Development Assessment Commission AGENDA ITEM 2.2.2 10 November 2016 ity of Norwood Payneham and St Peters
Redevelopment work at Norwood Oval involving demolition and alterations to the Baulderstone Stand, the Western Stand and the Sir E T Smith Stand.
4 Woods Street, Norwood
155/L010/16
TABLE OF CONTENTS
PAGE NO AGENDA REPORT APPENDIX 1 – DEVELOPMENT PLAN POLICY 1-7 ATTACHMENTS 1: SITE PHOTOS 8-16 2: DEVELOPMENT APPLICATION FORM 17-19 3: PLANNING REPORT 20-52 4: PARKING SURVEY 53-60 5: HERITAGE SURVEY 61-62 6: NOISE REPORT 63-71 7: PLANS & CONCEPTS 72-80 8: PUBLIC NOTICE – CATEGORY 3 81 9: CATEGORY 3 SUBMISSIONS 82-104 10: APPLICANT’S RESPONSE TO SUBMISSIONS 105-114
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OVERVIEW
Application No 155/L010/16 APPIAN ID/KNET ID 1408 / 2016/17742/01 Applicant City of Norwood Payneham and St Peters Proposal Demolition of Baulderstone Stand, partial demolition of the Western Stand, and alteration of the Sir ET Smith Stand. Construction of new building to connect the Western Stand and the Sir ET Smith Stand and to provide kitchen facilities and bar area on the ground floor, and function room, bar, kitchenette, store rooms on the first floor, and upgraded toilet facilities, change rooms and administration offices within the Sir ET Smith Stand. Subject Land Norwood Oval, 4 Woods Street, Norwood Zone/Policy Area Recreation Zone – Recreation 10 Policy Area Maps NPSP/10 & NPSP/16. Relevant Authority Development Assessment Commission – pursuant to Section 34 (1) (b) (iii) of the Development Act 1993, due to the potential for perception of bias on the part of the Council’s Development Assessment Panel. Lodgement Date 10 August 2016 Council City of Norwood Payneham and St Peters Development Plan 28 April 2016 Type of Development Merit Public Notification Category 3 Representations Seven (7) Referral Agencies N/A Report Author Malcolm Govett, Planning Officer RECOMMENDATION Grant Development Plan Consent
EXECUTIVE SUMMARY
The application seeks to upgrade the existing grandstands at Norwood Oval which involves demolition and redevelopment works. The existing Baulderstone Stand will be completely demolished and the partial demolition of the Western Stand will occur. External and internal alterations will be undertaken on the Local heritage listed Sir E T Smith Stand. The existing paved car parking area and forecourt situated between The Parade and the Sir E T Smith Stand will be reconfigured to provide a more pedestrian friendly environment.
The purpose of the upgrade is primarily to provide improved function room and bar facilities and hospitality services for members of the Norwood Football Club and for third parties who may use.
The key planning concern with this application is the potential for interface land use conflicts between the activities at the oval and adjoining residential development.
Public notification was undertaken as Category 3 as the proposal affects a Local heritage place and is not considered to be a minor form of development.
It is considered that the application has sufficient merit to warrant support. It is recommended the Commission grant Development Plan Consent.
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ASSESSMENT REPORT
1. BACKGROUND
Prior to lodging this development application, the Council sought to remove the potential perception of bias by requesting the Minister for Planning appoint the Development Assessment Commission as the relevant planning authority for the application. Pursuant to Section 34 (1) (b) (iii) of the Development Act 1993, the Commission was appointed as the relevant planning authority on 12 July 2016.
2. DESCRIPTION OF PROPOSAL
Application details are contained in the ATTACHMENTS.
The City of Norwood Payneham and St Peters, in conjunction with the Norwood Football Club, proposes upgrades to the Norwood Oval. In general terms, the upgrades involve the following works:
The demolition of the entire Baulderstone Stand The demolition of a 13 metre long section of the Western Stand which adjoins the northern side of the Baulderstone Stand Internal alterations to the western end of the Sir E T Smith Stand to upgrade administrative offices, change rooms and public amenities and to allow connection with the other stands at ground floor and first floor levels The demolition of the toilet building located at the rear of the Sir E T Smith Stand
The ground floor level of the new grandstand provides the following elements:
A Premier’s Bar of 146 square metres floor area and bar Two separate access points from Woods Street with entrance foyer A kitchen Store rooms, cool room, freezer room, services access, and lift Public amenities
The upper or first floor level of the new grandstand provides the following elements:
A member’s facility and function room of 243 square metres floor area for up to 180 patrons A podium Store rooms, cool rooms, plant room and lift A bar and kitchenette Public amenities
At both floor levels, the new grandstand features extensive glazing to provide an uninterrupted view of the playing field.
The first floor level of the new grandstand extends outward over the ground floor level both towards the playing field and over the public realm of Woods Street by 4 metres.
The first floor function room is proposed to be used for:
Football related events, e.g. lunches or dinners on game day, post-match presentations Corporate events, community events, and celebratory events, e.g. birthdays, engagements, anniversaries
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It is estimated the function room will be used for functions once per week outside of designated football related events. It is intended to be licensed to operate:
Monday to Saturday from 10.00am to 2.00am the following day Sunday 10.00am to 12.00pm.
The existing paved car park will be re-configured to allow for its continued use as a car park in a linear arrangement and as a community space with raised garden beds and seating and bicycle racks. The re-configured car parking area will provide a total of 39 parking spaces which means that overall 13 car parks will be lost to provide improved community space.
The works to reconfigure the paved car park will also include changes to alter the width of Woods Street up to Florence Street to accommodate the encroachment of the first floor level of the upgrade into the public realm.
2.1 Traffic and Parking
A parking survey is contained in the ATTACHMENTS.
The parking survey was carried out by Tonkin Consulting over an 11 hour period on a typical weekday and a typical Saturday. The focus of the survey was to identify the extent of long term parking in the car park rather than provide detailed information on the turnover of short term spaces.
Currently, there are 52 spaces in the Norwood Oval car park: 33 parks are unrestricted; 7 parks are marked “Staff”; 10 parks are marked “Reserved”; and 2 parks are allocated for disabled parking.
The survey found the following in respect of the use of the Norwood Oval car park: there is evidence of moderate long term parking about one third to half of all parking spaces were occupied for at least 4 hours the uncontrolled and undefined paved section adjacent to Lucas Park is primarily used by long term parkers the defined and paved parks adjacent to the oval are primarily used by players and officials from the football club
2.2 Heritage
A development assessment report on heritage is contained in the ATTACHMENTS.
The Sir E T Smith Stand is listed as a Local heritage place in the Norwood Payneham and St Peters (City) Development Plan.
The report by BB Architects considers the proposed external changes to the heritage place are relatively minor and will not have a significant impact on its heritage value. The new works will have the following positive effects on the heritage place: enhance the building present it better allow better access to it allow better use of it encourage better maintenance of it
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It considers the proposed development to be very positive as the new building is well sited and articulated so that it has minimal impact on the heritage place. Its form and massing suit the context with the existing red brick building and the connections through to the Sir E T Smith Stand are handled well.
Furthermore, the removal of the toilet building at the rear of the heritage place and the refurbishment of the public forecourt between The Parade and the heritage place are viewed as very positive parts of the overall proposal.
2.3 Noise
A report on noise is contained in the ATTACHMENTS.
The report prepared by Sonus predicts the noise from patrons will achieve the assessment criteria developed from the Environment Protection (Noise) Policy 2007 where:
the windows in the function room remain closed after 10.00pm, and external and internal doors leading into the function room remain closed other than to accommodate patrons moving in and out of the building
The playing of music will achieve the relevant criteria of the Environment Protection Authority Guidelines on the basis that:
all speakers associated with the function room are located inside, and music levels within the function room are restricted to 85dB(A) which is a level higher than a level which would be considered to be background music but would not accommodate a typical live band or disc jockey
Where live entertainment or amplified music is considered for the function room then specific measures would need to be incorporate into the design of the building, such as to the roof/ceiling construction, to mitigate noise transfer from the function room to the residences in the vicinity.
3. SITE AND LOCALITY
3.1 Site Description
The Norwood Oval comprises three allotments, formally identified as follows:
Lot No Street Suburb Hundred Title 7 in FP35168 4 Woods Street Norwood Adelaide CT6130/129Reference 10 in DP31103 4 Woods Street Norwood Adelaide CT6130/134 11 in DP31103 4 Woods Street Norwood Adelaide CT6130/133
Norwood Oval is adjacent to the Norwood District Centre and is framed by The Parade to the south, Woods Street to the west, Beulah Road to the north, and Osmond Terrace to the east. The oval and its surrounds have an area of about 3.2 hectares and is relatively close to the Adelaide central business district being a distance of about 2.8 kilometres east-north-east from the Adelaide general post office.
Norwood Oval and surrounds comprises the following elements:
Playing field Open terraces and seating Four light towers, scoreboard, storage buildings, public amenities buildings
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Three grandstands consisting of the Western Stand, the Baulderstone Stand, and the Sir E T Smith Stand Norwood Returned Services League building Paved car parking area providing 52 car parks Memorial garden (Lucas Park)
A public transport bus service runs along The Parade and a stop is located directly in front of the oval.
3.2 Locality
The locality is characterised by a mix of land uses, including commercial, retail, residential, education, and recreation. More specifically:
North: Residential development along the northern boundary of the oval but with high local traffic generators having frontage onto Beulah Road including the Norwood Primary School, the St Bartholomews Anglican Church, and the Prophet Elias Greek Orthodox Church.
South: The southern boundary of the Norwood Oval abuts The Parade and the District Centre Zone and includes the Norwood Presbyterian Church.
East: The Norwood Primary School occupies most of the eastern boundary of the oval but with residential and retail development in the south east corner.
West: Commercial developmentPP at The Parade end which leads onto residential apartments and detached dwellings up to Beulah Road.
4. PUBLIC NOTIFICATION
The application was assigned Category 3 for the purposes of public notification because it is a form of merit development which did not satisfy any of the exceptions contained in Parts 1 and 2 under Schedule 9 of the Development Regulations 2008.
SUMMARY OF COMMENTS BY CATEGORY 3 REPRESENTORS Representor ID Comments 1. Noise impacts on business and work environment during Jamie Hill construction Traffic and parking impacts during construction Would like to negotiate action plan with builder to minimise noise and traffic/parking impacts
2. Parking demand near the Oval is vastly under-estimated Danying Liu & Glass façade along Woods Street will seriously undermine Yi Li privacy and security of residents Operating hours of the function centre and the impact on residential amenity
3. Inadequate car parking and cumulative pressure from a Angela Gibb number of sources Significant concerns around the validity of the car parking survey by Tonkin ConsultingPotentially another disastrous business decision by the Football Club and Council.
4. Council has conflict of interest 7 Development Assessment Commission AGENDA ITEM 2.2.2 10 November 2016
M L Emmett, Inadequate car parking and cumulative pressure from a C/- Norwood number of sources Residents Glass façade poses public safety issue Action group Adverse impacts on residential amenity through unruly behaviours, rubbish, vandalism Football Club is in breach of its lease Want shared community use of the oval Encroachment into Woods Street is unacceptable Intolerable intensity in usage Unacceptable colour/pattern finish to external facade Public notification inadequate
5. Council has conflict of interest Nicholas Grey Encroachment into Woods Street is unacceptable Unacceptable colour/pattern finish to external facade Intolerable intensity in usage Public consultation inadequate Inadequate car parking and cumulative pressure from a number of sources
6. Hiring of facilities for non-football related events Claudia Lepore Community land should not be used for business purposes
7. Significant and adverse impact on residential amenity Peter Fairlie- Inadequate parking Jones Hours of operation for function room should be limited to 10.00pm on any night Frequency of functions is under-stated Glass façade presents increased potential for disturbance to residents from amplified music
5. APPLICANT’S RESPONSE TO REPRESENTORS
The applicant’s response to representors is contained in the ATTACHMENTS and summarised below.
SUMMARY OF RESPONSE BY NPSP COUNCIL TO CATEGORY 3 REPRESENTORS Issue Comments Traffic and Car Development Plan parking criteria indicate the proposal will Parking generate a potential off-street parking demand of 60 spaces There is a notional shortfall of 14 spaces The shortfall is acceptable on the basis of the site being well serviced by public transport, the function room will not always be used to full capacity, and there is limited opportunity to provide more on-site car parks due to the heritage listing of the complex The streetscape upgrades will contribute to traffic calming
Hours of Overall operation during football matches will not change Operation and Norwood Oval sits within a diverse commercial precinct Associated The design has no openings directly from the first floor level onto Impacts Woods Street. This will minimise noise transmission from within the building. To limit potential noise impacts, access to the facility can be from the site’s main entrance
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Inappropriate Proposal is appropriate in terms of heritage impact and general Development for a appearance Heritage Area and Scale of the upgrade is respectful as it sits lower than the Sir E T Overdevelopment Smith Stand of the Site Appearance of the Sir E T Smith Stand will be improved with the removal of the toilet building Creates a lightweight transition between the old and the new Reconfiguration of car parking area will improved the public realm Materials used do not intentionally replicate those used in the existing buildings
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Privacy impact First floor level glass façades/widows will not unreasonably impact on the privacy of nearby residents Use of function room will not unreasonably impact on the privacy and safety of school children using the Oval during lunch time
Misuse of public Pursuant to Section 48 of the Local Government Act 1999, funds a Prudential Report was prepared by BRM Holdich. The council has discharged its statutory responsibilities and satisfied the requirements of the Act
Impact on use of Norwood Primary School has been consulted by Council Oval by Norwood and raised no objection to the location and type of facilities Primary School proposed The use of the Oval by the school will continue
Breach of Lease Sub-leasing by football club is not a breach of the lease by Sub-Leasing The issues raised by residents in respect of baseball have the Oval been brought to the attention of the football club
Request for Current lease with Council and Norwood Football club greater use of expires in November 2017 the Oval by All issues raised by representors will be dealt with during residents review and negotiation of new lease
Communication Pre-construction and construction meeting will be held with between interested residents residents and the Arrangements will be put in place to ensure on-street builder parking does not impact upon residents
Development Council owns the facility should not be The football club will use the facility on the terms and used for business conditions of a lease with the Council purposes Aside from its use, the facility will be available for other uses The facilities will be available for community use
6. POLICY OVERVIEW
The subject site is located within the Recreation Zone and the Recreation Policy Area as described within the Norwood Payneham and St Peters (City) Development Plan Consolidated 28 April 2016 and shown in Maps NPSP/10 and NPSP/16.
Relevant planning policies are contained in the ATTACHMENTS and summarised below.
6.1 Zone
The intent of the Recreation Zone is to provide opportunities for regional recreation, entertainment and leisure activities within the Norwood Oval complex. Any new development should occur only within the zone to the west or south towards The Parade. Any new building work should be compatible with the existing built form due to the heritage status of the main grandstand and of other buildings in the near vicinity. Additional traffic impact on nearby residential streets should be avoided.
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6.2 Council Wide
The Council Wide provisions of the Development Plan provide guidance on the interface between land uses, car parking requirements for non-residential land uses, and development affecting heritage places.
In general terms, the Development Plan seeks:
To ensure development generally not detrimentally affect the amenity of a locality or cause unreasonable interference through noise, hours of operation, traffic impacts, light spill To ensure non-residential development on land abutting a residential zone be designed to minimise noise impacts and achieve adequate levels of compatibility between existing and proposed uses To make new development provide off-street parking in accordance with standard benchmarks but allow variations where a site is in close proximity to a fixed public transport stop To not compromise the character of the original building and be visually compatible with the elements contributing to its heritage significance To ensure development that emits noise includes noise attenuation measures to achieve the Environment Protection (Noise) Policy 2007 criteria
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7. PLANNING ASSESSMENT
The application has been assessed against the relevant provisions of the Norwood Payneham and St Peters (City) Development Plan, contained in APPENDIX 1.
The key planning issues for this application are discussed below.
7.1 Car parking
Clearly there is insufficient off-street parking available to properly accommodate the sports related users of Norwood Oval which can result in significant over-spill into the surrounding streets. This is consistent with other ovals and facilities where capacities vary between uses. From a historical perspective, the car parking situation at the oval is nowhere as significant a problem as in past years due to the declining status of and interest in the South Australian National Football League competition.
Overall, the proposed upgrade will provide a modern, adaptable facility. The first floor of the facility will be 243m2 in area and have formal seat at table capacity for 180 people. The unique location of the Norwood Oval in the heart of the Norwood business and retail hub is likely to increase its potential for wider and more regular use should this development gain approval.
The Development Plan provides general guidance on the maximum car parking demand which is 60 car parks. This is based on Table NPSP/9 – “Off Street Vehicle Requirements for Non-Residential Land Uses” which indicates that for a “restaurant”, 1 car parking space should be provided for every 3 seats. However, this figure is applicable only when the first floor facility is used as a restaurant.
It is considered the proposed first floor facility is more aptly described as a function room, not a restaurant. This is because under Schedule 1 of the Development Regulations 2008, a restaurant is defined as “land used primarily for the consumption of meals on the site”. The 180 person seating capacity for the facility is probably at or near to its maximum level of use. Furthermore, it is reasonable to expect the number of patrons using the facility will not be at the maximum level every time it is used.
A mitigating factor on the demand for on-street and off-street parking at the oval is its highly accessible location due to a fixed public transport service being routed along The Parade with a bus stop directly in front of the oval. The Development Plan acknowledges the benefits of the oval’s strategic location and allows the application of a lesser on-site car parking rate where a development site is located within 200 metres walking distance of a public transport stop (see City Wide Principle of Development Control 122).
The proposed reconfigured car parking area with 39 car parks is considered to provide sufficient car parks to accommodate the day to day operations at the oval. A maximum number of up to 18 car parks are likely to be allocated for constant use by football related activities. Due to the location of the oval and the diversity of land uses in the area on-street car parks are in high demand. Consequently, future patrons would have the expectation of a park and walk experience when using any of the facilities at the Norwood Oval complex. It is considered the proposal will not unreasonably impact on the on-street car parking situation which currently prevails in the locality and surrounding areas.
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7.2 Interface conflicts
The key interface conflict issues which are evident with the current recreational activities and secondary uses at the Norwood Oval are:
the demand for car parks in nearby streets traffic management noise generated by activities and events and by unruly behaviour emanating from patrons leaving the premises usually late at night hours of operation
The demand for on-street car parks in the locality is considered to be ever present and ongoing. Improvements to the situation may be able to be achieved by the construction of more car parking stations in association with the significant redevelopment of sites within the Norwood business hub. However, such outcomes would be largely dependent on increased population growth and responding market forces.
It is considered the Council has already implemented a range of appropriate traffic calming measures around Woods Street. It has sought to minimise the impacts of heavy traffic flows in the locality generated by:
the use of the Norwood Oval and its facilities patronage of the Norwood business and retail hub the use of a number of churches in the locality, along Beulah Road and The Parade the delivery and pick-up of children at the adjacent Norwood Primary School
The Council’s traffic calming measures have been in the form of restrictions on movement such as:
one way, north-south movement along Woods Street to service residential development access to Woods Street only for local traffic no entry past Beyer Street to Woods Street/Florence Street/Theresa Street one way movement into Beyer Street from Woods Street no entry into Florence Street from Woods Street, but one way movement from Florence Street into Woods Street Theresa Street is a no through road restricted parking speed limits design measures to reduce vehicle speed, e.g. road humps
The upgraded facility will have two access points from Woods Street. One is the main access point adjacent to the Sir E T Smith Stand where patrons will also be able to use a lift or the stairs to get access to the first floor function room. The other access point is a single door access near Florence Street which will be mainly used by staff. The applicant has advised, that in order to minimise the potential for disturbance to nearby residents, especially from patrons leaving the premises late at night, access arrangements could be changed for evening events. Such change would involve the entry/exit to the premises being restricted to the main access to the Sir E T Smith Stand which is around the corner, closer to The Parade.
The hours of operation of the proposed first floor function room have the potential to significantly impact on the amenity of residential development adjoining the Norwood Oval. Such impacts are by way of unruly and anti-social behaviour by patrons leaving 13 Development Assessment Commission AGENDA ITEM 2.2.2 10 November 2016 the premises and departing the area in their cars. While the proposal seeks longer operating hours from 10.00am to 2.00am for up to six days per week, it is considered they could be wound back during the week, from Monday to Thursday, in order to limit the frequency and duration of potential disturbance and to more accurately reflect the requirements of parties who may use the facilities mid-week.
The proposed use of the first floor function room by patrons would be able to satisfy environmental noise guidelines but with qualifications: as windows and doors would need to be closed after 10.00pm. In this regard, the windows facing onto Woods Street are fixed and permanently closed so would not be an issue. The openings to the internal glass façade facing onto the playing field would have to be closed in the evening in order to satisfy the environmental noise criteria. In addition to these noise attenuation measures, all speakers would have to be located inside the function room when music or amplified sound is used there. Furthermore, the noise level within the function room will need to be limited to 85dB(A) unless certain noise attenuation measures are incorporated into the construction of the roof/ceiling.
Overall, it is considered the proposal could be developed and controlled with appropriate conditions to minimise the potential for disturbance of nearby residents.
7.3 Intensification of use
Until recently, the key activities associated with the Norwood Oval have been Australian Rules football and baseball. As both of these activities would be classified as regional recreational activities they are considered to be consistent with the policy framework for the Recreation Zone (see Objective 1 and Principle of Development Control 1).
The proposed development seeks to upgrade the entertainment and hospitality facilities at the oval and in so doing encourage a wider patronage of the venue in the form of community, corporate and celebratory events. Notwithstanding that the proposed first floor level will intrude into the public realm, the works to upgrade the facilities will be undertaken within the existing building footprint which is consistent with the policy framework for the zone (see Explanatory Statement and Principle of Development Control 2).
The Council indicates the first floor function room is likely to be used once per week outside of football related events. It is considered however this level of use is probably under-stated as the proposal is likely to result in the increased use of the hospitality facilities at the Norwood oval for the following reasons:
the regular use of the premises is desirable because a significant financial investment is being made and there needs to be a return on investment the new facilities will be modern and adaptable for a range of events the venue has an advantageous location being in the heart of the Norwood business and retail hub, relatively close to the Adelaide central business district, and is located along a fixed public transport route the preferred hours of operation improve the marketability of the premises for use by third parties
Outside of football related events, it is considered that community and corporate related events would be likely to have a low level of impact on nearby residents due to their requirements for daytime or early evening use times.
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Although, it is considered celebratory events would generally have more potential for a higher level of impact on nearby residents due to their requirements for later evening use times. Such impacts would be in the form of the demand for on-street car parks, noise disturbance from patrons inside and when leaving the premises, and noise disturbance from patrons leaving the area in their cars.
As previously mentioned, the demand for on-street car parks in the locality and surrounding areas is already high due to the diversity of land uses in and around the Norwood business and retail hub. It is considered the function room activities at the oval complex will not significantly change this situation. It is also considered the potential disturbance caused by patrons within the facility and as they exit the building can be controlled by a range of noise attenuation and venue management measures.
If the proposal gains approval then such measures could be attached as conditions of the approval. The one potential disturbance which is outside of the control of the applicant and the lessee, and which rests with civility, is the noise patrons may make when leaving the area by private car.
7.4 Encroachment into the public realm
The proposed encroachment of the first floor level of the grandstand upgrade into the public realm will extend for a distance of about 29 metres along Woods Street and will be 4 metres at its widest point. No part of this first floor level will encroach onto Woods Street because this relatively short stretch of the public road will be reconfigured. This will result in the public road being narrowed by about 2 metres and the footpath widened.
It is considered the encroachment will not be seriously at variance with City Wide Principle of Development Control 52 because the existing building setback at ground level to Woods Street will be maintained. The proposed encroachment will have a number of positive outcomes, they are:
it will be elevated about 4 metres above ground level with adequate head clearance for pedestrians it will not hinder or restrict pedestrian movement in the locality it will function as an all-weather shelter for patrons of the facility and for pedestrians generally
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it will result in the narrowing of a short section of Woods Street which in turn will further assist traffic calming in the locality any resultant shadowing will not adversely impact on nearby residential development or their amenity it will not adversely impact or diminish available vistas along Woods Street
Photographs of the Norwood Oval are contained in the ATTACHMENTS.
7.5 Design features
The overall height of the new hospitality facility will be about 10 metres, i.e. from ground floor level to the apex of the roof. It is considered the scale of the proposed upgrade is appropriate as its roof line will be about 6 metres lower than apex of the roof of the adjoining Sir E T Smith Stand and only about 1 metre higher than the roof line of the adjoining Western Stand. Furthermore, it will be of a similar height to the three storey residential apartments immediately opposite on the other side of Woods Street (see Principle of Development Control 6).
The proposal contains design features which have attracted critical comment from some nearby residents. They are the external glass façade/fixed window and the external finishes of the first floor level of the grandstand upgrade.
The proposed glass façade provides an unimposing connection between the local heritage place and the Western Stand. The external glass façade is more prevalent along the ground floor level of the proposed upgrade where it will be about 13 metres wide. Along the external first floor level of the upgrade the glass treatment is more representative of a fixed glass window and sits to frame the northern and southern ends of the first floor level encroachment or overhang into the public realm. It is considered these elevated glass windows would not present any problems regarding overlooking by guests for the following reasons:
there is a separation distance of at least 15 metres to the nearest dwelling across the public realm of Woods Street the nearest detached dwellings are buffered by high fences and bushes the nearest residential apartments have limited window openings on their Woods Street elevation
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It is considered the large glass façade/window overlooking the playing field would not unreasonably impact on the privacy and safety of school children during lunch time because of the significant separation distances involved.
It is considered the glass façade is compatible as a design feature in this situation because it maintains the heritage integrity of the Sir E T Smith Stand by complementing its character, scale and bulk (see City Wide Objectives 111 and 112 and Principle of Development Control 332). Also, the use of a glass façade to face the playing surface will be highly beneficial for patrons of the venue as it will provide extensive and uninterrupted internal views of the Norwood Oval complex.
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In relation to the proposed external finish for the first floor level of the grandstand upgrade, it is clear the Norwood Football Club is taking the opportunity to further emphasise its brand through the use of the colours of red and blue and to stamp its ‘ownership’ of the Norwood Oval. The proposed external finish is a continuation of its existing branding of the Norwood Oval where the corrugated metal boundary fencing is painted in a reddish brown to match the red brick finishes of the Sir E T Smith Stand and the Western Stand.
It is considered the proposed external finish for the first floor level of the new grandstand will not only complement the existing red brick finish of the Sir E T Smith Stand and the Western Stand but provide a strong visual link between them.
Photographs of the Norwood Oval are provided in the ATTACHMENTS.
7.6 Other Matters
Some of the Category 3 representors made critical comments about matters concerning the use and management of the Norwood Oval complex which are considered not relevant to the assessment of this proposal. They have been addressed by the Council in its response to the comments by the representors.
The matters raised include:
Misuse of public funds Impact on the use of the Oval by the Norwood Primary School Breach of lease by sub-leasing the Oval Request for greater use of the Oval by residents Communication between the residents and the builder Development should not be used for business purposes
The Council has confirmed the current lease provides for the Norwood Football Club to sub-lease the Oval for other uses subject to certain conditions being met.
8. CONCLUSION
The application is considered to have sufficient merit to warrant support.
It is considered the proposed upgrade to the grandstands at the Norwood Oval is consistent with the policy framework for the Recreation Zone because the building work will:
be within the recommended height limit of three storeys not increase the footprint of the existing built form improve the visual appearance of the built form not compromise the historic character and local heritage integrity of the Sir E T Smith Stand provide a more attractive and pedestrian friendly forecourt area between The Parade and the Sir E T Smith Stand
The most sensitive planning issues associated with the proposed development are the interface land use conflicts of noise and hours of operation, the demand for on-street car parks, the intensification of the entertainment uses, and the encroachment of the new grandstand into the public realm.
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The issues of noise and hours of operation and the intensification of entertainment activities can be appropriately addressed through the attachment of conditions of consent in order to minimise or better control the interface land use conflicts.
The high demand for on-street parking in the locality is an ongoing and ever present issue due to the proximity of the Norwood Oval to the Norwood business and retail hub and the presence nearby of a number of other relatively high traffic generating land use activities. It is considered the proposed upgrade of the grandstands will not significantly change the current on-street parking situation in the locality and surrounding areas.
The encroachment of the new grandstand into the public realm is considered to be acceptable because it will not hinder or interfere with pedestrian movements and will provide an all-weather shelter for pedestrians.
Pursuant to Section 35(2) of the Development Act 1993, and having undertaken an assessment of the application against the relevant Development Plan, the application is NOT seriously at variance with the provisions of that plan.
9. RECOMMENDATION
It is recommended that the Development Assessment Commission:
1) RESOLVE that the proposed development is NOT seriously at variance with the policies in the Development Plan.
2) RESOLVE that the Development Assessment Commission is satisfied that the proposal meets the key objective of the Recreation Zone as it will provide improved hospitality facilities relating to regional recreation and secondary entertainment uses.
3) RESOLVE to grant Development Plan Consent to Development Application 155/L010/16 by the City of Norwood Payneham and St Peters for the redevelopment work at Norwood Oval involving demolition and alterations to the Baulderstone Stand, the Western Stand, and the Sir E T Smith Stand at 4 Woods Street, Norwood, subject to the following conditions of consent:
PLANNING CONDITIONS
1. That except where minor amendments may be required by other relevant Acts, or by conditions imposed by this application, the development shall be established in strict accordance with the details and following plans submitted in Development Application No. 155/L010/16.
Plans – Tridente Architects
Drawing Number Drawing Title Date Rev 1605.B00.CD0001 Existing Context and Development 2 August 2016 I Extent 1605.B00.CD0002 Views 2 August 2016 I 1605.B00.CD0003 Views 2 August 2016 I 1605.B00.CD0202 Demolition Extent 2 August 2016 I 1605.B00.CD0301 Site Plan 2 August 2016 I 1605.B01.CD0501 Ground Floor Plan 2 August 2016 I 1605.B01.CD0502 First Floor Plan 2 August 2016 I 1605.B01.CD0701 Roof Plan & Overlay 2 August 2016 I 1605.B01.CD0801 Elevations & Sections 2 August 2016 I
19 Development Assessment Commission AGENDA ITEM 2.2.2 10 November 2016
Reports / Correspondence
Planning Statement (2016-0068), prepared by URPS, dated 5 August 2016 Norwood Oval Car Park – Parking Surveys, prepared by Tonkin Consulting, dated 30 March 2016 Development Assessment Report, prepared by BBArchitects, dated 1 June 2016 Environmental Noise Assessment, prepared by Sonus, dated October 2016
2. All Council, utility or state-agency maintained infrastructure (i.e. roads, kerbs, drains, crossovers, footpaths, etc.) that is demolished, altered, removed or damaged during the construction of the development shall be reinstated to Council, utility or state agency specifications. All costs associated with these works shall be met by the proponent.
3. All vehicle car parks, driveways and vehicle entry and manoeuvring areas shall be designed and constructed in accordance with the relevant Australian Standards and be constructed, drained and paved with bitumen, concrete or paving bricks in accordance with sound engineering practice and appropriately line marked to the reasonable satisfaction of the Development Assessment Commission prior to the occupation or use of the development.
4. All car parking areas, driveways and vehicle manoeuvring areas shall be maintained at all times to the reasonable satisfaction of the Development Assessment Commission.
5. Landscaping shown on the plans forming part of the application shall be established prior to the operation of the development and shall be maintained and nurtured at all times with any diseased or dying plants being replaced.
6. The development and the site shall be maintained in a serviceable condition and operated in an orderly and tidy manner at all times.
7. All waste and rubbish shall be stored in covered containers prior to removal and shall be kept screened from public view.
8. All external lighting of the site, including car parking areas and buildings, shall be designed and constructed to conform with Australian Standards and must be located, directed and shielded and of such limited intensity that no nuisance or loss of amenity is caused to any person beyond the site.
9. All stormwater design and construction shall be in accordance with Australian Standards and recognised engineering best practices to ensure that stormwater does not adversely affect any adjoining property or public road.
10. For evening events generally, pedestrian access to the first floor level function room facility shall be available only from the main access way through the Sir E T Smith Stand. The only exception to this requirement shall be where a mobility impaired person will need to use the lift located adjacent to the Woods Street frontage in order to gain access to the function room.
11. For evening events generally, after 10.00pm the windows within the first floor level function room facility and the external and internal doors leading into the function room shall be closed in order to minimise disturbance.
20 Development Assessment Commission AGENDA ITEM 2.2.2 10 November 2016
12. For evening events generally, after 10.00pm, where amplified sound or music is used within the first floor function room facility, the windows within the function room and the external and internal doors leading into the function room shall be closed, and all speakers associated with the function room shall be located inside the room in order to minimise disturbance.
13. For evening events where amplified sound or music is used within the first floor level function room facility, the noise level shall not exceed 85dB(A) in order to minimise disturbance.
14. A Construction Environment Management Plan (CEMP) shall be prepared and implemented in accordance with current industry standards – including the EPA publications “Handbook for Pollution Avoidance on Commercial and Residential Building Sites – Second Edition” and “Environmental Management of On-site Remediation” – to minimise environmental harm and disturbance during construction.
The management plan must incorporate, without being limited to, the following matters:
a. air quality, including odour and dust b. noise c. sediment control and the pollution of the stormwater system d. traffic management in terms of the parking of vehicles owned by the workers on the building site and the movement of heavy vehicles involved with demolition works and construction activity e. occupational health and safety
For further information relating to what Site Contamination is, refer to the EPA Guideline: 'Site Contamination – what is site contamination?'
A copy of the CEMP shall be provided to the Development Assessment Commission prior to the commencement of site works.
15. That the hours of operation of the premises shall be restricted to the following times:
Monday – Thursday: 10.00am to 11.00pm Friday - Saturday: 10.00am to 2.00am (the following day) Sunday: 10.00am to 10.00pm
ADVISORY NOTES a. The development must be substantially commenced within 12 months of the date of this Notification, unless this period has been extended by the Development Assessment Commission. b. The authorisation will lapse if not commenced within 12 months of the date of this Notification. c. The applicant is also advised that any act or work authorised or required by this Notification must be completed within 3 years of the date of the Notification unless this period is extended by the Commission. d. The applicant has a right of appeal against the conditions which have been imposed on this Development Plan Consent or Development Approval.
21 Development Assessment Commission AGENDA ITEM 2.2.2 10 November 2016 e. Such an appeal must be lodged at the Environment, Resources and Development Court within two months from the day of receiving this notice or such longer time as the Court may allow. f. The applicant is asked to contact the Court if wishing to appeal. The Court is located in the Sir Samuel Way Building, Victoria Square, Adelaide, (telephone number 8204 0289). g. The applicant is reminded of its general environmental duty, as required by Section 25 of the Environment Protection Act 1993, to take all reasonable and practical measures to ensure that the activities on the whole site, including during construction, do not pollute the environment in a way which causes or may cause environmental harm. h. The applicant is reminded the emission of noise from the premises is subject to control under the Environment Protection Act and Regulations, 1993 and the applicant (or person with the benefit of this consent) should comply with those requirements. i. The applicant is reminded that mechanical plant or equipment shall be designed, sited and screened to minimise noise impact on adjacent premises or properties in accordance with the relevant noise protection policy.
Malcolm Govett PLANNING OFFICER DEVELOPMENT DIVISION DEPARTMENT OF PLANNING, TRANSPORT and INFRASTRUCTURE
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