. The proposal will encourage “out-of-centre” large scale commercial development that does not preserve or support the hierarchy of centres identified in the South Coast Regional Strategy and Council’s adopted commercial strategy. The Department’s Draft South East and Tablelands Regional Plan maintains the Department’s policy position of promoting large scale commercial development in the regional centre of Bega.
2.3 Gateway Review Following issue of the Gateway Determination on 15 August 2016 in relation to the February 2016 Planning Proposal, Bunnings, as the Proponent for the Planning Proposal, submitted a request for Gateway Review in accordance with Section 5.4 of A guide to preparing local environmental plans.
The Gateway Review request was submitted with a Planning Report, which addressed each of the grounds of refusal in detail, supplementary economic impact advice and a revised concept plan for the proposed Bunnings warehouse development. On 2 February 2017, the Southern Joint Regional Planning Panel (JRPP) considered the Gateway Review. As part of their consideration of the Gateway Review, the JRPP members:
Reviewed the Planning Proposal documentation, including the planning report and the economic impact assessment (EIA) submitted with the 2016 Planning Proposal application and a copy of the planning report submitted with the request for Gateway Review (including appendices to that report)1 ;
Council’s report;
The report prepared by DPE in relation to the Gateway Determination of the 2016 Planning Proposal; and
Copies of the following documentation including relevant strategic planning documents: - Draft South East and Tablelands Regional Plan.
1 During the JRPP meeting the Panel advised that the supplementary economic impact advice submitted with the Gateway Review documentation (Appendix 4 to the DFP Planning Report) had not been provided to the Panel. A copy of the supplementary EIA prepared by Essential Economics (dated 26 September 2016) was provided to the Panel members at the meeting on 2 February 2017.
2 Background dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 4 - Bega Valley Retail Analysis Final Report January 2017, Bega Valley Shire Council.
Review of Bega Valley Draft LEP Amendment No.4 Prepared for NSW Department of Planning February 2008. - Economic Development Strategy, Bega Valley Shire Council adopted August 2015. - Submission from BBC consulting planners on behalf of the adjoining owner, RSL Life. - Development Application plans for the extension of the RSL Life aged care facility. - Economic Impact Assessment prepared by Essential Economics on behalf of the proponent dated February 2016.
- Council’s earlier report on this matter dated 20 February 2014. - Bega Local Environmental Plan 2013 and associated maps. In its consideration of the proposal, the Panel was of the view that “with appropriate limits on use and appropriate measures to mitigate potential impact on neighbouring land uses, a Bunnings store could be accommodated on this site, without significant detrimental impacts on the hierarchy of centres.” It was the Panel’s view that:
The site could accommodate an additional use for a hardware and building supply over a portion of the site as a Schedule 1 use – this would assist in limiting the proximity of the use to the R2 Low Density Residential, and provide a transition.
The underlying zone should be changed to R5 Large Lot Residential – similar to the zoning of lands along the eastern side of Sapphire Coast Drive as a holding zone until such time as Council completes its strategic work to determine whether or not the site should support a greater range of uses.
In forming this view, the Panel noted that:
The site is well located on the edge of an existing centre ... and in close proximity to Merimbula.
The site is currently unused and not returning benefits to the community.
The site does not appear to have significant environmental values prompting consideration of an environmental zoning.
Other residential zoning (R5) further along Sapphire Coast Drive already accommodates a nursery and other commercial uses which would not be incompatible with development of a single small format hardware store with appropriate controls.
Therefore, whilst the Panel did not support a rezoning of the site to B5 Business Development, the Panel unanimously agreed that the use of the site for the purposes of a small format hardware store was appropriate and recommended that the Proponent lodge a new Planning Proposal that proposed the following:
Zoning the site to R5 Large Lot Residential.
Permitting the use of hardware and building supplies with approval as an additional Schedule 1 use over a portion of the site only (to ensure mandated setback and transition to use adjoining aged care facility).
Imposing controls such as FSR and Height be included in LEP in relation to this site to mitigate impacts and provide a limit to development.
Include controls in the DCP to address, landscape, siting, setbacks of structure, finished levels, acoustic requirements, light and light spill, and hours of operation.
2 Background dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 5 The Panel also recommended that Council finalise its strategic work in respect to the location of employment lands and commercial hierarchy to determine the appropriate strategic framework for the site and the function of the Tura Beach centre. That review has now taken place and is discussed in Sections 2.4 and 6.5.2 of this report.
Notwithstanding that the review recommenced a B5 Business Development zoning for the site, the conditions of the Gateway determination require the Planning Proposal to be in accordance with the recommendations of the JRPP and the site be zoned R5 Large Lot Residential with hardware and building supplies and garden centre being included as additional permitted uses on a portion of the site (under Schedule 1 of Bega Valley LEP 2013). A copy of the report of the JRPP’s consideration of the Planning Proposal and Gateway review is included at Appendix 1 to this Planning Report.
2.4 Bega Valley Council’s Commercial Centres Review – Review of Merimbula, Pambula and Tura Beach In September 2017, Bega Valley Council exhibited a review of their Commercial Centres Strategy as it relates to the Merimbula, Pambula and Tura Beach catchment. This Strategy review was prepared in response to a recommendation of the Joint Regional Planning Panel (JRPP) following the Gateway Review of the 2016 Planning Proposal by Bunnings. The JRPP recommended that the underlying zone (of the site) should be changed to R5 Large Lot Residential, similar to the zoning of lands along the eastern side of Sapphire Coast Drive as a holding zone until such time as Council completes its strategic work to determine whether or not the site should support a greater range of uses.’ Notwithstanding the recommendation of the JRPP, DPE advised Council on 23 March 2017 that the Gateway determination would not be altered and encouraged Council to review the role of Tura Beach in the context of the 2006 Commercial Centres Strategy.
The Strategy review exhibited for public comment in September 2017 was in response to this feedback from DPE.
Following exhibition of the Commercial Centres Strategy review, Council considered the submissions received and the review was formally adopted by Council at the meeting of 21 February 2018. At the meeting Council also resolved to forward a copy of the adopted Commercial Centres Strategy – Review of the Merimbula, Pambula, Tura Beach Catchment 2017 to DPE for approval. Discussion as to how this Planning Proposal responds to the strategic directions as set out in the review is included at Section 6.5.2 of this report.
Despite the fact that the Strategy review recommended that the most appropriate zoning for this site is B5 Business Development, in accordance with the recommendations of the JRPP and the Gateway determination, the Planning Proposal proposes to rezone the site R5 Large Lot Residential with hardware and building supplies and garden centres included as additional permitted uses in Schedule 1 of Bega Valley LEP 2013.
dfp | Planning Proposal | Lots 33 and 34, Sapphire Coast Drive, Tura Beach | Revised February 2019 6 3 Site Context 3.1 The Site The site is legally described as Lot 33 and Lot 34 DP 243029 (see Figure 1). The site has a total area of 4.0517ha and is located on the southern corner of the intersection of Sapphire Coast Drive and Tura Beach Drive. The site has a frontage of approximately 200m to Sapphire Coast Drive and a frontage of 188m to Tura Beach Drive. The site is vacant with no built improvements. Vegetation across both allotments comprises groups of trees and ground covers, mainly bracken fern.
The site slopes down from Sapphire Coast Drive in a south easterly direction towards Tura Beach Drive. 3.2 Surrounding Development The surrounding urban and natural context comprises:
To the north west is Sapphire Coast Drive and bushland beyond;
To the north east is the Tura Beach shopping centre which is anchored by a Woolworths supermarket;
To the immediate south is the seniors living facility known as Sanananda Park comprising independent living units and a residential care facility; and
To the immediate west is a detached dwelling on a rural residential allotment. Land to the north of the Tura Beach local centre is zoned R5 Large Lot Residential under Bega Valley LEP 2013. There are a number of commercial land uses located on this land including a retail plant nursery (Merimbula Rainforest Nursery and Florist) and a boat sales and repairs outlet (Merimbula Outboard Service).
Figure 1 is a plan showing the location of the site. Figure 2 is a map of the Bega Valley LGA showing the relationship of the location of the site with the Bega town centre and the rest of the LGA. Figure 3 is a plan showing the location of the site in relation to the townships of Merimbula, Tura Beach, Eden and Bega. Figure 4 is an aerial photograph of the site. Figures 5 – 7 are photographs of the site. Figure 1 Location of site
3 Site Context dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 7 Figure 2 Location of Site in Bega Valley LGA Figure 3 Locality plan of site
3 Site Context dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 8 Figure 4 Aerial photograph of site Figure 5 Looking east towards Tura Beach Drive
3 Site Context dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 9 Figure 6 Looking north east towards intersection of Sapphire Coast Drive and Tura Beach Drive Figure 7 Looking south from Tura Beach Drive towards Sanananda Park seniors housing development 3.3 Existing Zoning The site is a deferred matter under Bega Valley LEP 2013.
Pursuant to Clause 1.3 of Bega Valley LEP 2013, Bega Valley LEP 2013 does not apply to land identified as a ‘deferred matter’.
Therefore, Bega Valley LEP 2002 applies to the site. Pursuant to Bega Valley LEP 2002 the site is zoned 1(c) Rural Small Holdings.
3 Site Context dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 10 Under the 1(c) Rural Small Holdings zone, the following development is permissible with consent: animal establishments; aquaculture; attached dual occupancies; bed and breakfast establishments; child care centres; clearing of land; community facilities; craft studios; detached dual occupancies; dwelling houses; educational establishments; farm forestry; granny flats; home businesses; home industries; intensive horticulture; places of public worship; professional consulting rooms; reception establishments; recreation areas; recreation establishments; retail plant nurseries; riding schools; tourist accommodation; utility installations; veterinary establishments.
With reference to Bunning’s interests in the site, we note that the current 1(c) zoning of the site does not permit development for the following land uses on the site:
Hardware and building supplies;
Garden centres; and
Bulky goods. A Bunnings Warehouse is therefore not permissible on the site under the current zoning. An amendment to the Bega Valley LEP 2013 is therefore necessary in order to enable a Bunnings Warehouse to be permissible with consent on the site.
dfp | Planning Proposal | Lots 33 and 34, Sapphire Coast Drive, Tura Beach | Revised February 2019 11 4 Concept Proposal 4.1 Summary and Development Statistics A concept plan (Appendix 2) for a small format Bunnings on the site has been prepared.
The plans are indicative only to assist in understanding the context of the likely future redevelopment of the site (and in particular the relationship with the adjoining seniors housing development) and to assist in assessment of traffic and economic impacts, which are discussed later in this report.
The location of the Bunnings Warehouse on the site has had regard to the adjoining seniors housing and the approved expansion of that development2 . The approved site plan for the expansion of the adjoining seniors housing development is also included at Appendix 2 to this report. The concept plan for the Bunnings development demonstrates that:
There will be ample separation between the activities associated with the Bunnings Warehouse and existing and proposed buildings on the adjoining property. The concept plan demonstrates that the proposed Bunnings building will be setback approximately 57m (at its closest point) to 90m from the southern property boundary.
The Bunnings car park will be setback between 11m to 44m from the boundary. The rear (western) part of the adjoining seniors housing site is currently vacant. In July 2018 Council approved an application for additional seniors housing on that part of the adjoining property that is currently vacant. The approved site plan for that development indicates that the buildings on the adjoining property will be setback a minimum of 25m from the northern (Bunnings) boundary.
Therefore, the minimum separation between the Bunnings car park and the approved seniors housing dwellings will be 36m.
Any acoustic treatments that might be required are capable of being implemented in a manner which will present an appropriate aspect when viewed from the adjoining property.
Appropriate landscape treatments can be provided within the setback to the adjoining property – refer concept landscape plans at Appendix 3 to this report. As previously noted, based on the concept plan, this setback varies from 11.7m to almost 50m.
The majority of activities associated with the Bunnings Warehouse will be located away from the seniors housing units.
The development will not impact on solar access to the adjoining property. Condition 1 of the Gateway determination requires the Planning Proposal to be revised to rezone the site R5 Large Lot Residential and include hardware and building supplies and garden centre as additional permitted uses under Schedule 1 of Bega Valley LEP 2013 over a portion of the site only (to ensure mandated setback and transition to use adjoining aged care facility). It is considered that the setbacks between the Bunnings building and car park will be sufficiently large enough to ensure the amenity of residents of the adjoining seniors housing development is not affected.
Within the setback between the car park area and access driveways, it is proposed to undertake earthworks and landscaping. Subject to confirmation that these works can be undertaken without relying on the additional permitted use provisions, that part of the site to which the additional permitted use provisions apply could be limited to those parts of the site 2 The proposed expansion of the existing seniors housing development will be located to the west and south of existing development on the site. A setback of 25m is proposed to be provided to the boundary of the ‘Bunnings’ site and the proposed seniors housing dwellings.
4 Concept Proposal dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 12 on which the building, car park and access roads/driveways are located. As the plan at Appendix 2 is a concept plan only, it is recommended that the additional permitted use provisions be extended beyond the edge of the car park and access roads to ensure the area available for the additional permitted uses is large enough to accommodate the proposal. The likely future development of the site will comprise:
Earthworks and site preparation;
Construction, fit-out and use of a small format Bunnings hardware and building supplies building together with associated business identification signage;
New ingress and egress to/from Tura Beach Drive;
New left in/left out driveway onto Sapphire Coast Drive;
Car park and associated loading dock area to be used in conjunction with the Bunnings Warehouse; and
Landscape works. 4.2 Design Considerations Part F of the recently adopted Commercial Centres Strategy – Review of Merimbula, Pambula, Tura Beach Catchment (adopted 21 February 2018) lists the design criteria to be considered as part of any bulky goods retail development.
Although the development proposed on the site by Bunnings is not a bulky goods retail development per se, the design considerations in the Strategy review have been considered in relation to the built form on the site The building will be a small format Bunnings Warehouse which will incorporate the main warehouse and entry, timber trade sales area, bagged goods canopy and an outdoor plant nursery. The concept plan provides for at grade car parking to the south of the warehouse building. The loading dock is proposed to be located on the north-western elevation of the building, well removed from adjoining residential development.
This site planning approach will integrate well with the surrounding built form and will enable the development to be undertaken with minimal site works. The concept plan indicates the outdoor nursery and bagged goods area at the eastern end of the site with the main warehouse building and trade centre to the west of these components. The outdoor nursery and bagged goods area are characteristically ‘open’ sided to facilitate ventilation utilising a metal canopy which is lower than the height of the main warehouse and fabric shade sail associated with the plant nursery section. This softer presentation will be visible to the Tura Beach Drive and integrate with the landscaped area in the road reserve.
The concept plan provides for a significant setback to Sapphire Coast Drive. This will allow for retention of some of the mature trees within the road verge and setback which will assist in minimising the visual presence of the main warehouse building from Sapphire Coast Drive. The concept plan indicates a total trading area of approximately 6,900m2 (although not all of that floor area would be defined as gross floor area under Bega Valley LEP 2013 as areas such as the outdoor nursery are external spaces). The concept plan indicates that 210 car parking spaces (equating to approximately 1 space per 33m2 of trading area) can be provided on site which demonstrates that the site can comfortably accommodate the car parking needs of the proposed Bunnings Warehouse.
The following is discussion as to how a future building on the site could respond to each of the design criteria in Part F.
4 Concept Proposal dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 13 Table 1 Design Considerations General Considerations The bulk and scale of development needs to respond to the natural features of the site and prevailing streetscape in terms of height and setbacks The concept scheme at Appendix 2 to this report has been designed having regard to:
The topography of the site and existing vegetation
The operational requirements of the Bunnings Warehouse
The visual impact of development on the site when viewed from Sapphire Coast Drive, Tura Beach Drive and adjoining properties. Setbacks from Sapphire Coast Drive range from 5.9m (to the canopy of the open bagged goods area) to 12.8m. However due to the width of the verge along Sapphire Coast Drive, the separation from the carriageway of Sapphire Coast Drive will be in the order of approximately 9m.
The maximum building height of the concept design will be approximately 9.1m above existing ground level at its highest point, being the south western corner of the building. The photo montages at Appendix 2 demonstrate how a Bunnings Warehouse development on the site might appear when viewed from various public domain vantage points in the vicinity of the site. View 2 on Drawing No. A6-01 at Appendix 2 is a view from Sapphire Coast Drive looking east. This view shows that at the western end of the site the building will be well below the carriageway of Sapphire Coast Drive and the building will not dominate the streetscape.
Further, and as previously noted, the verges along Sapphire Coast Drive are very wide and there is ample opportunity to undertake landscaping within the verge which will further assist in mitigating the impacts on the streetscape at the eastern end of the site. The design of the building needs to provide a clearly identifiable sense of address and wayfinding for pedestrians, cars and large vehicles The concept design at Appendix 2 provides for access for cars and light vehicles from Tura Beach Drive. Large trucks will access the site from Sapphire Coast Drive (via a left in access only) and egress via Tura Beach Drive.
The nature of the products stocked by Bunnings is such that these facilities are rarely accessed by pedestrians, however a separate pedestrian access pathway to the building from Tura Beach Drive could be provided if required. It is unlikely that there will be a need to provide a pedestrian pathway along the Sapphire Coast Drive frontage of the site. Notwithstanding, the scale of the building when viewed from Sapphire Coast Drive will not be dominant and will respond positively to the streetscape. This level of detail can be shown on plans to be included with the development application (DA) that will be required to be submitted should Bega Valley LEP 2013 be amended as proposed.
Buildings need to achieve a level of human scale where pedestrians have a sense of space, safety and openness with the public domain The nature of the public domain in the vicinity of the site is not considered to be pedestrian friendly. The scale of the building as depicted in the concept design at Appendix 2 is considered to respond appropriately to the verges along Sapphire Coast Drive and Tura Beach Drive and, as demonstrated in
4 Concept Proposal dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 14 Table 1 Design Considerations the photomontages at Appendix 2, will not dominate the public domain.
Building Elements Facades need to include a mixture of colour, texture and material where the corporate branding is not the dominant feature As demonstrated in the concept scheme elevations at Appendix 2, the building materials will include precast rendered concrete panels, pre-painted metal cladding, metal mesh and a concrete dado wall. A mix of colours are also proposed to be used including green and white/ecru coloured panels as shown in the montages at Appendix 2 The signage proposed will not dominate the elevations of the building or the streetscape. The roof spaces need to be articulated with a variety of materials and colour treatments.
Plant and equipment needs to be concealed and shielded from the public domain The roof materials will generally comprise prepainted metal sheeting however the plant nursery area will be covered with fabric shade sails which will soften the roof lines along the Tura Beach Drive elevation.
Large plant has been located adjacent to the loading dock which will be below the level of Sapphire Coast Drive and will be screened by a retaining wall. Signage should not dominate the façade and form part of the building with limited illumination As demonstrated in the concept scheme elevations and montages at Appendix 2, the proposed signage will not dominate the elevations of the building Details of illumination, if proposed, will be provided with the DA Colours and Materials Buildings need to use a colour palette that responds to the site and prevailing streetscape with a mixture of natural tones The streetscape along Sapphire Coast Drive currently comprises vegetation in the form of large trees.
As far as possible, existing mature trees within the setback and road verge will be retained The building is proposed to be painted green which is the Bunnings corporate colour and white/ecru. As demonstrated in View 2 on Drawing No. A6-01, the building will be set below the level of the Sapphire Coast Drive carriageway and will not be a dominant feature within the streetscape. The proposed building will respond appropriately to the prevailing streetscape along Tura Beach Drive which comprises a mix of built forms. View 3 on Drawing No. A6-01 is a view looking north-west across the site from the driveway entry to the Tura Beach shopping centre.
This view demonstrates that the combination of landscaping and materials and colours proposed to be used will result in a development that complements the existing environment.
Sustainable design in encouraged through the innovative use of materials that are energy efficient, recycled or from local sources The matter of sustainability will be addressed as part of a future DA for a development on the site. Where possible and practical, local suppliers will be used to minimise haulage costs. The reflectivity needs to be considered in the choice of any colour or material finish The matter of reflectivity will be addressed as part of a future DA for a development on the site however the nature of the external finishes is such that reflectivity is unlikely to be an issue.
4 Concept Proposal dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 15 Table 1 Design Considerations Landscaping needs to be integrated into the design and soften the appearance of the building, fencing and any hardstand areas A concept landscape design has also been provided at Appendix 3. This design identifies:
Boundary landscaping, including landscaping along the Sapphire Coast Drive and Tura Beach Drive frontages
Tree planting throughout the at-grade car park
Dense planting on the landscaped batter to the adjoining seniors housing development. The provision of landscaping is an important design consideration in terms of softening the appearance of the building.
Any landscaping needs to enhance the overall appearance of the development with a mixture of advanced trees, shrubs and groundcovers that suit our climatic conditions with a plan for their ongoing maintenance. This level of detail will be submitted as part of a future DA for a development on the site however the criteria will be taken into account when preparing the landscape design Amenity The design and layout needs to take into account adjoining land uses, particularly in terms of noise, light and amenity The concept plan provides for at grade car parking to the south of the warehouse building.
The loading dock is proposed to be located on the north-western elevation of the building, well removed from adjoining residential development. This plan demonstrates that a setback of between 37.6m (at its closest point) to more than 50m to the existing seniors housing units located adjacent to the common property boundary can be provided. Hours of operation, location of mechanical plant and equipment and movement of large vehicles needs to be considered within the context of any sensitive neighbouring development and existing noise sources See above Details regarding hours of operation and location of plant are matters that will be addressed as part of a future DA for a development on the site.
Infrastructure Buildings need to consider connectivity with existing infrastructure including the broader street network, vehicle access and views from the public domain. Alternative transport options should be encouraged within the design The site is in a location which is well serviced in terms of infrastructure, particularly road and transport infrastructure.
The location of the site is such that deliveries to the site will not impact on residential areas. Essential services such as sewer and water are already located nearby and, subject to investigations, should readily capable of being extended and augmented to service the site. Gateway Buildings and Corner Treatments The location of buildings at the junction of major transport corridors into a township requires careful consideration as they can impact on the character of a town and provide a sense of arrival The site is considered to be at the junction of major transport corridors and therefore the design criteria listed below will need to be taken into consideration as part of any future DA for a development on the site.
The concept scheme plans at Appendix 2 demonstrate that the development of a Bunnings Warehouse on the site will make a positive contribution to this intersection and the character of the Tura Beach locality. The following requirements apply to gateway buildings:
Corporate colours should not dominate the visual appearance of a building and (are) The concept plans at Appendix 2 show a building finished in a combination of Bunnings corporate
4 Concept Proposal dfp | Planning Proposal | Lots 33 and 34 Sapphire Coast Drive, Tura Beach | Revised February 2019 16 Table 1 Design Considerations limited to signage space. The use of corporate colours should not be permitted outside of the nominated advertising space of a development. green and white/ecru. The combination of these colours together with the variety of materials proposed to be used, particularly along the Sapphire Coast Drive and Tura Beach Drive elevations will result in a development which make a positive contribution to the character of the area without dominating the streetscape and will ensure the building complements its surroundings. The scale, positioning and quantity of building identification signage has been tempered having regard to the surrounding developments and the corner location of the site, ensuring that the signage, whilst not dominating the streetscapes, provides clients with sufficient wayfinding information.
Buildings need to be constructed in a mixture of solid and lightweight building materials. The use of lightweight cladding and concrete should be rationalised. At least 20% of the façade needs to be constructed of alternative materials such as glass, bricks, wood or stone. The use of local or recycled materials is encouraged to provide some local context. The building shown in the concept scheme plans at Appendix 2 incorporates a mix of building materials.
The setbacks need to be provided with additional landscaping that enhances the appearance of the development and softens the impact from both street frontages Refer landscape plans at Appendix 3. 4.3 Employment Numbers The Bunnings Warehouse is likely to generate over 70 full-time, part-time and casual positions which equates to 50 full time equivalent (FTE) positions. Furthermore, Bunnings is a significant employee of older people seeking to re-enter the workforce and those no longer working full-time but wishing to work on a casual basis.
dfp | Planning Proposal | Lots 33 and 34, Sapphire Coast Drive, Tura Beach | Revised February 2019 17 5 Guide to Preparing Planning Proposals 5.1 Introduction A Guide to preparing planning proposals (August 2016) details the information required to be provided as part of an application for a Planning Proposal. The Guide includes a set of assessment criteria to assist proponents or a relevant planning authority in justifying a planning proposal. Some regional strategies and plans include Sustainability Criteria that provide a framework against which to consider planning proposals that might not be consistent with the strategy but may nonetheless have merit.
The assessment criteria detailed in the guide form the basis of the strategic merit and sitespecific merit assessment for the rezoning review process.
Whilst this proposal is not a rezoning review, it is considered that the assessment criteria is a relevant consideration in relation to this proposal, particularly having regard to the background of previous proposals relating to this site and development (as detailed in Section 2 of this report). In this regard, in order to determine whether the proposal has strategic merit, this report has considered whether the Planning Proposal is:
Consistent with the relevant regional plan outside of the Greater Sydney Region, the relevant district plan within the Greater Sydney Region, or corridor/precinct plans applying to the site, including any draft regional, district or corridor/precinct plans released for public comment; or
consistent with a relevant local strategy that has been endorsed by the Department; or
responding to a change in circumstances, such as the investment in new infrastructure or changing demographic trends that have not been recognized by existing planning controls.
Notwithstanding that the ‘test’ as to whether a Planning Proposal has strategic merit does not require all three criteria to be satisfied (we note the use of ‘or’ in relation to the criteria, rather than ‘and’), it is considered that this Planning Proposal can satisfy all criteria in terms of having strategic merit. Each criterion is addressed in more detail below. 5.2 Criterion 1 Consistency with Regional Plans Consistent with the relevant regional plan outside of the Greater Sydney Region, the relevant district plan within the Greater Sydney Region, or corridor/precinct plans applying to the site, including any draft regional, district or corridor/precinct plans released for public comment; With respect to Criterion 1, this Planning Proposal is considered to be consistent with the relevant regional plan.
The relevant regional plan in relation to this Planning Proposal is the South East and Tablelands Regional Plan. The consistency with the Regional Plan is discussed in Section 6.5.1. However, for the purposes of responding to Criterion 1, Direction 12 of Goal 1 of the Regional Plan is a relevant consideration. Direction 12 highlights the importance of directing retail activity to existing centres to increase centre vitality, capitalise on existing transport and community facilities, attract complementary activities, and enhance the value of existing public spaces. The Regional Plan also acknowledges that there might be instances where development needs to be located outside of existing commercial centres.
In circumstances such as this, it will be necessary to demonstrate social and economic benefits to the community.
The Regional Plan identifies Bega as a strategic centre. This Planning report demonstrates that the development of a Bunnings Warehouse at Tura Beach will not impact on the primacy of Bega as the principal commercial, retail, cultural, civic and service centre of the region and that there are indeed social and economic benefits of
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