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Demolition of Fishermen's Wharf Market Building – Wharf Shed 1

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Demolition of Fishermen's Wharf Market Building – Wharf Shed 1 Development Assessment Commission AGENDA ITEM 2.2.1 24 November 2016 Name of Applicant: Fishermen’s Wharf Pty Ltd Demolition of Fishermen's Wharf Market building – Wharf Shed 1 Address: Lot 202 North Parade, Lot 22 Nelson Street and Part Lot 106, McLaren Parade Port Adelaide TABLE OF CONTENTS PAGE NO AGENDA REPORT 2-19 ATTACHMENTS 1: DEVELOPMENT PLAN PROVISIONS 20-32 2: SITE PHOTOS 33-35 3: APPLICATION & PLANS a. Development Application Form 36 b. Application Plans 37-41 c. Certificates of Title 42-54 4: STATE HERITAGE UNIT (DEWNR) COMMENTS 55-57 5: COUNCIL COMMENTS 58 6: PREVIOUS 2006 DECISION NOTIFICATION FORM 59 1 Development Assessment Commission AGENDA ITEM 2.2.1 24 November 2016 OVERVIEW Application No 040/W038/16 Unique ID/KNET ID Unique ID 1411/ KNET ID 2016/11052/01 Applicant Fishermen’s Wharf Pty Ltd Proposal Demolition of building (Fishermen's Wharf Market building- Wharf Shed 1) Subject Land Lot 202 North Parade, Lot 22 Nelson Street and Part Lot 106, McLaren Parade Port Adelaide Zone/Policy Area Regional Centre Zone/ McLaren’s Wharf Policy Area 44 Relevant Authority Development Assessment Commission Lodgement Date 12 August 2016 Council City of Port Adelaide Enfield Development Plan Port Adelaide Enfield Council consolidated 21 April 2016 Type of Development Merit Public Notification Category 1 Representations N/A Referral Agencies State Heritage Unit (DEWNR), Coast Protection Board, City of Port Adelaide Enfield Report Author Tom Victory RECOMMENDATION Development Plan Consent subject to conditions EXECUTIVE SUMMARY The proposal involves the complete demolition of the existing building known as Fishermen’s Wharf Market Building (formerly known as Cargo Shed No.1) which is adjacent to the Port River at Port Adelaide. Development Plan Consent is required pursuant to Schedule 1A of the Development Regulations, because as at the time of lodgement, the subject building was nominated for State Heritage listing and also because the building encroaches on to an allotment in which an existing State Heritage Place is situated (being the Port Adelaide Lighthouse which is just to the east of the building). During the assessment period of the development application, the South Australian Heritage Council (SAHC) undertook a heritage assessment of the building in relation to the nomination of the building as a State Heritage Place. It was deemed to not meet any criteria for it to be listed as a State Heritage Place and the nomination was subsequently declined by the SAHC on 7 September 2016. It is noted that the proposal is also not listed (nor interim listed) as a local heritage place. Via a referral during the development applications process, the State Heritage Unit made an assessment of the Development Application and advised that the demolition should not have any adverse visual impacts on any adjoining State Heritage places, the adjacent State Heritage Area nor does the building have any intrinsic relationship with these places that could be adversely impacted by demolishing the building. Notwithstanding the significant scale and familiarity of the building to this part of the Port Adelaide landscape, on balance the Development Plan policies do not seek the retention or adaptive re-use of the building, which is not heritage listed. While the Development Plan is generally silent on the demolition of the building, the policies envisage the redevelopment of the site which could therefore also infer its removal. It is also noted that recent Development Plan amendments removed the provisions specifically seeking the retention of this building. A range of urban uses such as residential, retail, offices amongst 2 Development Assessment Commission AGENDA ITEM 2.2.1 24 November 2016 others, and development of up to 5 stories in height (as well as a potential landmark building) is earmarked for the site by the Development Plan. The demolition of the building will enable these desired policy outcomes and is therefore considered to be in accordance with the Development Plan. ASSESSMENT REPORT 1. BACKGROUND 1.1 Strategic Context The South Australian Government is committed to supporting the revitalisation of the Port Adelaide Regional Centre and help create a more vibrant and prosperous Port community. On 9 April 2015 the Port Adelaide Centre Renewal Part 1 Development Plan Amendment (DPA) was gazetted. This updated planning policy applying to the Regional Centre Zone to support initiatives of the Port Adelaide Renewal Project Precinct Plan. As part of that DPA, policies were amended which are relevant to the subject site in this application, the result of which now sets up a policy framework which is considered to enable the subject building to now be demolished (whereas Development Plan policy previously envisaged retention of the building). This is discussed in more detail in the following sections of the report. 1.2 Previous Demolition Application On 28 June 2006 the Port Waterfront Redevelopment Committee (a sub-committee of the Development Assessment Commission at the time) resolved to refuse an application to demolish the subject building. The reasons were that the proposal conflicted with (the then) Zone Objectives 10, 11 and PDC 24 and policy area objectives 1 and 3 and principle 9 of Development Plan at that time which sought to conserve the existing character of the Port Adelaide Waterfront. The following lists the policies that were referred to in that decision as well as the concept plans related to the policies. Port Adelaide Centre Zone Objective 10: The conservation and enhancement of items and areas of significance to the zone's unique maritime and commercial heritage, townscape, waterscape and landscape character. Objective 11: The reinforcement of those parts of the zone which have distinctive and valued architectural and townscape characters with compatibly designed new buildings, where their scale, height, mass, setbacks and materials enhance the character of the zone. PDC 24 Existing buildings, places and areas of heritage value listed in Tables PAdE/2, 4 and 5 and shown on Fig PAC/2 should be conserved and their character and integrity should be protected and reinforced by compatible new development. 3 Development Assessment Commission AGENDA ITEM 2.2.1 24 November 2016 4 Development Assessment Commission AGENDA ITEM 2.2.1 24 November 2016 Policy Area 27: McLaren’s Wharf Policy Area Objective 1: Development should be consistent with the Desired Future Character Statement above and in accordance with Concept Plan Fig PAC/4. Objective 3: Conserve and re-use the majority of Wharf Shed 1 and buildings of heritage significance. PDC 9 Development immediately to the west of that part of Wharf Shed 1 conserved and re-used should be designed to complement the architectural form of the Wharf Shed 1 building, and where possible should include non-residential uses at the ground level to promote tourist activity. 1.3 Current policies vs Previous policies It is important to note that the key policies and concept plans above, which led to the application being refused in 2006 have since been amended/deleted in 2015 such that the Development Plan no longer specifically seeks the retention of the ‘Shed 1’ building. For example the following Objective in McLaren’s Wharf Policy Area 44 has since been reworded from: 4 Conserve and re-use the majority of Wharf Shed 1 and buildings of heritage significance. to: 3 Conserve and adaptively re-use buildings of heritage significance. 5 Development Assessment Commission AGENDA ITEM 2.2.1 24 November 2016 In addition, the relevant Concept Plan also no longer identifies the subject building as being within an ‘area for townscape conservation’, but instead now as being a ‘waterfront development area’. 2. DESCRIPTION OF PROPOSAL Application details are contained in the ATTACHMENTS. The proposal involves the complete demolition of the existing building known as Fishermen’s Wharf Market Building (formerly known as Cargo Shed No.1) including the removal of all deleterious material from the land. The existing building is a steel framed, pitched roof structure with galvanised iron walls and an asbestos roof and a concrete floor. The shed was modified in the 1990’s in which a mezzanine level and roofed balconies were added to the eastern and western ends. The concrete floor has a slight slope from the southern wall down to the waterfront, resulting in a small, raised concrete plinth along the southern side of the building. This application proposes the demolition of the building in a single stage. The applicant has however indicated during discussions with staff that if approval is granted and following comprehensive investigations on site, the applicant may seek to vary/obtain an alternative approval to allow for the demolition to occur in stages. That would then allow the building to be demolished in stages and redeveloped with replacement uses (subject to relevant development authorisations). This staging program however does not form part of the application currently before the Commission which must be assessed on the basis that the demolition will occur within the standard timeframes under the Development Act (ie 1 year to substantially commence and 3 years to substantially complete the demolition of the whole building). The proponent has indicated that a masterplan for the site and other surrounding properties in its ownership has been prepared which is intended to guide future urban development of the subject land and other surrounding properties following demolition of the building. Such future development does not form part of this application however, but does give an indication that the longer term goal is to redevelop the site. Although no landscaping of the subject land is proposed to follow the demolition of the application, the proponent has stated that it would not object with the provision of a landscaping plan forming a condition of consent. However this could potentially become a redundant condition when considering the potential for a staged demolition proposal above, or if redevelopment of the site were to follow shortly after the demolition process.
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