Calculation of the height of the proposal
Evidence
32The planning experts disagreed on the level/s that constituted the existing ground level on the site.
33According to Mr Betros, the existing ground level of this site is the finished floor level of the ground floor of the existing building on the site and the existing level of the basement, which occupies a small area in the north eastern corner of the site. The vertical distance between the ground floor level of the existing building (RL26.19) and the roof of the amended proposal (RL41.06) is 14.87m, which complies with the 15m building height development standard. However, a tiny portion of Level 4 overlaps the small basement at the north-western corner of the existing hotel and it is the applicant's position that is the area of non-compliance with the 15m building height development standard, as the vertical height for the portion of Level 4 that overlaps the basement is measured from the floor level of the basement. Mr Betros supported this approach with a recent example of a consent issued by the Council for a site with an existing two storey basement, where the existing ground level was taken to be the lower floor level of the existing basement.
34According to Mr Chamie, the existing ground level of the site is the level of the footpath at the site boundary and this level is extrapolated across the site to measure the vertical distance to the highest point of the building. Mr Chamie used the ground level of the footpath (RL25.0) at the north-western corner of the site, resulting in a maximum height of 16.06m for the north-western corner of Level 4 and a non-compliance with the building height development standard of 1.06m.
Findings
35As building height is defined in LEP 2012 as the vertical distance between ground level (existing) and the highest point of the building, including plant and lift overruns, but excluding communication devices, antennae, satellite dishes, masts, flagpoles, chimneys, flues and the like, it is essential to nominate an existing ground level in order to be able to determine the height of the building. This is usually achieved by taking the lowest level on an existing site, as shown on the site survey, directly beneath the highest part of the proposed development, to determine a maximum building height dimension.
36The definitions of basement, height of buildings and ground level in LEP 2012 have come from the dictionary of the standard instrument (Standard Instrument - Principal Local Environment Plan). Ground level (existing) is defined in LEP 2012 as the existing level of the site at any point. This definition of existing ground level is sufficiently vague that both expert planners' reasoning can be argued, because the particular difficulty in applying this definition to this site is that the existing building occupies the whole of the site area and so there is no 'ground' (as in soil/garden/paving) around the building and on the site, from which the existing ground level can be determined by a site survey.
37It is relevant to consider the objectives of the building height development standard in considering how best to determine the maximum height of the building using the dictionary definitions in LEP 2012. The objectives include, at cl 4.3(a) of LEP 2012, to ensure the height of development is appropriate to the condition of the site and its context. As one of the purposes of the development standard is to relate the proposal to its context, it follows that the determination of the existing ground level should bear some relationship to the overall topography that includes the site.
38Mr Betros' approach focuses entirely on the existing building on the site. Once the existing building is demolished, the point at which the height of the building was measured from will no longer be discernable or relevant. Importantly, this approach does not relate the building height development standard to the context of the site, it only relates it to the building to be demolished. Using this method, it is conceivable that on one property, the existing ground level will be taken as two storeys below ground level where there is a basement (as in the example raised by Mr Betros) and on the adjoining property, the existing ground level will be taken as being well above ground level where a building occupies the entire site and the finished floor level is higher than the footpath, resulting in adjoining sites with starkly different height limits arising from the same development standard.
39Furthermore, the definition of basement in LEP 2012 is the space of a building where the floor level of that space is predominantly below existing ground level and where the floor level of the storey immediately above is less than 1 metre above existing ground level [italics added]. From this definition, it does not follow that existing ground level becomes the level of the basement floor or the soil beneath the basement following the construction of a basement. A basement is, by definition, below ground level and so the level of the basement floor cannot be taken to be existing ground level.
40For these reasons, I do not accept Mr Betros' approach of defining existing ground level as the ground floor level of the existing building and then dropping it down to the basement level in the north-eastern corner of the site where the existing basement is located. This results in an absurd height plane with a large and distinct full storey dip in it as it moves across the site and crosses the basement of the existing building, which relates only to a building that is to be demolished and has no relationship to the context of the site. This is not a criticism of Mr Betros' reasoning, however, as I understand he has adopted the approach taken by Council in previous assessments, which is reasonable.
41I prefer Mr Chamie's approach to determining the existing ground level because the level of the footpath at the boundary bears a relationship to the context and the overall topography that includes the site and remains relevant once the existing building is demolished. RL25.0 is the footpath level adjacent to the site boundary at the north-western corner of the site on Boundary Street, which is the lowest point on the site (as there are only levels for the northern boundary along Boundary Street and the eastern boundary along Wyndham Street). Considering the topography around the site, the highest point along the site's boundaries is the north-eastern corner, on the corner of Wyndham and Boundary Streets (RL26.11) and the lowest point is likely to be the opposite corner, the south-western corner. Level 4 of the amended proposal is setback 4.51m from the eastern boundary and 4.77m from the northern boundary. So the height above ground level on north-western corner of Level 4 is approximately 1m over the 15m building height development standard and the exceedance is less than 1m on the eastern side of the Level 4, as it is closer to the highest point of the site at the north-eastern corner.
42However, nothing turns on which definition I prefer, as the amended proposal exceeds the building height development standard on both experts' determination of the existing ground level (the difference between the experts being the quantum and location of the exceedance) and the applicant has provided a written request for the contravention of the building height development standard, pursuant to cl 4.6 of LEP 2012, which is dealt with in the following paragraphs.