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SUBJECT GLENDALOUGH STATION PRECINCT STUDY REVIEW Report

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SUBJECT GLENDALOUGH STATION PRECINCT STUDY REVIEW Report Powered By Docstoc
					SUBJECT          GLENDALOUGH STATION PRECINCT STUDY REVIEW

Report Information

Location:         Glendalough Station Precinct
Applicant:        Not Applicable
Reporting Officer: Director Planning and Development
Business Unit:    Policy & Strategic Development
Ward:             Osborne

Recommendation

1.   That Council SUPPORTS the revised approach to the Glendalough
     Station Precinct Study (GSPS), as outlined in the Director Planning
     and Development's report, including the establishment of five
     quadrants in and around this Precinct, namely:
          • 1 - South East Quadrant;
          • 2 - West Quadrant;
          • 3 - Main Street Quadrant;
          • 4 - North East Quadrant; and
          • 5 - North Quadrant (East Osborne Park Precinct).
2.   That the two staged consultation approach, as suggested in the
     Director Planning and Development report, is UNDERTAKEN with
     landowners in the Glendalough Station Precinct to determine their
     support for the revised study approach.
3.   That, following public consultation, a revised structure plan for the
     Glendalough Station Precinct (including “East Osborne Park”) be
     PREPARED, including area objectives, land use tables, design
     guidelines, new road locations, parking ratios, streetscaping detail,
     infrastructure costings and proposed implementation mechanisms,
     and that this be submitted to Council.
4.   That discussions be INITIATED with the Department for Planning
     and Infrastructure “Transit Orientated Design” (TOD) Committee
     regarding the Glendalough Station Precinct Study and
     opportunities for partnership arrangements and cost sharing
     arrangements with state agencies involved in this committee to
     progress the study.

Report Purpose

To review the 1999 Glendalough Station Precinct Study (GSPS) and consider
the options available to pursue the implementation of the Glendalough Station
Precinct Study.

To gain approval to present the preferred option for implementation of the
GSPS to the Transit Orientated Development (TOD) Committee at the
Department for Planning and Infrastructure to progress a partnership
arrangement to forward the aims and goals of the GSPS, and to undertaken
community consultation.

Relevant Documents

Attachments:
   1. Current Glendalough Station Precinct Plan (Development & Zoning)
   2. Revised Glendalough Station Precinct Plan
   3. Stages for Revising Glendalough Station Precinct Study
Available for viewing at the meeting: Nil.
Tax sheet: Nil.

Background

1.   VARIOUS PRECINCT STUDIES

     The City of Stirling and the Department for Planning and Infrastructure
     (formally the Department Planning and Urban Development)
     commissioned a study of the Glendalough Station Precinct in 1990, with
     a view to promoting development opportunities around the railway
     station and reconnecting the local road system that was severed by the
     construction of the Freeway. In 1999, the Glendalough Station Precinct
     Urban Design and Implementation Study (GSPS) was commissioned to
     undertake a review and refinement of the 1990 study recommendations
     and to respond to the redevelopment starting to occur in the area. This
     revised study was adopted ‘in-principle’ by Council in November 1999.

     The GSPS area comprises of an 800m radius of the railway station,
     generally, and a 400m core centring along Scarborough Beach Road
     (SBR). The 1999 study aimed to:

     • Guide redevelopment of the existing industrial zones to a more
         intensive commercial/residential land uses within 800m of the railway
         station, to maximise potential use of this facility (as per WAPC Policy
         DC 1.6);
     •   Propose land use controls and design guidelines which, while
         recognising existing land uses, enables transition to a preferred form;
     •   Establish strong civic places to compliment the new urban form and
         develop a strong, positive 'sense of place';
     •   Reconnect the road system to benefit the station, pedestrian networks
         and commercial /residential precincts; and
     •   Propose a mechanism for funding the public works and
         implementation framework.

     The 1999 study suggested a number of options regarding the funding
     and implementation of its recommendations and included cost estimates
     for suggested works, including land acquisition and construction of new
     roads totalling an estimated $21 million. The study recommended as
     funding mechanisms, an “Improvement Plan” from the WAPC, developer
     contributions and funding from the City.

     The study recommended that the City fund the ‘Stage 1’ works
     (upgrades to existing roads, totalling approximately $3.98 million), which
     Council gave ‘in principle’ agreement to, subject to discussions with
     owners and alternative funding sources for other works. The study
     suggested that State Government funding was justified on the basis of:

     • Encouraging better use of major infrastructure (in particular, the train
       station), as a regional objective. (To ‘ensure’ this outcome, the area is
       within a Clause 32 area.);
     • The study assisting with other regional objectives and policies, such
       as encouraging use of alternative modes of transport; and
     • The study seeking to rectify access and movement problems resulting
       from the construction of the freeway.

2.   IMPLEMENTATION OF GSPS RECOMMENDATIONS

     The opportunity to progress the study relies on pro-active support from
     Council, the state government and land owners, and coordination
     through the City. Its position as an ‘adopted in principle’ Strategy and
     lack of formal implementation mechanisms causes complications in the
     assessment of new proposals (which are commonly inconsistent with the
     Study’s objectives and proposed uses, though seeking concessions for
     nil setbacks and parking).

     A report to Council in 2002 reviewed the feasibility of the 1999 Study and
     made a number of recommendations including:

     • That the GSPS and associated recommendations be retained as a
       strategic document in guiding development in the precinct and
       referred to in any long term planning or engineering works in the area;
     • That an Amendment to the District Planning Scheme No.2 be initiated
       to create a special control area over the precinct (including lots
       affected by New Roads outside the Precinct core) referencing study
       objectives, but without rezoning individual sites.;
     • That any rezoning applications or applications requiring the
       application of discretion be assessed against the objectives of the
       Strategy and approved and conditioned or refused accordingly; and
     • That the Strategy and state government position on it be reviewed
       periodically.

     Recommendations also included communicating the status of the Study
     to landowners and State agencies, and further consultation with the
     landowners in the North-Eastern quadrant in the study area with a view
     to progressing the study recommendations. Whilst most of the 2002
     recommendations have been implemented, a number have not. In
     addition, at the 16 November 2004 Council meeting, a motion was
     moved that “Council revisit the Glendalough Station Precinct Scheme as
     it appears to lack practicalities” (Item 14.1) following Council approval of
      a new car yard in the precinct, contrary to the study recommendations
      (which acknowledge existing car yards but discourage the establishment
      of new facilities).

      The GSPS requires a comprehensive review in response in difficulties in
      implementation, lack of progress and recent related projects and
      proposals, in order to move towards desired direction. The end
      outcomes of this review will be submitted to Council and the WAPC for
      adoption (to replace or supplement the 1999 GSPS). This report
      proposes to establish the basic framework, direction and process for this
      to occur.

3.    PREVIOUS COMMISSIONED GSPS STUDIES

      Sinclair Knight Merz were commissioned in 2001 to investigate the
      feasibility of new road alignments proposed in the 1999 study. In 2002,
      Australian Property Consultants were commissioned to determine
      potential property value increases as a result of land use zone changes.
      Both studies were aimed at establishing the feasibility and cost benefit of
      the proposed new road network, which represents one of the major costs
      (and difficulties) in the study. Both made a number of findings which
      basically enforces the notion of the North East quadrant having the most
      opportunity for the road connections as proposed in the Study and for
      increases in property values. (Item 11.1/PL26, 15 October 2003) These
      studies resulted in a recommendation to scale back the number of
      proposed new roads and to focus on those with highest cost-benefit, as
      detailed in Table 1 in Section 6.2 of this report.

4.    STATE AGENCY COMMENTS ON THE GSPS

     State agency comments on the GSPS were obtained in 2001 after
     extended referral times. The majority of agency comments, while
     supportive of the study principles and objectives, raised concerns in
     relation to some of the key recommendations relating to new road
     connections and most importantly, the then Ministry for Planning indicated
     a lack of commitment towards the financial and State level planning
     support. Essentially, the responses indicated a desire for the City to
     respond to the state government policy in relation to railway stations but
     without offering pro-active support or assistance in facilitating this.

Comment

5.    RECENT RELATED INITIATIVES

      The following is a brief analysis of recent or pending projects that are
      relevant to the review of the GSPS.

      5.1 Planning

           a)   Amendment 423: Glendalough Station Precinct:
The purpose of this Amendment is to create the Glendalough
Station Precinct (GSP) and to zone a sub-precinct within it for a
“Mixed Residential” cell, for 10 lots fronting Scarborough Beach
Road between Jugan and Brady Streets. Part 1 of this Amendment
achieves the desired objective of creating the GSPS area, but does
not initiate its rezoning (other than the Mixed Residential cell). As
such, it will still be necessary to initiate a new Amendment to
rezone the area (if desired) and establish mechanisms for the cost
allocation of public works (such as, new roads to be developed).
However, the Amendment does recognise the significance of the
Precinct in the Scheme and effectively actions the 2002 resolution
relating to the creation of a 'Special Control Area', albeit in a slightly
modified form. The second component of the Amendment creates
the “Mixed Residential” cell and specifies the requirements
applicable to redevelopment of this.

b)   Amendment 492: ‘Mixed Business’ zone for the Industrial
     Areas of Osborne Park and Balcatta:

This Amendment is being drafted to enact the recommendations of
the 2004 'Industrial Areas Management Strategy' and is expected
to be submitted to Council for approval to advertise late this year.
Amongst other things, it proposes to introduce a new “Mixed
Business” zone to land fronting major roads in the industrial areas
of Osborne Park and Balcatta to, accommodate the emergence of
higher intensity commercial / retail showroom type activities. A
single category zone of “General Industry” is to be applied to the
remaining industrial areas to provide consistency to the industrial
zoning in the District Planning Scheme. Industrial ‘Precinct’ areas
have also been identified within Osborne Park, and policy
statements will be prepared to better differentiate between the
types of industrial uses considered appropriate for the distinct
localities within the zoned areas. One proposed precinct based on
the boundaries of the GSPS is the ‘Glendalough Station Precinct’.
Specifically, the policies will provide development directions,
guidelines and clarification on various matters generally and for
specific areas identified as Industrial Precincts, and could be a
further opportunity to advance some of the GSPS Design Principles
and objectives. The change from Industrial zoning to a ‘Mixed
Business’ still permits some industrial uses and but does not
include some of the use classes that were proposed in the 1999
GSPS.

c)   Osborne Park Industrial Areas Strategy (OPIAS) 2003

OPIAS aimed to set the strategic direction for the area over the
next 15 years. The Strategy is based on 10 issues, which range
from planning related land use and zoning through to landscaping,
security and traffic management, and makes a number of
recommendations relating to each issues. OPIAS recognises the
    importance of the Glendalough Station precinct to the area, and
    recommends continued development and implementation of
    strategies to achieve the GSPS objectives.                  These
    recommendations have been deferred pending the Retail and
    Industrial Areas review and resulting Industrial Areas Management
    Strategy and subsequent Scheme Amendment 492, detailed
    above.

5.2 Engineering

    The City is currently inviting tender submissions for the detailed
    design of Scarborough Beach Road, from Stephenson Highway to
    Main Street, for the Metropolitan Region Scheme road widening,
    including service roads and off-street car parking. This plan will
    form a component of Amendment 492 and compliance with it is
    proposed to be a pre-requisite for certain types of development.
    The Glendalough Study area falls within the scope of this tender
    and, as such, the design recommendations from this Study will
    guide the future upgrade of this section of Scarborough Beach
    Road. It should be noted that the proposals made in the 1999
    GSPS for the upgrade of Scarborough Beach Road were not
    supported by Main Roads WA at the time of referral, and were also
    subject to internal concerns as to their feasibility.

    Main Street north has undergone a significant upgrade in the past
    few years.      Main Street from Cape to the intersection of
    Scarborough Beach Road has been the subject of a Sinclair Knight
    Merz Study to compliment other works and its recommendations
    are currently in the process of being reviewed internally. The
    outcomes of this internal review will guide the upgrade of Main
    Street between Baden and Scarborough Beach Roads (which were
    the subject of GSPS recommendations).

    Since the GSPS was written, the Cayley Street bus terminal was
    downsized by Transperth and, as a result, additional “kiss’n’ride’”
    bays were provided, consistent with the Study recommendations.
    Parking provision and restrictions on Cayley Street south are the
    subject of a current study and resident survey. Outcomes of the
    study will be discussed with the Public Transport Authority with a
    view to a joint approach to resolving parking issues currently
    experienced in the street.

5.3 Scarborough Beach Road Transit Corridor

    Scarborough Beach Road serves as a primary transit corridor for
    the City with a number of activity generators as destination and
    origin points (i.e. the activity nodes of Scarborough Beach,
    Doubleview Commercial Centre, Stirling Regional Centre and
    Glendalough Train Station, planned upgrades and the pending
    Amendment 492 (Mixed Use) for the Osborne Park industrial area).
    With the current State level focus on transit orientated design, the
          promotion of Scarborough Beach Road as an Activity Corridor is
          seen as an opportunity for the City to attract State level resources
          and activity (for example the introduction of a System 900 Rapid
          Transit Bus Route along Scarborough Beach Road) and to
          advance an important regional planning initiative. Preliminary
          liaison with the WAPC has elicited 'in principle' support of a
          cooperative approach, however, concrete proposals are required to
          advance the notion further.

     5.4 Parks Operations

          As recommended in the GSPS, the key public open space of
          Triangle Park (at the intersection of Harborne Street and
          Scarborough Beach Road) has been upgraded, though not to the
          extent recommended in the study.               However, the possible
          pedestrian underpass recommended to encourage street-based
          pedestrian movement between the train station and the Herdsman
          Business Park is still subject to feasibility and costing analysis.

          Streetscape upgrades recommended in the study have been held
          pending advancement of the more fundamental land use strategy
          for the area.

     5.5 Recent State Agency Input

          In May 2005, the City met with representatives of the Department
          for Planning & Infrastructure and Public Transport Authority to
          discuss the status of the GSPS and gain direction or indicative
          support for the Study. Whilst in-principle verbal support was
          expressed for the Study, it was indicated that any significant
          financial commitments from State agencies would not be
          considered without a costed financial proposal identifying the
          benefits (financial and other) of the study to State agency
          infrastructure and the regional community. It was also made
          apparent that there are a number of transit-orientated state projects
          that are a priority and internal restructuring is influencing the
          delivery of these type of projects. It was recommended that a
          presentation be made to the Transit-Orientated-Design (TOD)
          Committee, whose membership is made up of representatives from
          key State agencies, for their consideration and where possible,
          support. It was also recommended by DPI attendees that the most
          likely way forward for the implementation of the GSPS was the
          formation of a partnership type arrangement with TOD agencies in
          which members would work with the City to resolve key
          implementation issues that were the responsibility of their agency.

6.   GSPS REVIEW RECOMMENDATIONS

     Whilst the principles of the GSPS are still considered valid and generally
     supported, its implementation options need to be significantly revised,
particularly in light of above proposed Amendments, findings from
consultants reports and State Agency directions.

A revised Glendalough Station Precinct Zone and Quadrants is
tentatively advanced (see Attached Figure 1), subject to Council
endorsement and community consultation. Based on the 1999 study
and incorporating the findings of the above review, an amended GSPS
document will be produced that details implementation mechanisms
such as rezoning, policy and infrastructure upgrades, based on the
following themes:

•   Planning - land use, zoning and design guidelines;
•   Movement - including new roads, road upgrades, parking, and
    public transport;
•   Civic Spaces - streetscapes, furniture and street trees; and
•   Public works and funding.

This report to Council does not fully detail the content of the proposed
GSPS document, but seeks approval to endorse the suggested
approach and identifies key elements (refer below):

6.1 Planning

     a)   Proposed Zoning & Land Use

     Amendment 423 establishes the Glendalough Station Precinct
     boundaries, and provides an overview and objectives for the four
     quadrants surrounding the Glendalough Train Station.

     It is acknowledged that while the focus of desired changes is the
     Glendalough Precinct area, it is also desirable to shift land uses in
     the industrial area immediately to the north of the Glendalough
     Precinct. That is, to promote development in East Osborne Park to
     McDonald Street, to be more compatible with the principles of the
     Glendalough Study (given surrounding residential land uses and
     desirability to move away from existing industrial uses). As such, it
     is proposed to have two key precincts for the area:

     • Glendalough Station Precinct (core area and Priority); and
     • East Osborne Park Precinct (outer zone of influence).

     Five quadrants are proposed to be established within these two
     precincts, based on existing land uses and constraints. These
     quadrants are discussed in further detail below.

     1 - South East Quadrant:
     Amendment 423 creates the ‘Mixed Residential’ cell for the 10 lots
     fronting Scarborough Beach Road and details requirements of the
     design layout plan for the whole Station Precinct area.

     2 - West Quadrant
Draft Amendment 492 proposes the ‘Mixed Business’ zone for the
Industrial Areas of Osborne Park and Balcatta along main access
roads, and includes the western area of the GSPS (with the
Freeway as eastern boundary). It is intended that a Precinct-based
Policy will to be developed, as a result of this Amendment, to reflect
the objectives of the revised GSPS. The application of this
Amendment over the western side of the GSPS is considered
appropriate given this zone will extend along the length of
Scarborough Beach Road and it commercial uses over industrial
uses (which is more consistent with current uses). Furthermore, it
terminates where the Freeway serves as a obvious boundary in the
study area. However, it is recommended that the zone not apply to
the five residential lots on the east of the Triangle Park for the
present, as these current relate much more strongly to the
residential area behind them than to the commercial that lines
Scarborough Beach Road.

3 - Main Street Quadrant
The ‘Business’ zone along Main Street as proposed in the original
GSPS is still considered appropriate and recognises the semi-retail
nature of this area.

4 - North East Quadrant
Two options are proposed to be presented for community
consultation with owners. Both of these relate to progressing the
area from its current industrial uses to more commercial and office-
based uses, and/or the potential inclusion of high density
residential. It is recognised that the presence of the Ingham
chicken factory on Baden Street may restrict opportunity for
residential development in the immediate future, but is still a long
term desirable goal for this quadrant.

The two options consist of :
•    Introducing a ‘Business’ or 'Mixed Business’ type zone either
     as an extension to, or separate to Main Street, westwards to
     include the north side of Scarborough Beach Road up to
     Powell Street. The aim is to introduce office and commercial
     uses, still permitting some light industrial activity but moving
     away from current general industrial use (not including
     residential); and
•    A ‘Mixed Use’ zone for land north of Scarborough Beach
     Road, similar to the ‘Restricted Business’ zone as
     recommended in the 1999 study, which has the possibility of
     including residential uses, along with office and commercial.

The options presented reflect the general intent for this quadrant,
but are indicative only and are presented on the basis of further
detail on land use classes being prepared following endorsement
from Council for this approach. While this recommendation does
not vary greatly from the original GSPS, it is likely to ultimately
differ in some use classes as originally proposed.

5 - North Quadrant (Proposed)
The area to the north of the North-East quadrant, between Powell
and McDonald Streets, currently zoned 'General Industrial', will be
impacted on by the proposed changes of the NE Quadrant within
the current and revised GSPS.

Given its industrial zoning and proximity to GSPS, it is logical to
consider the impacts on the GSPS on this area. The change of
uses proposed in the GSPS would subsequently leave this area
‘behind’ as an isolated pocket of industrial activity on the eastern
side of the Freeway. Additionally, the area was identified as in
need of review in the 'Industrial Areas Management Strategy'
because of its poor access and proximity to residential areas. Its
lack of buffer was also identified as of concern.

It is recommended to shift this area towards a more mixed use type
activity, including residential uses.      For this reason it is
recommended that this North Quadrant become part of the revised
structure plan for the area.        While not actually within the
Glendalough Precinct boundaries, it is an “area of influence” on the
study boundary, recommended to be known as “East Osborne
Park”. Its remoteness from the actual train station and proximity to
residential areas means that preferred uses will differ from those
more intense uses proposed in the Glendalough Precinct study
area itself.

It is proposed that a mix of lower key office / commercial and
residential uses would be appropriate, subject to consultation with
landowners, and would contribute to the overall improvement of the
area, and act as a better transition zone between its current
industrial uses and residential surrounds. Site visits indicate the
aged nature of the buildings in this area and the increased amount
of infill and high standard of residential development occurring
immediately abutting this industrial area.

Further detail on preferred land use zonings and use classes will be
developing following endorsement of inclusion of this quadrant in
the revised GSPS.
b)   Mechanisms for Implementation
           As a result of this review process and the approach
           suggested in this report, a revised structure plan will need to
           be prepared for the Glendalough Precinct to inform and guide
           landowners and Council of the development intent for the
           identified quadrants. These will include information from the
           original study (such as area objectives, land use tables,
           distribution of land uses, design guidelines, new road
           locations, parking ratios, streetscaping and infrastructure and
           service locations).

           It is most likely that both the GSPS and East Osborne Park
           area will require rezoning to implement the recommendations
           of a revised structure plan, on a quadrant basis, but the
           preferred planning mechanisms for delivery will be further
           investigated and reported on post consultation with the
           community to firstly determine support for the revised study
           objectives.

6.2 Engineering

a)   Road Upgrades

     Based on the findings of the 2001 Sinclair Knight Merz road
     alignment feasibility study, a number of new road proposals in the
     GSPS have proven to be unviable.              In addition, some
     recommendations made in the 1999 study relating to upgrades to
     existing roads are not viable or are obsolete based on
     improvements undertaken by the City or State authorities in the
     past five years. A brief analysis of upgrades and proposed new
     roads is provided below.

     Table 1 – 2001 Analysis of New Road and Road Upgrade
     Proposals

       New          Comments on Alignment                    Outcome
       Road
       1            N-S road along freeway reserve           Retain
       2            E-W road from Baden to Freeway           Retain
                    reserves Road3
       3            N-S road along freeway reserve.          Retain
       4            E-W Road from Powell to Freeway          Retain
       5            N-S road linking Baden & Powell.         Retain
       6            N-S road in NE quadrant off              Retain
                    Scarborough Bch Rd
       7            N-S alignment along Freeway Reserve      Remove
                    in NW quadrant. Removes parking for
                    Train Station
       8            Connector between NR 7 and 12.           Remove
                    Located on drain
       9            Possible but not functional without NS   Remove
                 freeway roads
     10          Occurs over leased arrangement w      Remove
                 property owner and Water Corp,
                 recently piped.
     11          E-W road below Neil St. Building      Remove
                 impediment
     12          N-S freeway reserve road. Located     Remove
                 over open drain.
     13          E-W road off Frobisher. Newly built   Remove
                 structure
     14          Cayley St to bus station. Transport   Remove
                 not supported
     Upgrades
     SBR        As per recommendations from current    TBA
                detailed design study
     Main       As per current Sinclair Knight Merz    TBA
     Street     study
     Donovan Unlikely due to road width limitations.   Remove
     St         Low priority
     Pollard St Mainly benefit employee parking.       Remove
                Upgrade to Triangle Park formalised
                on-street parking.
     Jugan & Unlikely to implement upgrade due to      Remove
     Gibney     space limitations
     Cayley St Connection to Busport not supported     TBA
                by Transport. Some upgrade occurred
                to parking area. Current study will
                formalise on-street parking and
                design.

Based on the outcomes of the above analysis, it is recommended
that Engineering Design consider the objectives GSPS relating to
Main Street, Scarborough Beach Road and Cayley Street when
any upgrades occur and incorporate appropriate design and
treatment to achieve the goals of the GSPS.

It is further recommended that those roads previously identified as
worthy of pursuit be retained in any revised Precinct strategy.

b)     Parking

       The 1999 GSPS recommended a mixture of on-street and off-
       street car parking to support the concept of street based
       commercial development, totalling 550 spaces. Of this, the
       study recommended 192 existing railway car parking spaces
       be removed to a street based configuration, and reduced to
       120. The remaining 430 bays were provided by a mix of on-
       street development, off-street ‘block’ parking and possibly
       deck parking.
         The removal of existing railway parking spaces is undesirable
         and clearly not supported by TransPerth (now PTA), as
         indicated in their comments at the time. The remaining
         parking configuration relies heavily on change in urban form
         and redevelopment consistent with the overall objectives of
         the GSPS. While this may be some time off, developers
         should continue to be encourage to provide on-street parking
         consistent with current parking ratios as per Industrial and
         Commercial provisions in DPS2, and not be granted
         concessions as recommended in GSPS unless strong
         compliance with the GSPS goals can be shown.

         In addition, the further development of parking
         recommendations made in OPIAS, particularly relating to the
         indication of employee parking requirements by proponents,
         should be further considered in the review of parking
         standards being undertaken as part of the Scheme Review
         process.

6.3 Parks Operations

    The recommendations made in the 1999 study relating to civic
    space, including paving, street furniture and street trees, need to be
    significantly revisited based on this review of the GSPS
    recommendations, the feasibility of new road proposals, suggested
    road upgrades and limited financial resources.

    The upgrading and provision of new streets in the study aimed to
    “facilitate movement, present opportunity for creating viable social
    space and assist in forming a cultural identify for the residential and
    business community”. This review indicates that the removal of a
    number of new roads, the scaling back of street upgrades and lack
    of funding mechanisms to support the civic space upgrades, the
    delivery of such a comprehensive streetscape enhancement is
    unlikely, although desirable. The same practicality is applied to
    study recommendations relating to landmark structures and public
    art.

    If the costs of implementation the GSPS are significantly revised
    down as a result of this review, and Design Guidelines are actively
    applied to private property in regards to built form, it seems
    appropriate that the City provides some form of beautification /
    upgrade to the area. This is also relevant as Glendalough poses a
    major entry gateway into to the City of Stirling, and commences the
    activity / transit corridor that Scarborough Beach Road forms.

    There are currently two studies investigating the design detail of
    road widening along Scarborough Beach Road and the upgrade of
    Main Street to Scarborough Beach Road. It is recommended that
    the Glendalough Precinct be retained as the subject of precinct
    capital works and upgrade program that is compatible with the
          findings of these other studies, and that while it would be
          anticipated the City and landowners would predominately shoulder
          the costs of this program, contributions (and potential partnership
          projects) should be sought from state agencies who infrastructure
          will benefit from the upgrade.

          OPIAS analysed and made a number of recommendations relating
          to streetscape and verge treatments, based on “landscape units”,
          foremost of which was the preparation of a ‘Streetscape and Verge
          Treatment Strategy & Masterplan’. These should inform any
          development of streetscape improvement proposals which may be
          advanced.

      6.4 Next Stages

          Attachment 2 shows an indicative flowchart of the stages and
          timing for revised Glendalough Station Precinct Study.

Consultation/Communication Implications

Extensive Community Consultation was undertaken at the time of the study in
late 1998 with the advertising of two planning concepts for consideration prior
to finalisation. A Glendalough Station Local Area Reference Group (GS-
LARG) was also formed for the duration of the project. It is worth noting that
this consultation is now some seven years old, and while broad support was
received at the time of the proposed concept, there was also opposition from
commercial property owners, in particular car yard owners, who were opposed
to the rezoning of their properties to anything that might imply inhibition of
their use.

A two-staged approach to further consultation in the area is recommended:

  •    Stage 1 is a general advertising campaign aimed at notifying the
       broader community in the Glendalough area of the status of the study
       and revised study outcomes. This will also provide an opportunity to
       undertake a brief questionnaire to determine current community
       support for the study and its general direction.

  •    Stage 2, as recommended in the 2002 report to Council, would be
       desirable to conduct a consultation session with landowners in the
       North East quadrant to determine their support for the proposal to
       rezone this quadrant towards a ‘Mixed Use’ or ‘Business’ options, and
       discuss contribution options to public works. The establishment of the
       “East Osborne Park” precinct would also result in the need for
       consultation with landowners to determine their support for inclusion in
       the broader GSPS.

An indication to community non-objection to changes in the Precinct are the
results of the recent advertising of Amendment 423 to establish the
Glendalough Precinct and Mixed Residential Cell, for which only two
submissions were received. One was from a service agency and raised no
objection, while the other strongly opposed the development of a car-yard on
the corner of Main St and Scarborough Beach Road.

Policy and Legislative Implications

The area is subject to the provisions of WAPC Policy DC 1.6 ‘Planning to
Enhance Public Transport Use’ (1999). The City has been advised that this
Policy is currently under review, though the principles of this are unlikely to
change, being strongly reflected in the draft Network City strategy, and the
current state government platform.

DC 1.6 seeks to achieve maximum development potential on appropriate land
within reasonable walking and cycling distance of stations and public transport
hubs and interchanges, and to promote the best possible integration of land
use with the public transport system. High standards of urban design and
landscaping are also sought.

The review of this policy provides an opportunity to strengthen the case of the
Glendalough Precinct as a transit node and transit corridor origin, and attract
State support for its implementation.

The Glendalough Precinct also falls within a MRS Clause 32 area which
requires the referral and determination of development proposals by the West
Australian Planning Commission.

Financial Implications

The 1999 GSPS made a number of suggestions regarding the funding and
implementation of its recommendations. This included cost estimates for
suggested works, including land acquisition and construction of 14 new roads,
totalling $21 million (NB 1999 figures).

The study recommended application to the State Government for support and
financial contribution to the study. Contributions by owners directly benefiting
from the study was also flagged as an option. This review indicates that the
removal of a number of new roads, road upgrades and civic places would
reduce the estimated budget by half. Conversely, increased costs and lack of
financial contributions from state and owner level means that the ultimate
project costs would still be significant to Council.

Any figures from the GSPS may now be significantly out of date, and a
revised structure plan will need to be re-costed if the approach suggested in
this review is supported.

Representatives from DPI indicated in the May meeting that a costed
proposal, identifying economic benefits to state agency infrastructure in the
area and financial contributions required would be desirable in any partnership
proposal put forward.
In other local government examples, infrastructure contributions have either
been:
    • Paid up front by Council on a full cost recovery basis. Costs are
       recouped as owners redevelop their properties within a ten year time
       frame (City of Fremantle);
    • Determined on a per lot or per hectare basis with a one-off cost
       contribution payable at the time of development towards common
       infrastructure for the area and placed in trust until sufficient funds are
       collected to allow for works to proceed. (City of Gosnells)
    • Specific service or infrastructure costs or contributions towards these
       are sought from relevant state agencies.

Subject to general acceptance from landowners regarding the revised study, it
would be assumed that combination of the above funding mechanisms would
be appropriate, depending on timing and purpose.

$15,000 is listed on the Policy and Strategic Development 2005-06 budget
towards consultation on corporate projects including this.

Strategic Implications

It is recognised through previous studies that the Glendalough Precinct lacks
strong identity, character and form and does not support active pedestrian
movement and use. The area was severed by the introduction of the Mitchell
Freeway and the disconnected road system provides for poor access,
exposure and land values. The area is dominated by its past industrial activity
and, more recently, automotive sales uses along Scarborough Beach Road.
The current ‘General Industry’ zoning is out of step with WAPC Policy DC 1.6
‘Planning to Enhance Public Transport Use’ (1999) which encourages
intensive commercial or residential land uses within 800m of a railway station.
There is little doubt this Precinct needs a strategic document to guide a more
desirable urban form and town centre focusing on the railway station,
supported by commercial and appropriate residential density.

While the 1999 study suggested a comprehensive approach to resolving
some of these issues, its implementation has been impeded for a number of
reasons identified previously. The revised approach suggests a ‘scaled back’
version of the 1999 GSPS, taking into account recent initiatives that may
support of impede the 1999 recommendations, and changes in State position
relating to funding arrangements for such revitalisation projects.

With a revised approach in place, adopted by Council and supported at a
State and owner level, the improvement of the Glendalough Precinct may be
achieved as desired.
ATTACHMENTS TO ITEM GLENDALOUGH STATION PRECINCT STUDY
REVIEW




1999 Glendalough Study Zoning Concept
1999 Glendalough Study Development Concept
Attachment 2

STAGES FOR REVISING GLENDALOUGH STATION PRECINCT STUDY

These projects have been initiated         These are the proposed Stages to
and will run parallel to the revision of   deliver the revised GSPS:
the GSPS:
Amendment 423                              Council commitment to revised GSPS
Glendalough Precinct                       approach
Creates GSPS Boundaries and                Timing – September 2005
‘Mixed Residential’ Precinct Cell
                                           2. Further studies:
Amendment 492                              Land Use Zoning Comparison
Industrial Areas                           Employment Generators
Creates Mixed Business zone along          Other Industrial Estates
Scarborough      Beach Road    to          Costings for public works
Freeway.                                   Timing – August /September 05

Engineering Design              3. Community Consultation
Detailed   Design  Programs for Stage 1 – Broad Advertising
Scarborough Beach Road & Main Stage 2 – Public Meetings
Street                          Timing – October/November 05

                                           Assuming landowner support
                                           4. Prepare revised Structure Plan
                                           which details Precinct development.
                                           Council endorsement of revised
                                           GSPS.
                                           Timing – December/February 06

                                           5. Prepare and Initiate Rezoning
                                           On the basis of Precinct and
                                           Structure Plan. Council approval to
                                           advertise.
                                           Timing – March/June 06

                                           6. Seek State Agency contribution
                                           for benefits to State infrastructure
                                           Timing – January 06>

				
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Description: SUBJECT GLENDALOUGH STATION PRECINCT STUDY REVIEW Report