RANDWICK CITY COUNCIL

ResidentialDiscussion PaperAugust 2011

Note: This document has been prepared for the Council Business Papers for the meeting of 9 August 2011. Minor amendments not affecting the content or recommendations may be made to the paper prior to public consultation, to improve formatting and/or communications.

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Contents Executive Summary ...................................................................................3

Overview ...............................................................................................3 Structure of the Paper..............................................................................3 Scope of Paper........................................................................................4 Background ............................................................................................5 Recommendations ...................................................................................8

Comprehensive LEP ..............................................................................8 Next steps............................................................................................ 13

1.0 Introduction .................................................................................. 14 1.1 Purpose.................................................................................. 14 1.2 Planning Framework Review...................................................... 14 1.3 Objectives and Scope ............................................................... 15 1.4 Guiding principles .................................................................... 15 1.5 Methodology and Consultation ................................................... 16

2.0 Context ........................................................................................ 17 2.1 Physical Setting....................................................................... 17 2.2 Overview of Residential Lands ................................................... 19 2.3 Historical Development............................................................. 22 2.4 Housing Types ........................................................................ 28

3.0 Planning Framework ....................................................................... 30 3.1 Historical Planning Framework ................................................... 30 3.2 State Government Planning Framework ...................................... 35 3.3 Local Planning and Policy Framework.......................................... 45

4.0 Trends and Housing Implications ...................................................... 50 4.1 Demographic Change ............................................................... 50 4.2 Households............................................................................. 52 4.3 Income .................................................................................. 53 4.4 Workforce, Employment and Transport Characteristics .................. 53 4.5 Dwelling Production ................................................................. 55 4.6 Implications for Housing ........................................................... 58

5.0 Accommodating Housing Needs........................................................ 59 5.1 Dwelling Targets...................................................................... 59

6.0 Zones and Development Standards................................................... 61 6.1 Residential Zones .................................................................... 61 6.2 Development Standards ........................................................... 63 6.3 Definitions .............................................................................. 82

7.0 Issues .......................................................................................... 87 7.1 Housing Diversity .................................................................... 87 7.2 Affordable Housing................................................................... 88 7.3 Types of Affordable Housing ...................................................... 92 7.4 Housing for Seniors and People with a Disability......................... 101 7.5 Tourist and Visitor Accommodation........................................... 103 7.6 Non-Residential Land Uses in Residential Zones ......................... 106 7.7 Masterplan Sites/Large Redevelopment Sites ............................. 109 7.8 Design Excellence .................................................................. 111 7.9 Other Design/Performance Requirements .................................. 113 7.10 Environmental Issues ............................................................. 113 7.11 Coastal Environment .............................................................. 119 7.12 Development on Laneways...................................................... 124 7.13 Variations to Development Standards – SEPP 1 .................... 125 7.14 Subdivision Consent Requirements........................................... 125 7.15 Exempt and Complying Development........................................ 126

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7.16 Conversion of Fire Alarms ....................................................... 126 7.17 Additional Uses ..................................................................... 127

8.0 Heritage Issues............................................................................ 129 8.1 Background .......................................................................... 129 8.2 Heritage Definitions and Clauses.............................................. 130 8.3 Heritage Items ...................................................................... 131 8.4 Heritage Conservation Areas ................................................... 134 8.5 Known or Potential Archaeological Sites .................................... 135

9.0 Investigation Sites ....................................................................... 137 9.1 Zoning Mismatches ................................................................ 137 9.2 Sites Identified by other Discussion Papers................................ 140

10.0 Recommendations........................................................................ 145 10.1 Comprehensive LEP ............................................................... 145 10.2 Comprehensive DCP............................................................... 151

11.0 Conclusion .................................................................................. 153

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Executive Summary _________________________________________________________________

Overview Randwick City Council is reviewing its Local Environmental Plan (LEP) and Development Control Plans (DCP) to create a new comprehensive LEP and DCP, based on the NSW Metropolitan Strategy and State Government planning reforms, including the gazettal of the Standard Instrument LEP (Standard Instrument). The Comprehensive LEP/DCP will review all zoning and planning controls across Randwick City. The intention is to review the zones and key planning controls, provide analysis of the implications of translating the existing Randwick Local Environment 1998 (Consolidation) (RLEP) into the Standard Instrument, and provide a range of planning recommendations. This Residential Discussion Paper (the Paper) is one of six LEP/DCP review papers being prepared. The other papers include:

Industrial Special uses Randwick Education and Health Specialised Centre Environment and Open Space; and Business Centres.

Structure of the Paper This Paper has 10 parts:

Chapter 1 – Introduction: outlines the purpose of the Paper as well as objectives/scope, methodology and consultation framework.

Chapter 2 – Context: provides an overview of residential lands and

historical development which has led to the present day spatial land use pattern and housing types

Chapter 3 – Planning Framework: describes the historical and current state

and local planning framework that guides the density, distribution and design of different types of residential development in Randwick City.

Chapter 4 – Trends and Housing Implications: summarises the current

demographic characteristics and outlines key trends likely to drive demand for housing in Randwick City into the future.

Chapter 5 – Accommodating Housing Needs: looks at the potential for

Randwick City to accommodate long term housing needs in line with the draft East Subregional Strategy dwellings target.

Chapter 6 – Zones and Development Standards: suggests how the RLEP

residential zones and development standards could be accommodated in the Comprehensive LEP and DCP including suggestions for revising, updating and replacing these using the Standard Instrument’s clauses.

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Chapter 7 – Housing Issues: discusses key issues which need to be considered as part of the future planning of residential lands particularly with respect to specific clauses in the Comprehensive LEP and performance requirements in the Comprehensive DCP.

Chapter 8 – Heritage Issues: identifies heritage matters to be addressed

as part of the Comprehensive LEP and Comprehensive DCP including Standard Instrument heritage clauses, definitions and recommended changes to heritage/ archaeological site schedules and heritage conservation areas.

Chapter 9 – Investigation Sites: identifies a number of investigation sites

that could potentially accommodate changes to zoning and/or density that have been identified as part of site audits and rezoning requests.

Chapter 10 – Recommendations: details recommendations for drafting the

new Comprehensive LEP and DCP.

Scope of Paper This Paper recognises the important role of residential zoned land in providing for a diverse range of housing and other uses such as neighbourhood shops to support communities. The Paper suggests that the City’s residential zoned lands have sufficient capacity to provide for the City’s estimated housing demands over the next 20 years, in conjunction with housing likely to be built in the City’s Business zoned lands (see also separate Business Centres Discussion Paper). Accordingly the majority of residential zoned land will be translated into the equivalent Standard Instrument zones without significant changes. Similarly the planning controls are proposed to remain largely the same, with key changes being to consolidate residential height and floor space ratio (FSR) controls in the Comprehensive LEP (rather than splitting the controls between the LEP and DCP). It also reviews the FSR controls to better reflect existing and acceptable development, ensure consistency with the NSW Housing Code and reflect industry best practice. Some additional LEP clauses are suggested to strengthen the assessment criteria for new residential development such as design excellence and sustainability. Recognising that the majority of Randwick City’s residential development applications are for alterations/additions to existing dwellings, this Paper also notes the importance of additional guidance in the Comprehensive DCP for issues such as overshadowing, privacy and other residential amenity matters.

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Background Randwick City encompasses an area of 3,742 ha and almost 36% of this area is currently zoned for residential purposes (see fig 1.1). Residential lands within Randwick City fall under four (4) types of zoning relating to different levels of density:

Residential 2A zone (covering 836 ha or 62% of residential zoned land) provides for a low density environment with the predominant housing type being dwelling houses, attached dual occupancy and semi-detached dwellings. The 2A zone covers the largest area of residential zoned land, predominantly in the southern suburbs.

Residential 2B and 2C zones (covering around 456 ha or 34% of all

residential zoned land) provides for a low-medium and medium density environment and the predominant housing type is multi-unit housing comprising town houses, villas, terraces and residential flat buildings. These zones generally surround the town centres and the northern suburbs.

Residential 2D (covering 53 ha or 4% of all residential zoned land) applies

to master planned sites in excess of 10,000m2 allows for a range of housing types and densities. It has been applied to the Prince Henry and Bundock Street master planned sites.

Randwick City’s LEP and DCPs provide for a diverse range of housing types. Aside from the residential accommodation outlined above, other forms of housing supported by the state and local planning framework include affordable housing (such as boarding houses, secondary dwellings and social housing), seniors housing (including nursing homes, retirement villages), tourist accommodation (backpackers accommodation, motels, bed and breakfast and serviced apartments) and student housing. This Paper recommends that a diversity of housing provision continue to be supported in the Comprehensive LEP and DCP through land use permissibility and planning controls which reflect the objectives of the land use zones and the character of localities. The Paper identifies key demographic trends which will affect the provision of housing in Randwick City into the future being: a slow but steady population growth rate, declining household size, an ageing population and declining housing affordability. These factors are likely to drive demand for housing into the future and accordingly this Paper suggests that planning for future housing provision should continue to support a mix of housing types in locations in close proximity to centres which provide ready access to jobs, services and public transport. This approach ensures that the impact on the character of low density residential areas, heritage conservation areas, less accessible suburbs and other sensitive areas is minimised. Chapter 3 provides an overview of the state and local planning framework and other legislative and guidelines. The Sydney Metropolitan Strategy, the strategic plan for Sydney over the next 20 years, anticipates that Sydney will need the provision of new dwellings to meet population growth, housing affordability issues and demographic changes. The strategy suggests that approximately 60-70% of new dwellings are to be accommodated in existing areas. The draft East Subregional Strategy, which translates the Sydney metropolitan strategy to a local level, provides a housing target of 8,400 additional new

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dwellings for Randwick City by 2031. Chapter 5 of this paper identifies that this dwelling target can generally be accommodated in the planned major redevelopment sites, in and around the town centres and infill development sites without having to make significant changes to current policy or development potential. Given the synergies between papers, the contents of this Chapter are also included in the Business Centres Discussion Paper. In preparation of a new Comprehensive LEP, the Standard Instrument sets out five (5) residential zones from which Council can choose to adopt in the development of the Comprehensive LEP. The new Comprehensive LEP also provides the opportunity for Council to review existing controls and standards to better reflect local land use conditions through the new plan. Chapter 6 of this Paper reviews the residential land use zones and suggests that the current residential zones be translated into the equivalent Standard Instrument zones in the Comprehensive LEP. The Paper reviews the current RLEP development standards with respect to residential development including minimum lot sizes, heights and FSR, in line with the Standard Instrument requirements to include. Generally the minimum lot size and heights are proposed to be maintained (with the introduction of an LEP height limit for dwelling houses/semi detached dwellings) in the Comprehensive LEP. The Paper recommends minor changes to the FSR controls for dwelling houses/semi detached dwellings and the 2B and 2C zones, to take into account a review of the NSW Housing Code which allows for dwelling houses (on certain lot sizes) to have a higher FSR than provided for under the zones; existing development trends based on the existing character of areas; consistency with other Council areas that have similar characteristics with Randwick City, as well as recommended FSRs of residential density industry best practice guidelines. Additionally options for reviewing or retaining the FSRs for attached dual occupancy are discussed, while recognising that State policies now provide for a wider range of dual occupancies (for affordable rental purposes). Chapter 7 provides an overview of planning issues in relation to the state and local planning context including certain housing types. Issues covered include: housing diversity, affordable housing, seniors housing, adaptable/universal housing, tourism and visitor accommodation, design excellence, environmental and coastal issues and the like. It provides recommendations on how these issues could be addressed by way of planning provisions in the Comprehensive LEP and DCP. Randwick City’s extensive residential heritage is discussed in Chapter 8 including Standard Instrument heritage clauses and definitions that substantially mirror those existing in the current LEP. While previous heritage studies have been undertaken for residential zoned land, this Paper suggests taking forward only those recommendations for heritage listings where these have been strongly supported by the community. A land use audit (Chapter 9) identifies previous zoning errors and ‘zoning mismatches’ for review. These areas comprise blocks or street fronatges where the predominant development type is of a higher density than provided for under the current residential zone (e.g. multi-unit housing in a low density zone). Additionally sites flagged by other Discussion Papers are discussed where the zoning issues are residential in nature. The Paper also flags rezoning requests/submissions received to date. It is important to note that this Paper and

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the Council continues to welcome feedback on the proposals and recommendations within this document. An inventory of the zoning mismatch sites and rezoning submissions is included in Appendix E.

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Recommendations Chapter 10 of this Paper summarises key recommendations for drafting the new Comprehensive LEP and DCP based on the analysis and issues discussed throughout this Paper. In summary, this Paper makes the following LEP and DCP recommendations:

Comprehensive LEP LEP Aims The following existing LEP aims relevant to this Paper are proposed to be included in the Comprehensive LEP:

To encourage the provision of housing mix and tenure choice, including affordable housing in the City

To encourage the retention of affordable housing in the city in a variety of

types and tenures; and

To recognise the importance of ecological sustainability in the planning and development processes.

LEP Zones and Zone Objectives The majority of residential zoned land will be translated to equivalent zones under the Standard Instrument as follows:

Randwick LEP Zone Standard Instrument

LEP Zone

Residential 2A (Low Density)

R2 Low Density

Residential 2B (Low Medium Density)

R3 Medium Density

Residential 2C (Medium Density)

R3 Medium Density

Residential 2D (Comprehensive)

R1 General Residential

In addition to the Standard Instrument’s compulsory zone objectives the following additional RLEP objectives are proposed for each residential zone to reflect Randwick City’s local issues such as housing affordability. Zoning Mismatch Sites A number of ‘zoning mismatch’ sites have been identified to be rezoned to a compatible zone to reflect existing land use . This is generally in those circumstances where the predominant existing development is of a higher density than provided for under the zone.

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In addition the zoning of a number of sites have been flagged by other Discussion Papers for inclusion in this Paper including sites that are zoned open space, and special uses. These are: Open Space Sites

66A Doncaster Avenue, Randwick City Council – proposed to be rezoned to

R3 (Medium Density Residential) (equivalent to Residential R3) to reflect development consent for multi-unit development

2 Hurley Crescent, Matraville – proposed to be rezoned to R2 (Low Density

Residential) (equivalent to Residential 2A), to reflect existing land use.

Business Zoned Sites 30 Bruce Street, Kingsford – proposed to be zoned to R3 Residential

(equivalent to RLEP Residential 2C) to apply a consistent zoning across the school site

Special Use Zoned Sites

88-102 Moverley Road, South Coogee –Proposed to be rezoned to R2 – Low

Density (equivalent to 2A under RLEP) to reflect development consent 651 Anzac Parade, Maroubra –Proposed to be rezoned to R2 – Low Density

(equivalent to 2A under RLEP) to reflect development consent

1406-1412 Anzac Parade, Little Bay – Masterplanned site. Proposed to be rezoned to R1 (General Residential) (equivalent to 2D under RLEP) to reflect development consent.

Other Sites The Inglis Newmarket Site which is subject to a separate Planning Proposal (rezoning) has not been considered in this Paper.

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Development Standards The following three development standards are proposed for the Comprehensive LEP: Minimum Lot Size The current minimum lot size standards are proposed to be maintained the Comprehensive LEP as follows:

Randwick LEP Zone Standard Instrument LEP Zone

2A Zone – Single dwellings: 400m2

R2 Zone – Single dwellings: 400m2

2A Zone – Attached dual occupancy: 450m2

R2 Zone – Attached dual occupancy: 450m2

2B/2C Zone: 325m2

(not including multi unit dwellings)

R3 Zone – 325m2

(not including multi unit dwellings)

Heights The current height controls are proposed to be maintained in the Comprehensive LEP with the intoduction of a 9.5m height control for dwelling houses and semi detached dwellings.

Randwick LEP Zone Standard Instrument

LEP Zone

2A Zone – 9.5m (except for dwelling houses)

R2 Zone – 9.5m* (including attached dual

occupancy)

2B Zone – 9.5m

R3 Zone – 9.5m*

2C Zone – 12m

R3 Zone – 12m*

2D Zone - Various

R1 Zone – Various

* A 9.5 metre height limit for dwelling houses and semi detached dwellings across the 2A, 2B and 2C zones (equivalent to R2 Low Density and R3 Medium Density under the Standard Instrument).

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Floorspace Ratio FSR Sliding Scale for Dwelling Houses and Semi Detached Dwellings This Paper proposes to introduce FSRs for dwelling houses and semis in the Comprehensive LEP. It proposes to revise the current DCP FSR sliding scale (see Chapter 6).

Lot size m2 Comprehensive LEP

< 300 Not specified (merit)

301-450 0.75:1

451-600 0.65:1

>600 0.6:1

FSR for Attached Dual Occupancy The Paper proposes 2 options for attached dual occupancy in the R2 zone (equivalent to the 2A zone):

Option 1 – Revise the FSR for attached dual occupancy from 0.5:1 to 0.6:1 to take into account the existing pattern of built form outcomes; or

Option 2 – Retain current FSR of 0.5:1 for attached dual occupancy

FSR for 2A Zone (equivalent to the R2 zone) The Paper proposes to retain the 0.5:1 FSR for all other buildings in the 2A zone (equivalent to the R2 zone). (Nb this FSR is not applicable to dwelling houses, semi detached dwellings and potentially attached dual occupancy depending on community feedback regarding options). FSR for 2B Zone (equivalent to the R3 zone) The Paper proposes to revise the FSR for the 2B zone to 0.75:1 to take into account planning anomalies with respect to the application of the Housing Code, the existing character of areas within this zone, existing pattern of variations to the controls and to reinforce the hierarchy between residential zones. FSR for 2C Zone (equivalent to the R3 zone) The Paper suggests 3 options for the 2C zone:

Retain the existing FSRs of 0.65:1 (for lots < 700m2) and 0.9:1 (for lots >

700m2); or Apply the existing 0.9:1 FSR across the entire 2C zone (including allotments

that are smaller than 700m2) to help address potential anomalies with respect to the application of the Housing Code in the medium density zone and reinforce the intended scale and existing medium density character of the 2C zone; or

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Retain a split FSR of 0.9:1 (for lots >700m2), revise the FSR to 0.75:1 (for lots

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Council’s publication Design Ideas for Rejuvenating Residential Flat Buildings

Contamination - Guidelines reflecting key strategies and provisions of the

Former Incinerator Land Matraville Policy

Flood planning - Specific flooding development controls for new development; and

Laneway widening - objectives and key performance standards to facilitate

widening of a select number of laneways.

Next steps Community feedback on this Discussion Paper will provide the basis for the residential zones and planning controls of the Comprehensive LEP and DCP for formal exhibition.

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1.0 Introduction

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1.1 Purpose This Discussion Paper has been prepared to review the strategic planning framework for housing in Randwick City over the next 20-25 years in line with the objectives and key actions of the Sydney Metropolitan Strategy and Draft East Subregional Strategy. It aims to establish a balanced approach to accommodate residential growth and improve housing choice in the City, taking into account demographic changes, declining housing affordability and household size, while recognising the established nature of the residential area. The Residential Discussion Paper is one of six land use discussion papers being prepared as background for the Comprehensive LEP. These comprise Industrial Lands, Business Centres, the Randwick Education and Health Specialised Centre, Special Uses, Open Space and Environment, and Residential lands Papers. Each discussion paper reviews the current planning controls, future needs and trends, the State Government’s strategies and policies and takes into consideration any relevant local strategic plans and studies, such as the Randwick City Plan. Other issues such as heritage and environmental considerations are incorporated into each paper. The Residential Discussion Paper focuses on land zoned residential as well as land that is proposed to be zoned residential. It will form the basis for drafting the residential zones, development standards and planning controls under the new Comprehensive LEP. Residential land uses in other zones (such as business zones) will be addressed in other discussion papers.

1.2 Planning Framework Review The Residential Discussion Paper forms an integral component of the review of Randwick City’s strategic planning and land use framework, the key documents beings the Randwick LEP 1998 (Consolidation) and Development Control Plans (DCPs). This review was first earmarked in Council’s long term 20 year plan, the Randwick City Plan 2006 to provide for lifestyle changes and for a continuing, yet low rate of population growth across the City over the next 20 years. The City Plan direction coincides with the introduction of a number of planning reforms by the NSW Government including the Standard Instrument which provides a template for all new Local Environmental Plans (LEPs) in NSW to follow including standardised zones, definitions and planning provisions. All Councils are required to prepare a new comprehensive LEP consistent with the Standard Instrument format. New LEPs are also required to meet the relevant

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directions of the Sydney Metropolitan Strategy and applicable Draft Subregional Strategies. Councils are also required to prepare a new Comprehensive Development Control Plan (DCP) to provide planning and design guidelines to complement the development standards and controls of the Comprehensive LEP. The confluence of these initiatives provides an opportune time for the Council to conduct a comprehensive review of the planning framework for Randwick City to meet the future needs of the City. A strong strategic base such as that outlined in this Discussion Paper, will better enable the City to maintain and enhance the quality of the City’s living, working, social and natural environments while meeting the State Government’s metropolitan planning requirements.

1.3 Objectives and Scope The objectives of the review of residential lands are to:

Implement the directions of the Randwick City Plan to achieve the outcomes for the key strategic direction ‘Places for People’

Evaluate the capacity of the existing strategic planning framework to

accommodate anticipated residential growth and demographic changes Encourage housing diversity and affordability Review and translate the Randwick Local Environmental Plan 1998

(Consolidation) into the Standard Instrument including appropriate residential zones and residential development clauses

Identify potential issues for consideration in the Comprehensive LEP and

DCP, such as sustainable development and design excellence; and

Identify and correct mismatches in the current residential zoned land and review any rezoning requests from land owners.

This Paper recognises the continued importance of land zoned for residential uses in our City as the dominant land use. Randwick City currently has 1,345 hectares of land zoned for residential uses, comprising 36% of all land in the City. There are appropriately 55,000 dwellings in the City housing our population of around 122,176. The majority of the residential zones will be translated to the equivalent Standard Instrument zones without significant changes. This Paper notes that the City’s existing and expected residential development (including in commercial centres and major redevelopment sites) will provide sufficient capacity without significant zone changes to meet estimated population growth figures and the NSW Government’s 20 year dwelling target for Randwick City (additional 8,400 dwellings up to 2031)

1.4 Guiding principles The following principles have been developed to guide the preparation of this Discussion Paper, in particularly to inform the recommended zoning, land uses permissibility, appropriate densities and new planning provisions in the Comprehensive LEP:

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Generally to maintain the character and amenity of existing low density zoned residential areas

Discourage residential zoning intensification in sensitive areas such as

heritage conservation areas

Concentrate new dwellings in accessible locations in and around centres and within walking distance of shops, employment, public transport, facilities and services

Maintain and enhance housing choice and diversity in suitable areas

including single dwellings, semi detached dwellings, town houses, multi unit dwellings, adaptable housing, affordable housing, seniors housing etc; and

Encourage design excellence to achieve quality, sustainable and affordable

residential dwellings.

1.5 Methodology and Consultation This Paper is being prepared within a framework containing four broad stages of development and consultation as follows. Stage 1: Research and development

Policy and statutory framework; and

Key inputs - Commissioned research and studies, land use and site investigations.

Stage 2: Drafting

Draft Paper Stage 4: Next steps

Preparation of draft Comprehensive LEP and DCP; and Further detailed consultation process.

We are here

Stage 3: Public consultation and finalisation

1. Council briefing and report

2. Public Consultation

3. Finalisation

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2.0 Context

_________________________________________________________________ This Chapter provides a context to Randwick City. It describes its physical setting and outlines its historical development, focusing on its suburbanisation and residential growth as well as key housing types.

2.1 Physical Setting Randwick City encompasses an area of 3,742 hectares, with a total population of 122,173 in 2006 (2006 Census). Located in the eastern subregion of Sydney, the City extends from Centennial Park and Clovelly in the north along the eastern coastline to La Perouse and Port Botany in the south, incorporating the suburbs of Centennial Park, Chifley, Clovelly, Coogee, Kensington, Kingsford, La Perouse, Little Bay, Malabar, Maroubra, Matraville, South Coogee, Philip Bay, Port Botany and Randwick (see fig 1). The City is a long established and attractive inner city area that includes a broad range of natural and man-made assets many of which are major regional attractors. Natural attractions include 29km of coastline, which strongly influences the area’s character and functions; iconic beaches such as Coogee, Clovelly and Maroubra; and extensive parklands and open space areas including Centennial Park, Heffron Park and Botany Bay National Park. The City has state and nationally significant education and medical facilities including the Randwick Health (Hospitals) Campus (incorporating Prince of Wales Hospital, Royal Hospital for Women and Sydney Children’s Hospital and Prince of Wales Private Hospital), the University of New South Wales (UNSW), and Randwick TAFE. Port Botany in the southern suburbs is a major employment location for the Sydney region, extending across both Randwick and Botany local government areas. It also includes a number of shopping centres that serve local and neighbourhood catchments. The City is host to regionally significant recreational facilities including Royal Randwick Racecourse and a number of golf courses. These assets and the proximity to the Sydney CBD, Sydney Airport, and inner city entertainment districts are contributing factors to the City’s identity and desirability as a great place to live.

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Fig 1: Regional context

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2.2 Overview of Residential Lands Randwick City has a diverse built environment, with a significant proportion, about 36% or 1,345ha of the LGA zoned for residential, around 30% (1,118ha) designated for open space purposes, and the other third (34%) covered by a variety of land uses, including commercial, industrial, special uses, roads and others.

Fig 2: Land use zoning in Randwick LGA. Source: Randwick Local Environmental Plan 1998 (Consolidation) The majority of residential zoned land is low density covering approximately 836ha or 62% of the total residential land area in Randwick City including a large portion of the southern suburbs. Medium density land is generally situated around the town centres and the northern suburbs and covers around 456 ha or 34% of all residential land. Master planned sites which have a mixed density character make up the remaining portion of residential zoned land, equating to about 53 ha or 4% of total residential land across the city. Housing stock is varied with over half the City’s dwellings comprising multi-unit residential development (e.g. flats), and the remainder consisting of other medium density residential development (e.g. townhouses), semis and detached dwelling houses. The City also contains a significant stock of social housing comprising mostly flats. The character of residential areas throughout Randwick City varies significantly particularly between north and south. The northern suburbs (comprising Clovelly, Coogee, South Coogee, Kensington, Kingsford and Randwick) are generally older, more established residential areas

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and residential densities are more mixed with larger areas of low-medium density and medium density zoned land. There are higher proportions of flats and semi detached dwellings on smaller lots, often with a fine grain grid pattern of development with narrow street/ lanes. Development in the northern areas tends to respond to the sloping topography near the coast. The northern suburbs also contain the highest numbers of heritage items and conservation areas reflecting a layered history and providing an insight into the historical development of the area. The southern suburbs (Chifley, La Perouse, Little Bay, Malabar, Matraville and Phillip Bay) are characterised primarily by post world war II development. The street layout is more varied comprising both traditional grid patterns and cul de sacs which were a common feature of subdivision in the 1950s to the 1970s. The topography is generally flatter than the north apart from Malabar and coastal areas, with steeper slopes. Lots are generally larger with larger frontages and houses. The most common development is freestanding dwelling houses with some attached dual occupancy. Unlike the northern suburbs, the southern suburbs are mostly zoned low density with small pockets of medium density zoned land. There are also a considerable amount of social housing in large estates of a range of densities and housing types. The large suburb of Maroubra encompassing the central parts of the City is extremely varied and displays a transition from early 20th Century development in the north to later 20th Century development in the south.

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Fig 3: Residential zoned land in Randwick City

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2.3 Historical Development As one of Sydney’s oldest local government areas, Randwick City has a long history of urban development with the initial pattern of settlement reflecting the walking tracks of the local Aboriginal people who are thought to be the Cadigal people (the salt water clans). The territory of the Cadigal people extended through Randwick from South Head to Botany Bay. 2.3.1 Early Colonial Period European settlement of the Randwick area occurred from the late 1770s, (following the arrival of the First Fleet at Yarra Bay). It remained sparse for many years until the first land grants were made, notably to the Church in the establishment of the ‘church and school lands’ extending from Kensington through to Malabar and a government reserve further south between Long Bay and Bunnerong Road. With these land grants, three patterns of settlement established what today can be recognised as three distinct development patterns within Randwick City. The northern end of the Randwick City is where European settlement largely commenced with the establishment of industries to support Sydney including mills and logging and shortly after Randwick Racecourse. Nearby fresh water from Lachlan Swamp and what is now Centennial Park supplied and supported these industries. In the 1830s, land was granted for settlement to create Randwick and Kensington villages and the sea-side “resort” of Coogee. The first substantial houses were constructed during this time many of which belonged to the market gardeners. Small workers cottages were also constructed in close proximity to employment sources with a few good examples surviving in Struggletown and Clovelly. Most of these workers cottages were simple in structure and usually constructed of timber or sandstone. By 1859 Randwick was established as Sydney’s first suburban municipality and urban development soon spread westward in the 1860s and 1870s following the gold rushes (see fig 4). 2.3.2 Transport and Suburbanisation No single influence affected the pattern of urban development in Randwick City as powerfully as transport. Improved transport and accessibility is what made suburban development possible and development spread out as the population grew1. The first steam trams arrived at Randwick Racecourse in 1880 and the line was soon extended to Randwick Junction in 1881 and Coogee in 1883. These areas were quickly subdivided for suburban development with settlement occurring in the northern suburbs including Kensington. Population growth occurred in phases in the 1880s and 1890s with the total number of residents reaching 9,573 by 1901. Nearly 90 per cent of the population lived in the suburb of Randwick, and the remainder mostly in Coogee, with a few people living in the new suburb of Kensington.

1 Randwick Heritage Study 1989

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Many grand residences were constructed during the 1880s, with buildings reflecting the new affluence following the gold rush period by way of embellishment. Many single storey villas were also built during this time. Terrace style residential development also became popular during the 1880s and 1890s characterising the more densely populated inner suburbs. By the 1890s, recession saw a transition in architecture where more simplistic forms were pursued. Architects moved towards a more distinctive modern style and the Edwardian and Queen Anne styles became popular. Fig 4: Settlement pattern from 1840 – 1875 Source: Randwick Heritage Study 1989

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2.3.3 Federation Suburban growth was boosted during the Federation Period by the end of the recession and improvements to transport. Growth continued further southwards in the Municipality, aided by the extension of the tramlines to Long Bay and finally La Perouse in 1902 (see fig 5). The population almost doubled to 18,461 between 1901 and 1911. In the following decade (1911 and 1921) growth was even more rapid and despite the First World War, the population grew to 50,841. Suburban living became popular during the Federation period and the bungalow with its large backyard became the Australian dream and a popular housing type in Randwick’s northern suburbs. Not long after the tramway was extended to the southern suburbs, Maroubra and Malabar were established as new residential suburbs and pockets of Federation housing were also constructed in these areas. Fig 5: Settlement pattern 1885 – 1910 Source: Randwick Heritage Study 1989

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2.3.4 Residential Flat Boom Growth in Maroubra continued in the 1920s and the suburb become increasingly urbanised. Kensington continued to spread south, filling the area which is now known as Kingsford (see fig 6). A decade later Maroubra and Kingsford linked up with development also occurring in pockets further south in Malabar, Matraville and La Perouse. Another significant population growth phase occurred between the 1920s and 1930s with the “flat boom” resulting in Randwick becoming the most populated municipality in the Sydney metropolitan area. During this time flat buildings comprising two or three storey double brick walk-ups provided most of the new housing in the Municipality. Art deco, Spanish mission or Romanesque were the predominant flat building styles. The construction of flats transformed suburbs in the northern parts of the Municipality including Randwick, Coogee, Clovelly, Kensington and Kingsford. By the end of the 1930s there were also a number of flats in Maroubra. With the arrival of the Depression in the 1930s decoration was reduced to a bare minimum and housing styles became more and more standard. Semi-detached housing continued during this period with some examples of this period remaining in Kensington and Maroubra. The major transformation in local architecture came with the introduction of the Australian bungalow (often referred to as Californian bungalow) which was constructed in the suburbs of Kensington and Kingsford. By the end of the 1930s, the northern half of the Municipality was well established with a mix of dwelling houses, semis, terraces and residential flat buildings, while the southern half was characterised by pockets of low density single dwelling housing. Despite the Second World War and the Great Depression, the population of the Municipality continued to grow, reaching over 100,000 by 1947.

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Fig 6: Settlement Pattern in Randwick City – 1925 Source: Randwick Heritage Study 1989

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2.3.5 Post War Flat Boom The 1950 to 1970s post war flat boom further concentrated residential flat development within Randwick Municipality in Randwick, Kensington, Kingsford and Coogee, with some ad hoc development occurring throughout the lower density southern suburbs. This era saw the construction of relatively fast and inexpensive brick 3 and 4 storey walk-up residential flat buildings of which the majority are not considered to be outstanding examples of modern architecture. The resurgence of residential flat buildings generated a 25% increase in population from 99,080 to 123,665 in 1971. A number of Department of Housing developments were also constructed during this period in a range of forms with estates in the southern suburbs e.g. Maroubra. 2.3.6 1980s to Today The 1980s and early 1990s saw a significant amount of dual occupancy development constructed in Randwick, with the introduction of the Sydney Regional Environmental Plan (SREP) No 12 in 1987 by the NSW Government as part of its urban consolidation policies. This resulted in a large number of dual occupancy development in La Perouse, Maroubra, Phillip Bay, Malabar and Matraville. Since the 1980s residential flat buildings, particularly infill development has continued in the City’s northern suburbs with mixed use high rise development (6-10 storeys) along Anzac Parade at Kensington, Kingsford and Maroubra Junction town centres. The trend of mixed residential/commercial developments specifically in business centres emerged during recession times of the 1990’s across metropolitan Sydney. An oversupply of commercial floor space led to residential development becoming an attractive option for many business centres including the larger town centres in Randwick. The incoming residents in turn provided an increased catchment of customers for the businesses. Another feature of growth over the last 10 years has been the redevelopment of large surplus government sites through the application of master plans. Examples of such sites include the former Department of Defence site at Bundock Street and the former Prince Henry Hospital Site at Little Bay. Compared to earlier booms, extensive development controls are now required for these sites seeking quality design, amenity and environmental standards. Architecture is generally modern in style favouring sustainability as a design approach with open plan living. With the continued popularity and gentrification occurring across Randwick City, recent decades have also seen significant activity in renovation of existing dwellings. The changing demographics (including aging population and smaller household numbers) has seen the population peak in the 1970s then decline in the 1980s and slowly increase again in the last decades (see Chapter 4). In summary the built form of Randwick at the beginning of the 21st century can be described as mostly single/attached dwellings, townhouses and residential flat buildings. As indicated in this Paper all of these forms will be needed into the future for demographic, affordability and sustainability reasons.

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2.4 Housing Types The historical development of Randwick City has resulted in a number of identifiable housing types spread throughout the LGA. The current Randwick planning controls divide residential development broadly into three categories. To assist this Paper’s at times technical discussion regarding the future of residential development in Randwick City, these housing types are summarised below and described in Table 1.

Dwelling houses

o a building containing one (but not more than one) dwelling on a single lot

Attached dual occupancies

o a building containing two attached dwellings on the same lot

Multi-unit housing

o two or more dwellings on the same lot (eg strata titled flats) or o two or more dwellings on separate lots (eg semi-detached

dwellings, terrace houses etc). The third category includes a variety of residential types from single storey row houses, two storey terrace houses, town houses to multi-storey residential flat buildings. In addition, there are other types of housing within the City that accommodate a diverse demography (including the aged and the disabled); or provide alternative forms of permanent or temporary accommodation to individual occupation of separate dwellings. These include:

Affordable housing such as boarding houses, secondary dwellings (granny flats) and social housing (public and community housing)

Housing for the aged and disabled (e.g. hostels or nursing homes)

Tourist accommodation (including backpackers accommodation, bed and

breakfast accommodation, hotel and motel accommodation and serviced apartments); and

Student accommodation.

These housing types are discussed in further detail in Chapter 7.

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Table 1: Housing Categories Housing Category Housing Type Photo

House on separate lot

Dwelling house

Semi-detached houses each on its own lot

Attached dual occupancy

2 houses on same lot

2 or more single storey row houses

2 or more multi storey terrace houses/townhouses

Pre-war residential flat buildings

Post-war residential flat buildings

Multi-unit housing

Recent residential flat buildings

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3.0 Planning Framework

_________________________________________________________________ This Chapter provides a summary of the historical planning framework that initially guided the spatial development pattern of Randwick City. It is followed by an overview of the current state and local planning framework that determines the density, distribution and design of residential development in Randwick City. Key Metropolitan Strategy and draft East Subregional Strategy objectives and directions which relate to housing are also discussed.

3.1 Historical Planning Framework The earliest form of statutory land use planning in NSW was introduced with the gazettal of the ‘Residential District Proclamation’ (section 309) in 1942. The proclamation contained limited details on land use zoning and building controls. However it regulated the location of flat buildings by limiting their construction to certain residential areas. Within Randwick City the designated areas were around Randwick, Anzac Parade and Coogee. Following on from the Proclamation, the County of Cumberland Scheme (gazetted in 1951) was introduced (fig 7). It was arguably the first attempt at a comprehensive and coordinated town plan for metropolitan Sydney. The Scheme introduced a basic zoning format with the intent to prohibit certain activities (mostly industrial) from proclaimed residential districts. A single land use zone was introduced for all residential lands in the metropolitan area including Randwick City. There were relatively few planning and building controls under the Scheme which in turn led to an eclectic mix of housing across Randwick City including residential flat buildings of varying heights and sizes in the current low density residential areas. The Scheme continued to operate in the Randwick Municipality until the gazettal of the Randwick Planning Scheme Ordinance in 1978, which subsequently became the principle mechanism to control land use planning and development in Randwick City (fig 8). The Ordinance introduced 6 residential land use zones and a range of new planning controls including floor space ratios (FSR) and height limits for the first time in Randwick City. Through numerous amendments over time other specific planning controls were introduced including provisions related to Coogee (Coogee LEP 71, 1990) and the Heritage Conservation LEP no. 102 (1993). A number of Development Control Plans were also introduced which provided design guidance for residential development (e.g. Randwick DCP No. 4 – Dwelling House Controls 1985). In 1980 the Environmental Planning and Assessment Act 1979 (EP&A Act), came into force and remains the principal legislative framework for planning and development in NSW. It incorporates a three tiered system of State, Regional and Local level plans and policies. Many of these (relevant to residential lands) are discussed further on in this Chapter. In 1998 the NSW Government introduced the first Metropolitan Strategy for Sydney. The Strategy was formulated as a land use strategy plan based on a broad set of policies to guide the development of Sydney to 2011. It covered

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issues such as: population, land and housing; economic development and employment; manufacturing; offices; retail; social development; the environment; transport; recreation and tourism. An urban consolidation approach was undertaken in the Strategy which has been reconfirmed in all subsequent Metropolitan Strategy reviews. A Policy that had a significant impact on the built environment of Randwick City was the Sydney Regional Environmental Plan (SREP) No 12 which was introduced in 1987 by the NSW Government as part of its urban consolidation policies. The SREP applied across Sydney and provided blanket controls that permitted dual occupancy development (both attached and detached) where dwelling houses were permissible. At one stage dual occupancy development accounted for around 50% of development applications. By 1995 the state wide provisions for dual occupancy development were repealed given widespread concern over poor design outcomes and changes to character of local suburbs. Updated and consolidated statutory planning controls were introduced with the gazettal of Randwick Local Environmental Plan 1998 (LEP 1998). It rationalised the residential zones from six (6) to three (3) residential zones and introduced new planning controls for residential flat buildings, including maximum height; Floor Space Ration; and minimum landscaped area. In 2000 an amendment to LEP 1998 introduced a requirement for master plans to be prepared for large redevelopment sites in response to proposals for redevelopment of large surplus Government sites (e.g. Prince Henry in Little Bay and Bundock Street, Randwick). In 2004 an additional amendment was made introducing the 2D Comprehensive development zone to apply to such sites. Relevant Development Control Plans (DCPs) have been introduced including the Dwelling Houses and Attached Dual Occupancies DCP, Multi-Unit Housing DCP and Parking DCP. Other Council policies, codes and guidelines have been prepared over the years to supplement the LEP and DCPs. The Randwick Local Environmental Plan 1998 (Consolidation) (RLEP) was consolidated into the one document in 2010 (fig 9). Further detail on the RLEP and DCPs which relate to residential lands is provided in this Chapter.

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Fig 7: Extract from County of Cumberland Scheme (1951)

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Fig 8: Extract from Randwick Planning Scheme Ordinance (1978)

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Fig 9: Randwick Local Environmental Plan 1998 (Consolidation) Land Use Zones

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3.2 State Government Planning Framework 3.2.1 Sydney Metropolitan Strategy The Metropolitan Strategy for the Greater Sydney Region (Sydney Metropolitan Strategy) is a long term planning framework to sustainably manage Sydney’s growth and development over the next 25 years (fig 10). The Metropolitan Strategy 2005 is used for the purposes of the Comprehensive LEP/DCP review, planning for the next 20 years to 2031. An updated strategy called the Sydney Metropolitan Plan 2036 (Metropolitan Plan) extends and updates the Sydney Metropolitan Strategy and is integrated with a new Metropolitan Transport Plan. This Plan retains the objectives and key actions of the Sydney Metropolitan Strategy 2005 in relation to housing. The Metropolitan Strategy provides the following guidance in relation to housing:

Ensure adequate supply of land and sites for residential development Plan for a housing mix near jobs, transport and services

Renew local centres

Improve housing affordability; and

Improve the quality of new development and urban renewal.

Key actions within the Strategy state that over three-quarters of new housing is to be located in strategic centres, smaller centres and corridors within walking distance of shops, jobs and other services concentrated around public transport nodes. Across the metropolitan region a target of 60-70 per cent of new housing is to be accommodated in existing urban areas. The Metropolitan Strategy update in 2010 notes the investigation of light rail feasibility in the City. Randwick City is located to the east of Sydney’s Global Economic Corridor, which links the Sydney CBD, North Sydney, Green Square Industrial Lands and the Sydney Airport. This will contribute to key locations for employment opportunities for Randwick City residents and businesses. In particular the strategy identifies the Randwick Education and Health Specialised Centre, as a specialised health and education cluster for Sydney with significant employment growth and housing demand. The Strategy notes that Randwick City Council has key strategic bus corridors beings the most accessible locations for public transport.

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Fig 10: Sydney Metropolitan Area Source: Sydney Metropolitan Strategy

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3.2.2 Draft East Subregional Strategy The draft East Subregional Strategy 2007 (draft Strategy) (which applies to Randwick, Botany Bay, Woollahra and Waverley Councils) translates the broad objectives of the Metropolitan Strategy to the sub-regional and local level, including housing and employment targets. The draft Strategy acknowledges that the East subregion is one of Sydney’s most established and densely populated subregions. Housing choice and affordability has been identified as key issues. The overall key directions of the draft Strategy with regards to housing are to:

Improve housing choice

Enable communities to ‘age in place’; and

Provide more housing opportunities to support a diverse workforce and population.

For Randwick City, the draft Strategy identifies a dwelling target of 8,400 extra dwellings in the 25 years from 2004 to 2031. The draft Strategy notes that large sites such as the former Prince Henry Hospital at Little Bay and for the former defence land at Bundock Street in Randwick will accommodate a significant proportion of this target. The draft Strategy provides the following guidance for Council to meet the abovementioned directions and targets:

Plan for sufficient zoned land to accommodate the housing target through the Comprehensive LEP

Ensure that new housing is located in close proximity to strategic centres

and public transport

Investigate the provision of housing within or close to the Randwick Education and Health Specialised Centre

Provide for a range of residential zonings to cater for changing housing

needs; and

Consult with the Department of Housing (Housing NSW) regarding the redevelopment and renewal of social housing assets.

This guidance is addressed throughout this Discussion Paper, and also specifically in Chapter 5 (dwelling targets of growth) and for social housing (public housing), seniors housing and other specific housing types in Chapter 7. See also Randwick Education and Health Specialised Centre Discussion Paper for information specifically related to land in and around the University of New South Wales and Randwick Hospitals Campus. The following illustrates housing density in the East Subregion. It shows that housing density is higher in Randwick City’s northern suburbs but declines rapidly to the southern suburbs (fig 11).

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Fig 11: Housing density in the eastern subregion Source: Draft East Subregional Strategy

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3.2.3 State Environmental Planning Policies State Environmental Planning Policies (SEPPs) deal with state significant issues. A number of SEPPs are relevant to residential development in Randwick City and relate to land use issues, design issues and the development application (DA) process. These are summarised as follows. Housing for Seniors or People with a Disability SEPP This SEPP (Seniors Living SEPP) seeks to increase the supply of housing which meets the needs of seniors or people with a disability such as nursing homes, residential care facilities, hostels and self contained dwellings. It achieves this by setting aside certain local planning controls that may otherwise prevent or limit the development of housing for seniors or people with a disability; provided a proposal meets the development criteria and design standards specified in the SEPP, such as proximity to public transport and community facilities. Fur further discussion see Chapter 7. Affordable Rental Housing SEPP The Affordable Rental Housing SEPP (AHSEPP) provides planning incentives to increase the supply and diversity of affordable rental and social housing in NSW. It covers housing types such as villas, town houses and residential flat buildings (which contain an affordable rental housing component), along with secondary dwellings, boarding houses, group homes, social housing and supportive accommodation. Incentives provided by AHSEPP include floor space bonuses for residential flat buildings (provided a percentage of floor space is allocated towards affordable rental housing), permissibility of boarding houses and secondary dwellings in all residential zones, provisions to retain existing affordable rental housing and expansion of the role of not-for-profit or community housing providers. The AHSEPP proposals have primarily been applied for proposals for boarding houses and secondary dwellings (granny flats) in Randwick City. For further discussion see Chapter 7. Major Development SEPP The Major Development SEPP defines certain developments as major projects to be assessed under Part 3A of the Environmental Planning and Assessment Act 1979 and determined by the Minister for Planning. It relates to large scale developments that in the opinion of the Minister of Planning are of State significance which could include residential projects. All development assessed under the SEPP must consider the relevant LEP but development standards may be varied if the Minister considers that the environmental impacts are effectively managed. The current NSW Government recently announced limits to the use of Part 3A and has indicated it will be replaced with an alternative system for assessing projects of State significance. Infrastructure SEPP The Infrastructure SEPP provides a planning regime for infrastructure, service facilities (i.e. health, education) and the development of land owned by the Crown or public authorities. The SEPP supports greater flexibility in the location of infrastructure and service facilities along with improved regulatory certainty and efficiency.

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The Infrastructure SEPP permits certain development carried out without consent, for example small scale health or education projects. It also sets mandatory design and acoustic standards for residential and sensitive uses on roads carrying an annual average traffic volume (AADT) of more than 40,000 vehicles, which includes a significant proportion of Anzac Parade and Alison Road. SEPP 65–Design Quality of Residential Flat Development SEPP 65 aims to improve the design quality of residential flat development across the state through the application of design principles: context, scale, built form, density, resource, energy and water efficiency, landscape, amenity, safety and security, social dimensions and affordable housing, and aesthetics. The SEPP also includes a publication, Residential Flat Design Code (Department of Planning, September 2002) that must be taken into consideration in the assessment of development applications to which the policy applies (residential flat buildings of 3 storeys for more). The accompanying regulation requires the involvement of a qualified designer throughout the design, approval and construction stages. The SEPP also provides for the establishment of Design Review Panels to give independent expert advice to councils on the merit of residential flat development. While not compulsory, Randwick Council and Waverley Council has collaborated together to establish a design review panel in 2004. SEPP (Building Sustainability Index: BASIX) This SEPP introduces a number of sustainable residential building standards into the planning process. BASIX is a web-based planning tool designed to assess and increase the water and energy and thermal efficiency of new residential developments as well as alterations and additions above $50,000. All new developments must complete and lodge a BASIX certificate with the development application. SEPP No 1 – Development Standards State Environmental Planning Policy No 1–Development Standards (SEPP 1) provides a regime to vary development standards (within gazetted LEPs) where it can be demonstrated by the proponent that compliance with a development standard, in the particular circumstances of an individual development application, is unreasonable or unnecessary. SEPP 1 objections can be submitted in Randwick City where non compliance with respect to development standards such as FSR and height is demonstrated as suitable based on the merit assessment of the individual development application (DA), recognizing that the numerical standard cannot address all circumstances and may be varied based on specific site conditions such as topography (aspect, slope), subdivision patterns, and other aspects such as addressing the objectives of the zone and amenity aspects such as streetscape, privacy and overshadowing. SEPP (Exempt and Complying Codes) 2008 This SEPP (known as the Codes SEPP) was introduced to streamline the development assessment process with regards to certain types of development including residential. Under the ‘Exempt Development Code’, the SEPP allows for development that is of minimal environmental impact to be undertaken without Council consent provided certain criteria are met (e.g. new fences, clothes hoists, driveways etc).

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Under the ‘Housing Code’ the SEPP also allows complying developments and applies to new dwelling houses or alterations and additions subject to a number of development standards and criteria, that if met can be assessed as Complying Development with approval generally granted within a 10 day time frame. The Code applies to housing lots greater than 200m2. Development standards include landscaped area, floor area, height and setbacks. Other aspects of the Codes SEPP includes exempt and complying development categories for commercial and industrial development, internal housing alterations, subdivision and rural housing. 3.2.4 Section 117 Directions Under Section 117 of the EP&A Act the Minister for Planning may issue directions in relation to the preparation of local environmental plans. The current directions relevant to this Discussion Paper include the following: Residential Zones (3.1) This direction applies when a council prepares a draft LEP that creates, removes or alters a residential zone boundary or a residential zone provision. The objective of the direction is to encourage a variety of housing types to provide for current and future housing needs, to provide suitable infrastructure and to minimise the impact of residential development on the environment. Integrating Land Use and Transport (3.4) This direction applies when a council prepares a draft LEP that creates, alters or removes a zone or a provision relating to urban land, including land zoned for residential, business, industrial, village or tourist purposes. The objective of this direction is to ensure that urban structures, building forms, land use locations, development designs, subdivision and street layouts achieve the following planning outcomes:

Improving access to housing, jobs and services by walking, cycling and public transport 

  Increasing the choice of available transport and reducing dependence on

cars

Reducing travel demand including the number of trips generated by development and the distances travelled, especially by car

Supporting the efficient and viable operation of public transport services;

and

Providing for the efficient movement of freight.

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Development Near Licensed Aerodromes (3.5) This direction applies to residential lands within the Australian Noise Exposure Forecast (ANEF) contours between 20 and 25, requiring noise insulation with new development. This only applies to a very small part of Randwick City at Kingsford which is likely to remain unchanged. Implementation of the Metropolitan Strategy (7.1) This direction is to give legal effect to the vision, land use strategy, policies, outcomes and actions contained in the Metropolitan Strategy. It requires that a planning proposal such as a new Local Environmental Plan should be consistent with the Strategy. Other Section 117 Directions that may impact on any potential changes to residential zones are as follows:

2.2 Coastal Protection Zones 2.3 Heritage Conservation

3.3 Home Occupations

4.1 Acid Sulphate Soils; and

4.3 Flood Prone Land.

The provisions of these Section 117 Directions to address these issues will be considered in the preparation of the new Comprehensive LEP and many of these are discussed further in subsequent sections (Chapter 7) of this Paper. 3.2.5 Standard Instrument (LEP Template) The Standard Instrument Order 2006 and template (Standard Instrument) was introduced by the NSW Government as part of a program of planning reforms aimed at simplifying and streamlining the NSW planning system. The Standard Instrument specifies the structure of Comprehensive LEPs including standardised zones and zone objectives, mandates uses as permitted or prohibited in zones and identifies compulsory and optional provisions (or clauses). The Standard Instrument also includes a dictionary of standardised definitions. Councils must adopt the Standard Instrument as the basis to prepare their own Comprehensive LEPs. The Standard Instrument zone objectives, permissible uses or land use definitions cannot be removed or changed. However, councils can supplement the Standard Instrument objectives with local objectives and additional permitted/prohibited land uses to address local issues within their area. Similarly, Councils can add other provisions relevant to local planning circumstances. Relevant Standard Instrument Zones The Standard Instrument includes a standard set of 34 zones, five (5) of which are residential, from which Council can select to apply one or more zones to the new Comprehensive LEP. These are:

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Zone R1 General Residential

Zone R2 Low Density Residential

Zone R3 Medium Density Residential

Zone R4 High Density Residential; and

Zone R5 Large Lot Residential. A State government direction to councils,2 advises that when deciding which zones to use under the Standard Instrument, Council needs to take into account:

The Metropolitan Strategy, and sub-regional strategies Section 117 directions issued by the Minister for Planning

Local strategic planning carried out in a Council’s area; and

Advice from the Department of Planning.

Standard Clauses The Standard Instrument identifies clauses for inclusion in Comprehensive LEPs which are either compulsory, compulsory if applicable or optional clauses. The following Standard Instrument clauses are related to residential lands in Randwick City. These will replace many of the current clauses in the RLEP.

Clause 2.6 Subdivision Consent Requirements (compulsory) Clause 4.1 Minimum Subdivision Lot Size (optional)

Clause 4.3 Height of Buildings (optional)

Clause 4.4 Floor Space Ratio (optional)

Clause 4.5 Calculation of floor space ratio and site area (optional)

Clause 4.6 Exemptions to Development Standards (compulsory)

Clause 5.3 Development near zone boundaries (optional)

Clause 5.5 Development within the Coastal Zone (compulsory if land to

which Plan applies includes land in the coastal zone)

Clause 5.8 Conversion of fire alarms (compulsory); and

Clause 5.10 Heritage Conservation (compulsory). The application of many of these clauses is covered in Chapters 6 and 7. The full wording of these clauses is included in Appendix F.

2 NSW Department of Planning Standard Instrument (Local Environmental Plans) Order Questions and Answers 31 March 2006

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Model Local Clauses The Department of Planning and Infrastructure publishes model local clauses (or provisions) from time to time, which councils can adopt ‘as is’ where possible or adapt these to suit local circumstances. Those relevant to Randwick City are shown below: Acid Sulphate Soils This clause applies to land having probability of containing acid sulphate soils or mapped in an LEP. It requires an acid sulphate soils management plan or a preliminary assessment to be carried out with development proposals. Foreshore building line This clause applies to foreshore land where there is a demarked Foreshore Building Line (FBL). It limits the types of development permissible in the Foreshore Area (the area between the FBL and the high mean water mark). The clause also contains a list of criteria that the consent authority must consider in relation to assessment of development within the Foreshore Area. Aircraft Noise This clause applies to land that is located within the ANEF contour map. It assists in minimising the impact of aircraft noise by requiring appropriate noise attenuation measures in noise sensitive buildings including residential development. Stormwater Management (urban zones) draft This clause provides assessment criteria for development proposals for the consideration of stormwater impacts on the land and adjacent properties and receiving environments. The draft clause applies to all Residential, Business and Industrial land areas. The above model clauses are discussed further in Chapter 7.

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3.3 Local Planning and Policy Framework 3.3.1 The Randwick City Plan The Randwick City Plan, adopted by Council in June 2006 and updated in 2010, sets the strategic direction for Randwick City over the next 20 years. The overarching vision for the Plan is ‘to create an environmentally healthy, vibrant and sustainable city where people respect one another and nature, to the benefit of all’. The Plan consists of five broad interrelated themes: A Sense of Community; Places for People; A Prospering City; Moving Around; and Looking After Our Environment. Places for People and Moving Around are the most relevant to this Paper. Places for People, (which relates most directly to residential land uses), addresses directions with better design and environmental sustainability; managing the demands of development and infrastructure as a result of existing and future population growth; community safety, health and wellbeing; diverse, adaptable and affordable housing; heritage; recreation and open space areas and the long term viability of town centres. The Moving Around theme acknowledges that the range of available transport has a major on the way people move around. It notes Council will endeavour to support and facilitate public transport use, encourage walking and cycling as a safe and attractive alternative for car owners, as well as encouraging it as part of a holistic approach to environmental sustainability. The plan points out that the existing public transport system is entirely bus based with limited coverage in some areas. The Comprehensive LEP is to work towards integrating transport and land uses. This includes advocating for the provision of high capacity and integrated local public transport improvements including light, metro or standard rail to service the Randwick area. The Plan states that this is particularly significant along Anzac Parade which is major thoroughfare for tens of thousands of people every day. Such initiatives will assist in creating a more liveable community. 3.3.2 Randwick Local Environmental Plan 1998 (Consolidation) The current Randwick Local Environmental Plan (LEP) 1998 (Consolidation) (RLEP) provides the statutory framework for land use planning in the City. It controls the development of land for specific purposes through zoning, objectives, and clauses with development standards and criteria. The RLEP has four (4) residential zones:

2A (Low Density Residential zone) 2B (Low/ Medium Density Residential zone)

2C (Medium Density Residential zone); and

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2D (Mixed Density Residential zone) The translation of these zones into the Standard Instrument format is discussed in further detail in Chapter 6. Randwick LEP 1998 (Consolidation) contains the principal development standards which guide residential development across the residential zones including:

Minimum lot sizes and frontage (Clause 20B)

Floor space ratio or FSR (Clause 20F)

Building height and wall heights (Clause 20G); and

Landscape area (Clause 20E). A discussion on how these development standards could be expressed in the Comprehensive LEP in line with Standard Instrument requirements is discussed in Chapter 6. Additionally the RLEP includes development standards which apply specifically to the 2D zone including:

Site specific development controls (Clause 20C); and Traffic and transport measures for Zone 2D (Clause 20D).

These are discussed in further detail in Chapter 7. Miscellaneous LEP Provisions RLEP also includes a number of clauses that apply to different residential development proposals:

Clause 27 Aircraft noise recognises that that parts of the City fall within the flight paths of ANEF contour exceeding 20. The clause requires development in these areas to meet the interior noise requirements of AS 2021

Clause 29 Foreshore scenic protection area requires Council to consider

the probable aesthetic appearance of proposed development in relation to the visual impact from the foreshore

Clause 34 Boarding houses contains provisions to protect existing stock by

outlining social impact criteria which must be considered when a proposal seeks to demolish an existing boarding house

Clause 35 Business premises in residential zones states that Council may

consent to business premises in a residential zone, if the use occupies no more than 100m2 and the building was originally designed and/or built for a commercial use

Clause 35A Certain non-residential uses in residential zones states that

Council may consent to development for the purpose of business premises, neighbourhood shops or medical centres on land within Zone No 2D if it meets certain conditions and in identified locations.

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Clause 40A Site specific development control plans requires a site specific DCP for sites greater than 10,000sqm. The plan must address the criteria in Clause 40A(2); and

Clause 42 Development of land for certain additional purposes permits

certain uses which are not permissible under the zoning, on specific parcels of land. These are identified in Schedule 2 of the LEP and include some land zoned for residential uses.

The translation of these clauses into suitable Standard Instrument clauses is detailed in Chapter 7. 3.3.3 Development Control Plans Development Control Plans (DCPs) provide additional design detail and guidance to the LEP for assessing development proposals. DCPs take the form of a written statement and can include maps, plans, diagrams, illustrations and the like. DCPs must be consistent with the LEP and if there is any inconsistency, the LEP will prevail. In preparing Comprehensive LEPs, Councils are also required to review all DCPs and prepare a Comprehensive DCP. There are a number of DCPs, both issue based and site specific which relate to residential lands. These contain a number of performance measures complementing the development standards in the RLEP, providing design guidance for development proposals and addressing amenity and environmental considerations (e.g. setbacks, overshadowing, access etc). DCPs which relate to Randwick City’s residential lands include:

Dwelling Houses and Attached Dual Occupancies DCP 2002

Multi-Unit Housing DCP 2003; and

Parking DCP 1998. Other site specific DCPs that residential lands include:

Defence Site Bundock and Avoca Streets, Randwick DCP 2003

Prince Henry Site DCP 2004; and

University of NSW, Kensington Campus DCP 2007 State government planning reforms require that only one DCP apply to any one site in the future. In response to this Randwick City Council will be preparing a Comprehensive DCP that consolidates the existing DCPs into a streamlined document, including those DCPs affecting residential lands. Each of the aforementioned DCPs will be reviewed as part of this process. This Paper addresses proposed Comprehensive DCP provisions, including any revisions to these existing DCPs (see Chapters 6 and 7).

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3.3.4 Council Studies and Strategies Randwick Affordable Housing Strategy The Affordable Housing Strategy and Action Plan (2007) is identified as a key City Plan action and provides Council with an implementation framework to help realise the City Plan’s vision for a liveable City. The purpose of the strategy is to provide a cohesive framework for responding to affordable housing issues affecting the community. The document:

Affirms Council’s support for affordable housing provision and describes the initiatives to promote and increase supply

Outlines the actions Council will be implementing over the next ten years

(2008 – 2018) to increase affordable housing in the LGA; and

Provides a reference for council staff, State and social housing agencies, and members of the public about affordable housing issues in Randwick City.

The Strategy includes an Affordable Rental Housing Program and Procedures and an Affordable Housing Policy. Details are available on Council’s website www.randwick.nsw.gov.au Recreation Needs Study 2008 The Study identifies the open space and recreation needs of Randwick City. It will assist Council in determining priorities for improvement of open space resources and the provision of future active and passive recreation facilities. Economic Activities Study 2008 Integration of housing and jobs is an important planning principle and this study examines employment locations and trends, including the future of town centres which provide important locations for housing. Design Ideas for Rejuvenating Residential Flat Buildings The manual showcases a range of refurbishment concepts for older walk up residential flat buildings consistent with the design principles of SEPP 65. It is intended to encourage refurbishments to improve liveability to meet current lifestyle needs, improve the environmental performance and sustainability of the building; and improve the appearance of the building in the streetscape. 3.3.5 Council Resolutions Relating To Residential Zoned Lands In the last few years Council has passed resolutions that relate to the drafting of the Comprehensive LEP and Comprehensive DCP. The resolutions relevant to this Discussion Paper are summarised as follows.

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Landscaped area On 24 March 2009 Council resolved:

that Council officers bring a report before Councillors on the options for clearly stating the amount of permeable landscaping to be required under Council’s Local Environmental Plan.

The issue of permeable and non-permeable landscaping is discussed in Chapter 6. Development standards The current wording the Randwick LEP includes a ‘purpose’ statement but does not include objectives for each of the relevant development standards such as FSR and height. On 23 June 2009 Council resolved to include specific objectives for any such development standards as is permitted by the Standard Instrument, to assist in the assessment of development standard variations in the future. Under this resolution, Council’s LEP is:

to be amended to include specific underlying objectives as separate addendums to each of the document’s development standards in addition to the present all encompassing “purpose” paragraphs presently attached to each main containing clause. It is intended that this will better facilitate the implementation of SEPP1 in the assessment of non-conforming development proposals.

The issue of objectives to support development standards is further discussed in Chapter 6.

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4.0 Trends and Housing Implications

_________________________________________________________________ This Chapter summarises current demographic characteristics and outlines key trends likely to drive demand for housing in Randwick City in the future. Appendix A contains a detailed population and housing profile. Subsequent chapters in this Discussion Paper examine the implications of these trends on housing provision into the future and suggest ways that they can be accommodated in a review of the Council’s local planning controls.

4.1 Demographic Change Over recent decades Randwick City has experienced a slow yet steady population growth. In addition its population is ageing and the household occupancy is decreasing (i.e. there are fewer people per dwelling). These factors, outlined below (and in greater detail in Appendix A), will influence demand for dwellings and the need to plan for appropriate housing types. 4.1.1 Population Growth The resident population of Randwick City has maintained slow yet steady rate of growth since the early 1990s and reversing the population reductions experienced since its peak in 1971, as illustrated in Fig 12 and Table 2. The population at the 2006 Census was 122,173, which was an increase of 3268 people since the 1996 Census. Between 1996 and 2006 the population of Randwick City grew at an average of 2.7% which was considerably lower than across Sydney (10.9%) over the same period.

108000

110000

112000

114000

116000

118000

120000

122000

124000

126000

1971 1976 1981 1986 1991 1996 2001 2006

Census Year

No. p

erso

ns

Fig 12: Population change 1971 – 2006 Source: ABS 2006

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Table 2: Population Trends

2006 2001 1996

Randwick City

Sydney SD

Randwick City

Sydney SD

Randwick

City

Sydney SD

Population(1) 122,173 - 121,497 - 118,905 -

Population growth

(Previous 5 years)

0.6% 3.8% 2.2% 6.8% 3.1% 5.7%

Source: ABS 2006 Nb: Sydney SD refers to Sydney Statistical Division 4.1.2 Age Structure The population of Randwick City is ageing a