City Plan Strategy & Development P/L ABN 58 133 501 774
28 February 2019 Our Ref: P18-330
NSW Department of Planning and Environment GPO Box 39 SYDNEY NSW 2001
RE: SUBMISSION - RHODES REVISED DRAFT PRECINCT PLAN FOR STATION GATEWAY WEST CHARACTER AREA
1. BACKGROUND
This submission has been prepared by City Plan on behalf of Billbergia in relation to the Rhodes Revised Draft Precinct Plan. In particular this submission relates to the Station Gateway West Character Area, which is a group of lots bounded by Gauthorpe Street to the north, Walker Street to the east, Mary Street to the south and Marquet Street to the west, known as the Station Gateway West Character Area. The Station Gateway West Character Area is illustrated as Figure 1.
Figure 1 Site location (Source SIX Maps)
The Station Gateway West Character Area is included in the Rhodes Revised Draft Precinct Plan, currently on exhibition by the DPE. The Plan applies to identified land in the Rhodes Planned Precinct and will assist in meeting residential and employment targets for Rhodes in a highly strategic, transit orientated location.
Suite 6.02, 120 Sussex St, Sydney NSW 2000 P +61 2 8270 3500 CITYPLAN.COM.AU M:\Projects\CP2018\18-330 Rhodes East\7. Submissions\2. Submission - SGW\190228 Submission SGW Final V2.docx
City Plan Strategy & Development P/L ABN 58 133 501 774
The Rhodes Revised Draft Precinct Plan, through the delivery of upgraded rail infrastructure allows new opportunities for urban revitalisation, which will accommodate new jobs, open space, infrastructure and dwellings in walking distance to an upgraded Rhodes railway station. The Precinct Plan seeks to establish new schools, community facilities and housing in the locality as well as to improve employment opportunities in proximity to public transport. Billbergia is a major landowner in the Station Gateway West Character Area as illustrated within the land tenure diagram in Figure 2 and will be a major contributor to the delivery of necessary infrastructure upgrades to Rhodes Station.
Figure 2 Land tenure - Station Gateway West Character Area
2. SUBMISSION
Billbergia is generally supportive of the Rhodes Revised Draft Precinct Plan and commends the DPE for undertaking necessary comprehensive planning in strategic locations such as Rhodes, which is essential to catering for the ongoing and substantial growth occurring in the Sydney metropolitan area. Planning of this nature will greatly assist in making the best use of strategically located land in proximity to employment centres and public transport nodes. Billbergia is particularly supportive of the DPE's initiative to leverage the necessary infrastructure upgrades on the intended outcomes of the plan through value capture associated with the introduction of additional residential floorspace. This includes floorspace to deliver 600 additional dwellings (above the current Canada Bay LEP 2013 and Rhodes West DCP) in the Station Gateway West Precinct. This will greatly assist in expediting much needed infrastructure upgrades and will unlock Rhodes' potential as a major residential and mixed-use destination as well as relieving current capacity constraints and pressures on the Rhodes railway station.
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City Plan Strategy & Development P/L ABN 58 133 501 774
The proposed assessment and approval process, which will be underpinned by design excellence, is also considered essential to delivering high quality outcomes in Rhodes. This is certainly an initiative that Billbergia subscribes to and strives to achieve in delivering high quality residential and mixed use development in Rhodes. While the Plan is generally supportable on the basis outlined above, this submission seeks further consideration and clarification of the following matters to ensure that intended outcomes and infrastructure upgrades can be effectively delivered within efficient timeframes as part of subsequent implementation phases. In considering this submission it is important for the DPE to note that the Station Gateway West Character Area is 'shovel-ready' with approvals in place across a significant portion of the precinct. Construction has commenced on the site at 11-23 Marquet Street with the progression of excavation works. As such, the opportunity for enabling any additional floorspace to occur and funded infrastructure upgrades to be delivered as envisaged by the plan is limited and contingent on a timely process moving forward in order to realise the necessary benefits for the wider Rhodes Peninsula. For clarity and assistance, this submission has 'marked up' the draft plan where clarity and suggested changes are requested, for both this and the separate submissions for the Cavell Avenue precinct and Billbergia's site north of Llewellyn Street in the Station Gateway East Character Area.
2.1. Clarification of the assessment and approval process in the Station Gateway West Character Area
The documents currently on exhibition advise of the DPE's intent to establish a design excellence process that will form the basis for preparation, assessment and approval of site and precinct specific masterplans as well as implementation of development outcomes in Rhodes. It is understood that the intended outcomes for the Rhodes Planned Precinct would be given effect through a State Environment Planning Policy (SEPP), which would amend the Canada Bay Local Environmental Plan 2013 and relevant state policies. This approach is supported, however a greater level of detail to confirm the process that would be applicable to Station Gateway West is needed. This will also need to be considered in the subsequent preparation of the SEPP that would enable the intended outcomes of the plan to be achieved. Based on a review of the documentation on exhibition, it is our understanding that the Station Gateway West Character Area would be exempt from any requirement to undertake a competitive design process. However, this is not discussed or confirmed in detail in the current documentation. The Explanation of Intended Effects (EIE) confirms that master planning for land to the east of the railway corridor would be subject to a competitive design and state panel assessment process. The land to the west of the corridor would be subject only to state panel assessment process, which would facilitate design excellence for the Station Gateway West precinct. The EIE specifically states: "A State-led design excellence review process will be established to oversee the preparation of the master plans to ensure design excellence is achieved. For land east of the railway line, a competitive design process will be undertaken. For the western side of the railway line, where existing development consents and building envelopes are largely in place, a review of the existing master plan will be required under a design excellence review process. Individual buildings may also be subject to design excellence." While the above statement confirms, albeit non-specifically, that the Station Gateway West Character Area would be exempt from a competitive design process, the process flow chart on page 27 of the Rhodes Revised Draft Precinct Plan only describes the process that is inclusive of design competition requirements for development the east of the railway corridor.
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City Plan Strategy & Development P/L ABN 58 133 501 774
In considering the detail of the process that will apply to Station Gateway West, we suggest a streamlined process that excludes the requirement for a design competition, but allows for review by the State Design Review Panel (SDRP) to underpin the implementation of the intended design excellence outcomes for the precinct. For the Station Gateway West precinct, the preparation of a competition strategy and design brief, or the need to undertake an open competition process, would not be required or necessary. We outline our suggested process below for the Station Gateway West precinct, which we believe will facilitate the desired levels of design excellence, while also enabling timely preparation and endorsement of a master plan and DCP and therefore the timely delivery of critical infrastructure upgrades to Rhodes railway station. This process would also expedite the funding and delivery of essential infrastructure, noting that implementation would be subject to amendments to planning controls proposed to occur via a SEPP.
Step 1 - Prepare master plan in accordance with Design Excellence Considerations A proponent led draft master plan would be prepared taking into consideration the following aspects of the Rhodes Revised Draft Precinct Plan: . Planning principles, objectives and intended outcomes of including infrastructure, place making, land use and movement. . Key Objectives (page 22) and Design Excellence Considerations (page 49). . Specific character area requirements for the Station Gateway West precinct. . Dwelling targets, noting 600 dwellings are intended to be accommodated on the west side of Rhodes Station in addition to those already achievable under the current development controls and those the subject of the Planning Proposal recently supported by the Council at 1-9 Marquet and 4 Mary Street, Rhodes (page 10 of the Explanation of Intended Effect). . Key principles and objectives as well as departures from the existing master plan within the current Rhodes West DCP 2015. Step 2 - State Design Review Panel consideration and endorsement The draft master plan would be submitted to the Government Architect NSW (GANSW) for consideration and initial feedback. This would provide a basis for design development under the guidance of the State Design Review Panel (SDRP). This step would include preparation of a draft amended DCP with a specific focus on reviewing any necessary aspects of sections 4.7 and 4.8 of Rhodes West DCP 2015, which are applicable to the Station Gateway West precinct. Endorsement of the master plan and draft amended DCP would occur once the GANSW and the SDRP is satisfied that the proponent's scheme adequately responds to design excellence considerations. Step 3 - Public exhibition Public exhibition of the master plan and draft amended DCP would be undertaken and any public and state agency submissions would be taken into consideration in any final amendments to the amended DCP prior to its adoption. This stage would enable inputs to be provided by the DPE and Canada Bay Council. Adoption of the DCP by the DPE.
The above process is reflected in Figure 3 below which is an adaptation of the process flow chart on page 27 of the Rhodes Revised Draft Precinct Plan, prepared by the DPE.
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City Plan Strategy & Development P/L ABN 58 133 501 774
Figure 3 Proposed process for master plan and DCP assessment/ endorsement for Station Gateway West (Adaptation of DPE graphic)
We submit that the following steps in the process are not contingent on development controls being amended by a SEPP and should be able to occur in anticipation of that SEPP coming into effect: . Preparation of a masterplan and draft for consideration by GANSW and SDRP. . Endorsement of masterplan and draft DCP by GANSW and SDRP. . Public exhibition and finalisation of the DCP. It is noted that a masterplan and DCP could only be adopted and implemented once the SEPP is in effect. The proposed process above will enable design excellence principles to be established and implemented for this precinct. It will allow for the Station Gateway West Character Area to accommodate the planned 600 additional dwellings and for the impacts of that growth to be appropriately managed.
2.2. Clarification that the proposed additional 600 dwellings (i.e 60,000sqm additional residential floorspace)
A key initiative of the Rhodes Revised Draft Precinct Plan is to facilitate upgrades to Rhodes Station, which is currently experiencing a significant capacity shortfall. A number of other infrastructure items have been identified within the Precinct Plan including new connections, open space and road improvements.
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City Plan Strategy & Development P/L ABN 58 133 501 774
It is understood that the necessary funding for the station upgrades will be contingent on a VPA to be agreed with the NSW State government to a value appropriate to the delivery of the additional 600 dwellings above the current Canada Bay LEP 2013 and Rhodes West DCP. We note that a VPA letter of offer has been submitted to the NSW government dated 11 January 2019. As per the VPA letter of offer, the additional dwellings are intended to be delivered on Billbergia's land as a 'shovel ready' landholding with approvals already in place, to enable the expeditious funding and delivery of critical infrastructure items such as the Rhodes Station upgrade. We note that land at 1-9 Marquet Street and 4 Mary Street is not controlled by Billbergia and does not form part of the site that will facilitate the aforementioned infrastructure upgrades to Rhodes Station as represented in Figure 4. Therefore, the site at 1-9 Marquet Street and 4 Mary Street should not form part of the site on which the proposed 600 additional dwellings will be provided. As the additional 600 dwellings is to be delivered only on Billbergia's landholding, Figure 15 (Page 51) of the Rhodes Revised Draft Precinct Plan should be updated to illustrate the specific sites on which the 600 dwellings will be delivered, this being Billbergia's landholding. This is illustrated in Figure 4.
Figure 4 Updates to Figure 15 (Page 51 of Rhodes Precinct Plan)
2.3. Preparation of Master Plans
2.3.1. Enable master plans to be prepared according to percentage of land ownership by area
It is acknowledged that a high degree for landowner 'buy-in' provides a robust basis for planning at the precinct scale, however the following statements require further clarification: Page 48 of the Precinct Plan states the following:
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City Plan Strategy & Development P/L ABN 58 133 501 774
"..master plans are to be prepared by or on behalf of at least 75% of landowners within the character area." Page 11 of the EIE states: "To allow landowners to progress with preparing DCPs and overcome the fragmented ownership, the planning controls will allow the preparation of a DCP by at least 75 percent of owners within a character area boundary." The above statements refer to 75% of 'landowners' however this does not consider the combined land area of a land parcel(s) owned by a particular land owner(s). As the major barrier for overcoming land fragmentation is assembling an appropriately sized area of land, the focus of this requirement should be on the area of land rather than the number of land owners, as some landowners may own only a small area of land in the precinct. We therefore suggest the following wording:
"..master plans are to be prepared by or on behalf of at least 75% of landownership (by area) within the character area."
2.3.2. Timing and triggers to preparing a master plan
The overarching process outlined on Page 26 of the Precinct Plan does not include sufficient detail in terms of the timing and triggers to initiate the design excellence process once the plan has been finalised, adopted and the necessary planning legislation has been made. We request that the DPE confirm whether the process is intended to be triggered by the proponent (with or without 75% ownership), DPE, and/or GANSW and the likely timing and staging for this to occur. Billbergia emphasises the importance of the coordinated delivery of infrastructure and development in order to meet the Precinct target date of 2023. If the Precinct target date for December 2023 is to be met, especially for the station upgrade and east/west pedestrian bridge connection (Walker Street to Blaxland Road) to provide improved connectivity to Mcliawine Park, 36 months is required after development consent for funding, market take up, design and construction. This is on the basis development consent is granted prior to December 2019 to meet this target date.
2.4. State Environmental Planning Policy in relation to the Station Gateway West Character Area
As indicated in the EIE document, the intended outcomes for the Rhodes Planned Precinct are intended be given effect through a State Environment Planning Policy (SEPP), which would amend the CBLEP 2013 and relevant state policies. As the SEPP is not included in documentation currently on exhibition and only the intent of a potential SEPP has been considered at this point in time, it is not possible to make specific comment in this regard. However, prior to preparing and exhibiting a SEPP, it is important for the DPE to consider and tailor the SEPP to address the specific circumstances of the Station Gateway West Precinct. Specifically, the SEPP must enable Station Gateway West to be: . excluded from any requirement for a competitive design process; . subject to a design excellence assessment at state government level. The above is especially important should the SEPP make reference to any required assessment and approval processes, noting that there is no current statutory mechanism through which to guide the
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City Plan Strategy & Development P/L ABN 58 133 501 774
assessment and approval process as currently outlined in the EIE and Rhodes Revised Draft Precinct Plan.
2.5. Ensure flexibility in design excellence and assessment processes
In order to deliver the intended additional residential floorspace to support necessary infrastructure upgrades and deliver intended ground level public realm outcomes, taller slimmer towers will be required. Preliminary high-level modelling undertaken by Billbergia confirms this will result in overshadowing impacts (on and off site). This means that the numerical values set out under relevant 'Design Criteria' in the Apartment Design Guide (ADG) may not be able to be met in all instances. Based on our preliminary understanding of design impacts of the building height that would be required to achieve the additional residential floorspace required to underpin the delivery of a wider public benefit in the form of funded infrastructure upgrades, the need for a flexible approach in the design excellence assessment process will need to be acknowledged in the Precinct Plan. This will be necessary to ensure broader strategic merits and public benefits can be delivered and an appropriate balance is achieved between the application of ADG requirements, amenity of residential apartments and the public realm, design excellence, and innovative urban design outcomes. Specifically, the following should be included in the Rhodes Precinct Plan:
Where solar access requirements of the ADG are difficult to achieve, concessions may be considered as part of the design excellence assessment process. However further design excellence considerations will be required to ensure an appropriate level of amenity to residential apartments and the public domain is achieved. In these circumstances, the design guidance elements of the ADG will assist in informing design excellence assessment processes.
2.6. Satisfactory Arrangements, Special and Local Infrastructure Contributions, VPAs and Affordable Housing
Billbergia supports the introduction of Satisfactory Arrangements provisions to the extent that this facilitates equitable sharing of costs of infrastructure provisions to accommodate projected growth. Any requirements for infrastructure contributions should allow for VPAs to take into consideration potential offsets against both special or local contributions. The following is stated in Page 21 of the EIE: "Voluntary Planning Agreements or VPAs are negotiated between the developer and the planning authority outlining the agreed developer contribution towards a public purpose. These are used as an alternative or in addition to other types of development contributions." As per paragraphs 6(4) and 8 of the Draft Rhodes East Special Infrastructure Determination, we interpret the above statement to mean that VPAs may be used as an alternative mechanism for infrastructure delivery allowing special or local contributions to be offset, as appropriate. We submit that the potential to negotiate offsets should extend to any required affordable housing provisions. While Billbergia supports the proposed 5% affordable housing provision as a positive inclusion in the Rhodes Precinct Plan, in circumstances where a commitment to substantial contributions is made via a VPA for major infrastructure items, the potential to negotiate offsets against affordable housing requirements should also be considered where appropriate. As State Environmental Planning Policy No. 70 – Affordable Housing (Revised Schemes) (SEPP 70) applies to the City of Canada Bay local government area, the amending instrument should make provision for affordable housing contributions under SEPP 70 to be offset where significant public benefits are provided under a VPA.
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City Plan Strategy & Development P/L ABN 58 133 501 774
To this effect, the Precinct Plan should state:
There may be circumstances where negotiation of a Voluntary Planning Agreement is warranted to provide or improve infrastructure. In determining the required contribution, the Department and/or the Council (as appropriate) may offset the public benefits provided under a VPA against contributions otherwise payable arising from a local contribution plan, the special infrastructure contribution plan or affordable housing requirements, where appropriate.
The above statement would provide a more appropriate degree of flexibility and result in a 'nimbler' approach to funding and delivering infrastructure to ensure that the needs of the local and wider community are adequately met.
2.7. View Sharing
The Rhodes Revised Draft Precinct Plan acknowledges the importance of view sharing in the Rhodes Planned Precinct. The key objectives set out on page 22 of the Precinct Plan states the following objective, which aims to build on the opportunity for gaining views to the water: "Enhanced Waterfront Access: Provide new public access to the Parramatta River foreshore, including the provision of housing and public open space with views to the water. Design Competition, assessment and approval process for land east of the railway line." The above objective is supported by design excellence considerations set out on page 49 of the Rhodes Revised Draft Precinct Plan, which states: "View Sharing: Locate new building envelopes to minimise view impacts to existing development." This matter is of major importance to existing and future residents in relation to access to water views from the Station Gateway West Character Area. In the adjacent Station Gateway East Character Area, a design approach that facilitates the development of appropriately designed and oriented towers to maximise space between buildings and therefore views towards the water, is essential to maintaining appropriate access to views from Station Gateway West. Buildings in the Station Gateway East Character Area, especially the Commercial Core at the southern portion of this character area, should be of an appropriate height so as not to detrimentally impact the sharing of views from the Station Gateway West Character Area. The following statement should be inserted within the proposed planning changes to planning controls for the Station Gateway East Character Area set out on Page 52 of the Precinct Plan.
View Sharing Consideration for view corridors from existing and future residents of the Station Gateway West Character Area is to occur through provision of appropriately designed and oriented towers of an appropriate height and with sufficient separation between buildings to facilitate views from the adjacent Station Gateway West Character Area towards the east.
The above will support the implementation of the key objectives and design excellence considerations set out in the Rhodes Revised Draft Precinct Plan with respect to facilitating high levels of amenity through access to views and outlook.
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City Plan Strategy & Development P/L ABN 58 133 501 774
2.8. Maximum car parking rates
Car parking rates for the proposed additional 800 dwellings in the Cavell Avenue Character Area would be subject to the car parking rates provided for within the Precinct Plan. Page 47 of the Precinct Plan states that "Best practice maximum parking rate is proposed for all dwellings". Further review of the car parking rates provided for on page 59 of the Precinct Plan and page 74 of the Urban Design Report states the following rates would be applicable:
It is acknowledged that the car parking rates have increased since the 2017 version of the plan, which proposed zero parking within 400m of the railway station. While the need for better car parking practice in high density transit oriented locations is acknowledged and supported, the low car parking rates currently proposed are insufficient to provide choice for residents, particularly for those who work irregular hours such as hospital workers or use a private vehicle for weekend recreation pursuits outside of the railway network. As such it is requested that the following rates be considered for residential development within 400 metres of the Rhodes railway station: . 1 space for 1 and 2 bedroom dwellings; and . 2 spaces for 3 bedroom dwellings. The above is supported by a traffic and parking review prepared by Pentelic Advisory provided as Attachment A. These rates should be accompanied with an 'unbundling' mechanism. That is, if a 1 bed unit needs 2 spaces, they could purchase one off a 1 or 3 bed unit. Further, substantial car sharing facilities should be provided within the precinct.
2.9. Equitable distribution of building bulk
Page 49 of the Precinct Plan states: "Equitable Distribution of Dwelling Densities: Dwellings are to be equitably distributed in line with established urban design principles to ensure all land is economically feasible to develop." The intent of the above statement is unclear, noting that the equitable distribution of dwellings (and therefore building bulk) is not possible, and would suggest that a single maximum building height would be fixed throughout the Rhodes Planned Precinct. Further, the statement below regarding the urban design principle of transitioning bulk on page 49 of the Precinct Plan is contradictory to achieving equitable distribution: "Height Transitions: Building heights are to generally transition down towards Concord Road and the Leeds Street waterfront and respond to the landscape." As such the statement relating to 'Equitable Distribution of Dwelling Densities' should be deleted.
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City Plan Strategy & Development P/L ABN 58 133 501 774
2.10. Clause 4.6 of Canada Bay Local Environmental Plan 2013
Page 10 of the Explanation of Intended Effects (EIE) states the following: "A clause would be introduced stipulating maximum dwelling numbers and maximum residential GFA for each character area. A further clause would apply to the Station Gateway East character area, requiring that a minimum of 40,000m² of non-residential GFA be provided. A new map sheet has been prepared identifying the precinct area and the boundaries of each character area (see Annexure B). Importantly, this clause would not be able to be varied by Clause 4.6 – Exceptions to Development Standards. This would provide certainty that development could not exceed the maximum dwelling number and GFA." The above statement in the EIE does not sufficiently consider to the effects of 'disabling' the use clause 4.6 or provide sufficient clarity as to whether this would result in absolute maximum Gross Floor Area (GFA) development standard. Given GFA complexities that may arise during the detailed design stages, GFA variances cannot be accurately accounted for at the master planning stage, necessitating the need for an appropriate degree of design flexibility at future detailed design/ development application stages. There may be circumstances that warrant a merit-based approach to the calculation of GFA, which may potentially require variation to maximum allowable GFA. For instance, a roof garden may require a balustrade to all sides above 1.4m to protect from wind or overlooking. Based on the definition of GFA under Canada Bay Local Environmental Plan 2013, a roof garden of this nature would be included as GFA, even though the floor space would not result in an increase in density. In such circumstances, flexibility within the planning framework to enable merit-based consideration of GFA calculations is appropriate. Therefore, further consideration if the use of clause 4.6 or other mechanisms to vary standards in appropriate circumstances is required to ensure that unintentional impacts of disabling the use of clause 4.6 do not inhibit design excellence.
2.11. Winter gardens for noise and wind affected balconies
Balconies on high-rise residential buildings can be impacted by very high wind speeds that are amplified by adverse weather conditions. As a result, balconies are infrequently able to provide appropriate amenity to support comfortable use as private open space. In response to the growing incidence of high rise living within Central Sydney, the City of Sydney Council amended their LEP to provide more usable private open spaces by allowing balconies on high-rise residential towers to be partially enclosed without reducing overall residential potential. The provision allows the partial enclosure of balconies on residential towers over 30 metres high without including the balcony floor area towards gross floor area (GFA). Controls within the LEP govern the amount of floorspace that can be excluded from gross GFA to control the bulk of a building, and provisions within the DCP give consideration to the design of balconies and enclosures. The provision of open balconies in high rise residential buildings should be disincentivised as balconies are not viable open space at heights above 30 metres. Standard recommendations from wind engineers on the use of high-rise balconies is to avoid the use of loose glass tops, light weight sheets or covers, and lightweight furniture, unless it is securely attached to a floor slab. This recommendation infers the low amenity of high-rise balconies, and their inappropriateness as private open space, unless they are partially enclosed.
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City Plan Strategy & Development P/L ABN 58 133 501 774
The City of Sydney balcony control is highly relevant and suitable to the Rhodes Planned Precinct, given it has been successfully applied to a locality with the greatest density in metropolitan Sydney. The City of Sydney approach should be looked upon as a best practice example for the implementation of winter gardens in NSW. It is proposed that a new local provision be implemented and applied to the Rhodes East Precinct, requiring that residential balconies over 30 metres be enclosed to mitigate against wind and noise conditions, and importantly being allowed to be excluded from the calculation of GFA, as set out in the proposed provision below:
“(1) The consent authority may exclude the gross floor area of any existing or proposed wind- affected balcony from the calculation of the total floor space for the purposes of applying a floor space ratio if the consent authority is satisfied of the following: - The excluded balcony gross floor area does not exceed 15% of the gross floor area of the apartment to which the balcony is attached, - The wind-affected balcony is used, or designed to be used, as external open space, - The wind-affected balcony has sufficient natural ventilation, - The partial enclosure of the wind-affected balcony does not increase the apparent bulk of the building. (2) For the purposes of this clause, wind-affected balcony means a balcony that is: - Part of a residential flat building that is over 30 metres high, and - Above the level of any podium that is, or is required to be, part of the construction of the residential flat building, and - Partially enclosed.
As per the above, Billbergia requests that the areas of enclosable wind affected balconies and winter gardens be excluded from GFA calculations.
2.12. Rail Demand Assessment
The Rhodes Station Rail Demand Assessment study was prepared by Dr Neil Prosser in August 2018. A recent review of this study was undertaken by Dr Neil Prosser and is provided as Attachment B. The review considers capacity in the railway network based on recent land use data and increased population and employment forecasts at Rhodes. The outcomes of this review are summarised as follows: . Service plan changes relating the temporary shutdown of the Epping to Chatswood line will result in increased capacity through Rhodes and other key stations on lower T1 Northern Line. . Opening of Sydney Metro projects in the future will take some demand off T1 Northern Line services. . Most demand on T1 Northern Line services will be to Central Station, with Sydney Metro lines serving demand to the northern end of the Sydney CBD and the North Shore. . Rhodes Station demand will increase in line with population and jobs growth in Rhodes. . Completion of Parramatta Light Rail Stage 2 and Sydney Metro West will reduce demand to Rhodes from Wentworth Point.
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The above confirms that train crowding on the Northern line services is expected to be less than existing through to 2036 based on current population and employment projections.
2.13. Delivery of infrastructure
Billbergia commends the DPE on identifying in the Revised Precinct Plan key items of critical enabling infrastructure that will provide significant public benefits to the Rhodes community. Billbergia is committed to an infrastructure-first approach, and propose to deliver upgrades to Rhodes train station and the accompanying overpass and connecting pedestrian bridge to McIlwaine Park, by December 2023 to align with the existing pressing community need for greater public transport and pedestrian linkages. This timeframe for infrastructure delivery is, of course, dependent on timely government decision-making and master planning processes, which Billbergia submits will be facilitated by the amendments proposed to the master planning processes as outlined earlier in this submission.
Billbergia and City Plan commend the DPE on their foresight in preparing the Rhodes Revised Draft Precinct Plan. We look forward to the plan progressing toward finalisation, the timely preparation and exhibition of a SEPP, and to the DPE's clarification of the matters raised in this submission. We trust this submission is of assistance and we look forward to the DPE's response. Should you require any further clarification of the above matters, please do not hesitate to contact the undersigned on 8270 3500.
Yours Sincerely,
Susan E Francis Executive Director
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City Plan Strategy & Development P/L ABN 58 133 501 774
Attachment A Pentelic Advisory - Traffic and Parking Review
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Bill McGarry Transport Planning | Policy & Strategy Billbergia Project Management & Delivery
Suite 101, 25 Angas Street Meadowbank NSW 2114 05 February 2019
Re: Traffic, Transport and Parking Review – Rhodes Revised Draft Precinct Plan
INTRODUCTION Pentelic Advisory Pty Ltd (Pentelic) was commissioned by Billbergia to undertake a high level review of the transport and movement issues associated with Rhodes Revised Draft Precinct Plan issued by the Department of Planning and Environment (DPE) in December 2018. This review has been documented to provide feedback as part of a submission to DPE pertaining to transport and movement issues associated with the recently released Rhodes Revised Draft Precinct Plan. The review focuses on the appropriateness of the approach to the Structure Plan and identifies key considerations that could potential improve the overall vision, objectives, key inputs and spatial outcomes for the Rhodes Precinct Plan. In view of this, the assessment undertaken has relied on existing documentation, reports and additional technical information undertaken on behalf of Billbergia. The reports reviewed as part of this assessment: • Rhodes Revised Draft Plan (December 2018) • Rhodes Planned Precinct Urban Design Report (2018) • Rhodes East Traffic and Transport Report (May 2017) • Rhodes Station Rail Demand Report (Neil Prosser) for Billbergia (September 2018) • Rhodes Station Pedestrian Modelling Final Report (Mott MacDonald) for Billbergia (September 2018) • Rhodes Precinct High Density Residential Traffic Generation Surveys (GTA) (September 2018)
The review has been compiled to cover the following key themes aligning with the Rhodes Revised Draft Precinct Plan: • Transport Capacity Modelling • Public Transport • Road Transport • Parking
TRANSPORT CAPACITY MODELLING (KEY INPUTS)
Residential traffic generation rates for Rhodes Precinct: Transport capacity modelling was a major issue raised during the Rhodes East Station Area Integration Workshop held on the 4 and 5 September 2018. A key input to the traffic and transport modelling for Rhodes was the traffic generation rate applied for high density residential dwellings. It was acknowledged by DPE’s transport consultant (Jacobs) during the workshop that the previous Rhodes East Traffic and Transport Assessment (2017) rate of 0.24 vehicle trips per apartment for both the AM and PM peak hour was high and should be reduced. DPE’s transport consultant during the workshop presented a traffic generation rate of 0.15 vehicle trips per apartment for both the AM and PM peak hour to be in line with more recent survey and 2016 census data. To further examine the appropriate traffic generation rate to be applied, GTA and Matrix were engaged to undertake residential land use trip generation surveys on 13 September and 15 September 2018 within Rhodes West. The four sites identified as appropriate candidate sites are shown in Figure 1.
Figure 1: Trip generation survey sites (GTA, 2018) On average, the trip generation surveys indicate 0.12 vehicle trips per apartment in the AM peak hour and 0.14 vehicle trips per apartment in the PM peak hour.
• The surveys revealed an average non-car mode share of 62% with data points ranging between 58% and 67% for the surveyed sites. The surveys revealed higher non-car mode shares when compared to journey-to-work 2016 census data from Rhodes (58%).
• The surveys revealed a significant reduction from the previous Rhodes West (2013) AM peak surveys from 0.20 vehicle trips per unit with a lower reduction from the Rhodes West (2013) PM peak surveys from 0.17 vehicle trips per unit.
• The overall traffic generation rates for Rhodes West (2018) are lower than previous data points used to benchmark and determine road infrastructure provision for Rhodes East Precinct Plan namely:
– RMS Technical Direction - 2013 Sydney Average: of 0.19 vehicle trips per unit and 0.15 vehicle trips per unit AM and PM peak hour respectively.
– Rhodes East Traffic and Transport Report (2017): of 0.24 vehicle trips per unit used for both the AM and PM peak hour.
Page 2 A summary of mode shares from these surveys is provided in Figure 2. These results indicate that in all instances, over 55% of residents rely on modes other than private motor car for travel. This is consistent with the mode shares observed in Journey-to-Work (JTW) data for 2016.
Figure 2: Mode share of survey sites for Rhodes West High Density Residential Buildings (GTA, 2018)
Commerical/office traffic generation rates for Rhodes Precinct: Traffic generation surveys of the existing Hewlett Packard (HP) building at 410 Concord Road, Rhodes were undertaken on Wednesday 26 September 2018. The surveys indicated an AM peak hour rate of 0.35 vehicle trips per person, and 0.25 in the PM peak hour. The HP building had a relatively low occupation of workers on the day of the survey (approx. 50%). If the occupancy was 85%, the surveyed trips per person would convert to:
• AM peak hour rate of 0.55 vehicles per 100m² GFA and PM peak hour rate of 0.39 vehicles per 100m² GFA.
Figure 3 below shows a comparison of these rates with sites within major centres surveyed by RMS. These rates are significantly lower than the AM peak hour rate of 1.6 vehicles per 100m² and 1.2 vehicles per 100m² in the PM peak hour used as part of the previous Draft Rhodes East Precinct Plan.
Figure 3: Comparison of HP survey to RMS survey sites (Roads and Maritime, 2013)
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Key considerations (for Rhodes Revised Draft Precinct Plan) – Transport Capacity Modelling
#1 It is unclear whether the Rhodes Traffic and Transport Assessment Report (2017) has been updated to reflect critical model inputs (i.e. lower residential traffic generation rate for apartments) presented at Rhodes East Station Area Integration Workshop.
#2 The key actions and documents prepared by DPE for the Rhodes Revised Draft Precinct Plan do not include any new traffic and transport modelling results and documentation.
#3 The adoption of higher traffic generation rates used for the Rhodes Revised Draft Precinct Plan assessment of 0.20 vehicle trip per apartment lends itself to the potential oversupply of road infrastructure provision inducing future residents, employees and visitors etc to use cars for travel resulting in sub-optimal outcomes.
The conservative approach to traffic generation rates applied for the Rhodes Revised Draft Precinct Plan defeats the core objectives of the Revised Draft Precinct Plan to balance business, employment and housing opportunities as a means of minimising trip generation and car travel demand, reducing peak load requirements for road and transport infrastructure, and optimising the potential to encourage a degree of transport containment.
#4 Given the most recent traffic generation results and the consistency with 2016 Journey-to-Work (JTW) data, the proposed residential and commercial traffic generation rates and transport capacity modelling for Rhodes Revised Precinct Plan should reflect the following recently observed rates within the Rhodes Strategic Centre:
• 0.12 vehicle trips per apartment in the AM peak hour and 0.14 vehicle trips per apartment in the PM peak hour
• 0.55 vehicle trips per 100m² GFA in the AM peak hour and 0.39 vehicle trips per 100m² GFA in the PM peak hour
The use of the most recent traffic generation data and localised transport improvements (i.e. upgrading Rhodes Station and new pedestrian and cyclist connections) will help to optimise road, transport infrastructure and services outcomes to support the Rhodes Revised Precinct Plan.
The above results provide an evidence base in determining an appropriate traffic generation rate for future high density residential and commercial development within Rhodes East and Rhodes West. The above results and changes in travel behaviour (i.e. increases in non-car mode share) should be considered in future traffic modelling work when finalising the Rhodes Revised Draft Precinct Plan
Page 4 PUBLIC TRANSPORT
T1 Northern Line Rhodes has direct access to the existing Rhodes Station and T1 Northern Line which operates InterCity services from Central Coast and Newcastle, all stop suburban services from Epping to North Shore and Express suburban services from Epping to Sydney Terminal. There are several major planned rail network changes that will benefit Rhodes in the coming years and will support the continued trend to non- car modes for Rhodes.
• Epping to Chatswood Rail Link (ECRL) shutdown (2018): The number of peak hour suburban services stopping at Rhodes is increased from 6 to 8 train services per hour. The number of carriages increases from 40 to 64 per hour – a 60 % increase.
• Sydney Metro City and South West opening, Cudgegong Road to Bankstown via City (2024): More passengers from lower Northern Line stations such as Eastwood would transfer to Sydney Metro services at Epping for travel to North Shore stations and even north CBD. This will ease pressure on Rhodes as trains will have more capacity on arrival.
• Sydney Metro West opening, Westmead to City via Olympic Park and interchange with Northern Line (2028): The assumed opening of Sydney Metro West in 2028 will provide further alternatives to T1 Northern Line services for travel to Sydney CBD and other destinations. Additionally, passengers from Wentworth Point will be able to directly access Olympic Park SM West station using PLR Stage 2 services.
• Future Transport Strategy 2056 includes the investigation of further duplication of the T1 Northern rail line to support passenger and freight movement.
Rail demand assessment prepared by Neil Prosser (2018) provided a detailed discussion of the development of future demand forecasts for Rhodes Station and T1 Northern Line services. Figure 4 below provides a summary of the forecast change in total and average service loading into Strathfield across eight scenarios tested.
Figure 4: Forecast capacity of Northern Line services (Neil Prosser, 2018)
Page 5 A summary of the key findings used to assist and inform the Rhodes Review Draft Precinct Plan included:
• Population growth in the T1 Northern Line rail corridor will contribute to underlying growth in rail demand for rail services to the City, the completion of key Sydney Metro projects and PLR Stage 2 will provide relief at regular intervals in 2019 (opening of Sydney Metro North West), 2024 (opening of Sydney Metro City South West) and 2028 (opening of Sydney Metro West).
• At each stage in development of the Sydney Metro network, there are forecast to be reductions in demand on T1 Northern Line services at Rhodes Station that compensates for increased demand from underling population and employment growth.
• Forecast average and maximum train loadings are less at all times beyond 2019 than current and capable of accommodating future 2036 population and employment growth for both GAIA development and Rhodes. Future average service loading is forecast largely within the operational target range of 135% seated capacity.
• Completion of PLR Stage 2 and Sydney Metro West will see many people from Wentworth Point accessing Sydney Olympic Park rather than Rhodes Station for access to the rail network.
• The net result is that forecast 2036 crowding on T1 Northern Line services into the City in the morning peak hour is expected to be lower than existing (2018) and fall within a reasonable range for operational reliability and targets.
• There will be sufficient capacity on the rail network (Figure 4) to support projected population and employment growth in the Rhodes Peninsula under both the reference case TZP16 land use scenario and the higher growth scenario which adopts both dwelling targets identified within the Rhodes Review Draft Precinct Plan:
– Rhodes (East) additional 3,600 dwellings) and Rhodes West (additional 1,600 dwellings)
– Employment targets under the GSC Eastern District Plan (additional 6,000 jobs) within the Rhodes Corporate Business Park.
Key considerations (for Rhodes Revised Draft Precinct Plan) – T1 Northern Line
#5 There will be sufficient capacity on the rail network (T1 Northern Line) through to 2036 to support projected population and employment growth in the Rhodes under both the Rhodes Review Draft Precinct Plan land use scenario, and a higher growth scenario which adopts both dwelling targets identified within the Rhodes Review Draft Precinct Plan (additional 3,600 dwellings), Rhodes West (additional 1,600 dwellings) and employment targets under the GSC Eastern District Plan (additional 6,000 jobs).
Rhodes Train Station The future success of Rhodes will be largely determined by the capacity of the rail network to support growth. As demonstrated above, the rail network changes already planned will provide additional rail capacity to support growth in Rhodes. To support these changes and further boost capacity at Rhodes Train Station Billbergia + Prolet have proposed to upgrade the station to relieve current capacity and emergency egress constraints. This is also required as an assessment of the existing station has shown that it is currently exceeding capacity at some elements and would fall significantly short of performance standards in both normal operations and emergency egress by 2036.
The pedestrian modelling assessment prepared by Mott MacDonald established a clear need that the existing Rhodes Station is currently (2018) exceeding capacity and would fall significantly short of performance standards in both normal operations and emergency egress by 2036. Rhodes Station would require future upgrades to allow for future capacity increases, as well as to provide better connections to
Page 6 planned new developments on either side of Walker Street and Blaxland Road across the existing rail corridor. The Mott MacDonald investigation assessed the capacity of existing and proposed future layouts from Transport for NSW and Billbergia + Prolet (refer to Figure 5). The proposed upgrade include:
• Platform extension (150m in length) to cater for future 10-12 car trains • New Northern concourse, accessed from the platform by escalators, stairs and lifts • A new link across Walker Street into the original ‘southern’ concourse
Figure 5: Proposed Rhodes Station upgrade (DesignInc, 2018)
Page 7 A summary of the key findings used to assist and inform the Rhodes Review Draft Precinct Plan included:
• The existing Rhodes Station appears to have reached its station life with vertical transport elements (stairways) within the station fail in terms of capacity under both current year (2018) and future year (2036) levels of demand.
• The existing Rhodes Station emergency conditions assessment found that the station is not meeting NFPA requirements under its current configuration.
• The proposed New Northern Concourse and Walker Street Walkway further improves the overall level of service within the station.
• The proposed New Northern Concourse is performing under capacity and can cater for further pedestrian demand to relieve capacity constraints experienced at the current concourse and station layout.
• The proposed New Northern Concourse significantly improves emergency egress times at station platforms and meets NFPA requirements.
• The proposed New Northern Concourse and new entries at the northern end of the station (via overbridge) provides an optimum station configuration
Key considerations (for Rhodes Revised Draft Precinct Plan) – Rhodes Train Station
#6 The proposed Rhodes Train Station upgrade (i.e. New Northern Concourse and Walker Street Walkway) greatly improves the overall Rhodes Train Station capacity to accommodate the Rhodes Review Draft Precinct Plan (additional 3,600 dwellings), Rhodes West (additional 1,600 dwellings) and employment targets under the GSC Eastern District Plan (additional 6,000 jobs) within the Rhodes Corporate Business Park. The proposed station upgrades proposed by Billbergia and Prolet significantly improves emergency egress times from Rhodes Station platforms and meets NFPA requirements.
Page 8 Ferry The NSW Government is delivering a new ferry wharf at Rhodes as part of the Transport Access Program. The location of the proposed new ferry wharf and interchange at Rhodes is currently being reviewed. This would provide a relatively fast and congestion-free public transport service between the Rhodes and the Sydney CBD in advance of higher order public transport options.
The current proposed location is in the Leeds Street precinct (refer to Figure 6). The Leeds Street precinct has been designed by Billbergia to reflect this ferry wharf location with a new pedestrian link providing a visual and physical connection from Leeds Street. The proposed foreshore promenade will provide ferry users with access to the broader Rhodes Peninsula and Rhodes Station.
Figure 6: Proposed ferry wharf at Leeds Street (SJB, 2018)
Key considerations (for Rhodes Revised Draft Precinct Plan) – Ferry
#7 The location of ferry wharf is considered optimal and supported by Billbergia. Consideration should be given to locate a bus interchange, kiss-and-ride, bicycle facilities and car park near the ferry wharf to cater for all customers using future ferry services. Connections to the ferry wharf from the Rhodes Station Gateway Precinct should be provided by a shuttle service.
Light Rail The Bennelong Bridge has been constructed to allow for the future possible conversion to light rail. With the delivery of Parramatta Light Rail Stage 2, there may be an opportunity to create a new light rail connection at Hill Road at Wentworth Point into Rhodes (Figure 7). This would further improve the accessibility of the precinct and improve public transport capacity and reliability for connections to Sydney Olympic Park.
Billbergia are currently running the BayLink shuttle connecting Wentworth Point (via Bennelong Bridge) and Rhodes Train Station. The current AM and PM peak hour demands along this route at Rhodes Station is in the order of 900 passengers per hour. With the expected future growth in Rhodes East and anticipated full build out of Wentworth Point is expected that this passenger demand will likely increase by two-fold in the short to medium term.
Page 9 A potential light rail connection provides people living in areas such as Wentworth Point and Melrose Park with an alternative choice for access to rail services in the future using the Bennelong Bridge. The proposed light rail extension includes.
• Light rail extension from Hill Road, Wentworth Point to Rhodes Station Precinct. • Light Rail stops at Wentworth Point Town centre, at the Shopping Centre and the Library and Community Centre.
• Light Rail stop at Rhodes Central Shopping Centre with pedestrian links through to Rhodes Station • Form part of a connected light rail network with the introduction of PLR Stage 2.
Figure 7: Potential light rail extension to Rhodes (CM+ and BG&E), 2018)
Key considerations (for Rhodes Revised Draft Precinct Plan) – Light Rail
#8 The current and future expected demands across the Bennelong Bridge warrants investigation within Rhodes Review Draft Precinct Plan of higher modes of transit such as light rail even with the introduction with PLR Stage 2 in 2026.
The predominantly residential nature of Wentworth Point and the proximity of Rhodes Strategic Centre means that current and future forecast demand is focussed strongly on travel to the east in the morning peak hour towards Rhodes Train Station.
Page 10 ROAD TRANSPORT
Concord Road Concord Road will continue to be the key north-south movement corridor through the precinct for general traffic, freight and public transport. The significant volume of traffic, key freight and public transport function, and lack of alternative crossings of Parramatta River between Silverwater Road and Victoria Road, mean that opportunities to downgrade the movement function will be scarce.
Figure 8 shows that Concord Road has experienced only 3.5% total growth in average daily traffic volumes from 2009 to 2018. This is despite significant growth occurring in Rhodes during the same period. This suggests that residents and employees moving into Rhodes are choosing alternative modes to access the precinct. It is also likely to be reflective of the limited ability of Concord Road to accommodate additional traffic which acts as a demand management tool.
We understand that Rhodes East Station Area Integration Workshop held on the 4th and 5th September 2018 that a traffic growth rate of 1% per annum has been applied to Concord Road northbound and 4% per annum to Concord Road southbound. These growth rates were applied between 2016 and 2036 Rhodes Traffic and Transport Assessment (2017) based on data supplied by Transport Planning and Analytics (TPA) from the Sydney Travel Model (STM). It is generally recognised that STM over estimates car trips and these growth rates are considered excessive and not reflective of historical growth trends.
Figure 8: Concord Road historical daily traffic volumes (Roads and Maritime Services, 2018) During the Rhodes East Station Area Integration Workshop several options for road network enhancements along Concord Road between Homebush Bay Drive and Victoria Road were discussed. These road network options are discussed further below.
Concord Road – Church Street and Victoria Road RMS are currently investigating improvements to intersections at Devlin Street, Blaxland Road and Parkes Street to improve traffic flow and travel times along Homebush Bay Drive – Concord Road – Church Street – Devlin Street corridor (refer to Figure 9).
Page 11
Figure 9 : Devlin Street, Church Street and Blaxland Road Intersection Upgrades (RMS, 2018)
Concord Road and Averill Street Currently this critical access point from the Rhodes Peninsula is provided at a signalised intersection at Concord Road and Averill Street. Through discussions with RMS and TfNSW options were tabled for southbound traffic on Concord Road (A3 corridor) to access Leeds Street Precinct in the vicinity of Averill Street via an underpass under Concord Road. This option utilises King Georges Park to obtain access through Council lands with direct access to Leeds Street (refer to Figure 10). This underpass option proposes to replace the right turn movement provided at the existing signalised Concord Rd/Averill Street intersection and covert the Averill Street approach to left-in and left-out configuration.
Page 12
Figure 10: Concord Road Underpass (Leeds Street) BG&E 2018
Concord Road and Mary Street To facilitate vehicular movement to Rhodes Station Gateway East site it is proposed to install an additional northbound left turn auxiliary lane on Concord Road at Mary Street to improve traffic flow and reduce queue lengths at this signalised intersection (refer to Figure 11).
Figure 11: Proposed left turn auxiliary lane on Concord Road at Mary Street (BG&E, 2018)
Page 13 Concord Road and Homebush Bay Drive This signalised intersection is a key capacity constraint along Concord Road and is currently operating at or near capacity. The previous Rhodes Traffic and Transport Assessment (2017) did examine the feasibility of an underpass option for northbound traffic on Homebush Bay Drive to Concord Road (eastbound). The underpass option proposes to replace the right turn movement provided at the existing signalised Homebush Drive/Concord Road intersection (refer to Figure 12).
Figure 12: Homebush Bay Drive Underpass under and into Concord Road (BG&E 2018)
Key considerations (for Rhodes Revised Draft Precinct Plan) – Road Transport
#9 It is unclear what background traffic growth has been assumed along Concord Road to develop the Rhodes Review Draft Precinct Plan. The historical trends along Concord Road (refer to Figure 8) show negligible increases in traffic growth over the last 10 years which needs to be reflected within the transport capacity modelling.
#10 To improve the overall efficiency, productivity and travel times along the Concord Road movement corridor, it would be beneficial for DPE, TfNSW and RMS to consider the following road network enhancements before finalising the Rhodes Precinct Plan:
• Devlin Street and Victoria Road – additional northbound lane along Devlin Street (between Victoria Road and Blaxland Road)
• Concord Road and Averill Street – underpass for southbound traffic (right turn) on Concord Road into Leeds Street (westbound)
• Concord Road and Averill Street – remove signalised intersection and convert Averill Street approach to left-in and left-out only
• Concord Road and Mary Street – install an additional northbound left turn auxiliary lane on Concord Road at Mary Street
• Concord Road and Homebush Bay Drive – underpass for northbound traffic (right turn) on Homebush Bay Drive into Concord Road (eastbound)
Page 14 PARKING
Car ownership rates Car ownership rates in Rhodes have been dropping and are now only 1.05 cars per dwelling compared to 1.38 five years prior, consistent with other observed trends of increased non-car mode shares (Figure 13). This is likely to continue as a younger, more diverse, and highly professional demographic continues to be attracted to live in Rhodes.
Figure 13: Car ownership trends in Rhodes (ABS, 2016) This demographic will have less need for a car and will make their housing choice based on prioritising factors other than parking. This trend has already been observed in comparative centres such as St Leonards where only 0.65 cars are owned per dwelling (Figure 14).
Figure 14: Average car ownership in centres (ABS, 2016)
Page 15 Mode share A total of 5,876 residents reported having a job on Census day of which 5,284 travelled to work on that day. The majority of travel to work was done by either train or car.
• Overall car share was less than half at 42 %. • A total of 50 % reported travelling to work by train.
The most recent JTW data for Rhodes supports that there has been a substantial change in travel behaviour as land use density, mix and vibrancy has increased. Public transport mode share over the five years has increased by almost 7%, whilst car share has decreased over 8% (Figure 15).
Figure 15: JTW mode share changes affecting Rhodes (Institute for Sustainable Futures, UTS)
Figure 16 shows that non-car mode share in 2016 for trips from Rhodes was 58%. As rail capacity is improved and local job opportunities increase, this could be expected to increase further in the future.
Figure 16: JTW non-car mode share for trips out of centres (2016 ABS Census)
Page 16 Parking provision The proposed parking provision for residential development proposed within the Rhodes Review Draft Precinct Plan attempts to support effective travel demand management and promotion of sustainable travel modes. The reduction in car ownership, increase in public transport mode share and observed low traffic generation rates within Rhodes over the last 5 years has essentially occurred without the direct influence of a restrictive residential parking controls. The major influence has been record growth since 2008 at Rhodes Station (refer to Figure 17), which has experienced a significant increase in rail patronage with AM boardings increasing by 346%. This supports the finding that new residents and employees in Rhodes are choosing non-car modes to access the precinct for their daily needs.
Figure 17: Rhodes Station historical patronage (Institute for Sustainable Futures, UTS, 2018)
Some of the continued reliance on car for travel to work in Rhodes could reflect historical destination car parking provisions within the Rhodes Business Park, Rhodes Shopping Centre and light industrial uses along Leeds Street which have an oversupply of destination employee parking. As employment and residential, densities increase in the future within Rhodes, car parking demand is likely to be lower and result in less car usage for travel to work in the area.
It is important to note that the proportion of 2016 JTW trips using train does not vary significantly with distance from the Rhodes Train Station. Some parts of the Rhodes West peninsula are up to 800 m walking distance from Rhodes station but still report train share over 50% when compared to development sites within 200m-400m from the station. This reflects the good accessibility to the Rhodes Train Station, the significant increases of residents accessing public transport and access to amenity and services without the need for short car trips. All this has already been achieved within Rhodes West based on the current DCP parking controls of one space per dwelling.
Page 17 Key considerations (for Rhodes Revised Draft Precinct Plan) – Parking
#11 The proposed parking rate for residential apartments for Rhodes East be increased to one car space per dwelling (up to 2 bedrooms) and two spaces per dwelling (3 bedrooms) within 400m of the Rhodes Train Station.
#12 To attract anchor tenants for retail/supermarket land uses within Rhodes it is suggested that a parking provision of 4 car spaces per 100m2 be considered. The current 1 space per 100m2 for retail/supermarket is unlikely to provide an adequate incentive to attract key anchor tenants within Rhodes.
Yours faithfully
Steven Konstas Director – Pentelic Advisory
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City Plan Strategy & Development P/L ABN 58 133 501 774
Attachment B Rhodes Station Demand Assessment Review - Dr Neil Prosser - February 2019
Page | 15 1 Rhodes Station rail demand assessment Demand forecasts
City of Canada Bay February 2019 MARCO demand forecasting 2
MARCO platform for forecasting PT regional demand Models whole Sydney GMA based on TZ system with some aggregation Incorporates land use forecasts, rail network service plans Models walk, bus and car access links
Used for long and medium term rail planning in last 5 years Able to rapidly access number of alternative land use / network scenarios Forecasts change from existing Opal-based demand Northern Line 3 Assumed future service changes
2018 – ECRL closure – 8 trains per hour through Rhodes, all 8-car trains = 60 % increase in capacity over existing but with demand from north of Epping 2019 – Sydney Metro North West opening – 8 trains per hour retained; some Northern Line demand diverting to new metro line 2024 – Sydney Metro City and South – more demand diverted from Northern Line to new metro line Late 2020’s – Sydney Metro West – transformational change for Rhodes and surrounding area 4
Land use assumptions Dwelling Projections 7,000 5 TZP Adjusted
6,000 Rhodes West
TZP16 5,000
4,000
TZP Adjusted
3,000 Rhodes East
2,000 TZP16
1,000
- 2006 2011 2016 2021 2024 2026 2028 2031 2036 Population and Employment Projections = Rhodes East + West 25,000 6
20,000 TZP Adj Popn TZP Adj Jobs
TZP16 Jobs 15,000 TZP16 Popn
10,000
5,000
- 2006 2011 2016 2021 2024 2026 2028 2031 2036 7
Network assumptions Forecast scenarios (8 total) 8
2018 existing (Opal data from March 2017 + some growth) 2018 ECRL shutdown 2019 SM NW opens
2024 before and after SM City SW opens
2028 before and after SM West opens
2036 SM West HBY 2018 Existing 9 4
4 4
4 EPG CHW 4 2
4
Rhodes
Central 10
SFD HBY 2018 No ECRL 10 4
4 4 4 extra
No change EPG CHW to Northern 4 Line services
4
Rhodes
Central 10
SFD HBY 2019 SM NW 11 4 (assumed)
4 4 4 extra
15 EPG CHW 4
No change to Northern Line services 4
Rhodes
Central
SFD HBY 2024 SM City SW 12 4 (assumed)
4 4 4 extra
15 EPG CHW 4 No change to Northern Line services 4
Rhodes
Central
SFD HBY 2028 SM West 13 4 (assumed)
4 4 4 extra
15 EPG CHW 4 All Northern Line services stop at SM 4 West
Rhodes
Concord West Central
SFD Other network assumptions 14
Walk and bus links from Wentworth Point to Rhodes station PLR Stage 1 by 2024 PLR Stage 2 by 2028 including route via Wentworth Point to SOP metro station 15
Forecast Rhodes station entries / exits Forecast Rhodes station entries, AM 1hr, TZP16 4,500 16 4,000
3,500
3,000
2,500
2,000
1,500
1,000
500
- 2018 Observed 2028 SM West open 2036 SM West open 2018 ECRL shutdown 2024 SM City SW open 2028 SM City SW open 2019 SM North West open 2024 SM North West open Forecast Rhodes station entries, AM 1hr, TZP Adjusted 4,500 17 4,000
3,500
3,000
2,500
2,000
1,500
1,000
500
- 2018 Observed 2028 SM West open 2036 SM West open 2018 ECRL shutdown 2024 SM City SW open 2028 SM City SW open 2019 SM North West open 2024 SM North West open Forecast Rhodes station exits, AM 1hr, TZP16 2,500 18
2,000
1,500
1,000
500
- 2018 Observed 2028 SM West open 2036 SM West open 2018 ECRL shutdown 2024 SM City SW open 2028 SM City SW open 2019 SM North West open 2024 SM North West open Forecast Rhodes station exits, AM 1hr, TZP Adjusted 2,500 19
2,000
1,500
1,000
500
- 2018 Observed 2028 SM West open 2036 SM West open 2018 ECRL shutdown 2024 SM City SW open 2028 SM City SW open 2019 SM North West open 2024 SM North West open 20
Existing service loading 2018 train loading 21 Total load, 1hr Maximum load per train 15,000 2,000
12,500 1,500 10,000
7,500 1,000
5,000 500 2,500
0 0 Capacity Into RDS Into SFD Into City Capacity Into RDS Into SFD Into City Seated load Comf stand Crush stand Displaced Seated load Comf stand Crush stand Displaced 22
Forecast service loading Maximum load, % seated capacity Northern Line services on approach to Central, TZP16 23 200% 180% 160% 140% 120% 100% 80% 60% 40% 20% 0% 2018 Observed 2028 SM West open 2036 SM West open 2018 ECRL shutdown 2024 SM City SW open 2028 SM City SW open 2019 SM North West open 2024 SM North West open Maximum load, % seated capacity Northern Line services on approach to Central, TZP Adj 24 200% 180% 160% 140% 120% 100% 80% 60% 40% 20% 0% 2018 Observed 2028 SM West open 2036 SM West open 2018 ECRL shutdown 2024 SM City SW open 2028 SM City SW open 2019 SM North West open 2024 SM North West open 2028 before SMW opens (TZPAdj) 25
Total load, 1hr Maximum load per train 15,000 2,000
12,500 1,500 10,000
7,500 1,000
5,000 500 2,500
0 0 Capacity Into RDS Into SFD Into City Capacity Into RDS Into SFD Into City Seated load Comf stand Crush stand Displaced Seated load Comf stand Crush stand Displaced 2028 after SMW opens (TZPAdj) 26
Total load, 1hr Maximum load per train 15,000 2,000
12,500 1,500 10,000
7,500 1,000
5,000 500 2,500
0 0 Capacity Into RDS Into SFD Into City Capacity Into RDS Into SFD Into City Seated load Comf stand Crush stand Displaced Seated load Comf stand Crush stand Displaced Summary 27
Service plan changes to be introduced this year for ECRL shutdown will see increased capacity through Rhodes and other key stations on lower T1 Northern Line Opening of SM projects in the future will take some demand off T1 Northern Line services Ultimately most demand on Northern Line services will be to Central with SM lines serving demand to north end of CBD and North Shore Rhodes station demand will increase in line with population and jobs growth in the centre Completion of PLR Stage 2 and SM West will reduce demand to Rhodes from Wentworth Point