online form submission - the bays precinct sydney...time out should list it as one of 10 places to...
TRANSCRIPT
Online Form Submission Title: No title provided Details: This submission is a combined response to both the precinct discussion paper and the Call for Great Ideas. The precinct recommendations apply to the whole precinct and its interface with the surrounding land. The City’s ‘Great Ideas’ relate more specifically to the four priority destinations – Bays Waterfront Promenade, Bays Market District, White Bay Power Station and White Bay – within the framework of UGNSW’s criteria. These two sets of recommendations cannot be considered in isolation; the ‘Great Ideas’ may lead to the means of achieving broader goals for the precinct, not actions which should be pursued in isolation. Case-studies presented throughout this submission include both international and local examples where ‘Great Ideas’ such as those on the scale proposed have been successfully implemented. Thematic recommendations: - Planning for the Bays should be tightly referenced to the objectives and principles of Sustainable Sydney 2030 and A Plan for Growing Sydney – both plans should equally and transparently guide both planning and development directions and inclusions. - The Bays should reflect the themes green, global and connected. Success in developing the Bays will be based on establishing and maintaining good working relationships and partnerships, a restorative approach to renewal and resilient outcomes in decision-making – being aware of adaptation and mitigation strategies as we face climate change. - The Bays Precinct contains more water area than land area. The future uses of the water space and the water edge are just as important as the future uses of the land. - The most pervasive land use along the harbour edge elsewhere in Sydney is private (executive-class) waterfront housing. The Bays should focus on new and complementary outcomes which can only be achieved at the Bays and which cannot be achieved elsewhere. There should be a greater emphasis on public access and activity throughout to help balance against the predominant private access outcomes of earlier renewal projects within the harbour reaches. Key precinct-wide recommendations: - The Bays is a necklace of land and edge structures around a valuable waterfront. Retain and enhance harbour functions which support Sydney’s economy. These include White Bay as a deep water port (and cruise ship terminal in the medium term) and the use of Blackwattle and Rozelle Bays for maritime, recreational and tourism uses. Large pleasure craft such as super yachts should be restricted from Blackwattle and Rozelle Bays and these water spaces should be focussed on expanded passive and active recreational water uses given their isolation from deep harbour swells and extensive parkland vehicle access points. - Develop an integrated transport strategy by enhancing existing assets and plans. While the Bays are well located geographically, they are poorly connected on the larger western side reaches except by road.
Water access is good but landings are commercially restricted. We should plan to reuse valuable infrastructure such as the low-level Glebe Island Bridge and investigate light rail and ferry network extensions. Examine future metro rail for a Bays station and fully model WestConnex traffic and exhaust impacts, if it proceeds. A continuous unrestricted pedestrian and cycle foreshore promenade from Pyrmont Point to Rozelle is fundamental. - Create a world class fish market at the head of Blackwattle Bay as an economic engine. This should reflect international best practice in design procurement and be a drawcard experience for a regional catchment. Time Out should list it as one of 10 places to visit in Sydney. For longterm operational functionality and resilience, the Sydney Fish Market cannot be relocated in the basement of a residential development; rather, it should be operationally autonomous with its own distinctive architecture. - Heal the now disfigured Wentworth Park by removing the intrusive greyhound track and stands, returning this inner urban parkland to full public use as regional open space. Upon removal, the park should be redesigned for a wide range of active and passive recreational uses. This would deliver an outstanding and achievable open space outcome based on enhancing an existing Crown asset. As large areas of new open space in the Bays will be a challenge to deliver, but are essential as densities increase, the park must not be seen as a development site for other intrusive (such as housing, retailing or education) uses. A new enlarged park could be integrated with new public access connections to the foreshore and fish market. - Adopt a robust housing policy with diversity targets before any proposals involving housing on any/all UGNSW sites are progressed. Consider how partially subsidised yet genuine needs within the policy mix are funded through development returns or land use allocations...PLEASE REFER TO ATTACHMENT FOR COMPLETE SUBMISSION (exceeds file size for web form)."
"Insert date XX Month Year"
City of SydneyABN 22 636 550 790
GPO Box 1591 Sydney NSW 2001 Australia
Town Hall House 456 Kent Street Sydney NSW 2000 Australia Phone +61 2 9265 9333 Fax +61 2 9265 9222 TTY +61 2 9265 9276
www.cityofsydney.nsw.gov.au TRIM 2015/336036
July 2015
Contents
Executive Summary ................................................................................................................... 3
1 Introduction ............................................................................................................................... 11
1.1 Overview ..................................................................................................................................... 11
1.2 Urban Growth NSW’s objectives for transformation of the Bays Precinct ................................. 11
1.3 Previous findings and feedback on the Bays Precinct ............................................................... 12
2 Employment and Economy ..................................................................................................... 15
2.1 Opportunities for the Bays Precinct ............................................................................................ 15
3 Transport ................................................................................................................................... 20
3.1 Opportunities for the Bays Precinct ............................................................................................ 20
4 Housing ..................................................................................................................................... 26
4.1 Opportunities for the Bays Precinct ............................................................................................ 26
5 Open Space ............................................................................................................................... 30
5.1 Opportunities for the Bays Precinct ............................................................................................ 30
6 Community Facilities ............................................................................................................... 39
6.1 Opportunities for the Bays Precinct ............................................................................................ 39
7 Cultural Facilities ..................................................................................................................... 43
7.1 Opportunities for the Bays Precinct ............................................................................................ 44
8 Environmental Sustainability .................................................................................................. 47
8.1 Opportunities for the Bays Precinct ............................................................................................ 47
9 Renewal and Design Excellence ............................................................................................. 51
9.1 Opportunities for the Bays Precinct ............................................................................................ 52
10 Governance and Delivery ........................................................................................................ 54
10.1 Opportunities for the Bays Precinct ............................................................................................ 55
11 Great Ideas ................................................................................................................................ 60
Appendices
Appendix A - Attachments
City of Sydney Submission to Urban Growth NSW – July 2015
2
Figures 1 & 2 Current uses at the head of Blackwattle Bay (Images: City of Sydney)
City of Sydney Submission to Urban Growth NSW – July 2015
3
Executive Summary This submission is a combined response to both the precinct discussion paper and
the Call for Great Ideas.
The precinct recommendations apply to the whole precinct and its interface with the
surrounding land. The City’s ‘Great Ideas’ relate more specifically to the four priority
destinations – Bays Waterfront Promenade, Bays Market District, White Bay Power
Station and White Bay – within the framework of UGNSW’s criteria.
These two sets of recommendations cannot be considered in isolation; the ‘Great
Ideas’ may lead to the means of achieving broader goals for the precinct, not actions
which should be pursued in isolation. Case-studies presented throughout this
submission include both international and local examples where ‘Great Ideas’ such
as those on the scale proposed have been successfully implemented.
Thematic recommendations:
Planning for the Bays should be tightly referenced to the objectives and
principles of Sustainable Sydney 2030 and A Plan for Growing Sydney
– both plans should equally and transparently guide both planning and
development directions and inclusions.
The Bays should reflect the themes green, global and connected.
Success in developing the Bays will be based on establishing and
maintaining good working relationships and partnerships, a restorative
approach to renewal and resilient outcomes in decision-making –
being aware of adaptation and mitigation strategies as we face climate
change.
The Bays Precinct contains more water area than land area. The future
uses of the water space and the water edge are just as important as the
future uses of the land.
The most pervasive land use along the harbour edge elsewhere in
Sydney is private (executive-class) waterfront housing. The Bays should
focus on new and complementary outcomes which can only be
achieved at the Bays and which cannot be achieved elsewhere. There
should be a greater emphasis on public access and activity throughout
to help balance against the predominant private access outcomes of
earlier renewal projects within the harbour reaches.
City of Sydney Submission to Urban Growth NSW – July 2015
4
Key precinct-wide recommendations:
The Bays is a necklace of land and edge structures around a valuable
waterfront. Retain and enhance harbour functions which support
Sydney’s economy. These include White Bay as a deep water port (and
cruise ship terminal in the medium term) and the use of Blackwattle and
Rozelle Bays for maritime, recreational and tourism uses. Large pleasure
craft such as super yachts should be restricted from Blackwattle and
Rozelle Bays and these water spaces should be focussed on expanded
passive and active recreational water uses given their isolation from deep
harbour swells and extensive parkland vehicle access points.
Develop an integrated transport strategy by enhancing existing assets
and plans. While the Bays are well located geographically, they are poorly
connected on the larger western side reaches except by road. Water
access is good but landings are commercially restricted. We should plan
to reuse valuable infrastructure such as the low-level Glebe Island
Bridge and investigate light rail and ferry network extensions. Examine
future metro rail for a Bays station and fully model WestConnex traffic and
exhaust impacts, if it proceeds. A continuous unrestricted pedestrian and
cycle foreshore promenade from Pyrmont Point to Rozelle is fundamental.
Create a world class fish market at the head of Blackwattle Bay as an
economic engine. This should reflect international best practice in design
procurement and be a drawcard experience for a regional catchment.
Time Out should list it as one of 10 places to visit in Sydney. For long-
term operational functionality and resilience, the Sydney Fish Market
cannot be relocated in the basement of a residential development; rather,
it should be operationally autonomous with its own distinctive architecture.
Heal the now disfigured Wentworth Park by removing the intrusive
greyhound track and stands, returning this inner urban parkland to full
public use as regional open space. Upon removal, the park should be
redesigned for a wide range of active and passive recreational uses. This
would deliver an outstanding and achievable open space outcome based
on enhancing an existing Crown asset. As large areas of new open space
in the Bays will be a challenge to deliver, but are essential as densities
increase, the park must not be seen as a development site for other
intrusive (such as housing, retailing or education) uses. A new enlarged
park could be integrated with new public access connections to the
foreshore and fish market.
City of Sydney Submission to Urban Growth NSW – July 2015
5
Adopt a robust housing policy with diversity targets before any
proposals involving housing on any/all UGNSW sites are progressed.
Consider how partially subsidised yet genuine needs within the policy mix
are funded through development returns or land use allocations (Treasury
interest), inclusive zoning and/or housing levies. Policy settings should set
an average target of 21-24 per cent for affordable rental housing across
all UGNSW inner city redevelopment sites, balancing high-value free
market housing (catering for owner-occupiers and investors) with the
proportionate needs of those not able to compete in what has become a
global market for acquiring housing assets in Sydney. In the context of
site uplifts, clear targets of 60 per cent for market and 40 per cent for all
other non-market housing types should be set for The Bays Precinct to
cater for all of the community. Being an accessible location close to
transport, employment and services, it provides all the requisite attributes
for providing successful affordable housing. The supply of affordable
housing should be complemented by other forms of housing tenure in the
Precinct. The City will work with UGNSW to identify the best locations and
implementation arrangements to ensure the early delivery of affordable
rental housing. These opportunities may include establishment of a new
affordable housing levy on private land specific to the Bays Precinct and
identification of sites best suited to delivery of affordable housing units.
Adapt and reuse the heritage-listed White Bay Power Station as an
economic engine for the western precinct as a driver of our most globally
competitive industries. Suitable uses include a cultural or educational
institution (domestic or internationally funded), or a premium campus
for a commercial enterprise or employer to catalyse the Bays
Precinct’s economic contribution to Sydney’s future. A large integrated
community facility may also be provided to support more localised
facilities. Onsite tri-generation power could provide for cruise ship power
needs overnight and for the institutional needs during the day, providing a
night/day power balance.
Achieve the internationally recognised C40 Climate Positive certification
for the entire Bays Precinct development and establish a Single Utility
Model, using the Barangaroo model as a basis, to manage the delivery of
robust sustainability targets. Also consider certification for a broad
community sustainability rating tool. These provide a framework for the
delivery and monitoring of precinct wide water recycling as well as tri-
generation which could also resolve the dirty fuel issue of night-time
sulphur emissions by cruise ships in port.
City of Sydney Submission to Urban Growth NSW – July 2015
6
Develop a structure plan for the entire Bays Precinct that sets out the
strategic vision and guiding principles and illustrates the proposed
transformation. This should be done prior to setting dwelling or job
targets. It should detail proposed land uses, open spaces, facilities and
transport, and be accompanied by a delivery plan which sets out staging,
future funding and processes for governance and engagement. A cultural
strategy and an economic strategy should inform and complement the
structure plan so as to optimise the potential of the Bays Precinct as an
economic driver and cultural destination.
Establish a Bays Precinct-specific Memorandum of Understanding
(MoU) between the City of Sydney and UGNSW to set out the parameters
for collaboration to ensure the delivery of international best practice urban
renewal outcomes. Establish an associated MOU with the City and Roads
and Maritime Services to guide the design, implementation and
management of water based activities.
Roll out a clear engagement strategy which guides all stakeholders
through the transformation process and work closely with the City to
ensure programs and efforts of both parties are complementary.
Demonstrate a commitment to best practice and learn from the past
through more transparent governance frameworks that clearly separate
concept plans and architectural and urban design intentions from the
commercial nature of confidential tenders, development bids and project
development agreements. Governance arrangements must enable design
excellence and competitive design processes to be independent of a
development bids for a specific project outcome such as a fish market.
The City of Sydney design excellence processes are a good model.
Return the planning role to the Central Sydney Planning Committee and
City of Sydney once the strategic planning is complete.
‘Great Ideas’ recommendations:
Progressively extend inner harbour ferry services to the Fish Markets,
White Bay Power Station and White Bay Cruise Terminal as part of a
wider integrated transport strategy. To supplement this, allow a private
but regulated Uber-style ferry or water taxi service based on GPS based
hand-held digital technology.
The Pyrmont and Glebe Island Bridges were early, expensive toll-based
transport infrastructure investments by the people of NSW. Retain and
reuse Glebe Island Bridge as a key low-level pedestrian and cycle
City of Sydney Submission to Urban Growth NSW – July 2015
7
connection, important heritage asset and future light rail link to the White
Bay Power Station, Cruise Terminal and stabling yards at Rozelle from
the existing light rail line.
Open up public access to the Bays foreshore from day one. This can
be achieved through clear signage and low-cost and short-term
treatments wherever land is publicly owned. This should be delivered in
advance of the final promenade.
Fund and negotiate removal of the greyhound racing track and
structures from Wentworth Park (Crown land). Heal the public park and
return this area of land for full public use as part of an expanded open
space asset for the entire precinct. The City of Sydney could use its
processes to develop a design for the healed park to cover the most
current open space needs (open space study is under way). The highly
regarded Prince Alfred Park revitalisation was a project led by the City on
Crown land.
Commit to an open international design competition for the new
Sydney Fish Markets and the surrounding public domain once the best
location has been settled. The vision should be to deliver a new world
class market to rival those of Tokyo and Seattle, and connect the market
to Blackwattle Bay and the waterfront promenade, embracing Wentworth
Park by relocating or calming Bridge Road.
Set up a digital economy working group to explore opportunities to
position the Bays Precinct as the natural extension of the largest
digital and creative precinct in Australia which has emerged in Ultimo
and Pyrmont.
In concert with progressing a White Bay Power Station and Cruise Ship
Passenger Terminal light rail extension, explore a more direct light rail
service between the City and the Bays Precinct via a short tunnel under
Allen Street in Pyrmont. This would provide express services into the
City, connecting the Exhibition and Convention centres via the Fish
Markets to White Bay in a matter of minutes. It would also provide
express services to and from Dulwich Hill and possibly remove 8 to 10
minutes from existing travel time.
The long term use of White Bay will be influenced by the ongoing
presence of the cruise passenger terminal. Given that a high proportion of
cruise trips are taken by domestic passengers, a long term plan would be
to relocate this terminal to Botany Bay closer to the source of fuel and
City of Sydney Submission to Urban Growth NSW – July 2015
8
supplies, and closer to the airport. This would enable the larger cruise
ships which cannot pass under the Harbour Bridge to be accommodated
and take pressure off Garden Island to accept domestic cruise ships as
well as seasonal round the world cruise ships.
The review and evaluation of all ‘Great Ideas’ requires a range of perspectives and
independent views. The City recommends that UGNSW extend the Independent
Assessment Panel team assembled to review the ‘Great Ideas’ to include the City,
other agencies, independent multi-disciplinary experts and community
representatives.
An expanded panel will give a better cross-section of interests and is likely to be
better suited to identifying new opportunities for achieving excellence. The City’s
involvement in UGNSW’s Parramatta Road project, including a staff secondment,
illustrates the importance of enhanced relationships and collaboration.
City of Sydney Submission to Urban Growth NSW – July 2015
9
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City of Sydney Submission to Urban Growth NSW – July 2015
10
Figure 3: (above) Bays Precinct 2011 (Image: Google Earth) Figure 4: (right) Melbourne Docklands and Fishermans Bend redevelopment area overlaid Sydney’s Bays Precinct to same scale.
City of Sydney Submission to Urban Growth NSW – July 2015
11
1 Introduction 1.1 Overview The City of Sydney Council (the City) provides this submission as a combined
response to two requests for comment. The City broadly supports UrbanGrowth
NSW’s (UGNSW) City Transformation Life Cycle approach and the five objectives for
the transformation of the precinct as set out in the discussion paper.
The existing land uses and locational attributes of the Bays Precinct offers real
potential for the precinct to become a place where contemporary and future harbour
industries and land for advanced productive enterprises can coexist. It can be a
place where contemporary dedicated public transport options and digital connections
create a vibrant employment hub. It can also be a place with a distinct cultural
identity which attracts international tourists and showcases best practice
environmental sustainability initiatives. In carefully considered locations that do not
interfere with productive land uses or foreshore access, and is capable of satisfying
relevant housing standards, a diverse range of housing options could be considered.
Compared to Melbourne’s Docklands and Fisherman’s Bend area, the Bays Precinct
is a much smaller harbour edge condition rather than an extensive redevelopment
space. The existence of multiple leases, disparate public land control, private land
ownership, extensive contamination on land and in water and uncertainty over
WestConnex traffic and ventilation impacts challenge a holistic redevelopment
strategy and makes progress slow and genuinely restorative renewal expensive.
The Bays Precinct has been the subject of several studies and investigations over
recent years. The findings of these studies remain relevant and provide insights to
inform current planning and processes. In particular, recommendations of the Bays
Precinct Taskforce in its final report, Bays Precinct Strategic Framework Report to
the NSW Government, August 2012, noted the following: balancing the needs of
ongoing port and maritime operations with the almost default drive for residential
redevelopment; retention of public ownership of foreshore land; continued use of the
bays for recreational and tourist uses; delivering a climate positive, low carbon
precinct with decentralised energy; integrated transport planning; and providing
affordable housing. 1.2 Urban Growth NSW’s objectives for transformation of the Bays Precinct
UGNSW has released two documents as part of its stakeholder engagement process
for the redevelopment of the Bays Precinct: Transforming City Living: The Bays
Precinct and the Call for Great Ideas. In its role as the NSW Government’s
development agency, UGNSW has a mandate to:
City of Sydney Submission to Urban Growth NSW – July 2015
12
increase the supply of housing and create jobs
strengthen the NSW economy by delivering world class centres that
attract investment and boost productivity
maximise public investment in infrastructure
operate on a commercially astute basis
promote collaboration across government, the private sector, community
and industry
To assist in meeting this mandate, UGNSW has identified the following key
outcomes for the Bays Precinct:
space for knowledge-intensive jobs of the future
a well-connected efficient network of links for movement
a carbon neutral, ecologically pristine precinct that drives a new
vernacular for eco-city planning and design
meeting the requirements of a competitive, global city while still delivering
all that is loved locally
a continuous public waterfront promenade
a diverse offering of housing choices including affordable housing
a transformation to support the growth of global Sydney
valuing the precinct’s heritage and cultural assets
new and improved public spaces
1.3 Previous findings and feedback on the Bays Precinct Work undertaken over recent years on the Bays Precinct highlights common themes
and a shared vision for a precinct which delivers urban renewal excellence and
economic, community and sustainability outcomes for the local area, the Sydney
region and the State.
The Bays Precinct Strategic Framework Report to the NSW Government released by
the Bays Precinct Taskforce in August 2012 made a number of recommendations,
the City supports and reiterates:
Publicly owned foreshore lands and harbour waters should remain in
public ownership (long-term resilience)
An integrated traffic management and transport plan for the entire
precinct should be prepared to guide future development
Glebe Island and White Bay should remain commercial port and maritime
related uses as a minimum capacity for a port city
City of Sydney Submission to Urban Growth NSW – July 2015
13
Rozelle and Blackwattle Bays should continue to be used for recreational
uses, commercial boating and maritime and tourist purposes
Residential development must be carefully considered in terms of its
impact on the long term flexibility of port and maritime operations and
public open space uses
Future residential uses should include an affordable housing component
More recently, the City commissioned two investigations:
The Bays Precinct Urban Renewal Program – Planning Processes and
Consultation Review Report by Elton Consulting (2014) which
summarised the myriad of documents prepared on the Bays Precinct and
consultation undertaken in the last two decades, their outcomes and
resulting common principles. The study was designed to inform
community participants in contributing to subsequent consultation
processes
The Best Practice Urban Renewal by SGS Economics and Planning
(2015) examines urban renewal case studies in Australia and
internationally. The study points out the planning principles, processes
and governance that lead to best practice urban renewal outcomes.
These studies highlight that, in addition to planning and development outcomes,
effective governance and strategic planning processes are ultra-critical to delivering
viable, sustainable urban renewal that will endure in the long term. The SGS study
highlights the following aims which are strongly supported:
Public interest as a key guiding principle
Rigorous strategic planning process setting out clear measurable
objectives and logical development stages
Provision of key infrastructure prior to development
Smallest lots possible and maximum number of developers
Independent review and effective monitoring and evaluation
1.4 The City’s submission
Building on the recommendations and principles noted above, the City provides this
combined submission to both the discussion paper and the Call for Great Ideas. The
submission includes new recommendations to guide the development of the Bays
Precinct and discusses the City’s position on a number of key areas highlighted in
City of Sydney Submission to Urban Growth NSW – July 2015
14
the discussion paper. The broad recommendations relate to key areas of concern
including affordable housing, open space, transport and environmental sustainability,
which apply to the whole precinct.
The City’s ‘Great Ideas’ relate more specifically to the four priority destinations –
Bays Waterfront Promenade, Bays Market District, White Bay Power Station and
White Bay – within the framework of UGNSW’s criteria. However, these two sets of
recommendations cannot be considered in isolation; the ‘Great Ideas’ represent
important means of achieving broader goals for the precinct, not actions which
should be pursued in isolation.
All recommendations and ‘Great Ideas’ are discussed in further detail in the body of
this submission. The case studies presented throughout this submission are
examples from around the world and locally where ‘Great Ideas’ such as those
proposed have been successfully implemented.
City of Sydney Submission to Urban Growth NSW – July 2015
15
2 Employment and Economy
As Australia’s leading global city, Sydney has a critical role to play in the economic
success of the nation and the Bays Precinct. With its proximity to Central Sydney
and especially to the adjacent digital economy hub in Pyrmont and Ultimo, it can
contribute significantly.
Sustainable Sydney 2030 targets at least 97,000 additional jobs in the City by 2030
with an increased share in finance, advanced business services, education, creative
industries and tourism sectors. Redevelopment of the Bays Precinct offers an
opportunity to work towards this target: it can provide space for education and
learning; can be a hub for sustainable research and development; and can support
the expansion of start-ups and creative industries.
Critical to realising the economic potential of the precinct is the provision of housing,
including affordable rental housing, within reasonable proximity of new jobs. Linking
the two with reliable and frequent public transport is also vital. Without focussing on
providing jobs at the same time as housing and transport, the full economic potential
of the Bays Precinct will not be realised.
2.1 Opportunities for the Bays Precinct
Retention of working harbour activities From an economic perspective, the many existing working harbour functions of the
Bays Precinct should be retained. The expansion and creation of a world class Fish
Market as an economic engine is critical to the overall economic success of the Bays
Precinct. Important harbour activities to be retained include Glebe Island and White
Bay’s use for commercial port and maritime related purposes, and the Cruise
Terminal in the medium term and the use of Blackwattle Bay and Rozelle Bay for
maritime, recreational and tourism uses.
Large pleasure craft such as super yachts should be restricted from Blackwattle and
Rozelle Bays and active and passive recreational water uses should be expanded.
These employment generating activities will be central to generating local and
connected employment opportunities as the Bays Precinct develops.
Tech start-ups – the future economy The City believes that the Bays Precinct has the potential to support the growth of
Sydney’s emerging tech sector and provide space for the growing number of tech
start-ups and growth-phase firms. However, this growth is unlikely to occur as a
natural extension of the clusters of activity already occurring in the city without a
significant stimulus such as an introduction of a university campus as well as removal
of locational barriers through the provision of effective transport and connectivity.
City of Sydney Submission to Urban Growth NSW – July 2015
16
The tech sector has the potential to generate at least 540,000 jobs and contribute
$109 billion to the national economy by 2033 (source: PwC, 2013) but to reach this
aspirational goal, support from government and the education and industry sectors is
needed.
City research suggests that entrepreneurs and tech start-up companies need a local
environment that provides support networks, business and entrepreneurship
education, physical infrastructure including high-speed fibre optics and access to
work space, and financing opportunities.
The City’s data-rich Floor Space and Employment Survey shows that there is a high
density of people with business knowledge, technology expertise and creativity
already working in the city, particularly in Ultimo and Pyrmont. This has created a
talent pool where innovation is thriving and start-ups are being launched and grown.
In the five years from 2007 to 2012, the ICT, higher education and research sectors
in the city grew by 12.4% to 76,952 workers. In ICT alone, in 2012 there were 782
individual businesses. Catalysed by the proximity of Fairfax and Google, the
significant ICT cluster in Harris Street, Ultimo and the remainder of the areas, the ICT
workforce now represents a critical mass of businesses which attracts individuals
who, due to their specialised skills and talent could be encouraged to launch, join or
support tech start-ups. A working group of business, academia, Government
representatives and specialists in the digital economy should be set up to explore
opportunities to position the Bays Precinct as the natural extension of the existing
digital economy hub in Ultimo and Pyrmont.
Harbour ferry service – an economic opportunity The implementation of an inner harbour ferry service, as proposed in the Transport
section of this submission, is an opportunity as well as a functional link for transport –
it offers a tourist experience and opens up new destinations to larger markets
through improved accessibility. The ferry would provide a key transport link to the
White Bay Cruise Terminal, providing convenient access to other tourist and
commercial activities around the harbour, and broader connections and services.
The capacity of the Fish Markets, from an economic perspective will be more
effectively realised through greater accessibility provided by such a service. The ferry
would provide tourist access to arguably Sydney’s greatest asset, being the
extensive harbour. It is a key opportunity for economic growth and capturing tourist
spend. Visitor Accommodation In 2014, the City commissioned a study into supply and demand factors of visitor
accommodation in the city. The study found that there is strong demand (and
City of Sydney Submission to Urban Growth NSW – July 2015
17
strengthening demand with Exhibition and Convention Centre venues coming online)
in the 3 and 4 star sector and a shortage in supply. The City has developed a Visitor
Accommodation Action Plan setting out the actions the City will take to encourage
development and investment in visitor accommodation.
In this context, the Bays Precinct presents an opportunity to address the supply side
issue by enabling development of new stock in the 3 and 4 star business visitor area.
The Bays Market destination offers a good opportunity given its proximity to the
future Exhibition and Convention Centre at Darling Harbour, Barangaroo and Central
Sydney. White Bay Cruise Terminal – Supporting services The White Bay Cruise Terminal provides an opportunity to improve economic
outcomes by providing services not currently offered for arriving and departing cruise
ships and their passengers. At present, there is a lack of supporting services. Cruise
ships dock early in the morning and passengers disembark and are often transported
by shuttle bus to the airport or Central Station – which represents a missed
opportunity for the Bays Precinct and the City more generally. Better connectivity at
White Bay, by way of an extended inner harbour ferry service would provide a range
of options for visitors to explore Sydney. A mix of services, which fits within the
broader structure plan for the whole precinct, should be offered at the Cruise
Terminal to maximise economic benefit.
White Bay Power Station Locating a drawcard cultural, educational institution or commercial enterprise or
employer at the White Bay Power Station would deliver significant economic benefits.
This destination can become the economic engine for the entire Bays Precinct and a
driver of our most globally competitive industries.
The White Bay Power Station offers significant potential for a domestic or
internationally funded educational institution to create partnerships with industry to
showcase new, experimental technologies and develop a knowledge-intensive
industry cluster promoting innovation. Using the institution as an anchor, the
destination could support a range of activities and supporting services for students,
academics and businesses. This destination would be particularly attractive as a
premium campus for a commercial enterprise or employer provided physical
accessibility to the city was greatly improved through connections from White Bay to
Darling Harbour and beyond. Key to the success of the White Bay Power Station
adaptation is the provision of world class public transit. Connectivity would include a
ferry service, light rail connections and cycle and pedestrian connectivity from White
Bay to Darling Harbour to attract knowledge industries and their workers. The culture
of workers in these industries is to work using mobile devices while commuting and
public transport suits this style of working and networking.
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY TECHNION CAMPUS – ROOSEVELT ISLAND NYC USA
In December 2010, the City of New York invited top institutions from around the world to propose a new or expanded applied sciences and engineering campus to spur major growth and bolster jobs in the tech industry. In exchange, winners would have access to city-owned land and capital funding. In 2011 the project was awarded to Cornell University and Technion Israel Institute of Technology. The Cornell Tech campus will span 4.9 hectares and include academic buildings, offices and a residential complex. Students will be housed in the first residential high rise building in the world that meets passive sustainability standards and consumes 60 to 70 per cent less energy than typical buildings of the same size.
Figure 5: Cornell Tech on Roosevelt Island (Image source: www.businessinsider.com)
City of Sydney Submission to Urban Growth NSW – July 2015
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Recommendations: 2.1 Develop robust new jobs targets for the Bays Precinct should be based on an
overall economic strategy, precinct-wide structure plan, and strategies for achieving
these targets.
2.2 Develop and implement a strategy for the retention and further development of
maritime and commercial activities as part of a commitment to retaining the working
harbour function and character of the Bays Precinct.
2.3 Extend the inner city ferry network to serve the Bays Precinct as both a
transport and economic development initiative.
2.4 Consider the opportunities to provide 3 and 4 star business hotels in planning
for the Fish Market and White Bay Cruise Terminal.
2.5 Develop a strategy for providing supporting commercial and tourist services at
the White Bay Cruise Terminal.
2.6 Investigate the development of a premium campus for a commercial operation
or major cultural or educational institution at the White Bay Power Station, linked to
the economic strategy for the precinct.
2.7 Establish a working group to investigate options for delivering digital economy
and knowledge industry outcomes at the Bays Precinct.
City of Sydney Submission to Urban Growth NSW – July 2015
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3 Transport
The City has clear objectives for the future of transport in Sydney based around a
vision that public transport will be strongly integrated with land use and development
and that local needs will be served by broader transport networks. These objectives
and the broad vision are set out clearly in Sustainable Sydney 2030 and the City’s
transport strategy Connecting our City.
While the Bays are well located geographically, they are poorly connected on the
larger western side reaches except by road. Water access is good but landings are
commercially restricted. The Bays Precinct therefore requires an integrated transport
plan which considers all opportunities including potential future metro rail and the
WestConnex, if it proceeds. The impacts of WestConnex on the Bays Precinct,
particularly the former Rozelle Marshalling Yards, are uncertain. The City is
concerned that WestConnex could significantly compromise the strategic urban
renewal opportunities of The Bays Precinct.
Planning must be undertaken prior to redevelopment of land to ensure that transport
solutions are integrated with existing networks. This will ensure the broader network
is strengthened while ensuring that the Bays Precinct is adequately serviced.
Specific opportunities for the Bays Precinct which link into broader networks are
discussed below.
3.1 Opportunities for the Bays Precinct
A Bays Precinct Integrated Transport Plan An Integrated Transport Plan for the Bays Precinct should be developed with
stakeholder involvement as an absolute priority. As part of a broader structure plan, it
will identify required transport infrastructure targets, actions and responsibilities and
inform staging, funding commitments and delivery. Following the preparation of the
plan, a Working Group should be established, with the City as a member, to guide
and monitor implementation of the plan. Mode Share Targets The Barangaroo Integrated Transport Strategy outlines aggressive and ambitious
mode share targets for public and active transport. These targets provide a
benchmark for development of mode share targets for the Bays Precinct. Specific
mode share targets should be developed to inform ongoing strategy development
and implementation and should be clearly articulated in the Bays Precinct Integrated
Transport Plan.
City of Sydney Submission to Urban Growth NSW – July 2015
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Ferry Service Extension Redevelopment of the Bays Precinct provides an opportunity to extend Sydney’s
ferry network and introduce new timetabled inner harbour ferry services. Additional
residents, workers and visitors will support new ferry services.
Given the increase in activity envisaged at the Fish Market destination, a new stop
should be included in this location. The amount of private vehicle parking available
currently at the Fish Markets incentivises the use of cars. Peak visitor periods such
as Christmas and Easter illustrate the severe congestion that this creates. A
dedicated ferry stop would provide a viable and attractive alternative.
The anticipated increase in intensity of activity at the White Bay Power Station,
including the potential number of commuters would also make a stop at this
destination viable, as would a stop at the White Bay Cruise Terminal which could
transport people disembarking from cruise liners quickly to other locations. Provided
future ferry services are linked to the wider network and to the city, these services
have the potential to take pressure off bus services heading out of Balmain across
Anzac Bridge and address existing congestion in this area.
Figure 6: Glebe Island Bridge transport corridor (Image: City of Sydney)
City of Sydney Submission to Urban Growth NSW – July 2015
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Light rail network extension Redevelopment of the Bays Precinct provides an opportunity for the existing light rail
line (which runs from Central, through Pyrmont, Glebe, Jubilee Park and on to
Lilyfield) to be extended with a branch towards Balmain including stops at White Bay
Power Station and White Bay Cruise Terminal. The retention and reuse of the Glebe
Island Bridge offers a key opportunity for a future light rail link from the Fish Markets
to these destinations.
In conjunction, possibilities to provide more time-competitive light rail services should
be explored. By way of example, the City has previously looked at the feasibility of
tunnelling under Allen Street in Pyrmont to provide a more direct Light Rail
connection from Pyrmont out towards the west. Such an extension would link
Convention and Wentworth Park stations directly, making future light rail services
which could connect to White Bay and Balmain quicker than buses and therefore
more attractive to commuters. Such an extension could run an express service into
the city, connecting the Exhibition and Convention Centres via the Fish Market to
White Bay and beyond the Dulwich Hill, possibly taking 8 to 10 minutes off existing
travel times. An all-stations service would also be retained.
Walking and cycling A key part of transport planning for the Bays Precinct should be a commitment to
developing plans that deal with pedestrian and bicycle connections. A continuous
and uninterrupted pedestrian and cycle friendly promenade from Pyrmont to Rozelle
is fundamental.
Pedestrian connections to and from the precinct are particularly poor in some areas,
for example along Pyrmont Bridge Road from the city and from Wentworth Park.
These routes carry a high volume of pedestrian traffic and these numbers will
increase as the precinct is redeveloped. The development of the precinct offers
excellent opportunities to make simple but vast amenity and capacity improvements.
Likewise, bicycle connections along Bridge Road and Pyrmont Bridge Road are very
poor but are used as direct commuter routes despite this. With few interventions they
could be significantly improved to encourage further sustainable transport use.
A key area of focus for pedestrian improvements should be the connection between
Wentworth Park and the head of Blackwattle Bay. Given the anticipated
intensification of land use, the extension of the promenade and the potential future
upgrade of the park, there will be significant levels of pedestrian activity in the area.
The treatment of Bridge Road requires attention in terms of its impact on the amenity
and success of the Market District and effectiveness of connections. Consideration
should be given to two different options. One option might be to remove and relocate
the road to an alignment close to the existing viaduct. The land of the existing road
could be reclaimed and used to connect Wentworth Park directly to the head of the
bay. A second option might be to calm traffic along the existing Bridge Road,
City of Sydney Submission to Urban Growth NSW – July 2015
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improving connectivity between Wentworth Park and the head of the bay, which will
contribute to the improved amenity of this key destination.
The Glebe Island Bridge should be retained, restored and re-opened as a critical
pedestrian and cycling link for the Bays Precinct. As outlined elsewhere in this
submission, the bridge provides excellent connectivity and is an important heritage
asset and the City strongly submits it should be included in the integrated transport
planning for the precinct.
Common Parking In terms of private vehicle use, the Bays Precinct provides an opportunity to
introduce ‘common parking’ within precincts. By providing vehicle parking which can
be allocated to individual uses but is not registered on title, future adaptability can be
ensured. As public transport provision improves over time, and less private vehicle
parking is required, areas of parking can be allocated to other uses and/or converted.
This would reduce private vehicle parking provision and further incentive and
promote the use and viability of public and active transport in the precinct. City West Link connection The possibility of an access road under Victoria Road connecting the City West link
to the area around the White Bay Power station and the White Bay Cruise Terminal
is identified in the discussion paper. Subject to further investigation, this initiative is
supported in principle by the City, provided that it does not inhibit cycling and
pedestrian connections along this reservation.
Figure 7: Glebe Island Bridge (Tim Throsby illustration for City of Sydney)
City of Sydney Submission to Urban Growth NSW – July 2015
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Amenity and impact management The City is concerned about the impact of busy roads on the amenity of residential
development in close proximity. The location of residential development in the Bays
Precinct should have regard to noise and pollution from busy arterial roads, in
particular the approach to Anzac Bridge, adjacent to the White Bay Power Station
and the Western Distributor over passes in close proximity to the Fish Markets. A
well designed acoustic structure or tunnel structure would mitigate the future impact
on residential development and the future impact on public domain around the Fish
Market and Promenade. Any future structure should be subject to suitable design.
Figure 8: Sydney Harbour Ferries (Image source: Richard Seaman)
City of Sydney Submission to Urban Growth NSW – July 2015
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Recommendations:
3.1 Prepare a progressive Integrated Transport Plan for the Bays Precinct to ensure
that a transport strategy integrates new and existing infrastructure into the broader
city network and establish a transport working group, including the City, to guide the
implementation of the plan.
3.2 Develop and deliver on specific mode share targets for the Bays Precinct using
the Barangaroo mode share targets as a benchmark.
3.3 Extend Sydney’s ferry network to service the Bays Precinct including new stops
at the Fish Market, the White Bay Power Station and the White Bay Cruise
Terminal.
3.4 Extend the existing light rail network further into the Bays Precinct with potential
new stops at White Bay Power Station, the White Bay Cruise Terminal and possibly
connecting to the Rozelle Stabling Yards via the Glebe Island Bridge.
3.5 Prepare pedestrian mobility and bicycle network plans as part of the structure
planning process, including the retention and reuse of Glebe Island Bridge and
pedestrian and cycling improvements along Pyrmont Bridge and Bridge Roads.
3.6 Implement a ‘common parking’ principle for private parking by not registering
parking on title. This will allow flexibility for the use of the structure to be repurposed
as public transport services improve over time.
3.7 Investigate an access road under Victoria Road to connect the City West Link to
the White Bay Power station and Cruise Terminal area.
3.8 Implement an acoustic treatment on and over the Western Distributor and
approach to Anzac Bridge to mitigate future impacts on residential amenity.
City of Sydney Submission to Urban Growth NSW – July 2015
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4 Housing
Sustainable Sydney 2030 sets out the City’s vision that a range of housing types and
tenures are provided to underpin Sydney’s economic productivity and social and
cultural vitality. Key goals include: providing adequate housing to cater for the needs
of a growing and diverse population; ensuring supply of affordable housing continues
to grow to meet the community’s needs; and ensuring the supply of social housing in
the inner city is maintained or increased.
To help meet these objectives, in 2008 the City set targets of 7.5% of all LGA
dwellings to meet social housing needs and a further 7.5% to meet affordable rental
housing needs delivered by CHP (not-for-profit) and other providers by 2030. The
City also has targets for new dwellings delivered by the market to support the
growing population. The City uses the widely accepted definition for affordable
housing which is rent controlled housing, delivered by a community housing provider,
for which rents are capped at no more than 30 per cent of a very low to moderate
income-household’s income. The affordable housing programs approved by the
NSW Government and currently operating in the City – in Ultimo Pyrmont, Green
Square and Redfern Waterloo – define affordable housing in this way.
In May 2015, the City released its Housing Issues Paper. This paper highlights the
growing housing affordability problem in Sydney, a city where from 2013 to 2014
average sales prices for dwellings grew nine times faster than average earnings. It
also sets out the City’s position on housing and suggests strategies for providing
greater housing affordability in the future, including strategies on how to deliver more
affordable rental housing.
4.1 Opportunities for the Bays Precinct
The City recognises that housing will form a key part of the renewal strategy for the
Bays Precinct. Any residential development must be carefully balanced against
important transport and amenity impacts, and also with the importance of creating a
genuine mixed use precinct which includes existing maritime and port uses, other
commercial uses, cultural and educational activities and open spaces.
Before progressing any proposals for housing in the Bays Precinct, the NSW
Government should adopt a robust housing diversity policy with diversity targets of
60% market housing and 40% non-market housing types to cater for all of the
community within The Bays Precinct. This policy should include a range of
considerations such as: ‘first step’ housing (a higher mix of studio and 1 bed units for
a small but strategic percentage of new housing); percentage land allocations for
charity housing (poor mobility and non-worker seniors housing); affordable rental
City of Sydney Submission to Urban Growth NSW – July 2015
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housing for key workers and other qualifying lower-paid workers; and state social
housing.
Policy settings should average targets across all UGNSW inner city sites, balancing
high-value free market housing (catering for owner-occupiers and investors) with the
proportionate needs of those not able to compete in what has become a global
market for acquiring housing assets. A target of 21-24% of housing across UGNSW’s
inner city portfolio being affordable rental housing, under the City’s definition of the
term, would assist with the City achieving its broader target of 7.5% of all housing in
the city being affordable rental housing by 2030. The NSW Government should adopt
clear targets for the delivery of affordable rental housing and social housing as part
of an overall diversity strategy.
The Bays Precinct is an accessible location close to transport, employment and
services, providing all the requisite attributes for providing successful affordable
housing. The supply of affordable housing should be complemented by other forms
of housing tenure in the Precinct. The City has a track record in facilitating affordable
housing outcomes and is keen to work with UGNSW to identify the best locations
and implementation arrangements to ensure the early delivery of affordable housing.
These opportunities may include establishment of a new affordable housing levy
specific to the Bays Precinct and identification of sites best suited to delivery of
affordable housing units.
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY CITY OF SYDNEY – AFFORDABLE HOUSING
Affordable housing is a basic requirement for an inclusive, dynamic and
sustainable city. In the rezoning of the former Harold Park Paceway for
predominantly residential uses, The City negotiated a planning agreement with
the developer to provide new affordable housing. Affordable rental housing is
critical social infrastructure necessary to support sustainable employment
growth and efficient business in the City. Affordable rental housing should be
provided and managed so that a socially diverse residential population
representative of all income groups is maintained. Through planning control
changes and negotiations, the City received 2,500 square metres of land
within the Harold Park urban renewal site to increase the supply of affordable
housing and housing for people with a disability. The renewal will provide
about 50 new affordable rental housing dwellings.
Figure 9: City West Housing - Portman Street, Zetland (Image source: City of Sydney)
City of Sydney Submission to Urban Growth NSW – July 2015
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Recommendations: 4.1 Develop a housing diversity policy to cater for all of the community with a target
of 60% market and 40% for all non-market housing types specific to The Bays
Precinct. The policy should include consideration of piloting ‘first step’ housing (a
higher mix of studio and 1 bed units for a small but strategic percentage of new
housing); percentage land allocations for charity housing (poor mobility and non-
worker seniors housing); affordable rental housing for key worker and other
qualifying lower-paid workers; and state social housing. In doing so, help achieve
the City’s targets of 7.5% of all housing stock being affordable rental housing, under
the City’s definition, by 2030. The City’s definition is rent controlled housing,
delivered by a community housing provider, for which rents are capped at no more
than 30 per cent of a very low to moderate income-household’s income. The NSW
Government should adopt clear targets for the delivery of affordable rental housing
and social housing as part of an overall diversity strategy.
4.2 Collaborate with the City on strategies to delivery affordable housing through
means including allocation of specific sites and introduction of a new levy.
City of Sydney Submission to Urban Growth NSW – July 2015
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5 Open Space
Over the past decade, the City has invested extensively in improving and expanding
existing parks and sporting facilities and delivering new spaces to provide for both
active and passive recreation needs. However, with Sydney’s resident and worker
population set to increase rapidly over the next 15 years, the demand for public open
space, parks and sporting facilities, both indoor and outdoor will increase even
further.
The challenge of delivering new open space in the Bays Precinct will be particularly
great given the narrow waterfront location of much of the land. The City also needs
to respond to changing demographics and trends, including an aging population with
growing needs for indoor recreation space, increasing sports participation by women,
an increasing number of children in the inner city and changing work patterns
(needing access at different hours). These needs and priorities have been identified
by the City through significant research undertaken to date and ongoing studies into
open space, sports and recreation needs and strategies for meeting these needs.
The City believes that without a creative and cooperative approach the high level of
population growth, the high cost of land and the constrained urban environment, will
make it very difficult to maintain current quality and levels of open space provision.
The City generally has good access to local open space, however, there is a strong
need for larger parks and sports fields which provide greater benefits through the
diversity of uses they can accommodate.
The following section outlines recommendations for ensuring that the Bays Precinct
provides public open space to meet the needs not only of the precinct but of Sydney
more broadly.
5.1 Opportunities for the Bays Precinct
General principles Generally, the City submits that the approach to delivering open space and
recreational facilities in the Bays Precinct should be informed by the following
principles:
Continuous and uninterrupted pedestrian and cycle access along the
foreshore from Pyrmont to Rozelle is fundamental to the transformation of the
precinct.
The design of open spaces should reflect the character of the Bays Precinct
and provide a range of recreational experiences for a diverse mixed
community.
All residents should have access to local open space within 400 metres.
City of Sydney Submission to Urban Growth NSW – July 2015
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Large open spaces for active recreation and larger organised sports need to
be provided.
A diversity of spaces and a range of settings including the waterfront
promenade, local/pocket parks, larger park spaces, civic spaces and spaces
specifically for small children, young adults and older people should be
delivered.
Quality amenities should be provided to support recreational areas including
toilets, seating and drinking fountains.
Development should be planned so there is good access to open space and
existing and planned open spaces have a high level of solar access.
Priority should be given where possible to approaches and technologies that
increase the use of existing open space and facilities, such as multi-purpose
courts and synthetic surfaces.
Shared access facilities should be pursued, for example, joint use of
underused facilities at schools and universities, including possible joint
construction or maintenance agreements in exchange for community access
out-of-hours.
Work with neighbouring councils on a regional approach in preparing our
Central Sub Regional plan (required by the NSW Government’s Metropolitan
Strategy released in December 2014), including joint funding for shared
facilities that might be located outside the local government area.
Ensure renewal of the Bays Precinct and Central to Eveleigh precinct provide
for recreation and sporting needs across the subregion, not just within the
renewal site.
Review planning processes to encourage developers to include sports
facilities, especially indoor courts, as part of new developments. Wentworth Park While Wentworth Park has not been included by UGNSW as part of the Bays Market
District Destination, the City believes it plays a vital role in the broader success not
only of this destination but also of the entire precinct.
By removing the intrusive and tired Greyhound Racing facility and all associated
infrastructure and redeveloping the park for more public uses including passive
recreation and active sports, the park can offer public space to support new
development across the Bays Precinct and the broader population. As new large
areas of open space in the Bays Precinct will be a challenge to deliver, but are
essential as densities increase, the park must not be seen as a development site for
other intrusive uses such as housing, retail or education.
City of Sydney Submission to Urban Growth NSW – July 2015
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The return of the entire park for true public use, rather than narrow interest group
use, should be subject to an international design competition. The City has
coordinated successful competitions of this type for Gunyama Park and Aquatic
Centre and the Green Square Library and Plaza. The competition should encompass
the design of the park, the design of the new Market District at the head of
Blackwattle Bay and explore opportunities for greater connectivity between the two.
Key to achieving greater connectivity between the re-imagined park and the new
market development at the head of Blackwattle Bay is the future of Bridge Road. The
City proposes that two options be further investigated. The first option is to remove
and realign the road to run through Wentworth Park in close proximity to the existing
viaduct. This would allow the existing road to be reclaimed as parkland and would
provide better connectivity between Blackwattle Bay, the market and Wentworth
Park. Any realigned road through the park should be heavily calmed and integrated
sensitively into the park. The second option is to retain the existing alignment of
Bridge Road but implement significant traffic calming measures and pedestrian
crossing opportunities. Both options should be investigated by UGNSW in
collaboration with the City.
Figure 10: Wentworth Park and relocated Sydney Fish Market (Tim Throsby illustration for City of Sydney)
City of Sydney Submission to Urban Growth NSW – July 2015
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The Waterfront Promenade The Waterfront Promenade provides a significant ‘early win’ opportunity for public
open space. By simply making safe and opening up the foreshore to public access
as early as possible in the planning and design process, as undertaken at
Barangaroo, public access can be provided at minimal cost. This allows the
community to be engaged from day one. If boardwalk structures are to be built out
into the water as a temporary measure prior to privately owned land being
redeveloped or long leases expiring, this should be a temporary measure only and
should not be in lieu of a permanent public waterfront promenade.
The final promenade should take the form of a continuous 10 metre wide path within
a 30 metre wide public space directly fronting the water. This dimension is
commensurate with the 100 foot reserve established elsewhere around the harbour
and originally set out by the Government in 1828. While this will undoubtedly be a
challenge in some locations, it is a sound historical principle to which the design
should aspire. Further to this generous width, there should be areas along the
promenade, such as pocket parks or opportunities to access the water, which create
‘moments’ to linger. Finally, the design of the promenade should be such that there is
maximum permeability from the streets set back from the harbour to the promenade
and these connections should be clearly legible as public spaces. White Bay Power Station The forecourt area of the power station represents an excellent opportunity for a
consolidated public open space. Given the location of this land fronting the harbour
with reasonable distance to residential dwellings, it could accommodate some active
Figure 11: Foreshore promenade (Tim Throsby illustration for City of Sydney)
City of Sydney Submission to Urban Growth NSW – July 2015
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sports uses. Within the power station itself, the turbine hall should be retained and
used as a publicly accessible space. Other opportunities The underside of the Western Distributor in the vicinity of the Market District
Destination, currently a hostile and neglected space, should be activated and
transformed through public art and new public open spaces.
In the short term, low expense repurposing of the Rozelle rail yards may be possible
to provide critical recreation space. However, in the long term they should be
reserved for their potential future transport infrastructure needs including light rail
stabling.
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY GUNYAMA PARK AND AQUATIC CENTRE – GREEN SQUARE
Green Square is one of the fastest growing neighbourhoods in the city. The 278
hectare precinct will eventually be home to 54,000 residents and the workplace for
20,000 people. Many of these residents will be living in vertical villages and it is vital
that Green Square’s residents, workers and visitors have open spaces in which to
meet and gather, to play and exercise. To realise this demand for facilities, the City
of Sydney invited architects and landscape architects to enter a design competition
to create a new park and aquatic leisure centre for Green Square. The anonymous,
two stage open architectural design competition has been hailed as an exciting and
worthwhile process, and the independent jury highlighted that the successful
conclusion of the competition might provide impetus to other bodies in Australia to
follow the City’s example. As an indicator of the success of the process, the City
received over 140 entries from both local and international entrants, with a world
class design. Gunyama Park and Green Square Aquatic Centre, which is slated to
open early 2019 will feature a 50 metre heated outdoor pool, a 25 metre program
pool for swimming lessons, an indoor leisure pool, a hydrotherapy pool, a full-size
outdoor synthetic multipurpose sports playfield and many other world class design
features.
Figure 12: Gunyama Park and Aquatic Centre (Image source: Andrew Burgess Architects with Grimshaw and T.C.L)
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY THE LOWLINE – NEW YORK CITY
The Lowline in New York City’s Lower East Side is a plan to use innovative solar
technology to illuminate and activate an historical trolley terminal. The repurposing
of the 0.4 hectare former Williamsburg Bridge Trolley Terminal will improve the lives
of city residents by providing more public open space. The project will highlight the
historic architectural elements of the terminal, including original tracks, while
introducing solar technology and design enabling plants to grow underground. The
community will be engaged in the design process through in-school engagement
programs and the Lowline Lab where the project is researched and exhibited as it is
developed. The project is being supported by Government, commercial partners
and Kickstarter funding.
Figure 13: The Lowline, New York City (Image source: www.thelowline.org)
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY PIKE PLACE MARKET – SEATTLE USA
Built over 100 years ago to connect the city’s citizens and farmers, Pike Place
Market has developed into a Seattle Landmark, attracting over 10 million visitors
annually. Encompassing a 3.6 hectare district, the Market offers locally sourced
foods, where producers including farmers, butchers, fishmongers, cheesemongers,
winemakers and bakers operate on site. The market includes more than 225
independent businesses and restaurants. The market is managed by Pike Place
Market Preservation and Development Authority, a not-for-profit public corporation.
The charter requires that the PDA preserves, rehabilitates and protects buildings
within the market, increase opportunities for farm and food retailing in the market,
support small and marginal businesses and provide services for low-income
individuals. The market is currently undergoing an expansion with the new
MarketFront transforming an existing surface car park into an extension of the
existing market. Multiple access points to the new MarketFront will directly connect
the market with the waterfront. The expansion will include 40 new low-income
seniors housing units and a new neighbourhood centre.
Figure 14: The New Pike Place MarketFront (Image source: www.pikeplacemarket.org)
City of Sydney Submission to Urban Growth NSW – July 2015
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Recommendations: 5.1 The approach to delivery of open space and recreational facilities in the Bays
Precinct should be informed by the principles outlined in this section of the City’s
submission.
5.2 Re-imagine and expand Wentworth Park by removing the greyhound racing
track and stands and returning this area to full public use. This park should act as
an open space asset for the entire Bays Precinct and the wider region and should
be used as public open space only and not as a development site for other intrusive
uses such as housing, retail or education. The design of the park should be subject
to an international design competition to include the design of the market buildings
at the head of Blackwattle Bay.
5.3 A consolidated public open space, with the opportunity for active sports uses,
should be investigated on the forecourt of the White Bay Power Station. This could
support future cultural activities within this destination such as performances or
events.
5.4 UGNSW should collaborate closely with the City on the design of the public
domain to facilitate the eventual handover to the City for ongoing management.
5.5 Design the foreshore promenade as a 30 metre wide space with a diversity of
place, amenities and character. Provide opportunities for people to connect directly
from the promenade to the harbour. Ensure connections to the promenade from the
streets behind it are legible and frequent.
5.6 Prior to delivery of the promenade, provide public access to the foreshore at
every possible opportunity. Particular focus should be given to opening up access
through NSW Government owned lands at the northern end of Bank Street close to
the approach to Glebe Island Bridge.
5.7 Activate the area under the Anzac Bridge on Bank Street through public art and
other public domain improvements.
City of Sydney Submission to Urban Growth NSW – July 2015
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6 Community Facilities
Redevelopment of the Bays Precinct and the subsequent increase in residential and
worker populations will bring greater demand for community facilities and services.
There was be adequate school planning in the area – the State has shown to date
that while it promotes private development and growth, it is not forward planning or
budgeting for the required community infrastructure in some areas. In addition to
schools and medical services, the new community will require funding and delivery of
child care centres, before and after school care, and the full range of community
facilities and support services. Appropriate funding should be made available as part
of a social infrastructure program to ensure access to suitable sites, and the timely
delivery of both facilities and programs. This should be part of a community facilities
plan for the Bays Precinct.
These broader range of community facilities are crucial for a number of reasons
including: offering residents, workers and visitors opportunities for rest and respite in
a dense urban environment; providing focal points for the community to foster a
sense of belonging, connect with neighbours and build social capital; and supporting
community development and creating opportunities for enterprise and creativity
which in turn supports Sydney’s economic growth and diversity.
6.1 Opportunities for the Bays Precinct
General principles Generally, the City submits that the approach to delivering community facilities in the
Bays Precinct should be informed by the following principles: Ensure facilities contribute to the provision of a quality, integrated and
accessible network of facilities across the wider area. This ensures that
facilities make a valuable contribution not only to the area but to the broader
city. Key to this principle is the drive for quality and relative equality of access
across the city.
Facilities should support Sydney’s role as a global city. Quality design and
developing specialist facilities of international statute, which enhance
Sydney’s global appeal are key considerations.
Facilities should be adaptable, multipurpose spaces that provide for a range
of sectors and operate through collaboration with the community. Facilities,
where appropriate to their use, should be adaptable in their form, function,
operation and management to adapt to changing needs and trends.
Facilities should be environmentally sustainable, well designed and built to
last. Best practice design and construction are critical considerations, as are
safety for and accessibility by people of all ages and abilities.
City of Sydney Submission to Urban Growth NSW – July 2015
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Large integrated community facility The City recommends that UGNSW investigate the opportunity of providing a large
integrated community facility to support more localised facilities within the Bays
Precinct. The White Bay Power Station is one location which may be suitable for
such a use. This may be a general facility providing programmable space, spaces for
hire and a library link facility. It could also provide co-working and other types of
spaces for local businesses and creative and social enterprises, and be co-located
with supporting business uses and public open space.
Childcare facility Child care is a key community need, and one which will support achieving the
employment targets for the Bays Precinct.
The City has seen an increase in the number of zero to five year old resident children
from 6,040 in 2006 to 7,348 in 2011. This population is forecast to grow to 12,946 by
2031. There has also been significant growth in the population of zero to two year old
resident children, of which there were 3,228 in 2011 and is forecast to increase to
5,380 by 2031. The City’s recent comprehensive Child Care Needs Analysis Study
(2013) identified a current gap of 3,104 places within the LGA. It recommends a
range of strategies to address this gap, and to also address barriers to accessing
places faced by disadvantaged members of the community.
These strategies include direct provision, facilitating delivery of new centres by the
private and not-for-profit sectors through strategic and statutory planning
mechanisms and advocacy with other levels of government. These strategies should
be investigated within the Bays Precinct to ensure that the needs of the future
resident and worker population are appropriately met.
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY SOUTH SYDNEY HOSPITAL SITE – GREEN SQUARE
The City’s plan is to transform Green Square urban renewal area into an attractive,
vibrant and sustainable urban place. With the unprecedented future population
increase (a total of 54,000 residents and 20,000 workers by 2030), the City is
working on priority projects to deliver quality community facilities, good transport
connections, park and open spaces and infrastructure. Two significant City-led
projects include the Green Square Town Centre Community and Creative Facilities
and Matron Ruby Grant Park, which will be built on the former South Sydney
Hospital site. The first stage of the South Sydney Hospital Site is the restoration of
three heritage buildings to house creative art spaces, studios, exhibition areas and
community shed and childcare for 60 children. The estimated delivery date for stage
one is 2017. Stage two consists of a community hall, youth space, specialist
medical centre and rehearsal space.
Figure 15: Esme Cahill Building, South Sydney Hospital site (City of Sydney illustration)
City of Sydney Submission to Urban Growth NSW – July 2015
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Recommendations:
6.1 Develop a specific Community Facilities Plan for the Bays Precinct. This should
complement the precinct structure plan and be informed by City guidelines.
6.2 Prepare a funding and delivery plan and implementation program for the
Community Facilities Plan and establish an independent monitoring group to ensure
that targets are achieved and community outcomes delivered. Depending on its final
makeup and transparency, a future Greater Sydney Commission may be able to
fulfil this function.
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7 Cultural Facilities
Australia is shifting from an economy built on manufacturing and primary industries
to one built on knowledge, ideas and creativity. Sydney is at the forefront of this
change. The NSW Government’s Creative Industries Economic Profile notes that
creative industries make up 4.7% of total employment and approximately 6.8% of
total export services with a value of $1.38 billion. Nationally, 39.6% of creative
industries are based in NSW, with the majority in or around Sydney itself.
The NSW Government’s Response to the Creative Industries Action Plan notes that
land use planning and environmental regulatory requirements are a key issue
affecting the development of the industry. Barriers to creative enterprise may have
arisen as an unintended consequence of broader government regulatory
requirements, with potential for creative industry sectors to be disproportionately
impacted given the nature of the work.
The City’s key piece of work in this area, the Creative City Cultural Policy and Action
Plan (2014) outlines the following important principles:
Development of any urban renewal precinct must produce a built
environment capable of growing and retaining creative enterprise for the
long term benefit of the knowledge economy
The provision of a range of cultural infrastructure is essential. The City
has identified five primary types of infrastructure that should be
considered:
o Cultural infrastructure for ‘active’ public participation, such as
spaces for active making, doing, skill-sharing
o Cultural infrastructure for professional creative practice and
artform development, such as rehearsal rooms, artist studios
o Spaces for creative enterprise including retail
o Cultural venues’ and infrastructure for audiences or spectatorship,
such as a lyric theatre, cinemateque, Indigenous cultural centre,
artist-run gallery or exhibition space
o Spaces for temporary, unplanned or ‘special event’ cultural use in
the public domain, such as parks, roads, buildings.
The Bays Precinct offers an excellent opportunity to foster greater cultural activity
and participation, strengthening the knowledge economy and supporting tourism.
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7.1 Opportunities for the Bays Precinct
A new Bays Precinct Cultural Strategy and Action Plan A Cultural Strategy for the Bays Precinct should be developed which takes into
account current gaps in Sydney’s cultural offer. The plan should: provide a vision and
identify strategic priorities; consider the existing cultural capital of the precinct;
consider all levels of government; respond to local trends and changes in the cultural
sector; identify regulatory barriers and ways of overcoming them; and develop
evaluation methodologies for all cultural investments.
White Bay Power Station Cultural Hub The White Bay Power Station offers an opportunity to deliver a cultural hub that
supports the creative economy of Sydney. This could be achieved through either:
Creation of a hub that attracts a critical mass of creative workers through
provision of a broad variety of affordable small to medium spaces; or
Introduction of a landmark cultural venue, such as a lyric theatre or Aboriginal
and Torres Strait Island Cultural Centre, that is integrated into a critical mass
of small to medium scale creative activity. Such a facility would drive visitation
to the precinct. However, it is essential that it is supported by public transport
and a range of ancillary activities.
Affordable Housing and Live/Work Spaces Artists and creative workers who contribute to the creative vibrancy of Sydney find it
difficult to afford to live in the city. In consultation for the City’s cultural policy, many
stakeholders supported the suggestion that artists have access to affordable rental
housing and the need for subsidised studio and living space in the city for artists. The
City’s William Street affordable work and living spaces have enjoyed success, but it
has been noted that similar projects need to be scaled up to ensure creative workers
can continue to live and work in Sydney. The Bays Precinct offers an excellent
opportunity to provide these spaces.
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY TATE Modern
The London Dockland Development Corporation has delivered highly successful
cultural infrastructure at both ends of the spectrum. At one end it adapted the
Bankside Power Station into the TATE Modern, hosting work by major international
artists and attracting almost five million visitors annually. At the other, it established
a highly successful Arts Incentive Fund. Canada also provides some case studies in
providing good cultural outcomes through urban renewal. Artscape, a Canadian
urban development organisation focuses on clustering creative people together in
real estate projects to service need within the arts and cultural community and
advance multiple public policy objectives, private development interests, community
and neighbourhood aspirations and philanthropic missions.
Figure 16: TATE Modern (Image source: www.visitlondon.com)
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Recommendations:
7.1 Prepare a Cultural Strategy for the Bays Precinct. This should extend the
current diverse array of cultural facilities and programs across the city and support a
rich and diverse resident and visitor community.
7.2 Establish a cultural hub at the White Bay Power station.
7.3 Deliver landmark cultural facilities at the White Bay Power Station and
investigate options for facilities currently not available including a Lyric Theatre or
an Aboriginal and Torres Strait Islander Cultural Centre and an Asian Arts Centre.
7.4 Provide opportunities for small to medium scale activities including co-working
hubs and provide opportunities for independent live music and performance across
the Bays Precinct.
7.5 Provide affordable live work spaces for artists and creative communities.
City of Sydney Submission to Urban Growth NSW – July 2015
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8 Environmental Sustainability
The City defines sustainability in keeping with the Brundtland Report of 1987 as
“meeting the environment, social and economic needs of the present without
compromising the ability of future generations to meet their own needs.”
The City is committed to being an inspiring environmental leader and the City’s
environmental vision, goals, targets and actions for 2030 and beyond are set out in
Sustainable Sydney 2030. Key targets to 2030 are to reduce 1990 greenhouse gas
emissions by 50 percent.
As a major urban renewal initiative and focus for public and private investment,
redevelopment of the Bays Precinct offers an excellent opportunity to deliver world
class sustainability outcomes. The development of exemplar sustainability initiatives
at Barangaroo, Green Square and Central Park can provide a platform for the Bays
Precinct to deliver these outcomes.
8.1 Opportunities for the Bays Precinct The redevelopment of Barangaroo can be considered a robust model in which to
manage the delivery of solid sustainability targets, and should be considered for the
Bays Precinct.
Barangaroo has been designed and planned as a Climate Positive Project initiative
through the C40 Cities framework. It highlights the best practice environmental
outcomes achieved from a significant partnership between the City, the NSW
Government and developer Lend Lease. It is one of six global projects which have
achieved the second stage of the process.
C40 Cities Climate Positive Development Program The Barangaroo development provides a benchmark and a foundation for
establishing effective environmental targets and measurable outcomes. New
processes and governance arrangements for implementation in the Bays Precinct
should mirror, and progress, the work to date to ensure that “cutting edge
environmental, ecological and energy solutions” continue to be delivered as part of
Sydney’s urban renewal processes.
The transformation of the Bays Precinct should leverage the significant public and
private investment in sustainability, environmental performance standards and
commitments achieved as part of the Barangaroo development to deliver “next
generation” sustainability outcomes. It is recommended that the Bays Precinct be
identified as a ‘Climate Positive’ initiative through the C40. (Barangaroo will be
‘Climate Positive’ under C40 Cities– one of only 18 globally and 2 in Australia).
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The interpretation of ‘Climate Positive’ at the Bays Precinct should be based on a
sustainability strategy that sets out specific commitments to targets and indicators,
such as being carbon neutral, water positive and specific waste targets. These
targets should seek to mirror or improve on those set for Barangaroo including for
example: zero net waste to landfill by 2020; 80% diversion of operational waste away
from landfill from day one; water positive capability; and 20% reduction in embodied
carbon compared to standard construction practices.
Environmental targets should be agreed and locked in early in the development
process to provide certainty for developers and investors, and ensure meaningful
sustainability outcomes, public benefit and reduced ongoing infrastructure costs for
Government. Other initiatives Consider achieving certification for a broad community sustainability rating tool, such
as the Green Star Communities sustainability rating tool. These provide a framework
for the delivery and monitoring of precinct wide water recycling as well as tri-
generation. District infrastructure should be a top priority for achieving sustainability
objectives. It should include provision for initiatives that progress the environmental
sustainability of the area, such as recycled water and district cooling.
Further to meeting set environmental targets, there are several proven initiatives and
assets that can enhance the precinct’s resilience. Given the waterfront location,
district cooling utilising the harbour should be implemented. District cooling provides
improved amenity by removing the requirement for cooling towers/structures.
Barangaroo provides a case study for district cooling, but investigations will be
required to establish capacity requirements due to different harbour conditions.
Barangaroo and Central Park provide excellent case studies and guidelines for other
initiatives, such as local energy generation, a single utility model and a ‘mini-grid’.
As a key user of the area, it is suggested that cruise ships hook up to local energy
supply rather than running on diesel while docked at White Bay. This will provide
environmental and amenity advantages, particularly if new residential is to be
provided at White Bay.
Finally, the opportunity for Green Bonds and Climate Bonds, which may provide
cheaper finance, should be investigated as part of the funding strategy for
sustainable development.
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY BARANGAROO SUSTAINABILITY INITIATIVES
Barangaroo, as a local and contemporary case study, provides important insights
for the Bays Precinct as discussed. The development of specific environmental
targets and commitments in conjunction with new governance initiatives has
addressed challenges, which limited sustainability outcomes in the past.
Figure 17: Barangaroo sustainability targets (Image source: www.barangaroo.com)
City of Sydney Submission to Urban Growth NSW – July 2015
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Recommendations: 8.1 Commit to attaining C40 Climate Positive certification for the entire Bays
Precinct redevelopment. The interpretation of ‘Climate Positive’ should be the same
as that adopted at Barangaroo including carbon neutral, water positive and a
specific waste commitment. Set out commitments at the earliest stage to ensure
developers consider costs.
8.2 Introduce a Single Utility Model for the Bays Precinct, as successfully used at
Barangaroo.
8.3 Consider certification for a broad community sustainability rating tool. These
provide a framework for the delivery and monitoring of precinct wide water recycling
as well as tri-generation.
8.4 Utilise district infrastructure arrangements including recycled water, district
cooling, harbour heat exchange, local energy generation and specific waste targets.
8.5 Provide for a local energy connection for all cruise ships while docked at White
Bay. This will lead to great environmental performance of cruise ship operators and
increase the amenity and environmental sustainability of the Bays Precinct.
8.6 Investigate the use of Green Bonds and Climate bonds which may provide
cheaper finance.
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9 Renewal and Design Excellence
The renewal of the Bays Precinct should be closely linked to the City and the State’s
key strategic documents: Sustainable Sydney 2030 and A Plan for Growing Sydney.
Both plans should equally and transparently guide the planning and development
outcomes in the precinct. By doing so, the precinct should embody the themes
‘green, global and connected’ and reflect a restorative approach to renewal and
resilient outcomes in decision making. The most pervasive land use elsewhere in
Sydney Harbour is private, executive-class waterfront housing. Renewal of the Bays
Precinct should focus on public access and activity throughout to help balance
against the predominant private access outcomes of earlier renewal projects within
the harbour.
Throughout the consultation undertaken by the City for Sustainable Sydney 2030,
people from local communities and business placed emphasis on the need for
authenticity, diversity and sustainability in the design of existing and renewal areas.
Good urban design contributes to the liveability of the City and plays a major role in
maintaining and improving Sydney’s status relative to other cities. Aspiring to design
excellence in both built form and the public domain should be paramount to the Bays
Precinct transformation.
Placemaking provides an approach ensuring that the future planning and
redevelopment of the precinct considers the social, environmental, economic and
cultural aspects and experiences that make great places to live, work and visit. The
redevelopment of the Bays Precinct, while contributing to Sydney’s global
competitiveness, should also respect the distinct local character and cultural identity.
The future place should embrace the history and stories of this area by weaving the
old and new through the public realm design, materiality and architecture.
The objective of design excellence is to deliver the highest standard of architectural,
urban and landscape design. All buildings contribute to the urban and public domain
character of a city and so design excellence is an important fundamental
consideration for the successful transformation of the city. For urban renewal areas
and large development sites it is important that development achieves high design
quality standards and design variety. Robust design excellence strategies and
processes are a key way of achieving such quality and variety.
In recent years the City has emphasised the importance of design excellence and
the outcomes of this focus on excellent design can be seen across the city in both
the public domain and private development.
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9.1 Opportunities for the Bays Precinct The City’s planning framework contains objectives and provisions which aim to
achieve design excellence through the application of competitive design processes.
The aim is to deliver the highest standard of architectural, urban and landscape
design. The City recommends that objectives such as those set out below be
adopted for the Bays Precinct:
Ensure the development of the individual components of the Bays
Precinct respond to the overall strategic vision and structure plan and
integrate with the diversity and grain of the surrounding neighbourhoods.
Ensure high quality and varied design through the use of competitive
design processes for large and prominent developments.
Ensure development individually and collectively contributes to the
architectural and overall urban design quality.
Ensure multiple design responses and variety in architectural design and
character across large developments to provide a fine grain that offers a
strong identity, enriches and enlivens the public realm.
Ensure that the planning integrates a placemaking approach from the
start and that the relationship between design, development, land uses
and facilities and programming to deliver a people-focussed precinct and
places within it.
Figure 18: Gunyama Park and Green Square Aquatic Centre (Image source: Andrew Burgess Architects with Grimshaw and T.C.L)
City of Sydney Submission to Urban Growth NSW – July 2015
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Furthermore, the redevelopment of prominent public buildings and spaces in the
Bays Precinct, such as Wentworth Park and the Fish Markets and the White Bay
Power Station, should be subject to open anonymous design competitions to achieve
the highest standard of design excellence. The City has coordinated this type of
competition for the design of both the Green Square Library and Plaza and Gunyama
Park and Aquatic Centre in Green Square with great success.
Recommendations: 9.1 Ensure design excellence of buildings on redevelopment of large and prominent
sites by adopting design excellence objectives and provisions modelled on the City
of Sydney’s policy.
9.2 Run an open international design competition for the design of new Market
District buildings at the head of Blackwattle Bay. Include an expanded Wentworth
Park and relocated or calmed Bridge Road as part of the competition site.
City of Sydney Submission to Urban Growth NSW – July 2015
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10 Governance and Delivery
In 2015 the City commissioned SGS Economics and Planning to undertake a review
of case studies of urban renewal (Elephant and Castle and Kings Cross in London,
HafenCity in Hamburg, Barangaroo and Docklands in Australia, and Brooklyn Naval
Yards in New York) and identify best practice principles, the most effective
processes and outcomes. Given the amount and scale of urban renewal being
undertaken in Sydney, the City commissioned this study to ensure all stakeholders
had access to information on best practices in urban renewal. The report highlights
that in addition to the ‘planning and development’ outcomes on which the success of
urban renewal projects are most often judged, effective governance and strategic
planning processes are critical to delivering viable, sustainable outcomes, which
endure for the long term.
The good will and enthusiasm engendered in the community by the 2014 Bays
Precinct International Summit needs to continue. The 20 high-level Principles it
generated need to continue to guide the transformation for the precinct to also
become an exemplar of best practice. Success in developing the Bays will be based
on establishing and maintaining good working relationships and partnerships, a
restorative approach to renewal and resilient outcomes in decision-making – being
aware of adaptation and mitigation strategies as we face climate change.
The City has a proven track record of understanding and resolving the complex
challenges inherent in urban renewal projects and makes this submission from a
position of extensive experience in delivering meaningful change for Sydney. At
Green Square, the City’s most significant urban renewal project to date, we have
worked with stakeholders to resolve multiple challenges: delivering crucial
community facilities including a library, aquatic centre and childcare centre; working
with providers to deliver affordable rental housing for low to moderate income
households, many of which rely on jobs in the City that are key to its continued
success as a global economic centre; reserving land for future mass transport
infrastructure; resolving major environmental constraints such as flooding; and
delivering environmental sustainability measures such as recycled water systems.
The City has put in place a range of mechanisms to fund infrastructure in Green
Square and ensure an appropriate portion of the uplift in land value is for public
benefit. At Harold Park in Glebe the City has steered model renewal outcomes as a
result of an effective engagement process in which the community supported new
open space and new community facilities in conjunction with rezoning of the site.
City of Sydney Submission to Urban Growth NSW – July 2015
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10.1 Opportunities for the Bays Precinct
Stakeholder engagement Key to developing shared value is genuine engagement with stakeholders throughout
the planning and development process. Effective stakeholder engagement has been
highlighted as a key urban renewal success factor.
It is important that UGNSW establish trust, a consistent approach and an overall
framework for all three urban renewal initiatives currently underway (the Bays
Precinct, Parramatta Road, and Central to Eveleigh) ensuring that all stakeholders
are properly informed and effectively engaged in the planning and development
process. The City will continue to work with UGNSW to provide advice based on its
extensive community engagement experience and knowledge base.
The Major Urban Renewal Projects Memorandum of Understanding (MoU) that
covers all three urban renewal initiatives establishes a robust governance framework
to foster collaboration between the City and the NSW Government. The shared
objectives and principles in the MoU speak of strong collaboration, developing public
rust and understanding and delivering high quality, innovative and sustainable urban
renewal. The 20 principles generated by the Bays Precinct International Summit
further those in the MoU. There is a need for a Bays Precinct specific MoU to set out
more detailed parameters for the precinct and its destinations. An associated MoU
with the City and Roads and Maritime Services is also sought to guide the design,
implementation and management of water based activities.
Rigorous strategic planning based on the public interest Successful governance of the Bays Precinct transformation relies on processes
which are informed by past experience and do not repeat past mistakes. Critiques of
the Barangaroo redevelopment have included: the need to avoid self-financing
models which may compromise public interest based planning; the need to avoid
single developer or single architect approaches; and the need to separate ownership
and plan making and approvals as much as possible to avoid clear conflicts of
interest. It is vital that redevelopment of the Bays Precinct is informed by absolute
clarity around non-negotiable aspects, logical development stages, transparent
decision making processes and independent review, particularly where departures
from an approved plan are being considered.
To guide the process a structure plan for the entire Bays Precinct is essential to
clearly set out the strategic vision and guiding principles and illustrates the proposed
transformation. This should be done prior to setting dwelling or job targets, be based
on feedback to the discussion paper and the ‘Call for Great Ideas’ and should include
all seven destinations (with Wentworth Park and Glebe Island Bridge). It should detail
proposed land uses, open spaces, facilities and transport, and be accompanied by a
City of Sydney Submission to Urban Growth NSW – July 2015
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delivery plan which sets out staging, future funding and processes for governance
and engagement.
The preparation of a cultural strategy and economic strategy as recommended in
previous sections in this submission should inform and complement the structure
plan so as to optimise the potential of the Bays Precinct as an economic driver and
cultural destination. Similarly, the preparation of an integrated transport plan is a
crucial element of such structure plan to guide actions and inform staging, funding
commitments and delivery.
The value of the Bays Precinct will increase as the project proceeds, and the staged
release of land will increase the value obtained as well as maintaining flexibility to
incorporate new ideas and adapt to changing conditions over time. Fundamental
principles for management of the Bays Precinct include:
Leasehold, rather than freehold, arrangements over all land – with no
alienation of the foreshores from public access by sale or long term lease
Coordinate lease end dates. This will ease future renewal of land that will
continue to be highly valuable to the State
Maintain transparency of all aspects of decision making, governance and
financial arrangements
Ensure competition continues throughout the project to maximise value
Exercise flexibility in staging in order to bring forward or delay parts of the
project to maximise value in changing market conditions
Continue a high level of communication and engagement with the public
Place long term State-wide objectives and needs above short term local
objectives
Ensure the land uses maximise the values of the place
Infrastructure planning and funding Early planning for infrastructure is a key feature of successful urban renewal.
Commitment to infrastructure investment encourages private sector investment in the
short term and builds successful and productive places and communities in the long
term. Area such as the Bays Precinct have a greater reliance on early investment in
public infrastructure due to the high number of people living and working in the
precinct and the limited capacity to retrofit infrastructure in high density
environments. Redevelopment of the Bays Precinct also offers an opportunity to
address existing infrastructure shortfalls within precincts, which is appropriate given
the effects of increased traffic and demand for services that neighbouring areas will
experience.
In the MoU covering the three major urban renewal projects within the City of
Sydney, key renewal principles are established that speak to identifying,
City of Sydney Submission to Urban Growth NSW – July 2015
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benchmarking and costing infrastructure in a ”funding model and delivery plan with
clear accountabilities, dependencies and timing for delivery”. Significant to the MoU
is an understanding that the City and UrbanGrowth NSW will work together to
develop such funding model and delivery plan to support the renewal. Essential to
this work is the input from NSW Government and Leichhardt Council. The work
should integrate the outcomes of specific investigations recommended throughout
this submission, such as community facilities and transport.
The City stresses the need to commence this work early and recommends the
establishment of a working group with NSW agencies responsible for the delivery of
both physical and social infrastructure, including Local Government to ensure optimal
integration and delivery coordination.
The City has extensive experience in planning for, securing funding for and delivering
infrastructure required to support the renewal of Green Square. This area is expected
to provide for 20,000 jobs and 54,000 residents by 2030 and the infrastructure
required to support this population is significant. The City has used several methods
to secure funding for infrastructure in Green Square including section 94 developer
contributions, the Green Square Community Infrastructure Floorspace Scheme and
the Town Centre Infrastructure Strategy which ties infrastructure costs to the
increase in land value.
Forward-funding of some infrastructure will inevitably be needed. Early provision of
infrastructure will encourage development and private sector
investment. The unique situation that the NSW Government owns most lands in the
Bays Precinct offers a major opportunity to capitalise on the land value uplift that can
be generated on some parcels of land through early infrastructure delivery.
Mechanisms that share the value created from windfall land value increases will best
service the long term public interest. Allowing these benefits to flow only to
landowners will be a missed opportunity.
City of Sydney Submission to Urban Growth NSW – July 2015
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CASE STUDY GREEN SQUARE TOWN CENTRE The ‘Green Square Town Centre Development Rights’ scheme, introduced in 2006,
is a source of critical funding to deliver the significant infrastructure needed to
support the high densities of the Green Square Town Centre. This scheme
establishes contributions for each site in the town centre. The scheme operates with
an innovative rezoning model where development can only occur when landowners
in the town centre request that Council rezone their land and offer to commit to fund
the identified infrastructure. This model has proven highly successful in funding and
delivering key infrastructure and reducing unproductive land speculation activity.
GREEN SQUARE COMMUNITY INFRASTRUCTURE SCHEME The Green Square ‘Community Infrastructure Floorspace’ scheme was introduced
when the area was rezoned to mixed uses from primarily industrial land in the late
1990s. This scheme provides that additional development floorspace up to a
specified maximum may only be achieved where community infrastructure is
provided. The scheme, a partnership between the City and private developers, has
been successful in delivering important infrastructure at the time of development
such as parks, streets and incremental drainage upgrades. In 2015 alone, $52
million worth of public benefit offers have been made and are being negotiated and
secured by the City under this scheme in the form of voluntary planning
agreements.
Figure 19: Green Square Plaza and Library (Image source: Stewart Hollenstein)
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Recommendations: 10,1 Develop a structure plan for the entire Bays Precinct that sets out the strategic
vision and guiding principles and illustrates the proposed transformation delivered
through a comprehensive infrastructure and funding regime within an appropriate
governance framework.
10.2 Ensure effective stakeholder engagement throughout the planning and delivery
process
10.3 Implement a rigorous strategic planning process built around public interest
10.4 Establish a Bays Precinct specific MoU between the City and UGNSW to set
out detailed parameters for collaboration to ensure the delivery of international best
practice urban renewal outcomes. Establish an associated MoU with the City and
Roads and Maritime Services to guide the design, implementation and management
of water based activities.
10.5 Ensure early planning of infrastructure to identify, benchmark and cost the
infrastructure needed to support the Bays Precinct
10.6 Establish a working group with agencies responsible for delivery, including
Local Government and ensure optimal integration and delivery coordination with
independent monitoring.
10.7 Deliver infrastructure early to encourage development and private sector
investment and optimise urban renewal outcomes
10.8 Establish responsibility for ongoing operations (cleaning, maintenance etc.) of
the precinct at the earliest opportunity to eliminate uncertainty.
10.9 Utilise funding mechanisms that share value of windfall land value increases.
Secure portion of uplift value in a robust and economically balanced framework for
community infrastructure provision. Consider mechanisms such as the Green
Square Town Centre ‘Development Rights Scheme’.
10.10 Return the planning role to the Central Sydney Planning Committee and City
of Sydney once the strategic planning is complete.
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11 Great Ideas
The City welcomes The Call for Great Ideas and notes that ‘Great Ideas’ need not be
limited to destination specific solutions but can also relate to renewal, governance
and future proofing the management of the precinct. Further, the City believes that a
‘Great Idea’ does not necessarily be a new idea. Some ideas, such as an
educational institution in the Bays Precinct to catalyse a tech start-up hub, may be
new. Others, such as retaining and re-opening the Glebe Island Bridge to support an
integrated transport network may not be new, however, the context is now right for
their delivery.
The City’s ‘Great Ideas’ are summarised below in accordance with word limits
specified by UGNSW. Following this section is a table outlining to which objective
and destination each idea relates.
Extend inner harbour ferry services to service key destinations within the Bays
Precinct including the Fish Markets, the White Bay Power Station and the
White Bay Cruise Terminal as part of a wider integrated transport plan.
Redevelopment of the Bays Precinct provides an opportunity to extend Sydney’s
ferry network and introduce new timetabled inner harbour ferry services. Additional
residents, workers and visitors will support new ferry services, making more of
Sydney Harbour more accessible to local, national and international residents,
workers and visitors. A revitalised ferry network will help establish the Bays Precinct
as a priority public transport destination from day one. The international profile of the
precinct, as Sydney’s newest urban renewal area will be enhanced by a key focus on
public transport while at the same time presenting Sydney’s greatest attribute, its
harbour, as a key connecting element in urban renewal as a driver of transport,
recreation and open space outcomes.
A new stop at the Fish Markets will help achieve shifts in transport modes and assist
in reducing the amount of private vehicle parking required at the Fish Markets and
remove the incentive for the use of cars. Peak visitor periods at the Fish Markets,
such as Christmas and Easter illustrate the severe congestion that this creates. A
dedicated ferry stop would provide a viable and attractive alternative. The anticipated
increase in intensity of activity at the White Bay Power Station, including the potential
number of commuters would also make a stop at this destination viable, as would a
stop at the White Bay Cruise Terminal which could transport people disembarking
from cruise liners quickly to other locations. Provided future ferry services are linked
to the wider network and to the city, these services have the potential to take
pressure off bus services heading out of Balmain across Anzac Bridge and address
existing congestion in this area. To supplement the extended ferry service, a private
City of Sydney Submission to Urban Growth NSW – July 2015
61
but regulated Uber-style ferry or water taxi service should be allowed which utilises
GPS based hand-held digital technology.
Retain Glebe Island Bridge as part of the same transport plan as a key
pedestrian and cycle connection, an important heritage asset, a future light rail
link and a vital means of protecting the waters of Blackwattle Bay for
recreational purposes.
The Glebe Island Bridge should be retained, restored and re-opened as a critical
pedestrian and cycling link for the Bays Precinct. The bridge provides excellent
connectivity and is an important heritage asset. It can provide a future light rail link to
the White Bay Power Station, Cruise Terminal and Rozelle Stabling Yards from the
existing light rail line.
The bridge integrates the new Bays Precinct with the foreshore promenade and
connects it through to Pyrmont and Central Sydney. It is a landmark entry statement
for the precinct, defining the entry into the quieter inner harbour reaches. As such,
the bridge plays an important role in defining the inner bay areas as part of a mixed-
use community in which residents and visitors may participate in water based
recreational activities such as kayaking or dragon boating. The Bays Precinct
contains more water area than land area and the uses of the water space are every
bit as important as the land uses. The bridge defines and protects the community
activities which will form part of the future water based activities which define the
character of a renewed and revitalised Bays Precinct. Open up all parts of the foreshore in public ownership to public access as an
immediate priority using short-term, low-cost treatments.
The foreshore promenade provides a significant ‘early win’ opportunity for public
open space. By simply making safe and opening up the foreshore to public access
as early as possible in the planning and design process, as successfully achieved at
Barangaroo, public access can be provided at minimal cost. This can be achieved
through clear signage and low-cost short-term treatments wherever land is publicly
owned. This should be delivered in advance of the final promenade and would allow
the community to be engaged and take ownership from day one. If boardwalk
structures are to be built out into the water as a temporary measure prior to privately
owned land being redeveloped or long leases expiring, this should be a temporary
measure only and should not be in lieu of a permanent public waterfront promenade.
The eventual promenade should take the form of a continuous 30 metre wide public
space directly fronting the water. This dimension is commensurate with the 100 foot
reserve established elsewhere around the harbour and originally set out by the
Government in 1828. While this will undoubtedly be a challenge in some locations, it
City of Sydney Submission to Urban Growth NSW – July 2015
62
is a sound historical principle to which the design should aspire. Further to this
generous width, there should be areas along the promenade, such as pocket parks
or opportunities to access the water, which create ‘moments’ to linger. Finally, the
design of the promenade should be such that there is maximum permeability from
the streets set back from the harbour to the promenade and these connections
should be clearly legible as public spaces.
Undertake an open international design competition to re-imagine the land at
the head of Blackwattle Bay, including the Fish Markets and Wentworth Park.
Retention of all existing parkland, removal and replacement of the Greyhound
Racing track and stands with public parkland and connecting the park to an
expanded market offering at the head of the bay should be non-negotiable
aspects of all designs.
While Wentworth Park has not been included by UGNSW as part of the Bays Market
District destination, it plays a vital role in the broader success not only of this
destination and is a key resource for future residents, workers and visitors to the
entire precinct.
Removal of the intrusive Greyhound Racing track and associated infrastructure
provides the opportunity to “re-imagine” Wentworth Park and reposition it as a quality
recreational resource for the existing and future residents, workers and visitors.
The return of the entire park which is Crown Land for true public use, rather than
narrow interest group use, should be informed by an international design
competition, which encompasses the design of the park, the design of the new
market district at the head of Blackwattle Bay and the potential for greater
connectivity between the two locations. The design of the park and the new market
buildings should be considered holistically and the barrier that Bridge Road currently
creates between the two should be addressed. Investigation of traffic calming or
realignment of Bridge Road should be a key part of the design competition ensuring
that Wentworth Park, the market buildings and the waters of Blackwattle Bay are
seamlessly integrated and connected both visually and physically.
The City has coordinated successful competitions of this type for Gunyama Park and
Aquatic Centre and the Green Square Library and Plaza, to deliver world class
facilities and exemplary open space outcomes.
City of Sydney Submission to Urban Growth NSW – July 2015
63
Establish a working group of business academia and government
representatives and specialists to explore opportunities to position the Bays
Precinct as the natural extension of the digital and creative precinct, which has
emerged in Ultimo and Pyrmont.
The Bays Precinct, located adjacent to the Ultimo and Pyrmont ICT cluster, has the
potential to support the growth of the digital economy and accommodate a number of
tech start-ups. The provision of appropriate supporting infrastructure with appropriate
planning and design insights is required to attract this rapidly changing sector, and is
the key to capitalising on the potential of this emerging market.
The City’s ‘Floor Space and Employment Survey’ reveals the high density of people
with business knowledge, technology expertise and creativity already working in the
city. This has created a talent pool where innovation is thriving and start-ups are
being launched and grown. In the five years from 2007 to 2012, the ICT, higher
education and research sectors in the city grew by 12.4% to 76,952 workers. In ICT
alone in 2012 there were 782 individual businesses.
Catalysed by the proximity of Fairfax and Google, the significant ICT cluster in Harris
Street, Ultimo and the remainder of the areas, the ICT workforce now represents a
critical mass of businesses which can attract individuals who, due to their specialised
skills and talent could be encouraged to launch, join or support tech start-ups.
Establishing an effective dialogue with key players, analysts and commentators in
the sector is a prerequisite to effective planning for growth. The establishment of an
informed specialist working group to develop a “brief” to inform the ongoing planning
for the Bays Precinct will ensure that this opportunity is properly explored and
initiatives to support growth of the sector are optimised. The potential for growth is
significant and the opportunity to enhance the City’s international reputation as a hub
for knowledge intensive jobs and a globally competitive location is largely dependent
on capturing this globally expanding sector.
Investigate opportunities to provide more direct Light Rail Services to the Bays
Precinct, including a line between Convention and Wentworth Park stops by
tunnelling under Allen Street, Pyrmont.
The Bays Precinct provides an opportunity to develop a truly connected urban
renewal precinct by extending the existing light rail line (which runs from Central,
through Pyrmont, Glebe, Jubilee Park and on to Lilyfield) towards Balmain including
stops at White Bay Power Station and White Bay Cruise Terminal.
In conjunction, possibilities to provide more time competitive light rail services should
be explored. By way of example, the City has previously investigated the feasibility of
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64
a short tunnel under Allen Street in Pyrmont to provide a more direct Light Rail
connection from Pyrmont towards the inner west. Such an extension would link
Convention and Wentworth Park stations directly, making future light rail services
which could connect to White Bay and Balmain much more time competitive with
buses and therefore much more attractive to commuters. Such an extension could
be utilised to run an express service to and from Dulwich Hill and possibly remove 8
to 10 minutes from existing travel times. An all-stations service could be retained
also.
Investigate the relocation of the White Bay Cruise Terminal in the long term
There are a number of issues with the current location of the Cruise Ship Terminal at
White Bay. The noise, air and visual pollution caused by large cruise ships docking in
this location and experienced by proximate residents is significant. Poor public
transport provision and an already congested road network mean that travel times to
and from the terminal are unreliable and create further congestion. Given that a high
proportion of cruise trips are taken by domestic passengers rather than international
tourists, a longer term plan may be to relocate this terminal to Botany Bay where it is
closer to the source of fuel and supplies and the airport and far from sensitive
residential uses. This would address amenity impacts but also enable larger cruise
ships which cannot pass under the Harbour Bridge to be accommodated and take
pressure off Garden Island to accept domestic cruise ships as well as seasonal
round-the-world cruise ships. Investigations should be undertaken into the economic,
traffic and transport and amenity impacts of any relocation both at White Bay and
Botany Bay. It is critical that any relocation in the medium or long term does not stop
the significant impacts associated with the current location, including air quality,
amenity, transport and access being addressed in the short term.
City of Sydney Submission to Urban Growth NSW – July 2015
65
Great Idea
Temporary
or
Permanent
Objective Destination
Extended inner harbour ferry services
Permanent 2, 4 All
Retain, restore and reuse Glebe Island Bridge
Permanent 2, 4, 5 1
Immediate public access to the foreshore
Both 2, 4, 5 All
Remove Wentworth Park
greyhound track and run international design
competition for head of Blackwattle Bay and
Wentworth Park
Permanent 2, 5 2
Specialist advice on the Bays Precinct as a digital
and creative precinct
Temporary 1, 2 2 and 3
Allen Street light rail tunnel
Permanent 2, 5 All
Relocation of White Bay Cruise Terminal to
Botany Bay
Permanent 2, 3, 5 4
ends
City of Sydney Submission to Urban Growth NSW – July 2015
66
Appendix A - Attachments
The following documents are referred to in this submission and are available for
download as noted:
Bays Precinct Urban Renewal Program: Planning processes and consultation
review report. Elton Consulting, November 2014.
(http://sydneyyoursay.com.au/bays-precinct)
Best practice urban renewal: Input into Bays Precinct forum. SGS Economics
and Planning, November 2014. (http://sydneyyoursay.com.au/bays-precinct)
Housing Issues Paper. City of Sydney, April 2015.
(http://sydneyyoursay.com.au/housing-issues-paper)
Visitor Accommodation Action Plan (Hotels and Serviced Apartments). City of
Sydney, June 2015.
(http://www.cityofsydney.nsw.gov.au/__data/assets/pdf_file/0010/236719/150
623_PDC_ITEM07_ATTACHMENTB.PDF)
Creative City: Cultural Policy and Action Plan 2014 – 2024. City of Sydney,
August 2014.
(http://www.cityofsydney.nsw.gov.au/__data/assets/pdf_file/0011/213986/Cult
ural-Policy-and-Action-Plan-2014-2024.pdf)
Barangaroo Integrated Transport Plan. Barangaroo Delivery Authority, 2012.
(http://www.barangaroo.com/media/83121/bitp%20lowresfinal.pdf)
City of Sydney Competitive Design Policy. City of Sydney, 2012.
(http://www.cityofsydney.nsw.gov.au/__data/assets/pdf_file/0004/128065/Co
mpetitive-design-policy-adopted-09-December-2013.pdf)
City of Sydney Child Care Needs Analysis. Cred Community Planning, 2013
(http://www.cityofsydney.nsw.gov.au/__data/assets/pdf_file/0007/189835/CC
NA-7-Nov-2013.PDF)