Section 1.4 – Page 1 Council Meeting, 27 September 2016 1.4 32-34 PEPPERELL AVENUE GLEN WAVERLEY VIC 3150 DEVELOPMENT OF FOUR DOUBLE STOREY DWELLINGS AND DEMOLITION OF A FENCE (TPA/45514) EXECUTIVE SUMMARY: This application proposes the development of four double storey dwellings, removal of a Melaleuca stypheliodes (Prickly Leaved Paperbark) and demolition of a fence. The application was subject to public notification. One (1) objection to the proposal has been received. Key issues to be considered relate to building bulk and massing, landscaping opportunities, private open space, car parking, vehicle access and overlooking. This report assesses the proposal against the provisions of the Monash Planning Scheme including the relevant state and local planning policy framework, Clause 55 and issues raised by objectors. The reason for presenting this report to Council is the proposed development cost of $1.65 Million. The proposed development is considered appropriate having regard to the relevant provisions of the Monash Planning Scheme. It is recommended that Council resolve to issue a Notice of Decision to Grant a Planning Permit, subject to conditions. RESPONSIBLE DIRECTOR: Peter Panagakos RESPONSIBLE MANAGER: Angela Hughes RESPONSIBLE PLANNER: Craig Smith WARD: Glen Waverley PROPERTY ADDRESS: 32-34 Pepperell Avenue, Glen Waverley PRE-APPLICATION MEETING: No NUMBER OF OBJECTIONS: One (1) ZONING: General Residential Zone 2 EXISTING LAND USE: Dwelling OVERLAY: Vegetation Protection Overlay 1 Heritage Overlay 6 RELEVANT CLAUSES: State Planning Policy Framework Clause 11.02 Urban Growth Local Planning Policy Framework Clause 21.04 Residential Development 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Section 1.4 – Page 2 Council Meeting, 27 September 2016 Clause 11.04 Metropolitan Melbourne Clause 15 Built Environment and Heritage Clause 16.01-1 Integrated Housing Clause 16.01-4 Housing Diversity Clause 16.01-5 Housing Affordability Clause 21.12 Heritage Clause 22.01 Residential Development and Character Policy Clause 22.05 Tree Conservation Policy Clause 22.07 Heritage Policy STATUTORY PROCESSING DATE: 22 October 2016 DEVELOPMENT COST: $1.65 million Particular Provisions Clause 52.06 Car Parking Clause 55 Two or More Dwellings on a Lot 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Section 1.4 – Page 3 Council Meeting, 27 September 2016 LOCALITY PLAN SUBJECT SITE NEIGHBOURHOOD PLAN 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 4 RECOMMENDATION: That Council resolves to issue a Notice of Decision to Grant a Planning Permit (TPA/45514) for the development of four double storey dwellings, removal of one tree and demolition of a fence, at 32-34 Pepperell Avenue, Glen Waverley subject to the following conditions: 1. Before the development starts, three copies of amended plans drawn to scale and dimensioned, must be submitted to and approved by the Responsible Authority. The submitted plans must clearly delineate and highlight any changes. When approved the plans will be endorsed and will then form part of the permit. The plans must be generally in accordance with the plans submitted with the application, but modified to show: a) Dwelling 3 first floor bedroom 3 north setback increased to a minimum of 6.1 metres. b) Dwelling 4 first floor bedroom 3 west wall relocated at least 0.6 metres east. c) The fence located on the north side of Dwelling 1 deleted and the fence located on the east and north-east side of the dwelling reduced to a maximum height of 1.5 metres and be open style. d) An eave on the south side of the Dwelling 4 ground floor guest bedroom. e) An eave running the full length of the Dwelling 3 ground floor dining room west side. f) The Dwelling 2 garage door widened 0.2 metres west. g) The urns on the Dwelling 1 and 2 porches deleted. h) Details of proposed retaining walls along the north and east boundaries. 2. The development as shown on the endorsed plans must not be altered without the written consent of the Responsible Authority. 3. A landscape plan prepared by a Landscape Architect or a suitably qualified or experienced landscape designer, drawn to scale and dimensioned must be submitted to and approved by the Responsible Authority prior to the commencement of any works. The plan must show the proposed landscape treatment of the site including:a) the location of all existing trees and other vegetation to be retained on site 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 5 b) provision of canopy trees with spreading crowns located throughout the site including the major open space areas of the development c) planting to soften the appearance of hard surface areas such as driveways and other paved areas d) a schedule of all proposed trees, shrubs and ground cover, which will include the size of all plants (at planting and at maturity), their location, botanical names and the location of all areas to be covered by grass, lawn, mulch or other surface material e) the location and details of all fencing f) the extent of any cut, fill, embankments or retaining walls associated with the landscape treatment of the site g) details of all proposed hard surface materials including pathways, patio or decked areas When approved the plan will be endorsed and will then form part of the permit. 4. Before the occupation of the buildings allowed by this permit, landscaping works as shown on the endorsed plans must be completed to the satisfaction of the Responsible Authority and then maintained to the satisfaction of the Responsible Authority. 5. Prior to commencement of development approval must be obtained from Council for any pruning to the Cypress trees located in the adjoining reserve to the east. 6. Excavation within the Tree Protection Zones of the Cypress trees located in the adjoining reserve to the east must be undertaken with the supervision of a qualified arborist to ensure the trees do not become unstable. 7. The development must be provided with a corner splay or area at least 50% clear of visual obstruction (or with a height of less than 1.2m), which may include adjacent landscaping areas with a height less than 0.9 metres, extending at least 2.0 metres long x 2.5 metres deep (within the property) on both sides of each vehicle crossing to provide a clear view of pedestrians on the footpath of the frontage road. 8. All common boundary fences are to be a minimum of 1.8 metres above the finished ground level to the satisfaction of the Responsible Authority. The fence heights must be measured above the highest point 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 6 on the subject or adjoining site, within 3 metres of the fence line. 9. The construction works associated with the permitted development must only be carried out during the following hours: • • • Monday to Friday (inclusive) – 7:00am to 6pm; Saturday – 9am to 1pm; Saturday – 1pm to 5pm (only activities associated with the erection of buildings); unless otherwise approved in writing by the Responsible Authority. 10. All on-site stormwater is to be collected from hard surface areas and must not be allowed to flow uncontrolled into adjoining properties. The on-site drainage system must prevent discharge from each driveway onto the footpath. Such a system may include either: a) a trench grate (150 mm minimum internal width) located within the property; and/or b) shaping the driveway so that water is collected in a grated pit on the property; and/or c) another Council approved equivalent. 11. Once the development has started it must be continued and completed to the satisfaction of the Responsible Authority. 12. This permit will expire in accordance with section 68 of the Planning and Environment Act 1987, if one of the following circumstances applies: • The development is not started before 2 years from the date of issue. • The development is not completed before 4 years from the date of issue. In accordance with section 69 of the Planning and Environment Act 1987, the responsible authority may extend the periods referred to if a request is made in writing before the permit expires, or within six months of the permit expiry date, where the development allowed by the permit has not yet started; or within 12 months of the permit expiry date, where the development has lawfully started before the permit expires. NOTES: 1. Building approval must be obtained prior to the commencement of the above approved works. 2. Building Permit approval for this development must take into consideration the location of future subdivision boundaries and their 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 7 compliance with the Fire Separation Provisions of the Building Code of Australia, including Separating Walls and Openings near Boundaries, as well as the requirements of the Building Regulations. 3. The lot/unit numbers on the “Endorsed Plan” are not to be used as the official street address of the property. Street numbering is allocated in accordance with Australian/New Zealand Standards 4819:2001- Rural and Urban Addressing. Any street addressing enquiries should be directed to Council’s Valuation Team on 9518 3615 or 9518 3210. 4. A drainage contribution of approximately $11,530 may be accepted in lieu of a detention system. This amount is valid until 30 June 2016. After this date an amended amount in accordance with Clause 22.04 of the Monash Planning Scheme will be applicable. This contribution is based on the plans provided and any additional hard surfaced areas included on the landscape or drainage plans will alter this amount. 5. Stormwater discharge is to be detained on-site to the predevelopment level of peak stormwater discharge. Approval of any detention system is required from Council prior to works commencing. Stormwater detention requirements may be obtained from the City of Monash prior to the design of any stormwater detention system. 6. The nominated point of stormwater connection for the site is to the south-west corner of the property where the entire site's stormwater drainage must be collected and free drained via a pipe to the Council drain pit outside No 32 in the nature strip to be constructed to Council Standards. A new 900mm x 600mm junction pit is to be constructed over the 300mm Council drain in the nature strip if a pit does not exist or is not a standard Council pit. 7. Any new drainage work within the road reserve or connection into a Council easement drain requires the approval of the Council’s Engineering Division prior to the works commencing. Please refer to the notes section of this permit for additional details. A refundable security deposit of $1,000 is to be paid prior to the drainage works commencing. 8. Engineering permits must be obtained for new or altered vehicle crossings and for new connections to the kerb and channel Council drains and pits and these works are to be inspected by Council (telephone 9518 3555). 9. Three printed copies of the plans (A3-A1 size) for the drainage works must be submitted to and approved by the Engineering Division prior to the commencement of works. The plans are to show sufficient information to determine that the drainage works will meet all drainage 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 8 conditions of the permit. 10. Approval of the proposed crossings, and a permit for installation or modification of any vehicle crossing is required from Council’s Engineering Department. 11. The proposed vehicle crossings are to be constructed in accordance with the City of Monash standards. 12. The section of existing redundant vehicle crossing is to be removed and replaced with kerb and channel. The footpath and naturestrip are to be reinstated to the satisfaction of Council. BACKGROUND: The Site and Surrounds The site is located on the east side of Pepperell Avenue, 280 metres south of Coleman Parade. It comprises two lots with a combined area of 1,545 square metres, is rectangular in shape and rises from south-west to north-east by approximately 4 metres. Each lot contains an existing dwelling and has vehicle access to Pepperell Avenue at their west boundaries. The site contains 15 trees and shrubs. The land to the north, south and west is zoned General Residential Zone 2 and developed with dwellings. The adjoining land to the east is Council reserve containing a row of Cypress trees. Development in the area comprises a mix of single dwellings and multi-unit developments. These consist of both single and double storey forms. Traditional housing styles in the area are predominately low scale, detached and nestled in a garden setting. They are typically constructed from brick veneer or weather board and have pitched tiled roofs. In recent years, there has been an emergence of larger double storey dwellings with high parapet walls and mock period styles. This has resulted in a significant shift in character. Single dwellings are the primary contributor to the strong influence in mock period housing. Both single dwellings and multi-unit developments contribute to the emergence of high parapet walls in the area. The land is encumbered by a restrictive covenant that prohibits quarrying and brick making on the site. No easements affect the land. An aerial photograph of the subject site and surrounding land can be found attached to this report (Attachment 2). 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 9 PROPOSAL: This application proposes the development of four double storey dwellings, removal of a Melaleuca stypheliodes (Prickly Leaved Paperbark) and demolition of the rear fence. Two dwellings are proposed to comprise 4 bedrooms and two with four bedrooms and a study. Car parking is provided by way of double garages. Vehicle access is provided via two vehicle crossings utilising the existing central crossover and creating a new crossover towards the south of the frontage. The garages for Dwelling 1 will face the street while all others are located within the site. Secluded private open space to each dwelling has direct access from the family/dining areas and is orientated to the north except for Dwelling 1. The site is proposed to be cut at its north-east side. The maximum cut is 1.6 metres at the north-east corner of the site. All trees and shrubs on the site are proposed to be removed, including the removal of a Melaleuca stypheliodes (Prickly Leaved Paperbark) in the front setback, with a height greater than 10 metres. The demolition of a fence, works comprising site cut and retaining walls and buildings comprising rear boundary fence, eave projections, rainwater tank and storage shed are proposed within the rear portion of the site (1.3 metres) affected by the Heritage Overlay. Attachment 1 details plans forming part of the application. PERMIT TRIGGERS: The land is zoned General Residential Zone 2 and affected by the Vegetation Protection Overlay 1. A planning permit is required for the following: • General Residential Zone 2 – construct two or more dwellings on a lot. • Vegetation Protection Overlay 1 – removal of the Melaleuca stypheliodes (Prickly Leaved Paperbark) with a height greater than 10 metres. • Heritage Overlay 6 – demolition of a fence, works comprising site cut and retaining walls and buildings comprising rear boundary fence, eave projections, rainwater tank and storage shed. The Heritage Overlay affects the eastern 1.3 metres of the site. The purpose of the overlay was to protect the Cypress trees located in the adjoining Council reserve to the east. Attachment 3 details the zoning and overlays applicable to the subject site and surrounding land. 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 10 CONSULTATION: Public Notice The application was advertised in accordance with section 52 of the Planning and Environment Act 1987 by way of letters sent to the surrounding property owners/occupiers and a sign displayed at the Pepperell Avenue frontage of the site. Council has received one (1) objection to date. The grounds of objection can be summarised as follows: • Overlooking. Attachment 4 details the location of objector properties. Referrals The application was referred to the following internal departments and statutory authorities: • Traffic – No objection subject to standard conditions relating to vehicle access and the provision of vehicle sight lines. • Drainage – No objection subject to standard conditions relating to drainage. • Urban Design – The cypress trees in the Council reserve are scheduled for removal and replacement in Autumn 2018. No objection subject to a condition requiring approval by Council for any proposed pruning prior to commencement of development. DISCUSSION: Consistency with State and Local Planning Policies Clause 16.01 Housing seeks to: • “Increase the supply of housing in existing urban areas by facilitating increased housing yield in appropriate locations, including under-utilised urban land.” • “Locate new housing in or close to activity centres and employment corridors and at other strategic redevelopment sites that offer good access to services and transport.” • “Encourage higher density housing development on sites that are well located in relation to activity centres, employment corridors and public transport.” Clause 21.04 Residential Development has the objectives: • “To encourage the provision of a variety of housing styles and sizes that will accommodate future housing needs and preferences of the Monash community that complement and enhance the Garden City Character of the City.” 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 • • Section 1.4 – Page 11 “To provide accommodation for a diverse population that caters for different family and lifestyle preferences and a variety of residential environments and urban experiences.” “To recognise and provide for housing needs of an ageing population.” The proposal makes a positive contribution to the supply and diversity of housing in the municipality to meet the growing population and changing needs of the local community. The proposal is located within close proximity to activity centres and public transport, including the Syndal Railway Station. Monash Housing Strategy The site is located within the Accessible Areas (Category 2) area of the Monash Housing Strategy 2014. This area seeks moderate housing change and diversification serving as a transition between activity centres where higher density is encouraged and the Garden City Suburbs where traditional forms of residential development should be maintained. Residential outcomes sought are lower density unit and townhouse style developments at the interface with surrounding residential areas. RESCODE ASSESSMENT Neighbourhood Character The site is located in Character Type “C” of Clause 22.01 (Residential Development and Character Policy). The preferred character of the area can be summarised as well planted gardens as the dominant element amongst modest scale buildings. Development in the area comprises a mix of single dwellings and multi-unit developments of both single and double storey forms. Traditional housing styles in the area are predominately low scale, detached and nestled in a garden setting with new construction being of larger double storey dwellings with high parapet walls and mock period styles. The area has experienced a shift in character. Single dwellings are the primary contributor to the influence in mock period housing and emergence of high parapet walls. There are numerous examples of period replication style in the immediate area, including French provincial (see Attachment 5 for examples). Parapet walls at ground level are in keeping with the existing character of the area. The development examples attached show parapets of significant height and similar banding treatments. As a result, the parapet walls and French provisional style will not be out of character. Generally, the building scale and massing is sympathetic to the character of the area. The size of the ground floor and first floor footprints are not excessive and the heights of the dwellings do not result in buildings that are visually obtrusive. There is sufficient separation between the first floors of the dwellings and walls are sufficiently articulated and recessed. 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 12 The Dwelling 3 and 4 first floors are 79% and 76% of the ground floor footprints respectively, which is considered significant. The Dwelling 4 first floor is elongated increasing the impression of scale. The bedroom 3 west wall should be relocated 0.6 metres east to reduce the elongation of the first floor and still maintain appropriate dimensions to the bedroom. The Dwelling 3 first floor bedroom 3 north wall should be setback to a minimum of 6.1 metres to reduce building bulk and massing and increase recession of the ground floor below. These could form conditions should a permit issue. Setbacks to boundaries are sufficient to mitigate visual bulk to the street and adjoining lots. No walls on boundaries are proposed. The garages are located behind the front line of the dwellings and do not dominate the streetscape. External materials of rendered walls and tiled roofs are in keeping with the character of the area, as are the pitched roofs. Cut outs to eaves are proposed to the Dwelling 3 ground floor dining room and Dwelling 4 ground floor guest bedroom, presenting design detail inconsistent with the character of the area. These can be addressed by condition if a permit issues. To reduce the prominence of the front porches, be it by an incremental amount, the urns above the porches can be deleted without comprising the architectural style. High front fencing is not proposed and the layout of the development maintains sufficient integration with the street. However, the 1.8 metre paling fence located on the north side of Dwelling 1 does not provide adequate landscaping integration with the driveway and the street. A condition of permit is recommended to delete this fence. Additionally, the fence located on the northeast side of the dwelling should be reduced to a maximum height of 1.5 metres and be open style to allow landscaping integration with the driveway. There is sufficient space to plant mid-height vegetation at the north-east side of the dwelling to project above the fence and soften the appearance of the development. The arborist report submitted with the application identified 15 trees and shrubs on the site. The Melaleuca stypheliodes (Prickly Leaved Paperbark) has a height of 15 metres, good health, good structure, moderate life expectancy and medium retention value. The root system of the tree is causing damage to the existing driveway and paths. The proposed development would require removal of the tree. Whilst the tree makes a meaningful contribution to the garden city character of the area, its contribution is not significant and can be replaced with new canopy tree plantings. None of the other trees on site are considered worthy of retention. 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 13 There are sufficient landscaping opportunities across the site including ample opportunity for canopy tree planting, adequate space in the front setback, planting opportunities along the driveways and front entrances (subject to condition above) and landscape breaks along the side boundaries. As a result, the proposal would maintain the garden city character of the area. Amenity The degree of overshadowing to the secluded private open space of adjoining lots is reasonable as adequate sunlight will still be received through the day at the Equinox. Overlooking to the secluded private open space and habitable room windows of adjoining lots is minimised through the use of external screens. This includes the first floor north elevation facing the objector property at 30 Pepperell. The Dwelling 1 and 2 ground floors are not elevated above natural ground level to a height that would result in overlooking. The Dwelling 3 and 4 ground floors are below natural ground level, resulting from the site cut. Site Coverage and Permeability The site coverage and permeable area is acceptable (approximately 43% and 40% respectively), providing sufficient opportunities to maintain the garden city character of the area and to limit the impact of stormwater runoff. On site amenity and internal amenity The dwellings have sufficient solar access to the principle living areas. Whilst the Dwelling 2 family/dining room north window is located adjacent to a wall on boundary, sufficient solar access would be achieved through the provision of east and west windows. The development would not unreasonably reduce the solar access to habitable room windows on adjoining lots. Vehicle Access The application was referred to Council’s Traffic Engineers, have suggested standard conditions relating to vehicle access and the provision of vehicle sight lines. Vehicles are able to turn effectively within the site and exit in a forward direction (Clause 52.06 Car Parking), subject to the widening of the Dwelling 2 garage door west. This will reduce the width of the Dwelling 3 landscaping strip located adjacent to the store, but will not materially alter landscaping outcomes overall. Parking provision The number of car spaces and dimensions meet the minimum requirements of the planning scheme (Clause 52.06 Car Parking) and can be summarised as follows: 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Section 1.4 – Page 14 Council Meeting, 27 September 2016 No. of dwellings Clause 52.06 requirement Car spaces required Car spaces provided 4 bedroom dwellings 4 2 spaces per dwelling 2 2 Visitor parking - - - - Total required 8 Total provided 8 Visitor parking is not required for developments of less than five dwellings. Private Open Space All dwellings meet Council’s requirement for a minimum of 75 square metres private open space to each dwelling (Clause 55.05-4 Private Open Space). Dwelling Private open 2 space m Seclude private 2 open space m 1 121 45 2 167 35 3 75 43 4 83 39 The secluded private open space of each dwelling has satisfactory solar access (Clause 55.05-5 Solar Access to Open Space) and convenient access from a living room. Whilst the Dwelling 1 secluded private open space is located on the south side of the dwelling, it is setback a sufficient distance from the ground and first floor walls to maintain satisfactory solar access. Therefore, adequate private open space is provided to meet the recreation and service needs of residents. Heritage Heritage considerations are limited to the potential impacts to the Cypress trees located in the adjoining Council reserve to the east. Dwelling 3 has the potential to impact the Cypress trees. Council’s Urban Design unit advised the trees are scheduled for removal and replacement in Autumn 2018 and therefore their protection is not required. However, Urban Design recommended a condition of permit to require approval by Council for any pruning of the trees prior to commencement of development. Excavation within the Tree Protection Zones of the trees should be undertaken with the supervision of a qualified arborist to ensure the trees do not become unstable in order to ensure the safety of surrounding properties. 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 15 The demolition of a fence, works comprising site cut and retaining walls and buildings comprising rear boundary fence, eave projections, rainwater tank and storage shed proposed over the overlay are of only relevant in terms of their potential impact to the Cypress trees, already discussed. CONCLUSION: The proposal is consistent with the relevant policies and objectives of the Monash Planning Scheme, including the State and Local Planning Policy Framework and Clause 55. The proposal is sympathetic to the character of the area in terms of building bulk and massing, provides sufficient landscaping opportunities, private open space, car parking and vehicle access, and will not unreasonably reduce the amenity of surrounding lots. 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation Council Meeting, 27 September 2016 Section 1.4 – Page 16 LIST OF ATTACHMENTS: Attachment 1 – Proposed Development Plans. Attachment 2 – Aerial Photograph (October 2014). Attachment 3 – Zoning and Overlays Map. Attachment 4 – Objector Properties Location Map. Attachment 5 – Examples of Similar Housing Styles in the Area 32-34 Pepperell Avenue, Glen Waverley - Development Of Four Double Storey Dwellings And Removal Of Vegetation
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