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[2002] NSWLEC 131
Land and Environment Court (NSW)
2002-08-08
Pain J
Original judgment source is linked above.
INTRODUCTION
THE SITE AND SURROUNDING AREA 3. The subject site consists of four existing lots and has a total area of 3452.5 square metres. It is generally rectangular in shape. The lots are described as lots 21 - 24 in DP6238. The frontage to the west (Burchmore Road) is 49.21 metres, the northern boundary is 67.33 metres, the east or rear boundary is 65.53 metres and the southern boundary 60.35 metres.
THE PROPOSAL 6. The proposal before the Court involves: · the demolition of the four existing dwellings on the subject site; · the erection of 4 x 3 bedroom houses (houses 1 to 4) on the higher portion of the subject site fronting Burchmore Road with access from that street; · the erection of four two storey buildings, on the lower rear portion of the site comprising a total of 12 dwellings (rear residential buildings); · a basement car park for the rear residential buildings at the rear comprising 17 resident car spaces and three visitor car spaces; · access to the basement car park is from a driveway along the northern boundary of the subject site, and is some 88 metres in length. A traffic control signal is provided, at the passing bay and at the threshold of the basement car park, to regulate traffic flow and; · the Torrens Title subdivision of the subject site into five lots, being one lot for each of the houses fronting Burchmore Road and one lot for the rear residential buildings.
RELEVANT PLANNING CONTROLS 7. The relevant planning instrument is Warringah Local Environmental Plan 2000 (LEP 2000). Clause 12 of LEP 2000 provides: (1) Before granting consent for development the consent authority must be satisfied that the development is consistent with: (a) any relevant general principles of development control in Part 4, and (b) any relevant State Environmental Planning Policy described in Schedule 5 (State policies). (2) Before granting consent for development, the consent authority must be satisfied that the development will comply with: (a) the relevant requirements made by Parts 2 and 3, and (b) development standards set out in the Locality Statement for the locality in which the development will be carried out. 8. In addition, as the development is categorised as a Category One development, the consent authority must consider the desired future character described in the relevant Locality Statement (cl 12(3)). The relevant Locality Statement is Locality G7 - Innes Road.
THE ISSUES 13. The Council filed a Statement of Issues containing 11 issues, including a number of sub-issues. Prior to and during the hearing a number of issues were settled (Issues 1(a), 1(b), 1(c), 4(a), 4(j), 4(h) , 4(i) and (8)) and one additional issue was raised. The remaining issues can be conveniently grouped into the following areas: (i) whether the proposed development is consistent with the desired future character statement? (Issue 2) (ii) whether the proposed development is satisfactory in terms of the G7 Locality development standards relating to: (a) housing density (Issue 3(a)) (b) building height (Issue 3(b)) (c) side boundary envelope and side setback (Issues 3(c) and 7) (d) rear building setback (raised at hearing) (e) landscaped open space (Issue 3(d)) (iii) whether the proposed development is satisfactory in terms of the general principles of development control relating to: (a) the natural features of the site (Issues 4(b), 4(c), 4(d), 7 and 9) (b) access to sunlight (Issue 4(e)) (c) landscaped open space (Issue 4(f)) (d) bulk (Issue 4 (g) and 9) (iv) matters raised by objectors. (Issue 11) (v) whether the land can be subdivided? (Issue 6) Issue 10 dealing with overdevelopment, is dealt with in the assessment of the above issues.
EVIDENCE 14. Expert evidence for the Council was provided by: · Mr Steven Layman, consultant town planner and architect · Ms Rebecca Eveleigh, council town planner · Mr Terry Machin, landscape designer · Mr John Mills, overshadowing consultant
(This is dealt with in relation to development standards at par 36- 43) (c) The proposed development will adversely effect [sic] the spread of the existing indigenous tree canopy on the site.
(This is dealt with in relation to the general principles of development control in Pt 4 "protection of existing flora" cl 58 at 62 - 65.)
Future development will maintain the visual pattern and predominant scale of existing detached housing in the locality except in the areas marked as "medium density areas" on the map. In these medium density areas the scale of development is to relate favourably to existing apartment buildings in the area. The streets will be characterised by landscaped front gardens and consistent front building setbacks. The spread of indigenous tree canopy will be protected and enhanced throughout the locality.
Unless exemptions are made to the housing density standard in this locality statement, any subdivision of land is to be consistent with the predominant pattern, size and configuration of existing allotments in the locality. 21. In relation to land use there are three categories of development specified. Category 1 is development for the purpose of "housing". The LEP provides at the end of cl 12(3) of LEP 2000 the following note: To assist with understanding: Category One development is development that is generally presumed to be consistent with the desired future character of the locality, Category Two development is development that may be consistent with the desired future character of the locality, and Category Three development is development that is generally presumed to be inconsistent with the desired future character of he locality. The LEP also states that such notes are explanatory, and do not form part of the LEP. Prohibited development is also specified in the locality statement. 22. "Housing" is defined in the dictionary to the LEP 2000 as "development involving the creation of one or more dwellings, whether or not used as a group home". There is also a definition of "dwelling" which means "a room or a suite of rooms occupied or used or so constructed or adapted as to be capable of being occupied or used as a separate domicile". There is no definition of "apartment", "apartment building", "townhouse", "terraced house" or any other form of residential development in the LEP.
Council's submissions 23. It is the Council's submission that this development cannot fit within the G7 Desired Future Character statement because of the nature of the development and the LEP provisions. The Category 1 development allowed is "housing". The Council argued that as the first sentence of the Desired Future Character distinguishes between "detached housing" and "apartment development", these are the only two categories of "housing" which can exist under the G7 Innes Road Locality. Accordingly, all housing which is not detached must be apartment development. As the four rear residential buildings at the rear of the subject development are not detached housing and display features of an apartment development, they should be so regarded.
Applicant's submissions 25. In its submissions the Applicant argued that the proposed development constitutes housing, as allowed in Category 1 in the G7 locality under LEP 2000. Further, no part of the proposed development could be characterised as apartment buildings for the purposes of the LEP. The Applicant's submission is that the definition of "housing" can include a range of housing, including townhouses, and the residential buildings at the rear of the proposed development should be so identified.
Finding 30. On this issue, I am more persuaded by the submissions of the Applicant. The land use table for permissible development in the G7 Locality does not seek to categorise the acceptable form of development beyond the general definition of "housing". The reference to "apartment development" which occurs in the Desired Future Character statement refers specifically to the existing form of development generally found in those areas shown as "medium density" areas. That development generally takes the form of three levels of residential accommodation with a level of parking at ground level.
DEVELOPMENT STANDARDS 35. In relation to cl 12(2)(b) the Court must be satisfied before granting development consent that the development complies with the "development standards for the development set out in the Locality Statement for the locality in which the development will be carried out". The relevant development standards in the G7 locality plan relate to housing density, building height, rear building setback, the side boundary envelope and side setback and landscaped open space.
This control does not apply: (a) where the standard would prevent an existing allotment accommodating one dwelling, (b) on land equal to or greater than 3,000 [square metres] in area, where the land area per dwelling may be reduced provided the buildings are sited and designed and landscaping is used to ensure the development relates favourably to the pattern, scale and landscape character of the street and surrounding development
Mr Strudwick, the Applicant's expert witness, sees the proposal as "provid[ing] a visual pattern that generally maintains the spatial arrangements established by existing dwellings… Of some importance is the visual pattern and scale of the proposed development when viewed from the street and its ability to be able to integrate within the streetscape" (Exhibit A, p 19). Mr Strudwick notes that "the visual pattern and scale of existing detached housing in the whole of the G7 locality varies" (Exhibit A, p 19). He conducted a visual survey of the area. On this basis he concludes that "the proposed dwelling houses will maintain the visual pattern and the predominant scale of existing detached housing in the locality" (Exhibit A, p 20). Mr Strudwick further states that the proposed rear residential buildings "will not be readily visible from the street frontage and will not affect the visual pattern of the streetscape" (Exhibit A, p 20). In any event, "these buildings are not inconsistent within the building form of some of the larger detached dwellings within the immediate area" (Exhibit A, p 20) and adjoining apartment developments.
The Desired Future Character statement for this locality appears to provide that any subdivision which is exempt from the housing density standard does not need "to be consistent with the predominant pattern size and configuration of existing allotments in the locality". This does not appear to conform with the housing density standard in the same locality statement in relation to sites over 3,000 square metres which provides the buildings are to be "sited and designed and landscaping is used to ensure the development relates favourably to the pattern, scale and landscape character of the street and surrounding development". The standard provides no further numerical guidance on an appropriate density.
Applying the housing density standard, the density exemption in the standard clearly envisages smaller allotment sizes, provided the siting and design of the residential dwellings relate favourably to the pattern and scale (and landscape character, which is discussed below) of other residential dwellings in Burchmore Road, and surrounding development. I think the proposal does this. It is not necessary to replicate the particular architectural style (even if one existed), only that it relate favourably. The more modern architectural style that is proposed is different in appearance from other properties in the vicinity, but not in scale and siting at the front of the property. The proposal presents from the street as detached dwellings with consistent street setbacks, separation between buildings and height, notwithstanding the minor departures from a number of standards; a fact accepted by Mr Layman.
The residential buildings at the rear have a different context to the houses facing Burchmore Road. They are not generally visible from Burchmore Road (except down the access road) and are located at a much lower level. These buildings also adjoin the apartment buildings along the eastern boundary of the site and are lower in height than the apartment buildings. I can also conclude that these buildings relate favourably to the pattern and scale of the street and surrounding development.
In terms of the proposed landscaping and its relationship with the landscape character of the street and surrounding development, I accept that Ms Sonter's landscape plan in conjunction with the retention of a number of existing trees, adequately satisfies the requirement of the standard.
(b) Building height The development standards for building height in the G7 locality state: Buildings are neither to exceed 2 storeys nor 8.5 metres, except within the areas shown as "medium density areas" on the map.
Within the medium density areas, buildings are neither to exceed 3 storeys nor 11 metres.
Buildings must comply with both the maximum height measured in storeys and the maximum height measured in metres.
To measure the height of a building: · the maximum height in metres is the distance measured vertically between the topmost point of the building (not being a vent or chimney or the like) and natural ground level below, · a storey is the space between two floors, or the space between any floor and its ceiling or roof above. · foundation spaces, garages, workshops, store rooms and the like which do not project more than 1 metre above natural ground level (at any point) are not counted as storeys, · the number of storeys is the maximum number of storeys which may be intersected by the same vertical line, not being a line which passes through any wall of the building. Buildings are not to exceed 2 storeys in height. Consent may be granted for a building of more than 2 storeys outside the medium density areas, and on significantly sloping land, but only if the additional storey: · does not exceed the 8.5 metre height standard, and · is designed and located to minimise the bulk of the building, and · has minimal visual impact when viewed from the downslope sides of the land.
Two issues were raised in relation to the number of storeys and building height: (i) Mr Layman states that the rear elevation of the four houses present as three storeys. Mr Layman notes the sectional drawings show a level of 1.3 metres above natural ground for the four houses, therefore making these three storeys in height. (ii) House 4 also exceeds the 8.5 metre height requirement, although Mr Layman states that this could be rectified with an amendment to the ceiling height and floor levels. Ms Eveleigh acknowledges that the height variation is "very minor" although she maintains that compliance is required.
There was agreement by the Applicant that the houses did not satisfy the storey requirement by some 300 millimetres and that part of the roof of house 4 breached the 8.5 metre height limit. Mr Strudwick describes the non-compliance with the storey control as "minor" and notes that it occurs only at the rear section of the houses. He indicated that there is only a very minor encroachment of the height control for the roof of house 4.
Provision is made for the variation to the storey requirements in the building height standard (last paragraph) although the 8.5 metre height standard must be met. The variation to the height standard is extremely small and does not contribute to any perception of unacceptable or obvious height and as such I see no compelling reason to require compliance in this case. Additionally, I accept that the proposal is designed to minimise the bulk of the building and provide minimal visual impact when viewed from the downslope sides of the land. While Mr Layman was concerned that the houses presented as three storeys from the rear, this is a direct consequence of stepping the buildings down the site, which reduces their bulk and visual impact.
(c) Rear building setback The development standards for rear setback in the G7 locality statement state: The minimum rear building setback is 6 metres.
The rear building setback area is to be landscaped and free of any above or below ground structures.
To measure the rear building setback: · the rear building setback is the distance measured perpendicular to the boundary furthest from a public street up to any structure on the allotment.
The rear building setback does not apply to corner allotments.
Outside the medium density areas the rear building setback may be encroached by: · exempt development, swimming pools and outbuildings which, in total, do not exceed 50 per cent of the rear setback area. 49. While not raised in the Statement of Issues, Ms Eveleigh states that the four houses fail to meet the 6 metre setback; the setbacks ranging from 3.5 metres to 5.3 metres. Her evidence does not disclose the planning basis for her objection only that it does not satisfy the 6 metre standard.
Mr Strudwick notes the departures, but states that the houses could be made to comply although he does not consider it to be necessary.
In my view, the departures are not significant and occur at only parts of the houses. The 5.3 metre setback for houses 1, 2 and 3 occurs for a length of 3 metres while the living room is set back a distance of 6.5 metres for a length of some 4.5 metres. The upper level of these dwellings is set back 8 metres. House 4 has its rear elevation skewed to the rear boundary and excluding the ground floor balcony, is set back between 4.5 metres and 5.5 metres. The upper level is set back a minimum of 6.5 metres. Due to the changes in levels, landscaping and fencing there will be an acceptable impact on the apartment buildings to the east, in my view.
(d) Side boundary envelope and side setbacks The development standards for side boundary envelope and side setback in the G7 locality states: Buildings must be sited within an envelope determined by projecting planes at 45 degrees from a height of 4 metres above natural ground level at the side boundaries.
The minimum setback from a building to a side boundary is 0.9 metre except within the medium density areas where the minimum setback from a building to a side boundary is 4.5 metres.
Outside medium density areas: · fascias, gutters, downpipes, eaves up to 0.675 metre from the boundary, masonry chimneys, flues, pipes, or other services infrastructure may encroach beyond the side boundary envelope, · screens or sunblinds, light fittings, electricity or gas meters, or other services infrastructure and structures not more than 1 metre above natural ground level such as unroofed terraces, balconies, landings, steps or ramps may encroach beyond the minimum side setback. Consent may be granted for development outside medium density areas that, to a minor extent, does not comply with: · the side boundary envelope, to allow the addition of a second storey to an existing dwelling, or · the side setback, to allow a single storey outbuilding, carport, pergola or the like.
Ms Eveleigh states that the four houses do not comply with the side boundary envelope. She considers the wall height of all four houses is excessive, and results in excessive size, bulk and scale of the buildings when viewed from neighbouring properties. Further, she states it has not been demonstrated that suitable landscaping can be provided to screen the bulk of the development. House 4 also fails to comply with the minimum 900 millimetre setback for part of its northern boundary and where it adjoins the access driveway to the rear residential buildings.
Mr Strudwick states that the single departure from the 900 millimetre setback occurs for only part of the northern setback for house 4 situated next to the access driveway. The actual setback to the northern boundary of the site for this elevation is in the order of 6.5 metres when the driveway is taken into account. The breaches to the side boundary envelope occur only at parts of the houses and are the result of the fall of the land away from Burchmore Road. Overall, the breaches do not give rise to any adverse impacts in terms of visual bulk, privacy and solar access.
The plans show the departures to the side boundary envelope control are only minor. I accept the evidence of Mr Strudwick that this is essentially caused by the topography of the site and has an acceptable impact on surrounding properties. Similarly, the breach of the 900 millimetre setback occurs to a "minor extent" being only six metres of an overall wall length of around 18 metres for dwelling house 4. I also accept that Ms Eveleigh's concerns in relation to landscaping are satisfactorily addressed by Ms Sonter's landscape plan.
(e) Landscaped open space The development standards for landscaped open space in the G7 Locality Statement states: The minimum area of landscaped open space is 40 per cent of the site area, except within medium density areas where the minimum area of landscaped open space is 50 per cent of the site area. To measure an area of landscaped open space: · impervious surfaces such as driveways, paved areas, roofed areas, tennis courts, car parking and stormwater structures, decks and the like and any area with a width or length of less than 2 metres are excluded from the landscaped open space area, · the water surface of swimming pools and impervious surfaces which occur naturally such as rock outcrops are included in the landscaped open space area, · landscaped open space must be at ground level, · the minimum soil depth of land that can be landscaped open space is 1 metre.
Mr Layman calculates that houses 1, 2 and 3 do not achieve the 40% requirement and provide 32.3%, 33.6% and 33.8% respectively. Similar figures (31%, 32.2% and 31% respectively) were calculated by Ms Eveleigh although she calculated house 4 at 35%. Mr Strudwick did not differ significantly from the figures calculated by Mr Layman (32%, 33% and 36% respectively).
Notwithstanding the departure from the development standard Mr Strudwick concludes that the provision of landscaped open space is satisfactory. He suggests that the landscaped open space "should be examined in a broader context and in particular whether it satisfies the desired future character of the locality". He also relies on the satisfaction of the objectives of the open space controls although numerical standards are not met entirely. Further, each house complies with the requirements for private open space. Additionally, and on an overall assessment the proposal provides 39% for landscaped open space, which is only marginally below the 40% requirement.
On balance, I accept Mr Strudwick's arguments. I am mindful that while the side setback areas between the houses and their proposed boundaries does not satisfy the 2 metre minimum dimension, this area can contribute to the landscaped quality of the site. In most cases, the combined side setbacks between houses exceeds the 2 metre requirement. Ms Sonter's landscape plan addresses this area and I note little, if any, contrary evidence was put before the Court on her landscaping evidence. I am also aware that the inclusion of the side setback areas would see the houses achieve a level of landscaped open space in excess of the 40% standard.
GENERAL PRINCIPLES OF DEVELOPMENT 60. Applying the matters to be considered under cl 12(1)(a) as raised in the Statement of Issues the relevant general principles of development control in Pt 4 are:
(i) Natural features For convenience, I have grouped together the general principles of development control that relate to the impact on the natural features of the subject site. These are clauses: 56 Retaining unique environmental features on sites Development is to be designed to retain and complement any unique environmental features of its site and on adjoining and nearby land.
In particular, development is to be designed to incorporate or be sympathetic to environmental features such as rock outcrops, remnant bushland and watercourses. 57 Development on sloping land On sloping land, the height and bulk of development, particularly on the downhill side, is to be minimised and the need for cut and fill reduced by designs which minimise the building footprint and allow the building mass to step down the slope.
In particular: · the amount of fill is not to exceed more than 1 metre in depth, and · fill is not to spread beyond the footprint of the building The geotechnical stability of sloping land to support development is to be demonstrated. Consent must not be granted for development involving the erection of a structure, including additions to an existing structure, on land identified as being potentially subject to landslip on the Landslip hazard Map unless the consent authority has considered a report from a suitably qualified engineer as to the geotechnical stability of the land to support such development and an assessment of stormwater prepared by a suitably qualified hydraulic engineer.
58 Protection of existing flora Development is to be sited and designed to minimise the impact on remnant indigenous flora, including canopy trees and understorey vegetation, and on remnant native ground cover species. 77 Landfill Landfill is to have no adverse impact upon the visual and natural environment or adjoining and surrounding properties.
In particular: · only uncontaminated fill is to be used, and · the form, bulk, scale, and location of landfill are to be controlled to ensure there will be no adverse impacts on adjoining or surrounding properties, and · the integrity of the physical environment is to be preserved by ensuring the geotechnical stability of the work, and · the landfill is not to create siltation or pollution of waterways and drainage lines, or degrade or destroy the landscape, landforms or bushlands, and · rehabilitation and revegetation techniques are to be applied to the fill to maintain and enhance visual and scenic quality, and · landfill is not to create airborne pollution.
The impact on the natural features of the subject site centres around two areas. These are the ability to retain the Sydney Red Gum (angophora costata) near the northern boundary and the impact of the proposed retaining structure on the rock shelf located between the houses and the rear residential buildings.
In relation to the Sydney Red Gum, the potential impact from the driveway which goes to the basement carpark for the rear residential buildings was an issue between the parties. While there was some dispute over the exact location of the tree, I am not convinced that the small distance that was still in dispute is material. Similarly, the differences over the location of the limbs of this tree is also not so weighty as to justify refusal of the application.
The potential impact of the driveway on the longevity of the Sydney Red Gum was subject to expert evidence from Mr Theyer and Ms Sonter for the Applicant, and Mr Machin for the Council. Mr Theyer and Ms Sonter stated that the Sydney Red Gum would survive into the long term. Mr Machin stated that the tree would survive in the "interim period" meaning 5 - 15 years, but could not guarantee that the tree would survive beyond the interim period. While the experts did not totally agree, the general consensus was that the Sydney Red Gum would be adequately protected, at least if the proposed conditions in Exhibit M were implemented, notwithstanding the proximity of the proposed driveway.
In terms of cl 58, I accept the particular design proposed by the Applicant minimises the potential impact on the tree. Retention of the Red Gum provides for maintenance of the native canopy to a significant degree. While some of the existing trees are to be removed the landscaping plan provides for their replacement and additional planting.
In relation to the rock shelf, Mr Layman sees the proposal as demonstrating no regard for the retention of this feature. Further, the fill reaches a depth of 3 metres at the rear of the houses, well beyond their footprint. Mr Layman maintains that as the retaining wall needs to be 38 metres long to retain the fill it exacerbates privacy impacts on the lower level rear residential buildings. He describes the retaining wall as a "tall, visually intrusive element" (Exhibit 7, p 28). Mr Layman's concerns are supported by Ms Eveleigh who describes this part of the proposal as "insensitive nor design responsive to the physical and environmental features of the site" (Exhibit 5, p 28).
Mr Strudwick, on the other hand, sees the rock shelf as not of such environmental or aesthetic significance to warrant incorporation within the design. He notes that it is hidden within the site and not clearly visible or appreciated from adjoining sites or the public street. While the fill exceeds the 1 metre specified in cl 57, it is located in the rear yards of the houses to provide useable open space. Mr Strudwick states that the proposal satisfies the intent of the general principle by: · "stepping" the proposal down the site, · having an acceptable visual impact when viewed from the downslope, · not being readily visible from adjoining properties, · the view of the houses will be impeded by surrounding development, · simply formalising the existing characteristics of the site, and · having no adverse impact on the adjoining properties.
Clause 56 deals with "unique environmental features" on site. For some guidance, the Macquarie Dictionary, Revised 3rd edition, defines "unique" as: 1. of which there is only one; sole. 2. having no like or equal; standing alone in comparison with others; unequalled. 3. remarkable, rare or unusual: a unique experience. 69. The evidence did not suggest that the rock outcrop would fall within the meanings of "unique" outlined in the Macquarie Dictionary. While it is a feature of the site it could not be seen as unique nor warranting special consideration in the design of the proposal.
The height of the retaining structure varies from around 900 millimetres at the north to around 2.8 metres towards the south. A further fall occurs to the lower level of the outdoor areas of the rear residential buildings. This ranges from around 1.9 metres in the north to around 1.7 metres in the south. Currently, the natural change in level is mainly obscured with vegetation or man made features and any glimpses of natural features are limited. This area is to be landscaped and according to Ms Sonter's evidence, will lessen the perception of bulk. In my opinion, the stepping of the fill from the rear yards of the houses, through the pathway to the terraced open space area of the rear residential buildings provides an acceptable treatment to this part of the subject site, when combined with the proposed landscaping.
In terms of cl 57, I accept that the proposal is satisfactory. While the fill exceeds 1 metre in height and spreads beyond the footprint of the building, the particular topographic features of the site must be considered. The proposal does not present as being overly high or bulky because of the stepping of the houses down the site. The landfill, while exceeding 1 metre in height does not create any internal or external concerns.
The requirement in cl 77 that landfill have "no adverse impact upon the usual and natural environment or adjoining and surrounding properties" is also satisfied by the proposal in my view.
(ii) Access to Sunlight The general principles of development provide, in cl 62, the following controls for access to sunlight: Development is not to unreasonably reduce sunlight to surrounding properties.
In the case of housing: · sunlight, to at least 50% of the principal private open spaces, is not to be reduced to less than 2 hours between 9 am and 3 pm on June 21, and · where overshadowing by existing structures and fences is greater than this, sunlight is not to be further reduced by development by more than 20%. Similar standards for sunlight are also provided in cl 64, concerning sunlight in private open space.
Mr Mills and Mr Sproul were directed to confer on their evidence on the impact of shadowing. Both used different techniques (Mr Mills by hand and Mr Sproul by computer). Although they agreed that the shadow diagrams were essentially the same, they differed somewhat in the measured areas and neither were prepared to confidently say which of their calculated areas of sunlight was correct.
It was agreed, however, that 11 of the 16 dwellings complied. The non-compliances were located at houses 1 and 4 and units 5, 6 and 12 within the rear residential buildings.
For the two-bedroom dwellings in the rear residential buildings a minimum of 17.5 square metres is required for at least two hours between 9.00 am and 3.00 pm on June 21. For the houses and the three-bedroom dwellings in the rear residential buildings a minimum area of 30 square metres is required for the same time period.
The comparative figures provided by Mr Mills and Mr Sproul are shown below for the five dwellings in dispute:
Residential dwelling SPROUL MILLS (house 1) (sq. metres of sunlight) (sq. metres of sunlight) 10 am 30.6 28.1 10.30 am 33.8 30.9 11 am 35.6 33.4 12 noon 30.0 27.5 12.30 pm - - 1 pm - -
Residential dwelling (house 4) 10 am 26.3 26.6 10.30 am 25.6 26.4 11 am 26.2 26.8 12 noon 25.8 24.4 12.30 pm - - 1 pm - -
10 am - - 10.30 am 11.1 10.6 11 am 17.6 16.1 12 noon 18.8 15.5 12.30 pm 17.4 13.7 1 pm 15.0 10.8
10 am - - 10.30 am 10.0 10.4 11 am 18.4 17.1 12 noon 19.3 17.5 12.30 pm 17.1 14.8 1 pm 12.8 11.1
10 am - - 10.30 am 17.4 15.8 11 am 15.4 19.4 12 noon 20.3 19.5 12.30 pm 17.6 16.3 1 pm 14.0 12.5
Based on these figures (and even using the lower figures) I accept that the development does not unreasonably reduce sunlight to surrounding properties on site under cl 62. In relation to cl 64, the largest departure occurs at house 4 and is in the order of three to four square metres, the minimum being 30 square metres. The departures from the two hour standard are small and given the north/south orientation and the topography of the development the access to sunlight is acceptable.
(iii) Building bulk The general principles of development provide controls for building bulk in cl 66: Buildings are to have a visual bulk and an architectural scale consistent with structures on adjoining or nearby land and are not to visually dominate the street or surrounding spaces, unless the applicable Locality Statement provides otherwise.
In particular: · side and rear setbacks are to be progressively increased as wall height increases · large areas of continuous wall planes are to be avoided by varying building setbacks and using appropriate techniques to provide visual relief, and · appropriate landscape plantings are to be provided to reduce the visual bulk of new buildings and works.
Mr Layman raises a number of specific concerns over the bulk of the proposal. He sees the proposal creating a bulky, hard surfaced appearance where the access driveway adjoins house 4 as viewed from Burchmore Road. Also, the side elevations of the houses present as large areas of continuous wall planes and are generally unrelieved by fenestrations. He also sees the three storey appearance, the close spacing of the houses, the length and height of the retaining wall and limited side setbacks as contributing to the bulk. Mr Layman accepts that landscaping can be used to reduce unusual bulk but that this has not been appropriately dealt with in the proposal.
Mr Strudwick states that the proposal will be viewed in the context of adjoining and nearby development. The height and bulk of the houses will be compatible with other two storey dwellings in Burchmore Road. The position below street level further reduces their prominence. He rejects Mr Layman's concerns over the side setbacks and that the elevations are not progressively set back on the basis that additional setbacks are not required for privacy, solar access or to reduce visual prominence. The rear residential buildings are not a visible feature of the streetscape and in any event are compatible in scale with the larger dwellings in the area and in pattern and scale with the adjoining apartment buildings.
On this issue, I am more persuaded by the evidence of Mr Strudwick. Building bulk is made up of a number of factors including height, setbacks, design landscaping, and elevation presentation. I agree with Mr Strudwick that there is no overpowering need to set back the upper levels of the rear residential buildings as they are largely out of sight when viewed from Burchmore Road. I am also mindful of the proposed landscaping. Similarly, the areas of the side elevations are not prominent and there is provision of adequate landscaping. While the northern elevation to house 4 will be more prominent and will have no opportunity for landscaping for a small part of its length, it is not sufficient to warrant the refusal of the application.
(iv) Landscaped open space The general principles of development provide the following controls for landscaped open space in cl 63: Landscaped open space is to be of such dimensions and slope and of such characteristics that it will: · enable the establishment of appropriate plantings to maintain and enhance the streetscape and the desired future character of the locality, and · enable the establishment of appropriate plantings that are of a scale and density commensurate with the building height, bulk and scale, and · enhance privacy between dwellings, and · accommodate appropriate outdoor recreational needs and suit the anticipated requirements of dwelling occupants, and · provide space for service functions, including clothes drying, and · facilitate water management including on-site detention and the infiltration of stormwater, and · incorporate the establishment of any plant species nominated in the relevant locality Statement, and · conserve significant features of the site.
While Mr Layman's concerns initially related to the loss of the Sydney Red Gum, which the Applicant now proposes to retain, he still expresses concern over the impact from the loss of other trees and the treatment of the rock shelf. In his opinion, "other plantings could be provided in the landscaped open space but it is not of sufficient dimensions to adequately balance building bulk and the scale of development".
Mr Strudwick relies on the landscape plan of Ms Sonter to conclude that the proposed landscaping will be compatible with the existing streetscape. The existing landscaped character will be embellished with the provision of additional plantings to enhance the appearance of the street and the area in general. He considers that the landscaped open space associated with each dwelling is able to accommodate facilities normally associated with residential living.
On this matter I accept that appropriate plantings can be provided to maintain and enhance the streetscape and the desired future character of the locality. The landscape plan provided by Ms Sonter was largely unchallenged. There was also no evidence to suggest that appropriate recreational needs could not be provided or that any of the other matters raised in cl 63 were not adequately addressed.
(v) Site Facilities The general principles of development in cl 70 provide the following controls for site facilities: Site facilities including garbage and recycling bin enclosures, mailboxes and clothes drying facilities are to be adequate and convenient for the needs of users and are to have minimal visual impact from public places. In particular: · waste and recycling bin enclosures are to be adequate in size, durable, integrated with the building design and site landscaping, suitably screened from public places or streets and located for convenient access for collection, and · housing which is required to have landscaped open space is to be provided with adequate open air clothes drying facilities which are suitably screened from public places or streets, and · individual dwellings are to be provided with an area for general storage.
Mr Layman states that the mailboxes for the rear residential buildings are not shown on the plans. Additionally, garbage and recycling arrangements require bins to be transported from the basement carpark to near the street frontage for collection. Also, the garbage collection alcoves near the street frontage are not screened. Similar concerns are expressed by Ms Eveleigh.
Mr Strudwick indicated that the concerns of Mr Layman and Ms Eveleigh could be overcome by a contractor using a smaller vehicle to pick up the garbage and recycling for the basement area. He described this as a common approach in his experience.
This is not a matter that is fundamental to the determination of this appeal but is a matter that needs to be clarified and reflected in the conditions of approval, which has been done in conditions 102 to 105.
MATTERS RAISED BY OBJECTORS 91. The residents raised the following additional issues: · traffic/safety/parking · loss of trees · incompatibility of dwellings/character/density · noise from driveway Issue 11 in the Statement of Issues provides "Whether the appeal should be dismissed having regard to the objections and matters raised by the local residents".
CLAUSE 12(3) - CONSIDERATION OF DESIRED FUTURE CHARACTER 96. Clause 12(3) requires that before granting consent for development classified as Category One (as in this case) the Court must consider the desired future character described in the relevant Locality Statement. As cl 20 requires a more rigorous test in relation to the desired future character of the locality, namely that a development must be "consistent with" the desired future character, this issue will be considered in relation to cl 20.
CLAUSE 20(1) - LEP 2000 97. Clause 20(1) allows development consent to be granted even if a development does not comply with one or more development standards, providing the development is consistent with the general principles of development control and the desired future character of the locality.
The application of the term "consistency" has been addressed by the Court on a number of occasions and was found to mean not antipathetic, nor incompatible or inconsistent with. (See Schaffer Corporation Ltd v Hawkesbury City Council (1992) 77 LGRA 21 (at 27), Coffs Harbour Environment Centre Inc v Coffs Harbour City Council (1991) 74 LGRA 185 (per Clarke JA at 192), Bodyline Spa & Sauna (Sydney) Pty Ltd v South Sydney City Council (1992) 77 LGRA 432 (at 439), Hospital Action Group Association Inc v Hastings Municipal Council (1993) 80 LGERA 190, and Kanne Pty Ltd v Botany Bay City Council [2001] NSWLEC 163 (at par [25] - [28])).
The proposal does not comply with a number of the development standards. The departures are addressed earlier in the judgment. However, due to the minor nature of these breaches and the minimal impact that the breaches create I have found that they are justified in this instance.
I consequently find that the proposal, notwithstanding the departures to the development standards, is consistent with the general principles of development control. An assessment of the relevant general principles of development control found some departures but not to the extent that would make the proposal inconsistent with the particular general principle.
The other matter required to be considered pursuant to cl 20(1) is the desired future character of the locality. I have already found that the rear residential buildings are not "apartment development" and that the proposal generally is consistent with the predominant pattern, size and configuration of existing detached dwellings in the locality.
Further, the locality statement requires "streets will be characterised by landscaped front gardens and consistent front building setbacks" and the "spread of indigenous tree canopy will be protected and enhanced throughout the locality". The "landscaped setting" will continue with this development.
I can conclude that the development will be consistent with the need to "maintain the visual pattern and predominant scale of existing detached housing in the locality". The proposal is also consistent with the requirement that "streets will be characterised by landscaped front gardens and consistent front building setbacks." The "spread of indigenous tree canopy will be protected and enhanced" through the retention of the Sydney Red Gum and the proposed landscaping.
There is no planning reason why the provisions of cl 20(1) should not be used to vary the departures to the development standards and general principles of development control in this instance.
SUBDIVISION 105. Clause 21 of LEP 2000 is titled "Can land be subdivided?" and states "land can be subdivided so long as…(b) the resulting allotments contain buildings or works lawfully created or approved". Schedule 7 (referred to in cl 21(3)) provides specific "matters for consideration in the subdivision of land" if it applies. In relation to lot dimension, Sch 7 specifically provides that it does not apply to new allotments proposed pursuant to cl 21(1)(b).
CONDITIONS 109. Of the Council's draft conditions, the Applicant objected to the following: Condition 63: The developer/applicant must lodge with Council, prior to the issue of the Construction Certificate, a Security Deposit/Bank Guarantee of $30,000 to ensure compliance with the approved engineering plans and Council's standard specifications. The deposit/guarantee will only be refunded on completion of the Maintenance Period, if the work has been completed in accordance with the approved plans, conditions, and to the satisfaction of the principal consent authority. Requests for refund must be made in writing to the Council.
A Maintenance Period of six (6) months shall apply to the work, after it has been completed and approved in writing by Council. In that period the applicant shall be liable for any part of the work which fails to perform in the manner outlined in Council's specifications for engineering works, or as would be reasonably be expected under the design conditions. (cl 14) Mr Parry submitted that there was no power to impose the condition. Mr Wilson disagreed, indicating that bonds are regularly imposed in development consents for different purposes, including tree retention. The argument over power was not pursued by either party with any depth to allow the Court to determine the issue on this argument. I am not convinced the bond is necessary when the Council, as the certifying authority, has the option, in ensuring compliance with the approved engineering plans, of not giving approval to these if there is non-compliance. Accordingly, the condition can be deleted.
Mr Parry submitted that condition only reiterated the law and as such was not necessary for the condition to be imposed. Mr Wilson agreed with Mr Parry and on this basis the condition can be deleted.
ORDERS For the foregoing reasons, the Orders of the Court are:
Conditions Land and Environment Court Proceedings No. 10760 of 2001 42-48 Burchmore Road, Manly Vale August 2002
architectural plans A0001G A0002G A0003G A0004G A0005G A0006G A0007G A0008G A0009G Prepared by Macphail & Sproul Architects,
landscape plan: No LCP.011B Prepared by Narelle Sonter, dated 12 April 2002
Stormwater drainage plans: Job No.000347, Drawing No. D01 - D06 dated April 2002 prepared by Northern Beaches Consulting Engineers Pty Ltd,
As modified by any conditions of this consent/approval. (C1)
At least 2 days prior to work commencing on site Council must be informed, by the submission of Form 7 of the Environmental Planning and Assessment Regulation 1998 of the name and details of the Principal Certifying Authority and the date construction work is proposed to commence. (C168).
Compliance with Building Code of Australia a. All building work must be carried out in accordance with the provisions of the Building Code of Australia. b. This clause does not apply to the extent to which an exemption is in force under Clause 187 or 188, subject to the terms of any condition or requirement referred to in Clause 187(6) or 188(4). (C375)
Payment of the Long Service Leave Levy is required prior to the release of the Construction Certificate. This payment can be made at Council or to the Long Service Payments Corporation. This payment is not required where the value of the works is less than $25,000. (C3)
Change of building use: a. A building in respect of which there is change of building use must comply with the Category 1 fire safety provisions applicable to the proposed new use. NOTE. The obligation under this subclause to comply with the Category 1 fire safety provisions may require building work to be carried out even though none is proposed or required in the relevant development consent. b. This clause does not apply to the extent to which an exemption is in force under Clause 187 or 188, subject to the terms of any condition or requirement referred to in Clause 187(6) or 188(4). c. In this clause, Category 1 fire safety provision has the same meaning as it has in Part 7B. (C376).
Residential Building Work a. Building work that involves residential building work (within the meaning of the Home Building Act 1989) must not be carried out unless the principal certifying authority for the development to which the work relates: (i) in the case of work to be done by a licensee under the Act: A. has been informed in writing of the licensee's name and contractor licence number, and B. is satisfied that the licensee has complied with the requirements of Part 6 of that Act, OR (ii) in the case of work to be done by any other person: A. has been informed in writing of the person's name and owner-builder permit, number, or B. has been given a declaration, signed by the owner of the land, that states that the reasonable market cost of the labour and materials involved in the work is less than the amount prescribed for the definition of owner-builder work in section 29 of the Act, and is given appropriate information and declarations under paragraphs (i) and (ii) whenever arrangements for the doing of the work are changed in such a manner as to render out of date any information or declaration previously given under either of those paragraphs. NOTE. The amount referred to in paragraph (ii) B is prescribed by regulations under the Home Building Act 1989. Currently the amount is $5,000. As regulations are amended from time to time, this amount may be subject to change.
b. A certificate purporting to be issued by an approved insurer under Part 6 of the Home Building Act 1989 that states that a person is the holder of an insurance policy issued for the purposes of that Part is, for the purposes of this clause, sufficient evidence that the person has complied with the requirements of that Part. (C377)
Excavations and Backfilling a. All excavations and backfilling associated with the erection or demolition of a building must be executed safely and in accordance with appropriate professional standards. b. All excavations associated with the erection or demolition of a building must be properly guarded or protected to prevent them from being dangerous to life or property. (C378)
Street number being affixed to building prior to occupation. (C322)
Retaining Walls and Drainage If the soil conditions require it: a. retaining walls associated with the erection or demolition of a building or other approved methods of preventing movement of the soil must be provided, and b. adequate provision must be made for drainage. (C379)
Support for Neighbouring Buildings a. If an excavation associated with the erection or demolition of a building extends below the level of the base of the footings of a building on an adjoining allotment of land, the person causing the excavation to be made: (i) must preserve and protect the building from damage, and (ii) if necessary must underpin and support the building in an approved manner, and (iii) must, at least 7 days before excavating below the level of the base of the footings of a building on an adjoining allotment of land, give notice of intention to do so to the owner of the adjoining allotment of land and furnish particulars of the excavation to the owner of the building being erected or demolished.
b. The owner of the adjoining allotment of land Is not liable for any part of the cost of work carried out for the purposes of this clause, whether carried out on the allotment of land being excavated or on the adjoining allotment of land.
c. In this clause, allotment of land includes a public road and any other public space. (C380)
Your attention is directed to the need to seek advice of your obligations from the Work Cover Authority. (C331)
Protection of Public Spaces a. If the work involved in the erection or demolition of a building: (i) is likely to cause pedestrian or vehicular traffic in a public place to be obstructed or rendered inconvenient, or (ii) involves the enclosure of a public place, a hoarding or fence must be erected between the work site and public place.
b. If necessary, an awning is to be erected, sufficient to prevent any substance from, or in connection with, the work falling into the public place.
c. The work site must be kept lit between sunset and sunrise if it is likely to be hazardous to persons in the public place.
c. Any such hoarding, fence or awning is to be removed when the work has been completed. (C381)
Signs to be Erected on Building and Demolition Sites. (C382) a. A sign must be erected in a prominent position on any work site on which work involved in the erection or demolition of a building is being carried out: (i) stating that unauthorised entry to the work site is prohibited, and (ii) showing the name of the person in charge of the work site and a telephone number at which that person may be contacted outside working hours.
b. Any such sign is to be removed when the work has been completed.
c. This clause does not apply to: (i) building work carried out inside an existing building, or (ii) building work carried out on premises that are to be occupied continuously (both during and outside working hours) while the work is being carried out.
Toilet Facilities a. Toilet facilities are to be provided, at or in the vicinity of the work site on which work involved in the erection or demolition of a building is being carried out, at the rate of one toilet for every 20 persons or part of 20 persons employed at the site. b. Each toilet provided: (i) must be standard flushing toilet, and (ii) must be connected:
B. if connection to a public sewer is not practicable, to an accredited sewage management facility approved by the Council, or
C. if connection to a public sewer or an accredited sewage management facility is not practicable, to some other sewage management facility approved by Council.
c. The provision of toilet facilities in accordance with this clause must be completed before any work is commenced.
d. In this clause: (i) accredited sewage management facility means sewage management facility to which Division 4A of Part 3 of the Local Government (Approvals) Regulation 1993 applies, being a sewage management facility that is installed or constructed to a design or plan the subject of a certificate of accreditation referred to in Clause 95B of the Regulation. (ii) approved by the council means the subject of an approval in force under Division 1 of Part 3 of the Local Government (Approvals) Regulation 19933. (iii) public sewer has the same meaning as it has in the Local Government (Approvals) Regulation 1993. (iv) sewage management facility has the same meaning as it has in the Local Government (Approvals) Regulation 1993. (C383)
Submissions at the Construction Certificate stage of the anticipated schedule of current and proposed fire safety measures to be implemented on the building, and such fire safety schedule shall specify the minimum standard of performance for each fire safety measure. (C371)
To ensure the safety of occupants of the building a "Fire Safety Certificate" which identifies the schedule of "Fire Safety Measures" that have been completed to satisfactory standard shall be provided to Council prior to the issue of an "Occupational Certificate" as required in Part 7B of the "Environmental Planning and Assessment Amendment Act 1997". (C387)
A Construction Certificate is required to be approved by either Council or an Accredited Certifier, prior to the commencement of any works on the site. (C165)
Visitor carparking being permanently available; not reallocated and clearly marked. (C14).
Trade materials , product and plant to be kept within the confines of the buildings at all times. (C30)
Where Council is the Principal Certifying Authority a surveyor certificate prepared by a registered Surveyor being submitted at the following stages of construction:
a. commencement of perimeter walls to ensure the wall to boundary setbacks are in accordance with the approved details:- (i) courses of brickwork (ii) engaged piers; (iii) structural support poles/columns of the building.
b. At ground level to ensure the finished floor levels are in accordance with the approved levels, prior to concrete slab being poured/flooring being laid.
c. At completion of the roof frame confirming the finished roof/ridge height is in accordance with levels indicated on the approved plans. (C323)
All car spaces being line marked in accordance with eth carparking layout provided on the approved plans. (C342)
The Construction Certificate not be issued until approval is provided from the Trade Waste Branch of Sydney Water for connection to the sewer. (C154)
Mechanical ventilation systems shall comply with the requirements as set out in AS53666 and the "Code of Practice for the Control of Legionnaire's Disease"- where applicable. (C249)
The external finish to the roof shall have a medium to dark range in order to minimise solar reflections to neighbouring properties. The metal roof shall not be of light colours such as off white, cream, silver or light grey colours. (C305)
Hours of construction being restricted to 7am to 5pm Monday to Friday, Saturday 7am to 1pm if audible at residential premises, excluding public holidays. No audible construction work to take place outside these hours. (C326)
Termite control measures being installed in accordance with AS 3660.1-1995 "Protection of Buildings from Subterranean Termites. Part 1:New Buildings." (C263)
A durable notice is to be permanently fixed to the building in a prominent location, such as the meter box or the like, indicating: The method of termite protection; date of installation; life expectancy of chemical barrier (if used); and installer's or manufacturer's recommendations for the scope and frequency of future inspections for termite activity. (C264)
The land is subject to a Tree Preservation Order and no trees other than those expressly granted permission as a result of this development consent, may be removed without the prior consent of Council. (C38)
Trees to be retained on-site shall be protected by the erection of suitability sturdy protective fencing prior to site works. The Construction certificate shall not be issued until adequate details are provided to verify that such fencing is to be suitably provided and maintained. (C40)
All works on the site shall be undertaken to prevent erosion and transport of soil and sediment off the site and onto adjoining properties. Measures shall be taken in accordance with the requirements of Warringah Council's Specification for Erosion and Sediment Control. A plan shall be submitted to the council or certified prior to issue of the Construction Certificate. (C41)
The payment of $1000 to account Reg 009 - *TF 036 prior to issue of a construction certificate as security to ensure that: a. all silt and sediment control measures are installed and maintained; b. there is no transmission of material, soil etc off the site and onto the public road and/or drainage systems; and c. maintenance of all facilities in accordance with Council's Specification for Erosion Control and Sediment Control. (C42)
Provision shall be made throughout the period of construction to prevent transmission of soil to the public road and drainage system by vehicles leaving the site. (C44)
The subdivision of Lots 21,22, 23 & 24 in DP 6238 in accordance with the plans in Condition 1 and the registration of the appropriate survey plan by Land & Property Information (Land Titles Office). (C45)
Provision of easements to drain water over the interallotment and Council drainage lines within the site. (C48)
Creation of a Positive Covenant of the title of the land requiring the proprietor of the land to maintain any water quality control and/or stormwater detention structures required by this Consent, in accordance with the standard requirements of Council. The Positive Covenant is to be prepared by the Applicant using terms acceptable to, and which are available from Warringah Council. (C51)
Restrictions as to User shall be created over on-site detention systems, restricting any alteration to the levels and/or any construction on the land. The terms of such restriction to be prepared to Warringah Council's standard requirements at the Applicant's expense. Warringah Council shall be nominated as a party to release, vary or modify such restriction. (C53)
Where any conditions of this Consent require dedication, consolidation easement or covenant, the number allocated by Land & Property Information (Land Titles Office)to the documents and/or plans referred to shall be advised in writing to Warringah Council, together with a letter of intent to proceed with the creation of the easement, positive covenant and restriction to user, prior to Occupation. A certified copy of the documents shall be provided to Warringah Council after final approval and registration has been effected by Land & Property Information (Land Titles Office). (C57)
A Section 73 Compliance Certificate under the Sydney Water Act 1994 must be obtained. Application must be made through an authorised Water Servicing Coordinator; for details see the Sydney Water web site www.sydneywater.com.au\customer\urban\index or telephone 13 20 92.
Following application, a "Notice of Requirements" will be forwarded detailing water and sewer extensions to be built and charges to be paid. Please make early contact with the Coordinator, since building of water/sewer extensions can be time consuming and may impact on other services and building, driveway or landscape design.
The Section 73 Certificate must be submitted to the Principal Certifying Authority prior to release of the linen plan/occupation of the development. (C58)
Provision of an on-site stormwater detention facility to control the rate of stormwater runoff from the site to be in accordance with the current version of Warringah Council's publication "On-Site Stormwater Detention - Technical Specification".(C68)
Buildings to be located clear of any pipeline, natural watercourse or Warringah Council easement. Footings of any building adjacent to an easement or pipeline to be a minimum of 300mm below the invert if the pipe and may rise by 300mm for each 300mm removed there from. (C71)
The minimum finished floor level shall be R.L 3.20m AHD. (C72)
Adequate provision shall be made to permit the flow of surface runoff and floodwaters from upstream properties throughout the subject site. (C73)
All new construction and services to a minimum level of 3.20*m AHD shall be designed to withstand flooding in accordance with the requirements specified in the New South Wales Floodplain Development Manual. Buoyancy, flowing water and debris, wave action, the flood compatibility of materials and waterproofing shall be addressed. (C76)
The minimum finished floor level/s shall be 500mm above the predicted 1 in 100 year water surface level for the site and public drainage system. (C77)
Construction of a complete footpath 1.2 metres wide to Warringah Council's standard specifications for engineering works on an approved alignment within the grass verge in Burchmore Road. (C83)
Restoration and maintenance to approved levels and safe condition of the footway reserve/s adjoining Burchmore Road to Warringah Council's standard specification for engineering works. (C85)
Hoardings shall be installed before any work is commenced on site including construction/demolition, and shall remain in place for the duration of the work. A separate application to be made to Council for this purpose and appropriate fee paid. No construction access is permitted other than at the approved vehicle crossing/s. All loading, unloading and storage materials for works within the site shall take place within the hoarding enclosure. (C87)
The public footways and roadways adjacent to the site shall be maintained at all times during the course of the work in a safe condition. (C88)
Provision of 1 vehicle crossing/s, around 5 metres wide; and provision of 4 vehicle crossing (s), around 2.5 metres wide; in accordance with Warringah Council Drawing No A4-3330 to approved levels and specifications. An application for street levels is to be made prior to issue of the Construction Certificate. (C89)
Construction of approved kerb laybacks in accordance with the details shown on Warringah Council Plan A4-2276. (C90)
Reinstatement of redundant crossings and laybacks prior to issue of the final Compliance Certificate. (C91)
Adequate shoring to be provided to support the road reserve or other property during construction. Engineering drawings of this work are to be provided and approved by Council prior to commencement of any excavations, likely to effect the suitability of such road, reserve or property. (C94)
All design and construction of road drainage works within any road or public reserve shall comply with the Standard Specifications of Council. (C95)
Prior to finalising detailed designs of the propose development, the Applicant should check all existing public service utilities adjacent to the site and ensure that where necessary appropriate arrangements are made for the relocation and/or adjustment of any services at the Applicant's expense. (C96)
A declaration by a registered surveyor shall b provided to evidence that all construction has been effected within the appropriate property and easement boundaries. This shall be in the form of a copy of the final subdivision or easement plan, with the distances from the boundaries to the edges of these structures endorsed in red thereon and signed by the surveyor. (C97)
The requirements of condition (s) ending in code (s) shall be designed and supervised during the works by an Engineer with qualifications and expertise recognised by the Institute of Engineers Australia as being adequate for the purpose. The Engineer shall certify prior to occupation or release of Linen Plan of subdivision that the works have been completed strictly in accordance with the approved design and to appropriate standards of workmanship. (C98)
All fences, letter boxes and any other structures erected on the street alignment to conform to the approved back of footpath levels. The certifier to ensure that this is provided prior to issue of the Construction Certificate. (C101)
The developer/Applicant shall be responsible for all public utilities and services in the area of the work, and as such shall notify all relevant Authorities, and bear all costs associated with any repairs and/or adjustments as those Authorities may deem necessary. (C113)
A Consultant Engineer's Certificate is to be supplied to the Principal Certifying Authority on completion of the following stages of works and/or as and when requested by the Principal Certifying Authority.
a. Silt and sediment control facilities b. Laying of stormwater pipes and construction of pits for interallotment drainage h) Clean-up of site, and of adjoining Council roadway and drainage system. (** To be tested by a recognised N.A.T.A. approved laboratory). (C115)
The sediment and erosion control facilities are to be installed, and approved by the Principal Certifying Authority, prior to the commencement of any other works on the site. These facilities are to be maintained in working order during the construction works and up to the completion of the Maintenance Period. All sediment traps are to be cleared on a regular basis and after each major storm, and/or as directed by the Principal Certifying Authority, with all silt being removed from the site, or to an approved location within the site. (C116)
The developer/Applicant is to indemnify the Council against any liability which may arise out of or in consequence of carrying out the work and against all claims, demands, proceedings, costs, charges and expenses whatsoever in respect thereof or in relation thereto.
In this regard, the developer/Applicant shall take out a public liability policy during the currency of all the works, in the sum of not less than $5,000,000 endorsed with Council as principal, and keep such policy in force at his own expense. A certificate form the developer/Applicant's insurers to this effect is to be lodged with Council before any work is commenced.
The amount of Common Law Liability insurance shall be unlimited. ( C119)
Driveway gradients within the private property not exceeding a maximum ratio of 1:4 with transient slopes of 1.5 metres at a grade not steeper than 1:10. Access levels across road reserve to comply with Warringah Council access requirements. (C163)
Kerb, footpath and landscaping to yard and road reserve area being reinstated to the redundant driveway location. (C294)
Stormwater being piped to Warringah Council's street drainage system. (C300)
The provision of a drainage easement over the development site to receive collected stormwater from the upstream easement. Such easement to be created and lodged with the Land Tittles Office prior to release of the Construction Certificate. (C156)
The on-site detention system and associated drainage works are to be constructed generally in accordance with the drainage plan submitted by Northern Beaches Consulting Engineers Pty Ltd - Job No. 000347, Drawing No. D01 - D06. Full engineering details are to be submitted in accordance with Council's on-site detention technical specification and approved by the private certifier/Council before release of the Construction Certificate. (C511)
The submission to Council of four (4) copies of Civil Engineering plans for the design of the stormwater drainage works required to convey the stormwater discharge from the development site to the existing Council drainage system. The drawings are to include long and cross sections and details of proposed structures and specifications. A details investigation of the existing drainage system located in the downstream easement and in the surrounding areas is required in order to perform a suitable design to cater for the piped discharge from the development site into the receiving system. The pipeline intended for the easement is to have the capacity to cater for a 1 in 100 yr ARI storm event as discharged off the development site. The fundamental criteria of the design is that it is not to have any increased impacts in regards to flooding on any surrounding areas including existing dwellings downstream of the site. Therefore the pipeline works for the development are to continue until a safe surcharge point from the pipes drainage can be obtained with no threat to existing properties and public safety. Council's minimum requirements for the pipeline is to include a RCP with any overland flow paths or swales etc to only include concrete lining when the intended velocity of the flow path will exceed the scouring velocity of turf. Such design shall be:
· Prepare and submitted on A1 size sheets' · Undertaken by a Consulting Civil Engineer (or by such other person as may be approved by Council), · Approved and stamped by Council prior to the issue of the construction certificate, · Subject to the prescribed Engineering Development Fees paid to Council prior to the issue of the construction certificate (to be paid into Account WCP 20340 0999)., · Upon completion of the works, the applicant is to provide to Council 2 copies of "work as executed plans". The plans are to show relevant dimensions and finished levels and are to be certified by a surveyor. Also the applicant is to provide to Council in an approved format details of all public infrastructure created as part of the works, · All Civil Engineering works in the easement are to be fully supervised by the consultant responsible for their design, or by such person as may be approved by Council, and on completion certified to be in accordance with the approved plans, conditions of construction and Council's standard specification for engineering works, · A maintenance period of six (6) months shall apply to the work, after it has been completed and approved in writing by Council. In that period the applicant shall be liable for any part of the work which fails to perform in the manner outlined in Council's specifications, as would reasonable be expected under the design conditions. Council will require a Security Deposit/Bank Guarantee prior to issue of the final compliance certificate or subdivisions certificate to ensure rectification of any defects during the maintenance period.
Pursuant to the requirements of Clause 49a of Warringah Local Environmental Plan 20-00, the Principal Certifying Authority is to consider an acid sulfate soils management plan prepared in accordance with the Acid Sulfate Soils Assessment Guidelines. However, an acid sulfate soils management plan is not required where a preliminary assessment of the proposed works undertaken in accordance with these guidelines indicates that the proposed works need not be carried out pursuant to an acid sulfate soils management plan, and a copy of the assessment has been given to the Principal Certifying Authority. The applicant is required to satisfy Clause 49a of the WLEP2000, to the satisfaction of the principal Certifying Authority prior to the issue of the Construction Certificate.
Balustrading above the 38 metre long retaining wall to comply with the requirements of the Building Code of Australia and relevant Australian Standards. Details to be submitted to the satisfaction of the principal certifying authority prior to the issue of the Construction Certificate.
The section of wall along the eastern boundaries of houses 1-4 which projects above the finished ground level of the gardens of those houses is to be deleted and replaced with a 1m high decorative steel fence with a decorative screen hedge of 1m in heights above the wall adjacent to the fence.
Appropriate fire protection measures in accordance with the requirements of the building Code of Australia and the relevant Australian Standards is to take place in association with House 4 wall and opening on the Northern Boundary. Details to be submitted to the satisfaction of the principal certifying authority prior to the issue of the construction certificate.
A fire Safety Schedule is to issue with the CONSTRUCTION Certificate for the proposed Class 2 and Class 7 building.
A suitably qualified horticulturist and a qualified engineer are both to certify a site plan indicating the construction access road and areas to be used for stockpiling of materials. The site plan is to be submitted to the satisfaction of the principal certifying authority prior to the issue of the construction certificate.
The removal of any branches from tree No. 9, an Agophora costata, and tree no. 10, a Jacarange mimosaefolia, and tree no. 20, a Brachychiton acerifolius, is to be carried out by a qualified arborist.
Stockpiling of materials and construction of access road (toe of batters) are to be located a minimum of 9.5m away from the trunk of tree NO. 9,. an Agophora costata, and 5.5 m from the trunk of tree No. 10, a Jacaranaga mimosaefolia.
Prior to the construction of the elevated driveway, the trunk of tree No.9, an Agophora costata, is to be protected with a trunk guard 2.5m high with impact absorbing material next to the trunk.
The driveway is to be located a minimum of 1m away from the trunk of tree No. 9, an Agophora costata.
Driveway pier holes that are located within the dripline of tree No. 9, an Agophora costata, are to be dug by hand, to a depth of 1m. If any structural tree roots are encountered the relocation f the pier holes will be necessary and any changes to the span between piers checked and adjusted by engineers.
A semi-mature tree (with a minimum height of 5m at planting and a mature of 8-10m) to be located in the courtyard of townhouse 4 in place of the present brushbox.
A 75 litre super-advanced Tristaniopsis laurina tree is to be located to the south of the proposed driveway along the northeastern boundary.
Tree no. 18, a Magnolia grandiflora is to be replaced with a 500 litre tree with a minimum dimension of 4.5 m high x 2m width.
Pier and beam footings are required to townhouse 8 to accommodate the roots of tree no. 20, a Brachychiton acerifolius. A canterlevered deck and relocation of the stormwater pipe will be required to protected the three.
Not less than 5 years after the date of this consent, the following trees may be removed without further consent or approval from the Council:
a. Norfolk Island Pine (tree 11B0 approximately 2m from the eastern boundary; b. Avocado tree (tree 11C) approximately 4.5m from the eastern boundaries; and c. Mango tree (tree 20A) approximately 3m from the eastern boundary.
Tree no. 2, a Melaleuca linariifolia is to be retained. The proposed retaining wall located around tree no. 2 as shown on the landscape plan prepared by Narelle Sonter of Botanica is to be deleted and the existing levels are to be maintained around the trunk of the trees. Tree protection fencing 2m from the trunk of the tree is to be erected prior to the demolition, earthworks and construction stages.
A sign be erected at the street frontage adjacent to the driveway indicating that that maximum clearance for use of the driveway is 2.2m.
A framed metal structure to the satisfaction of Council be erected immediately to the east of the boomgate which physically prevents vehicles of a height of greater than 2.2 m from proceeding down the driveway.
The driveway is to comply with Australian Standards. A revised driveway plan is to be prepared by a suitably qualified Traffic Engineer and be submitted to the satisfaction of the principal certifying authority prior to the issue of the construction certificate.
The stairs within the private open space of townhouse 11 be located east to enable access between the two levels.
DELETED 95. The building shall not be occupied until an Occupation Certificate has been issued. (C162)
Footpath and roadway being kept free of obstruction by building materials and plant. All concrete trucks, pumps and/or agitators being kept wholly within the building site. No concrete or slurry being discharged onto Council's street surfaces, nature strips, drains/gutters, reserves, parts etc. (C321)
Compliance Certificates are required at the following stages of construction:
a. Preliminary - immediately following the setting out of the development footprint prior to excavation and/or formation of footings or slabs with environmental protection measures and toilet facilities installed. b. Building Envelope - completion of the envelope skeleton prior to fixing of internal linings (where applicable). c. Fire Safety Services & Equipment - following the submission of a Final Fire Safety Certificate prior to the occupation. d. Final - prior to occupation/use, the satisfactory completion of the building works with respect to: (i) Compliance Certificates as nominated (ii) Compliance Certificates (components) as nominated (C396)
The fee(s) required for a Council Compliance Certificate is $440 and it is to be paid prior to Council issuing the Construction Certificate. NOTE: Each Compliance Certificate fee is $110. Where external accredited certifiers issue construction certificates an compliance certificates the above fee is not required. (C397)
The payment of the following developer contributions prior to the approval/release of the construction certificate.
Section 94 Estimation for 12 new dwelling $288 Open Space & Cycleways (6901) $48 Childrens Facilities (6902) $5184 Libraries (6903) $5352 Sport Field Establishment (6904) $5604 Open Space Establishment (6905) $6240 Administration and Studies (6922) $5712 Community Facilities (6906) $28428 Total
These amounts have been calculated using the Warringah Section 94 Contributions Plan. They are current at the time of issue of this Consent. They will be adjusted at the time of payment according to the quarterly CPA (Sydney - All Groups Index). An updated schedule Council's contribution rate is issued each quarter and is available at Council's office. Please ensure that you provide details of this Consent when paying contributions so that they can be easily recalculated. (C7)
The following component certificates are required to be submitted to Council where Council is the nominated principal certifying authority prior to occupation/use of the building, to ensure compliance with the Building Code of Australia and relevant Australia Standards: (C399)
a) Structural Engineer/Accredited Certifiers certificate covering the superversion of all structural work and adequacy of the building. b) Geotechnical Engineers report certifying that the foundation stability/stability of site excavation are adequate and in accordance with recommendations contained in Report on geotechnical investigation, prepared by Crozier & Associates, submitted 28 November 2001. c) Accredited Certifiers certificate which states the structural components of the building have a fire resistance level in accordance with the requirements of Part C of the Building Code of Australia for a Type C construction/and/the approved plan. d) Accredited Certifiers certificate stating the fire wall between Units dwellings complies with the requirements of Part C of the Building Cost of Australia/and/the approved plans. e) Acoustic Engineer/Accredited Certifiers certificate stating the installed wall between the dwellings complies with: the requirements of Part F5 of the building Code of Australia/and/the approved plans. f) Electrical contractors certificate stating the smoke alarm system has been installed in accordance with AS 3786-1993 "Fire Alarms". g) Plumbing and Drainage contractors certificate indicating that sewer/waste water system has been installed and completed in accordance with the Sydney Water requirements. h) Accredited waterproof installers certificate which certifies the waterproofing system has been applied in accordance with the manufacturers recommendation and AS 3470-1994 "Waterproofing of Wet Area In Residential Buildings". i) Mechanical Engineers certificate which certifies the air handling system has been designed, installed and is operational in accordance with the requirements of AS 1668-1991 "The use of mechanical ventilation and airconditioning in building, Part 1: Fire and smoke control"/Part 2: Mechanical ventilation for acceptance indoor-air quality".
j) Registered pest contractors certificate which states termite control measures have been installed in accordance with AS 3660.1 - 1995 "Projection of Buildings from subterranean termites Part 1 New Buildings". k) Registered Surveyors, Identification Survey report indicating the location of the completed development on the site in relation to all boundaries. l) Glazing installation contractor certificate stating all glazing has been selected and installed in accordance with AS 1288-1994 ad the appropriate terrain category classification. m) Drainage contractors Certificate certifying that the stormwater drainage system has been satisfactorily installed and completed. n) Accredited Certifiers certificate stating the Fire Resistance Level of the Divisional Wall between occupancies compiles with the requirements of Part 3.7.1.8 "Separating Walls" of the Building Code of Australia Housing Provisions. o) Acoustic Engineer/Accredited Certifiers certificate stating the Sound Transmission Class of the Divisional Wall between occupancies complies with the requirements of Part 3.8.6 "Sound Insulation" of the Building Code of Australia.
All demolitions are to be carried out in accordance with the guidelines contained in the Australian Standard AS2601-1991 - "The Demolition of Structures." (C525)
The garbage collection area on the northern boundary of the property is to be located on the property within 6.5 metres from the front boundary of the property along Burchmore Road.
The garbage collection area is to accommodate 4 x 240 litre garbage bins, 3 x 240 litre paper recycling bins, and 3 x 240 litre container recycling bins with minimum dimensions of 650mm x 750mm for each bin space.
Service access to the garbage collection area must be continuous, be a non-slip surface, not contain steps or ramps with a grade steeper than 1 in 8.
At all times following occupation of any of the dwellings at the rear of the site (12 dwellings), the registered proprietors of Lot 5 or the owner's corporation (as the case may be) shall maintain a contract with a contractor the terms of which shall include on the day nominated by Council for garbage collection, or, if garbage collection is nominated by the Council to take place in the morning, then on the afternoon prior to the day of the week nominated by Council for garbage collection, the contractor shall ensure that all garbage placed into the garbage room within the basement shall be sorted into recyclable and non-recyclable garbage and placed into no more than 10 x 240 litre sulo bins with 6 of the 10 bins being nominated for recycling and shall ensure that all garbage bins are moved to the garbage storage area. A copy of the contract between the registered proprietors of Lot 5 or the owner's corporation (as the case may be) and the contractor is to be forwarded to Council for reference and recording on the property file prior to the occupation of any of the dwellings at the rear of the site.
DISCLAIMER - Every effort has been made to comply with suppression orders or statutory provisions prohibiting publication that may apply to this judgment or decision. The onus remains on any person using material in the judgment or decision to ensure that the intended use of that material does not breach any such order or provision. Further enquiries may be directed to the Registry of the Court or Tribunal in which it was generated.
Mackenzie
Warringah Council
CITATION : Mackenzie v Warringah Council [2002] NSWLEC 131 APPLICANT Luke James Mackenzie PARTIES : RESPONDENT Warringah Council FILE NUMBER(S) : 10760 of 2002 CORAM: Pain J Construction and Interpretation :- construction of Warringah Local Environmental Plan 2000 desired future character statement KEY ISSUES: Development Application :- appeal against refusal - merit considerations LEGISLATION CITED: Warringah Local Environmental Plan 2000 Bodyline Spa & Sauna (Sydney) Pty Ltd v South Sydney City Council (1992) 77 LGRA 432 ; Coffs Harbour Environment Centre Inc v Coffs Harbour City Council (1991) 74 LGRA 185 ; CASES CITED: Hospital Action Group Association Inc v Hastings Municipal Council (1993) 80 LGERA 190; Kanne Pty Ltd v Botany Bay City Council [2001] NSWLEC 163 ; Marchese Partners Architects Pty Ltd v Warringah Council [2002] NSWLEC 31; Schaffer Corporation Ltd v Hawkesbury City Council (1992) 77 LGRA 21 DATES OF HEARING: 9-13/04/2002, 03/06/2002 DATE OF JUDGMENT: 08/08/2002
(1993) 80 LGERA 190
(1956) 94 CLR 509