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Planning Cultural Infrastructure for the City of Parramatta: a Research Report

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Planning Cultural Infrastructure for the City of Parramatta: a Research Report Planning Cultural Infrastructure for the City of Parramatta: A Research Report Prepared by the Institute for Culture and Society, Western Sydney University March 2020 The project team Professor Deborah Stevenson, Emeritus Professor David Rowe, Distinguished Professor Ien Ang, Associate Professor Liam Magee, Dr Cecelia Cmielewski, Dr Cecilia Hilder, Dr Ryan Van Den Nouwelant, Professor Paul James, Dr Christen Cornell, Vanicka Arora, Simon Chambers, Sarah Nectoux Cover image: Parramatta Night-life. Photo: George Gittany Photography DOI: 10.26183/rscg-q587 To cite this report: Ang, I., Arora, V., Chambers, S., Cmielewski, C., Cornell, C., Hilder, C., James, P., Magee, L., Nectoux, S., Rowe, D., Stevenson, D., and Van Den Nouwelant, R. (2020) Planning Cultural Infrastructure for the City of Parramatta: A Research Report. A report to the City of Parramatta Council. N.S.W.: Western Sydney University. <https://doi.org/10.26183/rscg-q587>. The report on the second stage of the research can be found at: Stevenson, D., Rowe, D., Ang, I., Magee, L., Cmielewski, C. and Hilder, C. (2020) Planning Cultural Infrastructure for the City of Parramatta: Phase 2 Precinct Report. A report to the City of Parramatta Council. N.S.W.: Western Sydney University. <https://doi.org/10.26183/dzp8-hp43> The third and final stage of the research, the City of Parramatta Cultural Infrastructure and Investment Strategy, 2021-40 was prepared by: Dr Cecelia Cmielewski, Dr Cecilia Hilder, Dr Ryan Van Den Nouwelant, Emeritus David Rowe, Professor Deborah Stevenson, Associate Professor Liam Magee and Distinguished Professor Ien Ang. It will be available online in mid-2021. DISCLAIMER This is an independent report produced by Western Sydney University for the City of Parramatta. The accuracy and content of the report are the sole responsibility of the project team and its views do not necessarily represent those of the City of Parramatta. Parramatta Planning Cultural Infrastructure Research Report. Page 2 ACKNOWLEDGEMENTS With respect for Aboriginal cultural protocol and out of recognition that its campuses occupy their traditional lands, Western Sydney University acknowledges the Darug, Eora, Dharawal (also referred to as Tharawal) and Wiradjuri peoples and thanks them for their support of its work in their lands (Greater Western Sydney and beyond). This project was commissioned by the City of Parramatta and conducted by a research team from Western Sydney University’s Institute for Culture and Society (ICS). We gratefully acknowledge Katrina Sandbach's assistance in supplying data for the audit. This report comprises the first stage of the three-stage research project. The project team also acknowledges the contributions of the City of Parramatta to its two independent reports and to the Strategy produced in consultation with it. We also express our gratitude to the cultural venue operators, individual artists, creative enterprises, and cultural organisations who participated and shared their experiences in project- related interviews with us. Without their generous insights this research would not have been possible. Contact details Professor Deborah Stevenson Institute for Culture and Society Western Sydney University [email protected] Parramatta Planning Cultural Infrastructure Research Report. Page 3 TABLE OF CONTENTS ACKNOWLEDGEMENTS 2 TABLE OF CONTENTS 4 EXECUTIVE SUMMARY 8 AUDIT 8 BENCHMARKING 9 NEEDS ANALYSIS 11 INTRODUCTION 13 STRATEGIC URBAN CONTEXT 14 Impact of the arrival of Powerhouse Parramatta 16 This report 17 Recommendations 17 General 17 Cultural Infrastructure Development 18 Aboriginal and Torres Strait Islander Cultural Representation 18 Partnerships 19 Regulatory and Legislative Infrastructure 19 NEW CULTURAL INFRASTRUCTURE FACILITIES 19 EXISTING FACILITIES FOR ADAPTIVE RE-USE AND REDEVELOPMENT 21 FUTURE FACILITIES CURRENTLY IN DEVELOPMENT OR CONSULTATION PROCESS 22 SECTION 1: AUDIT OF EXISTING CULTURAL INFRASTRUCTURE 23 INTRODUCTION 24 DEFINING CULTURAL INFRASTRUCTURE 25 Cultural Enclaves as Infrastructure? 26 City of Parramatta’s Definition of Infrastructure 27 Approach to the Audit 28 Description of Audit Data 29 UTILISATION TRENDS 34 Patronage Trends and Projections 34 Cultural Venue Attendance 35 Cultural Attendance and Participation 42 Demographic Trends 46 Commentary 50 Loss of Income and Potential Investment 51 Parramatta Planning Cultural Infrastructure Research Report. Page 4 SUITABILITY OF COUNCIL-OWNED AS WELL AS STATE-OWNED AND -OPERATED INFRASTRUCTURE 52 Semi/Permanent Adaptation 53 Temporary Use 54 Co-location of Cultural and Community Organisations or Peak Bodies 55 REVIEW OF PLANS AND STRATEGIES 56 Overview of the Policy Frameworks Audited 57 Current and Future Demand for Cultural Infrastructure in the City of Parramatta 60 Relevant Policies Identified through the Audit and Review 63 Review of Key Policies Identified by the City of Parramatta 64 Policy E-3: Culture and our City: A Cultural Plan for Parramatta's CBD 2017-2022 (2017) 65 Policy I-3: NSW Cultural Infrastructure Plan 2025+ (2019) 65 Policy P-2: Civic Link Framework Plan (2017) 66 Policy P-3: Parramatta City River Strategy Design and Activation Plan (2015) 66 Policy L-3: DRAFT Community Infrastructure Strategy (2019) 67 Policy E-5: DRAFT Parramatta Night City Framework 2020-2024 (2019) 67 Policy C-4: DRAFT ATSI Cultural Infrastructure in Parramatta - Community needs and aspirations (2019, unpublished) 68 Policy M-3: Greater Parramatta and the Olympic Peninsula. Our True Centre: The Connected Unifying Heart (2016) 68 Policy M-4: DRAFT A City Supported by Infrastructure: Place-based Infrastructure Compact Pilot (2019) 69 GIS LAYER 70 SECTION 2: BENCHMARKING CULTURAL INFRASTRUCTURE 72 CULTURAL INFRASTRUCTURE 73 CULTURE: GENERAL TRENDS 75 Quantifying Demand for Cultural Infrastructure 75 Breakdown of venues 78 Private sector 78 Public sector 81 Future Trends for Cultural Production, Participation and Consumption 89 Impacts of Major Infrastructure Projects 91 Current Evidence and Trends in Cultural Planning 93 Tourism Data and Trends 96 Comparison of Cultural Attendance with Australian Cities 99 Comparison of Infrastructure with other ‘Binucleated’ International Cities 103 Parramatta: Regional Cultural Capital? 103 KEY CHALLENGES 107 Challenge 1. Urban Expansion and Growth 108 Challenge 2. Multicultural Creative Inclusion 110 Challenge 3. Night-Time Activities 111 Parramatta Planning Cultural Infrastructure Research Report. Page 5 Challenge 4. Corporate and Civic Institutions for Cultural Infrastructure Partnerships 112 Challenge 5. Developing Creative Production Facilities 113 Challenge 6. Housing Diverse Creative Organisations 115 Challenge 7. Heritage Production and Presentation 116 Challenge 8. Indigenous Production and Presentation 118 CITY CASE STUDIES 119 Manchester, A Distinctive, Diverse and Nurturing Creative City 119 Major Cultural Infrastructure 122 Festivals, Music, Heritage and Supporting Infrastructure 123 Salford 123 Brooklyn, New York, USA – A Thriving Creative and Cultural Hub 124 SECTION 3: NEEDS ANALYSIS 126 INTRODUCTION 127 ARTS AND CULTURAL SECTOR INTERVIEWS 129 ADEQUACY OF CURRENT PROVISION OF CULTURAL INFRASTRUCTURE 130 Existing Local Arts Organisations: Vital But Under Threat 130 Emerging Arts Groups, Organisations and Events 132 Anchor Arts Production and Presentation Facilities 132 IMPROVING UTILISATION OF CURRENT CULTURAL INFRASTRUCTURE 137 ABORIGINAL AND TORRES STRAIT ISLANDER CULTURAL REPRESENTATION 142 Aboriginal Healing Site and Place 144 ATSI Cultural Production Spaces 144 NEW OR EXPANDED CULTURAL INFRASTRUCTURE REQUIREMENTS 147 ANCHOR ARTS PRESENTATION FACILITY 147 Mult-arts Centre (with Gallery) in the CBD 147 CREATIVE INDUSTRIES CLUSTER: Media Production and Presentation Facilities 149 JOINT-USE HUBS AND SHARED FACILITIES 151 PARTNERSHIPS 155 REGULATORY AND LEGISLATIVE INFRASTRUCTURE 156 Signal Strategic Intent 157 Facilitate Desired Uses 158 Provide clarity within land use definitions 158 Permissive controls for ‘low-impact’ land uses 158 Incentives and requirements for otherwise unfeasible land uses 159 Future-Proof the Built Environment 160 Provide flexible, diverse and ‘fine grained’ commercial spaces, particularly at lower levels 160 Interface with the public realm (street address) 160 Noise attenuation 160 Pedestrian movement and safety 161 Other Regulations, and Opportunities to Facilitate Cultural Activities 161 Parramatta Planning Cultural Infrastructure Research Report. Page 6 Rationalise application fees and processes 161 Support applicants to navigate the regulatory framework 161 Establish ongoing operational support, management arrangements & partnerships 161 Consulting and Reference Groups 162 CONCLUSION 164 REFERENCES 166 APPENDIX 1: DATA DICTIONARY 173 APPENDIX 2: CULTURAL INFRASTRUCTURE CATEGORIES 177 APPENDIX 3: TABLES FOR POLICY ANALYSIS 179 APPENDIX 4. SIMILARITIES BETWEEN PARRAMATTA CBD AND OTHER LGAs 190 APPENDIX 5: QUALITATIVE COMPARISON OF BI-NUCLEATED CITIES 192 APPENDIX 6: INDICATIVE CITY COMPARISON TABLE 197 APPENDIX 7: MAJOR INFRASTRUCTURE PROJECTS 200 APPENDIX 8. CULTURAL INFRASTRUCTURE PRIORITIES 201 RESEARCHER BIOGRAPHIES 209 Parramatta Planning Cultural Infrastructure Research Report. Page 7 EXECUTIVE SUMMARY Parramatta is dramatically changing, cultural practices are shifting, and the demands on cultural infrastructure are becoming increasingly complex. This report provides the necessary research and information to assist the City of Parramatta in determining its strategic priorities
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