statement of urban design expert evidence...amanda roberts i sjb urban statement of evidence i...

Statement of Urban Design Expert Evidence 592-694 High Street, Epping 14 November 2018 Instructed by City of Whittlesea Prepared by Amanda Roberts SJB Urban

Amanda Roberts I SJB Urban Statement of Evidence I 592-694 High Street Epping 2

1.0 Introduction 3

1.1 Process and Involvement 3 1.2 Key Considerations 3

2.0 Context 4

2.1 Subject Site 4 2.2 Surrounding Context 5 2.3 Broader Context 7

3.0 Proposal 8

3.1 Development Summary 8 3.2 Proposed Amendment 8

4.0 Policy Context 9

4.1 Zoning 9 4.2 Municipal Strategic Statement (MSS) 11 4.3 Epping Central Structure Plan (2013 Amendment) 12

5.0 Contextual Response 20

5.1 Context 20 5.2 Discussion 20 5.3 Summary 28

6.0 Public Realm 29

6.1 Context 29 6.2 Discussion 29

7.0 Conclusion 33

Appendix A: Qualifications and Experience 34

Appendix B: Policy Framework 36

Appendix C: Precedent Examples 48


1.0 Introduction

1.1 Process and Involvement

1. This Statement has been prepared by Amanda Louise Roberts, Director of SJB Urban Pty Ltd. SJB Urban is an independent, specialist urban design practice, based at Level 5, 18 Oliver Lane, Melbourne. I hold qualifications in Architectural Studies, Landscape Architecture and Urban Planning. Further details of my qualifications and experience are outlined in Appendix A.

2. In October 2018, I was instructed by the City of Whittlesea to undertake an urban design review of a

proposed Kaufland development at 592-694 High Street, Epping (the ‘subject site’).

3. In preparing this Statement I have inspected the subject site and surrounding area, on November 8th 2018. The photographs in this Statement are mine unless otherwise stated.

4. The proposal seeks planning approval for development of a supermarket with ancillary retail uses (including packaged liquor) and associated on site car parking.

5. My qualifications and experience is contained within Appendix A. A complete relevant policy context

summary is contained within Appendix B. 1.2 Key Considerations

6. In my view, the key urban design questions raised by the proposal are as follows:

• Does the proposal constitute an appropriate contextual response, considering the existing and emerging context and the relevant character aspirations of planning policy?; and

• Is the proposal appropriately designed with respect to the public realm considering aspirations for the future and the relevant policy context?

7. I have organised my assessment in this statement under these headings and my specific discussion

is highlighted in bold and italics.


2.0 Context

2.1 Subject Site

8. The subject site is located at the centre of the Epping Central Activity Centre, adjacent to Cooper Street to the north, and High Street to the west. The Site has a primary frontage to High Street, with access provided via a signalised intersection. The irregularly shaped lot ‘wraps’ around existing retail tenancies to the northwest. Additional secondary access is available to High Street at the south-east corner and Cooper Street to the north.

9. The site is irregular in shape, with a total site area of 30,885sqm. 10. The site was previously used as a Bunnings store. The site contains significant at-grade carparking to

the west.

Figure 01: Site Aerial (source: Nearmap)


2.2 Surrounding Context

11. To the north is a variety of big-box retail tenancies, including Supercheap Auto and Cash Converters, among others.

12. Further north is Cooper Street, an east-west arterial road, with one lane of traffic travelling in either

direction, and designated cycling lanes. Beyond High Street to the west, two lanes travel in either direction. Cooper Street accommodates bus routes 564, 566, 569, 571, 575, 577, 901 and the Night Rider.

13. To the east is the Mernda Railway Line, with the closest station being Epping, approximately 500m

northeast. 14. To the south is a variety of big-box retail tenancies, including Officeworks. 15. To the west is High Street, a north-south arterial road, with two lanes of traffic travelling in either

direction, designated cycling lanes, and a central median strip. High Street accommodates bus routes 555 and the Night Rider.

Figure 02: View toward subject site from High Street to the west

Figure 03: West of subject site, High Street intersection


Figure 04: Existing big-box retail northeast of site

Figure 06: Secondary access from Cooper Street to the north

Figure 05: Cooper Street / High Street intersection

Figure 07: Primary access from High Street


Figure 08: Existing carparking within the subject site 2.3 Broader Context

16. The subject site is located within proximity of a variety of facilities, services, and transportation

options, including: • Epping Railway Station – 5000m east • Epping Plaza – 130m west • High Street Village - 300m north • Melbourne Polytechnic (Epping Campus) – 550m east • Northern Hospital – 700m west • St Peters Primary School – 250m northeast • VR Michael Reserve – 850m south

17. The subject site is located within the Epping Central Activity Centre, recognised by Plan Melbourne

as one of seven Metropolitan Activity Centres. In a local context, the subject site is within the Epping Hub, which accommodates a variety of large retail stores.

18. The surrounding built form is primarily that of 1-2 storey retail, big-box retail and commercial

tenancies. The architecture is contemporary with a diversity of colouring primarily related to branding.


3.0 Proposal

3.1 Development Summary

19. Proposed use and development of the Site for a 6,754sqm building including: • 3,610sqm of supermarket floor area. • 354sqm bottle shop. • 284sqm food hall and 108sqm outdoor area. • 259sqm tenancy. • Associated in-house facilities including 1,178sqm back of house facilities, 169sqm services,

298sqm of administration. • Loading area. • Various associated signage. • 36 bicycle spaces.

20. 424 car parking spaces comprising:

• 292 general spaces • 10 accessible spaces. • 16 family spaces. • 106 spaces used by other existing retail premises. • 72 existing car parking spaces.

3.2 Proposed Amendment

21. The proposed Amendment has been made at the request of Kaufland Australia Pty Ltd.

22. The Amendment seeks to facilitate the development of a proposed Kaufland supermarket store via planning approval in the form of an incorporated document.

23. It is part of a coordinated planning and assessment process for an initial network of Kaufland stores across Victoria.

24. The Amendment proposes the following changes to the Whittlesea Planning Scheme: • Apply the Specific Controls Overlay to the above land and update the schedule to the Specific

Controls Overlay accordingly. • List the proposed “Kaufland supermarket development, 592-694 High Street, Epping”

incorporated document in the schedule to clause 45.12 and clause 72.04 as an incorporated document to the Whittlesea Planning Scheme.


4.0 Policy Context

25. This section is of direct relevance to the context and public realm assessment within Chapters 5 and

6 respectively, and provides a brief overview. Relevant policy is examined in more detail within these chapters. A complete policy analysis is included within the Appendix.

4.1 Zoning

26. The subject site sits within the Activity Centre Zone 1 (ACZ). Directly adjacent is the Public Use Zone 4 – the adjacent Railway Line. It notes that dwellings in this area must be above ground floor level, except for entry foyers, and that Business Identification Signage should be designed to integrate and be compatible with the building design, scale, material and colour.

Figure 09: Zoning Map (source: Land Channel) 27. The subject site sits within Precinct 6, sub-precinct 6B. The preferred building height for this sub-

precinct is 9-25 metres. Directly adjacent to the site, the south-east corner of the High Street / Cooper Street intersection is noted as a ‘Landmark Site’. The respective Cooper Street and High Street interfaces are noted as ‘Streetscape Improvement Areas’.

28. It is a Precinct Objective to significantly improve the built form response to surrounding streets and

precincts, other buildings, and the existing and proposed transport corridors, and to reinforce the role of Precinct 6 as a major commercial precinct with a regional retail focus through the encouragement of:

− Significantly more intensive uses and development of the land; − Enhancement of the built form and the public realm; and − The development of a pedestrian and cycle friendly movement network that is safe and

convenient. 29. The preferred character of the Precinct is one with:


• A strong and regionally attractive range of retail, commercial, entertainment and community service uses, with residential development at upper floors on appropriate sites within walking distance of the Principal Public Transport Network.

• Multi-level mixed use development with active frontages, increased built form presence to Cooper Street, High Street and Deveny Road, with reduced visual presence of parking and paved areas.

• Contemporary, vibrant and attractive architectural styles set in a high quality public realm that accommodates pedestrian and cyclist networks.

30. Schedule 1 of the ACZ applies to the Epping Central Metropolitan Activity Centre. Within centre-wide

provisions, new development should: • Incorporate articulation and design detail at the ground level to contribute to an attractive and

inviting public realm and provide interest for pedestrians. • Maximise the size and number of windows at ground level, and balconies and active rooftop

areas at upper floors that facilitate surveillance of the public realm; minimise long expanses of blank walls or opaque glazed wall/window treatments; and ensure that windows facing onto the public realm are not obscured or visually dominated by advertising material.

• Accentuate the prominence of building entrances by providing: − Direct access and generous paths in logical locations. − In larger developments, publicly accessible forecourts with seating, shade and

opportunities for public art and community interaction. • Be in accordance with the preferred building heights in Clause 5 of this Schedule. Where a

building under the preferred height is proposed the design should accommodate a taller building on the site at a later date.

• Provide sufficient space for landscaping including canopy trees. • Incorporate high quality landscaping:

− That contributes positively to the public realm and preferred neighbourhood character. − On building rooftops or façades where appropriate, particularly in higher density

developments with high site coverage, to soften building mass and support greening objectives.

• Utilise materials in a contemporary manner in buildings, soft landscaped areas and ‘hardscape’ areas (such as forecourts, plazas, footpaths etc.) that:

− Are high quality, durable and low-maintenance. − Enhance visual interest appropriate to the scale of the building.

31. It is a Land Use and Development Objective to significantly increase the density of new residential

and commercial development. 32. Relevant Built Form Objectives seek:

• To encourage higher density development throughout the centre, particularly within walking distance of public transport and major services, with a built form transition towards the lower density areas outside the activity centre.

• To achieve a preferred neighbourhood character for Epping Central, as envisaged in the precinct provisions of Clause 5 of this schedule, that consists of:

− Attractive streetscapes and public realm that encourage community gathering, walking and cycling.

− Significantly more intensive development. − Strategic redevelopment sites developed at a scale that optimises the opportunities

presented and demonstrates exemplary architectural quality. − High quality landscaping that is integral to the development design. − Contemporary architectural style which is well articulated, fit for purpose, adaptable,

robust and resilient.

33. It is an Objective of Transport and Access to encourage the use of sustainable transport through improved streetscapes and building design, and increased development densities.


34. Relevant Public Realm, Open Space and Landscaping Objectives seek: • To enhance existing public open spaces and create public gathering spaces in the public and

private realms that are safe, attractive and offer good amenity. • To increase active frontages and visual interest at interfaces with the public realm. • To achieve significant greening of Epping Central in both public and private spaces.

4.2 Municipal Strategic Statement (MSS)

35. A number of MSS provisions are relevant to this proposal, including: • Clause 21.05 Environmental and Landscape Values • Clause 21.08 Built Environment and Heritage • Clause 21.09 Housing • Clause 21.10 Economic Development • Clause 21.11 Transport • Clause 21.13 Local Areas

36. Clause 21.05-2 Environmental Assets. Strategy 1.2 - Enhance the landscape values by retaining the identified natural features in new developments.

37. Clause 21.08-1 Urban Design. Objective 1 – To support places and spaces that connect people. Objective 2 - To progressively upgrade the image and appearance of the City of Whittlesea focussing on retention of local environmental features, landscape qualities and urban and landscape design improvements. Objective 3 - To ensure new development in Activity Centres achieves high quality urban design outcomes. Objective 5 - To design walkable communities.

38. Clause 21.09-1 Capacity and Location. Strategy 1.2 - Encourage higher-density forms of housing to locate in Epping Central and other activity centres well serviced by the Principal Public Transport Network (PPTN) and employment opportunities. Strategy 2.1 - Guide housing growth into areas in proximity to the PPTN and Metropolitan Activity and Neighbourhood Centres.

39. 21.09-4 Change Areas in Established Suburbs. Objective 1 - To accommodate varying levels of housing growth and change in the established residential areas of the municipality by implementing the identified Housing Change Areas in the Housing Diversity Strategy.

40. Clause 21.11-1 Integrated Transport.

Strategy 1.7 - Support transit orientated development which provides opportunities for higher density development, intermodal transport connections, public buildings and spaces.

41. Clause 21.11-2 Sustainable Modes of Travel.

Objective 1 - To improve transport options and accessibility outcomes for residents. Objective 2 - To provide a frequent, fast and reliable public transport network that meets the diverse needs of users throughout the municipality.

42. 21.13-1 Epping Central Metropolitan Activity Centre.

Objective 1 - To develop Epping Central Metropolitan Activity Centre as a vibrant, attractive and sustainable hub for housing, employment and community services for the municipality and wider region.


4.3 Epping Central Structure Plan (2013 Amendment)

43. The Epping Central Structure Plan is the most relevant strategic document with relation to this site. Policy

Section 1.1 Homes for All

44. The subject site is an area where ‘high density housing is supported. 45. It is a Strategy to significantly increase the density of new residential development within walking

distance of the Principal Public Transport Network (PPTN), retail, employment opportunities and community facilities. It is an Action to support high density mixed use development, including shop-top housing, along key activity spines and transport corridors, particularly in Precincts 1, 6, 7 & 8. The subject site is within Precinct 6.

Figure 10: Housing Density Map (source: Epping Central Structure Plan)


Section 1.2 More Effective Transport

46. To the north of the subject site is the ‘Cooper Street shared path’. Cooper Street and High Street are noted as ‘priority walking and on road cycling routes for upgrade’, and ‘3 metre minimum width shared pedestrian and bicycle path’ areas.

Figure 11: Walking and Cycling Map (source: Epping Central Structure Plan) 47. The subject site is adjacent to a variety of bus routes travelling along Cooper Street and High Street,

with bus stops to the north and west. The Epping Train Station is a short walk to the east. The site is earmarked as a location for ‘significant increase in development density to integrate with public transport interchanges.’


Figure 12: Public Transport Map (source: Epping Central Structure Plan) 48. Relevant Strategies include:

• Develop an integrated network of walking and cycling routes throughout Epping Central that is safe, connected and demonstrates high levels of amenity for pedestrians and cyclists in accordance with the recommendations of the Epping Central Wayfinding Study (Arup, 2007) and the Epping Central Sustainable Travel Requirements report (Booz & Co, 2011).

• Encourage other sustainable and active forms of transportation such as use of skateboards, non-motorised scooters, prams and shopping buggies.

49. It is a Strategy to facilitate high density, mixed use employment and residential development in close

proximity to Epping Station, the Yellow Orbital Smart Bus and the proposed public transport interchange between Epping Plaza and the Northern Hospital. It is an Action to require the development and maintenance of pedestrian and cyclist connectivity and permeability through all developments adjacent to public transport stops and interchanges.


50. With regard to roads, High Street to the west is within the ‘longer term priority redevelopment’ area. The High Street / Cooper Street intersection is a location of proposed ‘intersection upgrade’.

Figure 13: Roads Map (source: Epping Central Structure Plan) 51. It is a Strategy to undertake significant streetscape improvements in local roads to support increased

densities of development on abutting sites and strengthen pedestrian connections.

Section 1.3 Maximising our Business Opportunities 52. The subject site is within the ‘retail based development supported’ area. Adjacent to the subject site,

High Street is identified as a ‘future extension of the High Street Village’. To the north, is land ‘subject to significant intensification of local retail businesses’.

53. It is a Strategy to designate significantly increased areas for mixed use development, inclusive of retail

uses along Cooper and High Streets, close to the PPTN, that are targeted at the needs of local catchments. It is an Action to (in the longer term) investigate the extension of the High Street street-based shopping strip south along the Epping Plaza and Epping Homemaker Centre frontages to further reinforce the role of High Street as a core pedestrian based retail element of Epping Central.


Figure 14: Retail Map (source: Epping Central Structure Plan)

Section 1.5 Improving our Public Realm

54. To the north, Cooper Street is identified as a ‘priority streetscape improvement area’. To the west, High Street is identified as a ‘streetscape improvement area’.

55. Relevant Strategies include:

• Redevelop streetscapes to provide ease of movement for a variety of transport modes, particularly for walking and cycling, and be improved to expand their function as public spaces, landscape corridors and movement networks.

• Utilise generous nature strips to increase the amount of landscaping, green areas and community gathering spaces to improve community connectedness, enhance amenity, contribute to better stormwater quality and reduce the urban heat island effect.

56. It is an Action to achieve significant improvements to the appearance, safety and functionality of the

existing streetscapes, have regard to the following key design principles and outcomes: • An integrated network of off-road paths with an integrated network of amenity improvements

appropriate to the use and function of the paths and streetscape • Design which is attractive, sustainable, distinctive, creative, robust and can be easily maintained • Consistency with the preferred character of Epping Central which includes significant

landscaping • The physical requirements of pedestrians, cyclists, skaters, and motorists • Inclusion of native street tree and ground cover plant species that are drought tolerant, have a

fast growth pace, are robust, long- living and create habitat for local fauna


Figure 15: Streetscapes Map (source: Epping Central Structure Plan) Design 57. The subject site is within the Mixed-Use B land use. These areas are employment-focused, mixed

use higher-density development – offices and large-format retail at ground floor, with office and residential above.

58. The preferred character is for multi-level, employment generating mixed use development of 3-8 storeys, including retail, office, entertainment and residential uses. New development features active frontages to all streets, reduced setbacks, and reduced visual presence of parking and paved areas. Architectural styles are modern and the built form responds to pedestrian and cyclist networks and movements. Land to the south of Epping Plaza provides significant opportunity for pedestrian scale retail, commercial and residential development set within a new grid-based street network.

59. The subject site is identified as a Strategic Redevelopment Site. Significant opportunity exists to undertake a comprehensive redevelopment of the existing Homemaker Centre site given it’s location on a major intersection, with ready access to Epping Station, the High Street Village and Epping Plaza. Collaboration between major land owners or lot consolidation is required to ensure an integrated outcome. Redevelopment should incorporate a mix of uses at higher densities (including employment, retail and residential), public open space, a fine-grained pedestrian network and high quality urban design.


Figure 16: Precinct 6 – Regional Demand (source: Epping Central Structure Plan) 60. It is an Objective of this area to significantly intensify the use and development of land in the precinct, and

encourage an improved mix of uses including commercial and residential, in a pedestrian- and cycle-friendly environment.

61. Relevant Key Design and Development Principles include:

• Encourage redevelopment at the street edge to improve the relationship of major regional facilities with surrounding precincts.

• Encourage built form that provides an inviting and interesting interface with the public realm and contributes to improved pedestrian amenity.

• Develop retailing and office uses at ground level, with residential development on upper storeys where appropriate.

• Diversify uses on major retail sites to capitalise on their strategic location in the heart of the activity centre and on the PPTN.

• Provide safe, direct and attractive bicycle and pedestrian connections within major development sites to improve internal movement networks, and provide connections to the Cooper Street shared path and other key routes.


62. The following image summarises the key elements of the Epping Central Structure Plan, with

particular relevance to the subject site. The proposed form is included for reference.

Figure 17: Epping Central Structure Plan Summary


5.0 Contextual Response

5.1 Context

63. The Epping Central Structure Plan (2013 Amendment), Activity Centre Zone (ACZ), and relevant local and State policy are deemed applicable to an assessment of this proposal. The discussion will be formulated with consideration of these documents.

64. For ease of analysis, the discussion has been broken up into Height & Massing, Land Use,

Landscaping, Design Detail, and Signage.

5.2 Discussion

Height & Massing 65. The subject site is within Precinct 6, sub-precinct 6B of the ACZ. The preferred building height for

this sub-precinct is 9-25 metres. The ACZ stipulates that the design of development should ensure that all elements of buildings are well presented when viewed from the surrounding area, particularly at ground level. New development should: • Maximise development density…. • Be in accordance with the preferred building heights in Clause 5 of this Schedule. Where a


66. Within the Epping Central Structure Plan, the subject site is within Precinct 6: Regional Demand. The

preferred character within this Precinct is multi-level, employment generating mixed use development of 3-8 storeys, including retail, office, entertainment and residential uses. The built form should respond to pedestrian and cyclist networks and movements. It is an Objective to significantly intensify the use and development of land in the precinct, and encourage an improved mix of uses including commercial and residential, in a pedestrian- and cycle-friendly environment.

67. The Activity Centre Zone and Epping Central Structure Plan seek to intensify or maximise

development in this area, while encouraging a mix of uses. The maximum height of this proposal is primarily 9 metres, with a limited section above the proposed entrance 11 metres of height. The majority of this proposal is the minimum suggested height of the ACZ.

68. Council policy clearly outlines aspirations for a potentially consolidated development that effectively links Cooper Street and the station precinct to the major retail core including High Street and Epping Plaza. I consider that the proposed low scale, single use (supermarket) development simply replicates the built form and land use outcome of the previous tenant, Bunnings and does little to respond to the future vision and policy requirements for the Activity Centre.

69. While I appreciate the efficiencies of constructing new built form on the previous site, the limited use proposed within the development results in a large, low height form with little opportunity to enhance streetscapes and interfaces, improve pedestrian outcomes and provide for a range of uses in this strategic position close to transport infrastructure and town centre amenity. The lack of a mix of uses over a greater height also reduces the possibility for passive surveillance and a varied time-frame of occupation often associated with a mix of uses, particularly commercial and residential uses. For instance, residential uses would allow


for balconies overlooking pedestrian routes offering opportunities for improved streetscape character and architectural ‘grain’ and passive surveillance appropriate for a major activity centre

70. In addressing this issue I support Councils request for a plan that shows how the site may accommodate future development that does respond to the policy context. This plan should show potential pedestrian, cycle and vehicle access routes, potential massing and open space and landscape opportunities.

71. It should also show how the proposed Kaufland development may accommodate future multi-level additions above the proposed footprint and how equitable development may be achieved on the surrounding sights, particularly in relation to residential/apartment separation distances and movement networks including car parking.

72. I refer to images included in my Appendix C showing various examples of large format retail, including Kaufland stores, that present a multi level, mixed-use compact model suitable for an Activity Centre.

73. I consider the height and massing of the proposal to be an underdevelopment of the site that responds to past (and current) conditions of the Epping Activity Centre with the potential assumption that the site is and will always be car dominated and ‘big box’ rather than one that responds to the future vision for the Activity Centre as a thriving, mixed use centre with safe and pleasant pedestrian routes and a greater residential population supporting a sustainable future.

74. Images in Appendix C clearly show that more intense development is achievable for tenants of this type and I recommend this outcome is sought in this location. Land Use

75. The ACZ stipulates that dwellings within this area must be above ground floor level, except for entry foyers. The preferred neighbourhood character features significantly more intensive development, and it is a Built Form Objective to encourage higher density development throughout the centre, particularly within walking distance of public transport and major services, with a built form transition towards the lower density areas outside the activity centre.

76. Clause 21.09-1 Capacity and Location Strategy 1.2 seeks to encourage higher-density forms of

housing to locate in Epping Central and other activity centres well serviced by the Principal Public Transport Network (PPTN) and employment opportunities. Objective 2 seeks to direct housing growth in the established suburbs of the municipality into locations which have the capacity to accommodate change, and Strategy 2.1 seeks to guide housing growth into areas in proximity to the PPTN and Metropolitan Activity and Neighbourhood Centres.

77. Within Clause 21.09-4 Change Areas in Established Suburbs, the subject site is within the ‘Urban Renewal Area’ of Plan 06 – Housing Change Areas. The Location and Preferred Housing Types are where the Epping Central Metropolitan Activity Centre and the Plenty Valley (South Morang) Activity Centre will be characterised by high density residential and mixed use developments such as townhouses, multi-units, small and large scale apartments and shop-top housing. Strategy 1.1 seeks to encourage higher density residential and mixed use developments in Urban Renewal Change Areas that support the Epping Central Metropolitan Activity Centre.

78. The subject site is within the Commercial/Employment Area of Plan 07 – Economic Development and the Epping Central Metropolitan Centre of Clause 21.10-1 Employment Opportunities. Objective 1 seeks to provide greater balance between housing supply and employment opportunities


79. Within Clause 21.13-1 Epping Central Metropolitan Activity Centre, Strategy 1.1 seeks to support increased housing densities in close proximity to transport infrastructure, shops and services, and increase the diversity of homes to improve housing choice.

80. The Epping Central Structure Plan seeks to significantly increase the density of new residential

development within walking distance of the Principal Public Transport Network (PPTN), retail, employment opportunities and community facilities. The subject site is supported for high density housing. It is a Strategy to implement initiatives to support increased numbers of people living in Epping Central such as streetscape improvements, development of additional community facilities, increased job opportunities and improved public transport. It is an Action to support high density mixed use development, including shop-top housing, along key activity spines and transport corridors, particularly in Precincts 6.

81. With consideration for public transport, the site is identified as a location for a significant increase in

development density to integrate with public transport interchanges. It is Strategy to facilitate high density, mixed use employment and residential development in close proximity to Epping Station, the Yellow Orbital Smart Bus and the proposed public transport interchange between Epping Plaza and the Northern Hospital.

82. The site is within the Mixed Use B area. These areas are employment-focused, mixed use higher-

density development – offices and large-format retail at ground floor, with office and residential above. It has a preferred character of multi-level, employment generating mixed use development of 3-8 storeys, including retail, office, entertainment and residential uses. It is an Objective to significantly intensify the use and development of land in the precinct, and encourage an improved mix of uses including commercial and residential, in a pedestrian- and cycle-friendly environment. It is a challenge to overcome the existing large format, internalised and car-reliant ‘mall model’ of development, and encourage a more sustainable street-based format. It is a Key Design and Development Principle to: • Develop retailing and office uses at ground level, with residential development on upper storeys

where appropriate. • Diversify uses on major retail sites to capitalise on their strategic location in the heart of the

activity centre and on the PPTN.

83. A variety of provisions within the MSS seek to support mixed use and residential growth within areas in close proximity to the Principle Public Transport Network and public transport infrastructure. Local policy continually advocates for higher densities in appropriate locations. The Epping Central Structure Plan advocates for a discontinuation to the ‘mall-model’, and mixed-use development within this area.

84. As discussed briefly above in height and massing and throughout the policy review there is clear policy support for a greater mix of uses to be provided within the Activity Centre including residential and employment opportunities. As shown in examples in Appendix C, this mix of uses is possible, and has been delivered by Kaufland internationally and similar businesses including Aldi, Coles and Woolworths within Australia.

85. I do not consider that the ‘luxury of space’ provided by the subject site should be the determining factor in allowing the replication of previous typologies and strongly suggest that the proposed development provide opportunities for mixed use outcomes on top of the proposed supermarket and/or immediately surrounding the supermarket.

86. In my opinion, the success of the future-looking vision for the Epping Activity Centre relies on all new proposals to offer the highest quality urban design that encourages sustainable modes of transport, maximises the benefits of the proximity to the Train Station and bus routes through increased residential and employment density and contributes to the creation of ‘human scaled’ streetscapes and community spaces, not replicate the car-dominated typology of the past.


Landscaping

87. The Activity Centre Zone features a preferred neighbourhood character with high quality landscaping

that is integral to the development design. It is a Public Realm, Open Space and Landscaping Objective to achieve significant greening of Epping Central in both public and private spaces. New development should: • Provide sufficient space for landscaping including canopy trees. • Retain any existing indigenous trees where possible and create a sufficient tree protection zone

in accordance with Council’s tree protection guidelines. • Incorporate high quality landscaping:



Within this Precinct, the ACZ states that site and precinct master planning should enable substantial landscaping opportunities to enhance development, provide buffers to adjacent areas, and reduce the presence of the existing large expanse of car parking.

88. Clause 21.08-1 Urban Design Objective 2 seeks to progressively upgrade the image and appearance of the City of Whittlesea focussing on retention of local environmental features, landscape qualities and urban and landscape design improvements. Strategy 2.12 seeks to encourage the planting of large canopy trees in new developments.

89. Clause 21.08-3 Environmentally Sustainable Design Strategy 1.3 seeks to encourage the design and landscaping of new developments to include landscaping techniques that assist in heat control and protect and enhance biodiversity.

90. The Epping Central Structure Plan seeks design of parking areas to be high amenity landscaped

areas by ensuring that they are not visually dominant and do not conflict with other modes of transport.

91. The ACZ seeks the inclusion of development which responds to a preferred neighbourhood

character, and includes canopy trees, the retainment of existing indigenous trees, and a green contribution to the public realm. Local policy seeks to encourage landscaping to assist in curbing the Urban Heat Island effect, and encourage the planting of large canopy trees.

92. As can be seen in the Figures below (18 & 19) the proposed development seeks the removal of at least 17 canopy trees from the current car park with a number of other trees on the very edge of the ‘existing bitumen car park to be removed’ line.

93. The landscape plan lacks sufficient detail to determine if there are significant canopy trees proposed to be re-instated within the green ‘landscape’ areas however it is clear that there are no canopy trees proposed to be spaced within the new bitumen car park layout isles. There is also no detail showing how the landscape will contribute to the amenity of the public realm, improve the image of the City of Whittlesea or contribute to the sustainable management of onsite water drainage and retention through the use of Water Sensitive Urban Design.

94. I recommend that a comprehensive landscape plan is provided showing locations of large canopy trees being retained and new ones proposed, in particular along pedestrian routes and in the car park as a way of mitigating heat island effect and contributing to increased


amenity. Also further detail on landscape elements as they define entries, streetscapes, wayfinding routes and help soften the very large façade through a range of planting including canopy trees, lower level ground covers and shrubs that are appropriate for the conditions and enhance biodiversity.

Figure 18: Proposed Ground Floor and Landscape (Leffler Simes Architects)


Figure 19: Trees to be retained and removed (Leffler Simes Architects) Design Detail

95. The ACZ features a preferred neighbourhood character where strategic redevelopment sites are developed at a scale that optimises the opportunities presented and demonstrates exemplary architectural quality, and a contemporary architectural style which is well articulated, fit for purpose, adaptable, robust and resilient. New development should: • Incorporate articulation and design detail at ground level to contribute to an attractive and inviting

public realm and provide interest for pedestrians. • Maximise the size and number of windows at ground level, and balconies and active rooftop


• Accentuate the prominence of building entrances by providing publicly accessible forecourts with seating, shade and opportunities for public art and community interaction in larger developments.

New development should: • Utilise materials in a contemporary manner in buildings, soft landscaped areas and ‘hardscape’

areas (such as forecourts, plazas, footpaths etc.) that enhance visual interest appropriate to the scale of the building.

• Encourage a preferred character that includes contemporary, vibrant and attractive architectural styles set in a high quality public realm that accommodates pedestrian and cyclist networks.

96. Clause 21.08-1 Urban Design Strategy 3.1 seeks to incorporate visually distinctive urban design

treatments, inclusive of public art, as part of streetscape improvements within the Epping Central Metropolitan Activity Centre. Strategy 3.3 seeks to encourage high quality building design within the Epping Central Metropolitan Activity Centre that contributes to the amenity of the public realm.

97. The Epping Central Structure Plan places the site within the Mixed Use B land use. Within this area,

architectural styles are modern and the built form responds to pedestrian and cyclist networks and movements. This site sits within Precinct 6. It is a Key Design and Development Principle to encourage built form that provides an inviting and interesting interface with the public realm and contributes to improved pedestrian amenity.


98. The ACZ seeks attractive, articulated, adaptable, robust and contemporary designs, which can foster community interaction. The Epping Central Structure Plan seeks to encourage an inviting and interesting interface with the public realm.

99. As can be seen in the figures below (20- 22) the proposed built form presents long expanses of blank concrete walls punctuated by large advertising boards on the west and north elevation and a very large branding/advertising ‘box’ on the north west corner over the main entry.

100. Elements to be supported, in my opinion, are the use of a timber, or timber like material around the front entry and along the eastern façade around the terrace (Figure 20) and the set back of the entry under a structure to provide shade and shelter. The provision of shade and shelter should also be considered along the length of the façade to encourage pedestrian movement, comfort and help contribute to the greater articulation of the façade.

101. The blank concrete walls could be improved through patterning in the pre-cast panels and the incorporation of landscape including large canopy trees.

102. However, as discussed above under land use, the most significant improvement would be the introduction of greater height combined with a mix of uses to dramatically increase the level of architectural interest, diversity and opportunities for streetscape activation through a variety of entrances at ground level and balconies at upper levels.

Figure 20: Artists impressions (Leffler Simes Architects)


Figure 21: Proposed Elevations (Leffler Simes Architects)

Figure 22: Artists impressions (Leffler Simes Architects)


Signage

103. Pursuant to the Activity Centre Zone, Business Identification Signage (including corporate logos

incorporated into the built form and landscape to identify a specific site) should be designed to integrate and be compatible with the building design, scale, material and colour. Promotional Signage (includes on-site advertising and off-site promotional signage on buildings, billboards, transit shelters, kiosks, sales signs and banners) should: • Avoid advertising which is equivalent in size to a one storey wall or greater as it contributes to a

poor sense of place and is visually dominant. • Ensure the total number of signs per site is kept to a minimum.

104. Discussed above, there is a large amount of ‘big box’ signage associated with the

development. The artist impression shown in Figure 22 – secondary corner clearly shows the Kaufland sign in comparison to the people as being over one storey in height. The signage plan notes that at the two prominent north-west and south-west corners there will be two signs on each corner measuring 5m x 5m equating to 50m2 of illuminated signage.

105. In addition there is proposed signage in the median of High Street and a 21.8m high pylon

sign located at the entry to the car park off High Street.

106. I appreciating that signage is essential for business operations and that the location of the building away from the main vehicle routes requires Kaufland to achieve some visibility from the streets, however I consider that the signage strategy should be integrated with the detailed landscape plan and consideration given to the impact of signage on pedestrian routes, how the signage can be integrated into other way finding elements including directions to the strain station, major cycling routes and High Street amenities.

5.3 Summary

107. I recommend the following requirements for this proposal prior to further consideration: • Plan showing the possibility for future upward expansion and neighbouring development

parcels including equitable development opportunities and mixed use • Detailed landscape plan showing how it integrates with the built form and provides for

canopy trees, increased biodiversity, on-site water management and increased pedestrian amenity

• Increased architectural diversity and articulation across all facades • The incorporation of further shade and shelter opportunities, particularly along the

western interface contributing to a ‘street’ typology and increasing pedestrian amenity


6.0 Public Realm

6.1 Context

108. The Epping Central Structure Plan (2013 Amendment), Activity Centre Zone (ACZ), and relevant local and State policy are deemed applicable to an assessment of this proposal. The discussion will be formulated with consideration of these documents.

109. For ease of analysis, the discussion has been broken up into Movement Network, Public

Realm/Placemaking, Urban Integration. 6.2 Discussion

Movement Network

110. It is a Land Use and Development Objective of the Activity Centre Zone to strengthen links between key attractors, particularly along Cooper Street between Epping Station, Pacific Epping, and the High Street Village (subprecinct 1A). It is a Transport and Access Objective to prioritise walking, cycling and public transport access over private motor vehicle usage in the design of all new developments, roads and public spaces.

111. Clause 21.08-1 Urban Design Objective 1 seeks to support places and spaces that connect people.

Objective 5 seeks to design walkable communities. Strategy 5.3 seeks to create a permeable, direct and well-connected pedestrian and cycling network between destinations including public transport stops, homes, services, schools and recreation spaces.

112. Clause 21.08-3 Environmentally Sustainable Design Strategy 1.2 seeks to promote the integration of land use and sustainable transport including walking, cycling and public transport.

113. Clause 21.11-1 Integrated Transport Objective 1 seeks to establish an efficient, interconnected multi-

modal transportation system which increases the level of accessibility and choice within and beyond the City of Whittlesea. Strategy 1.1 seeks to reduce dependence on car based transport and provide improved public transport and pedestrian/cycle options within existing urban and growth areas of the municipality. Strategy 1.7 seeks to support transit orientated development which provides opportunities for higher density development, intermodal transport connections, public buildings and spaces.

114. Clause 21.11-2 Sustainable Modes of Travel Objective 1 seeks to improve transport options and

accessibility outcomes for residents. Strategy 1.2 seeks to deliver walking paths and supporting infrastructure to improve access to activity centres, employment areas, schools, community facilities and public transport interchanges.

115. Clause 21.13-1 Epping Central Metropolitan Activity Centre Strategy 1.2 seeks to increase the

proportion of trips taken by sustainable modes of transport such as walking, cycling and public transport to reduce car use.

116. The Epping Central Structure Plan identifies Cooper and High Streets as priority walking and on road

cycling routes for upgrade. It is a Strategy to: • Develop an integrated network of walking and cycling routes throughout Epping Central that is

safe, connected and demonstrates high levels of amenity for pedestrians and cyclists


• Require the development and maintenance of pedestrian and cyclist connectivity and permeability through all developments adjacent to public transport stops and interchanges.

• Integrate a variety of transport modes within developments favouring direct, high amenity access and movement for pedestrians and cyclists.

117. It is a Key Design and Development Principle to provide safe, direct and attractive bicycle and

pedestrian connections within major development sites to improve internal movement networks, and provide connections to the Cooper Street shared path and other key routes.

118. The ACZ seeks to promote the connection between key attractors. This site is a notable link

between the Epping Railway Station and the Epping Plaza. Local policy seeks to foster the connection between people and place, and utilise sustainable transport, including both pedestrian and cycling, to create higher densities supported by public transportation. The Epping Central Structure Plan seeks to provide quality pedestrian and cycling networks, resulting in an overall reduction in car use.

119. The proposed development does not, in its current form and with the provided level of detail,

seek to integrate with the preferred sustainable transport network and the desire to improve pedestrian and cycle connectivity throughout the activity centre. There is no acknowledgment of the pedestrian and cycle desire lines from the Train Station, bus stops and Epping Plaza and no provision has been made within the site to improve existing connections or provide new ones.

120. I recommend a larger context plan is provided that includes the key surrounding nodes and shows how the development contributes to the increased amenity and permeability of the activity centre. This may include wider pedestrian paths, on-street (within car park) cycle routes, increased landscaping along these routes and incorporated wayfinding signage showing walking distance to amenities. Public Realm/Placemaking

121. The preferred neighbourhood character for Epping Central within the Activity Centre Zone consists of

an attractive public realm and streetscapes that encourage community gathering, walking and cycling. It is a Public Realm, Open Space and Landscaping Objective to enhance existing public open spaces and create public gathering spaces in the public and private realms that are safe, attractive and offer good amenity. Within this Precinct, development should provide: • Comfortable weather protected spaces, both enclosed and unenclosed. • Formal and informal social gathering spaces at key locations.

122. Clause 21.08-1 Urban Design Objective 2 seeks to progressively upgrade the image and

appearance of the City of Whittlesea focussing on retention of local environmental features, landscape qualities and urban and landscape design improvements. Strategy 2.9 - Improve the appearance of streetscapes in existing urban areas and new growth areas. Strategy 3.3 - Encourage high quality building design within the Epping Central Metropolitan Activity Centre that contributes to the amenity of the public realm.

123. Clause 21.13-1 Epping Central Metropolitan Activity Centre Strategy 1.6 seeks to improve Epping Central’s public realm by enhancing the amenity, attractiveness and functionality of streetscapes, parks and creek zones. Strategy 1.9 seeks to promote high quality design in all new development, appropriate to Epping Central’s higher-density context, to complement improvements to the public realm, stimulate investment and contribute to a high-amenity street interface.

124. The Epping Central Structure Plan identifies Cooper Street as a priority streetscape improvement

area and High Street as a streetscape improvement area. It is a Strategy to:


• Design streetscapes to contribute to the overall preferred character of Epping Central and respond to the needs of different users by providing valued, vibrant public spaces and safe movement corridors.



125. It is an Action to achieve significant improvements to the appearance, safety and functionality of the existing streetscapes, with regard to the following key design principles and outcomes:

− Design which is attractive, sustainable, distinctive, creative, robust and can be easily maintained

− Consistency with the preferred character of Epping Central which includes significant landscaping

− The physical requirements of pedestrians, cyclists, skaters, and motorists This site sits within Precinct 6. It is a Key Design and Development Principle to encourage built form that provides an inviting and interesting interface with the public realm and contributes to improved pedestrian amenity.

126. The ACZ seeks to create public engagement through formal and informal gathering spaces. Local policy seeks to enable the progressive upgrade to Whittlesea, to establish improvement to the public realm through streetscape improvements and high quality building design. Within a high-density environment, development should contribute to a high-amenity street interface. The Epping Central Structure Plan seeks streetscape improvements including attractive, sustainable, distinctive, creative and robust design.

127. As discussed above, the proposed development makes little contribution to the improvement

of the public realm. The landscape plan has insufficient detail to determine: • the type of planting proposed • the number of canopy trees proposed (which in my opinion should greatly exceed the

number of canopy trees being removed) • how the landscape, including paving materials, contributes to a sense of place, increased

wayfinding and improved pedestrian and cycling amenity • how the landscape provides environmental benefits through increased greening,

reduction in heat island effect and increased biodiversity.

Urban Integration 128. The Activity Centre Zone stipulates that development within Precinct 6 should significantly improve

the built form response to surrounding streets and precincts, other buildings, and the existing and proposed transport corridors.

129. The Epping Central Structure Plan identifies the site as an area in which retail based development is

supported. Adjacent to the site, High Street is identified as an extension of the High Street Village to the north. It is a Strategy to investigate the extension of the High Street street-based shopping strip south along the Epping Plaza and Epping Homemaker Centre frontages to further reinforce the role of High Street as a core pedestrian based retail element of Epping Central in the longer term.

130. In response to the preferred future character, it would be beneficial for the applicant to

provide a high level master plan for the whole corner site between Cooper, High and the Rail lines, including the land owned by Aventus Epping Pty Ltd showing how an extension of the High Street pedestrian based retail may continue along this portion of High Street. This includes showing how internal streets may connect through the site creating increased permeability from the Plaza through to the Station, where avenue planting can contribute to future streetscapes and how development parcels may evolve into a finer grain offering.


131. I recommend the following requirements for this proposal prior to further consideration:

• A master plan showing how the proposal responds to the desired future character of the activity centre including the provision of internal movement networks, landscaping opportunities and development parcels


7.0 Conclusion

132. In conclusion, I support the use of the land in part, however consider that the proposed development in its current form, is an under development of the site as it lacks density and diversity of uses. I also consider there to be a lack of supporting information showing how it responds to the preferred character of the activity centre clearly outlined in policy and how it can adapt into the future as the precinct changes in response to this policy.

133. My recommendations for the proposal made within the report are as follows: • Provide a site plan showing the possibility for future upward expansion and neighbouring

development parcels including equitable development opportunities and mixed use • A wider master plan showing how the proposal responds to the desired future character

of the activity centre including the provision of internal movement networks, how they connect to external movement networks, landscaping opportunities and development parcels

• Detailed landscape plan showing how the landscape integrates with the built form, provides for canopy trees, increased biodiversity, on-site water management and improved pedestrian amenity

• Increased architectural diversity and articulation across all facades • The incorporation of further shade and shelter opportunities, particularly along the

western interface contributing to a ‘street’ typology and increasing pedestrian amenity

134. As shown in Appendix C, these types of land uses can be accommodated in highly urban environments and I encourage Kaufland to consider the Australian market as a highly walkable, pedestrian friendly, green, mixed use location rather than a car dominated, bitumen sub-urban response.

Amanda Roberts Director, SJB Urban


Appendix A: Qualifications and Experience

Name and Address Amanda Roberts (MUrban Planning, BLandArch, BArchStud, AILA) Urban Designer and Landscape Architect Director, SJB Urban Pty Ltd Level 5, 18 Oliver Lane Melbourne VIC 3000 Qualifications and Experience Master of Urban Planning (MUrban Planning): The University of Melbourne Bachelor of Landscape Architecture (BLandArch) (First Class Honours), The University of Adelaide Bachelor of Architectural Studies (BArchSTud), The University of Adelaide 2013-present: Director (since 2016), SJB Urban 2012-2013: Team Leader Subdivisions & Urban Design, City of Wyndham 2007-2012: Urban Designer, Places Victoria (VicUrban) 2006-2007: Urban Designer, Department of Planning & Community Development 2002-2003: Landscape Architect, Hames Sharley, Perth 2001-2002: Technical Officer, City of Stirling, Perth 1999-2000: Urban Design/Landscape Architect, Heaton Associates, UK 2010-present: Tutor, occasional Lecturer, The University of Melbourne 2015 –present: Member ODASA review panel Areas of Expertise and Experience My area of expertise is Urban Design, derived from my professional experience in urban design practice, landscape architecture practice, and state and local government urban design, as well as my tertiary qualifications in Landscape Architecture and Urban Design. Within this field, my specific expertise and experience includes the following: Design Review:

− Representative for State Government on review panels for Melbourne Docklands − Lead Urban Design review member for Places Victoria on Melbourne Docklands and Dandenong − Lead Urban Design review member for local government projects, City of Wyndham;

Project manager of the Gehl Places for People study on Melbourne Docklands; Independent Urban Design Reviews for Councils, including Yarra; Urban Design Advice on a range of development proposals and locations; Urban Design Analysis and Assessment and preparation of Urban Context Reports; Preparation of Development Plans, Master Plans and Urban Design Frameworks for public and private

sector clients; Urban development research, investigation, modelling; and Landscape Architectural practice - design, documentation, administration on a range of residential,

commercial and master planning projects.


Documents Taken Into Account

Whittlesea Planning Scheme and relevant Background Documents Development Application – Kaufland Epping (Leffler Simes Architects) Draft Submission - Kaufland Stores Advisory Committee Hearing (City of Whittlesea) Various Advisory Committee Submissions

Assistance in Report Preparation I have been assisted in the preparation of this report by Joel Curmi-Laine – Assistant Urban Designer Summary of Opinions Refer to the conclusion of this statement. Provisional Opinions There are no provisional opinions in this report. Questions Outside My Area of Expertise, Incomplete or Inaccurate Aspects of the Report To the best of my knowledge, this report is complete and accurate. This report does not address questions outside my area of expertise. I have made all the inquiries that I believe are desirable and appropriate and that no matters of significance which I regard as relevant have to my knowledge been withheld from the Tribunal.

Amanda Roberts Director, SJB Urban


Appendix B: Policy Framework

Zoning

Activity Centre Zone 1 135. The purpose of the Zone is:

• To encourage a mixture of uses and the intensive development of the activity centre: − As a focus for business, shopping, working, housing, leisure, transport and community

facilities. − To support sustainable urban outcomes that maximise the use of infrastructure and

public transport. • To deliver a diversity of housing at higher densities to make optimum use of the facilities and

services. • To create through good urban design an attractive, pleasant, walkable, safe and stimulating

environment. • To facilitate use and development of land in accordance with the Development Framework for

the activity centre. 136. Dwellings must be in Precincts 2, 4, 6 or 7 or subprecincts 1A, 1B, 3A or 3B. If located in Precincts 6 or 7

or sub-precincts 1A or 4A, must be above ground floor level, except for entry foyers. 137. Business Identification Signage (including corporate logos incorporated into the built form and landscape

to identify a specific site) should be designed to integrate and be compatible with the building design, scale, material and colour.

138. Promotional Signage (includes on-site advertising and off-site promotional signage on buildings, billboards, transit shelters, kiosks, sales signs and banners) should: • Avoid advertising which is equivalent in size to a one storey wall or greater as it contributes to a

poor sense of place and is visually dominant. • Ensure the total number of signs per site is kept to a minimum.

139. Schedule 1 to the Zone applies to the Epping Central Metropolitan Activity Centre. Relevant Land

Use and Development Objectives include: • To significantly increase the density of new residential and commercial development. • To strengthen links between key attractors, particularly along Cooper Street between Epping

Station, Pacific Epping, and the High Street Village (subprecinct 1A). • To encourage a mix of uses in locations that ensure the most efficient use of land in the centre,

protect the amenity of sensitive uses, and maximise use of existing resources, including: − Retail uses, particularly in the ‘retail core’, which diversify the local retail offer and help to

reduce escape expenditure. − Office and high employment-generating industrial uses that increase local employment

and training opportunities. − Entertainment options including restaurants, sport and recreation, live music venues,

conference facilities, and performing arts spaces, that contribute to a family-friendly, youth-inclusive and safe environment.

− Dwellings of diverse size, type, number of bedrooms, price range, tenure and accessibility.

• To facilitate the development of Precinct 6 as a major commercial precinct with a regional retail focus that reinforces the precinct’s role as Epping Central’s core retail area.


• To limit the proliferation of packaged liquor outlets and electronic gaming machines to reduce negative impacts on community health and wellbeing.

140. Relevant Built Form Objectives include:

• To achieve a preferred neighbourhood character for Epping Central, as envisaged in the precinct provisions of Clause 5 of this schedule, that consists of:

− Attractive streetscapes and public realm that encourage community gathering, walking and cycling.

− Significantly more intensive development. − Strategic redevelopment sites developed at a scale that optimises the opportunities

presented and demonstrates exemplary architectural quality. − Landmark sites in visually prominent or gateway locations developed using architectural

form, materials and details to provide a strong visual impact. − In precincts with a focus on commercial uses, a built form comprising ‘podium and

tower’ with an attached street wall up to 3 storeys and taller building elements set back from the street and side boundaries, with more pronounced side setbacks in residential precincts.

− Reduced front setbacks and minimised visual presence of parking. − Contemporary architectural style which is well articulated, fit for purpose, adaptable,

robust and resilient. − High quality landscaping that is integral to the development design.

• To encourage higher density development throughout the centre, particularly within walking distance of public transport and major services, with a built form transition towards the lower density areas outside the activity centre.

• To encourage passive surveillance and promote pedestrian activity.

141. Relevant Transport and Access Objectives include: • To encourage the use of sustainable transport through improved streetscapes and building

design, and increased development densities. • To prioritise walking, cycling and public transport access over private motor vehicle usage in the

design of all new developments, roads and public spaces. 142. Relevant Public Realm, Open Space and Landscaping Objectives include:

• To enhance existing public open spaces and create public gathering spaces in the public and private realms that are safe, attractive and offer good amenity.

• To develop streets as public open space and key locations for community interaction. • To increase active frontages and visual interest at interfaces with the public realm. • To achieve significant greening of Epping Central in both public and private spaces. • To create well designed communal and private open space within residential and commercial

development.

143. Relevant centre-wide provisions include: Address to the public realm New development should: • Promote spill of active uses such as cafés and street trading onto footpaths. • Provide uniform height and width canopies, verandahs or other weather protection along key

pedestrian routes, particularly in Precincts 1, 6 and 7. • Incorporate articulation and design detail at ground level to contribute to an attractive and inviting

public realm and provide interest for pedestrians. • Maximise the size and number of windows at ground level, and balconies and active rooftop


• Provide interfaces to the South Morang rail line and proposed Epping North Public Transport Corridor that are attractive and maximise safety of future shared pedestrian/cycle paths.


• Accentuate the prominence of building entrances by providing: − Direct access and generous paths in logical locations. − In larger developments, publicly accessible forecourts with seating, shade and

opportunities for public art and community interaction. • For retail developments:

− ‘Sleeve’ large stores with smaller scale buildings and/or uses along the street.

Building Height and Massing New development should: • Maximise development density while minimising overshadowing impacts on public and private

open space and habitable rooms of adjoining properties. • Be in accordance with the preferred building heights in Clause 5 of this Schedule. Where a


The design of development should: • Ensure that all elements of buildings are well presented when viewed from the surrounding area,

particularly at ground level. • Avoid unnecessary repetition of building elements. Landscaping and open space New development should: • Provide sufficient space for landscaping including canopy trees. • Retain any existing indigenous trees where possible and create a sufficient tree protection zone

in accordance with Council’s tree protection guidelines. • Incorporate high quality landscaping:



Materials New development should: • Utilise materials in a contemporary manner in buildings, soft landscaped areas and ‘hardscape’

areas (such as forecourts, plazas, footpaths etc.) that: − Are high quality, durable and low-maintenance. − Enhance visual interest appropriate to the scale of the building.

144. The subject site is within Precinct 6, sub-precinct 6B. The preferred building height for this sub-

precinct is 9-25 metres. Directly adjacent to the site, the south-east corner of the High Street / Cooper Street intersection is noted as a ‘Landmark Site’. The respective Cooper Street and High Street interfaces are noted as ‘Streetscape Improvement Areas’.

145. Relevant Precinct Objectives include:

• To reinforce the role of Precinct 6 as a major commercial precinct with a regional retail focus through the encouragement of:

− Significantly more intensive uses and development of the land; − Enhancement of the built form and the public realm; and − The development of a pedestrian and cycle friendly movement network that is safe and

convenient. • To facilitate the expansion of Pacific Epping, the Epping Homemaker Centre site and the

Northern Hospital, and provision of a range of compatible retail, entertainment, office, community and residential uses.

• To improve the built form relationship and movement connections between these major attractors.

• To significantly improve the built form response to surrounding streets and precincts, other buildings, and the existing and proposed transport corridors.


• To encourage a preferred character that will include: − A strong and regionally attractive range of retail, commercial, entertainment and

community service uses, with residential development at upper floors on appropriate sites within walking distance of the Principal Public Transport Network.

− Multi-level mixed use development with active frontages, increased built form presence to Cooper Street, High Street and Deveny Road, with reduced visual presence of parking and paved areas.

− Contemporary, vibrant and attractive architectural styles set in a high quality public realm that accommodates pedestrian and cyclist networks.

146. Relevant Precinct Guidelines include: Design Site and precinct master planning should enable substantial landscaping opportunities to enhance development, provide buffers to adjacent areas, and reduce the presence of the existing large expanse of car parking. Development should: • Achieve a compact layout, particularly for sub-precincts 6A and 6C, to optimise the use of land

and discourage multi-car trips for a single visit to the existing shopping centre. • Incorporate contiguous buildings and commercial uses, where possible, along Cooper Street,

High Street, Deveny Road, and new connector roads to create an inviting and interesting interface to the public realm active frontages and weather protection.

• Provide: − Comfortable weather protected spaces, both enclosed and unenclosed. − Formal and informal social gathering spaces at key locations. − Entry/exit points related to adjacent car parking areas and public transport stops.

Access Network Development planning should ensure: • Good public transport linkages and access between set down areas and centre entry points.

Overlays

Parking Overlay

The purpose of the Overlay is:

• To facilitate an appropriate provision of car parking spaces in an area. • To identify areas and uses where local car parking rates apply. • To identify areas where financial contributions are to be made for the provision of shared car

parking. The subject site is affected by the Environmental Audit Overlay and the Development Contributions Plan Overlay. Planning Policy Framework (PPF) 147. The following PPF provisions of the Whittlesea Planning Scheme are considered most relevant:

• 11 Settlement • 12 Landscape and Environment Values • 15 Built Environment and Heritage • 16 Housing • 17 Economic Development • 18 Transport

148. Clause 11.02-1S Supply of Urban Land seeks to ensure a sufficient supply of land is available for

residential, commercial, retail, industrial, recreational, institutional and other community uses.


149. Clause 11.03-1R Activity Centres – Metropolitan Melbourne seeks to support the development and growth of Metropolitan Activity Centres

150. Clause 12.01-1S Protection of Biodiversity seeks to assist the protection and conservation of

Victoria’s biodiversity

151. Clause 12.01-2S Native Vegetation Management seeks to ensure that there is no net loss to biodiversity as a result of the removal, destruction or lopping of native vegetation.

152. Clause 15.01-1S Urban Design seeks to create urban environments that are safe, healthy, functional and enjoyable and that contribute to a sense of place and cultural identity

153. Clause 15.01-1R Urban Design – Metropolitan Melbourne seeks to create a distinctive and liveable city with quality design and amenity.

154. Clause 15.01-2S Building Design seeks to achieve building design outcomes that contribute

positively to the local context and enhance the public realm.

155. Clause 15.01-4S Healthy Neighbourhoods seeks to achieve neighbourhoods that foster healthy and active living and community wellbeing.

156. Clause 15.01-5S Neighbourhood Character seeks to recognise, support and protect neighbourhood character, cultural identity, and sense of place.

157. Clause 15.02-1S Energy and Resource Efficiency seeks to encourage land use and development that is energy and resource efficient, supports a cooler environment and minimises greenhouse gas emissions.

158. Clause 16.01-1S Integrated Housing seeks to promote a housing market that meets community needs.

159. Clause 16.01-2S Location of Residential Development seeks to locate new housing in designated locations that offer good access to jobs, services and transport.

160. Clause 16.01-3S Housing Diversity seeks to provide for a range of housing types to meet diverse needs

161. Clause 17.01-1S Diversified Economy seeks to strengthen and diversify the economy.

162. Clause 18.01-1S Land Use and Transport Planning seeks to create a safe and sustainable transport system by integrating land use and transport.

163. Clause 18.01-2S Transport System seeks to coordinate development of all transport modes to provide a comprehensive transport system.

164. Clause 18.02-1S Sustainable Personal Transport seeks to promote the use of sustainable personal transport.

165. Clause 18.02-2S Public Transport seeks to facilitate greater use of public transport and promote increased development close to high-quality public transport routes.

Municipal Strategic Statement (MSS)

166. The following LPPF provisions of the MSS within the Whittlesea Planning Scheme are considered

most relevant: • 21.04 Settlement • 21.05 Environmental and Landscape Values


• 21.08 Built Environment and Heritage • 21.09 Housing • 21.10 Economic Development • 21.11 Transport • 21.13 Local Areas

21.04 Settlement

167. 21.04-1 Activity Centre Planning. Whittlesea’s established Metropolitan Activity Centre is Epping Central. Objective 2 - To support the development of Epping Central as a Metropolitan Activity Centre. 21.05 Environmental and Landscape Values

168. 21.05-1 Environmental Assets Objective 1 - To protect environmental assets and landscape values. • Strategy 1.2 - Enhance the landscape values by retaining the identified natural features in new

developments. 21.08 Built Environment and Heritage

169. 21.08-1 Urban Design

Objective 1 - To support places and spaces that connect people • Strategy 1.1 - Provide open spaces and recreation facilities that are welcoming and safe for

public gathering, incorporate Crime Prevention Through Environmental Design (CPTED) principles and are accessible to all and respond to local need.

• Strategy 1.3 - Utilise urban design principles to support built outcomes which encourage connection to place and the community.

Objective 2 - To progressively upgrade the image and appearance of the City of Whittlesea focussing on retention of local environmental features, landscape qualities and urban and landscape design improvements. • Strategy 2.9 - Improve the appearance of streetscapes in existing urban areas and new growth

areas. • Strategy 2.12 - Encourage the planting of large canopy trees in new developments. Objective 3 - To ensure new development in Activity Centres achieves high quality urban design outcomes. • Strategy 3.1 - Incorporate visually distinctive urban design treatments, inclusive of public art, as

part of streetscape improvements within the Epping Central Metropolitan Activity Centre. • Strategy 3.3 - Encourage high quality building design within the Epping Central Metropolitan

Activity Centre that contributes to the amenity of the public realm. Objective 5 - To design walkable communities • Strategy 5.3 - Create a permeable, direct and well-connected pedestrian and cycling network

between destinations including public transport stops, homes, services, schools and recreation spaces.

170. 21.08-3 Environmentally Sustainable Design

Objective 1 - To promote and facilitate development that incorporates best practice environmentally sustainable design. • Strategy 1.2 - Promote the integration of land use and sustainable transport including walking,

cycling and public transport. • Strategy 1.3 - Encourage the design and landscaping of new developments to include

landscaping techniques that assist in heat control and protect and enhance biodiversity. 21.09 – Housing


171. 21.09-1 Capacity and Location Objective 1 - To provide for a range of residential communities that has a unique identity and sense of place. • Strategy 1.2 - Encourage higher-density forms of housing to locate in Epping Central and other

activity centres well serviced by the Principal Public Transport Network (PPTN) and employment opportunities.

Objective 2 - To direct housing growth in the established suburbs of the municipality into locations which have the capacity to accommodate change. • Strategy 2.1 - Guide housing growth into areas in proximity to the PPTN and Metropolitan

Activity and Neighbourhood Centres.

172. 21.09-4 Change Areas in Established Suburbs The subject site is within the ‘Urban Renewal Area’ of Plan 06 – Housing Change Areas. The Location and Preferred Housing Types are: the Epping Central Metropolitan Activity Centre and the Plenty Valley (South Morang) Activity Centre will be characterised by high density residential and mixed use developments such as townhouses, multi-units, small and large scale apartments and shop-top housing. Objective 1 - To accommodate varying levels of housing growth and change in the established residential areas of the municipality by implementing the identified Housing Change Areas in the Housing Diversity Strategy. • Strategy 1.1 - Encourage higher density residential and mixed use developments in Urban

Renewal Change Areas that support the Epping Central Metropolitan Activity Centre and the Plenty Valley (South Morang) Activity Centre.

21.10 Economic Development

173. 21.10-1 Employment Opportunities The subject site is within the Commercial/Employment Area of Plan 07 – Economic Development, and within the Epping Central Metropolitan Centre. Objective 1 - To provide greater balance between housing supply and employment opportunities • Strategy 1.4 - Pursue a greater diversity in economic investment in the municipality by

supporting the following: − Increased employment densities with commercial and industrial development in the Epping

Metropolitan Activity Centre and Plenty Valley (South Morang) Activity Centre. 21.11 Transport

174. 21.11-1 Integrated Transport Objective 1 - To establish an efficient, interconnected multi-modal transportation system which increases the level of accessibility and choice within and beyond the City of Whittlesea. • Strategy 1.1 - Reduce dependence on car based transport and provide improved public

transport and pedestrian/cycle options within existing urban and growth areas of the municipality.

• Strategy 1.7 - Support transit orientated development which provides opportunities for higher density development, intermodal transport connections, public buildings and spaces.

175. 21.11-2 Sustainable Modes of Travel

Objective 1 - To improve transport options and accessibility outcomes for residents. • Strategy 1.2 - Deliver walking paths and supporting infrastructure to improve access to activity

centres, employment areas, schools, community facilities and public transport interchanges. Objective 2 - To provide a frequent, fast and reliable public transport network that meets the diverse needs of users throughout the municipality. • Strategy 2.1 - Support residential intensification around stations. 21.13 – Local Areas


176. 21.13-1 Epping Central Metropolitan Activity Centre Objective 1 - To develop Epping Central Metropolitan Activity Centre as a vibrant, attractive and sustainable hub for housing, employment and community services for the municipality and wider region. • Strategy 1.1 - Support increased housing densities in close proximity to transport infrastructure,

shops and services, and increase the diversity of homes to improve housing choice. • Strategy 1.2 - Increase the proportion of trips taken by sustainable modes of transport such as

walking, cycling and public transport to reduce car use. • Strategy 1.6 - Improve Epping Central’s public realm by enhancing the amenity, attractiveness

and functionality of streetscapes, parks and creek zones. • Strategy 1.9 - Promote high quality design in all new development, appropriate to Epping

Central’s higher-density context, to complement improvements to the public realm, stimulate investment and contribute to a high-amenity street interface.

Background Documents

177. The following background documents are considered most relevant:

• Epping Central Structure Plan (2013 Amendment) Epping Central Structure Plan (2013 Amendment)

Section 1 – Policy

178. This document is the key tool required to deliver the 20-year vision sought for Epping central. This area is noted as a Metropolitan Activity Centre, and serves a regional role in the provision of retail, health facilities and other services. Significant growth is anticipated for the centre, including 2,000-4,500 new homes, 40,000-80,000 square metres of new office floor space and 113,000 square metres of new retail floor space.

1.1 Homes for All

179. Housing Density. The subject site is within the zone where ‘high density housing (is) supported’. Relevant Strategies include: • Facilitate the delivery of between 2,163 and 4,537 new homes in Epping Central by 2030 in

accordance with the demand identified in the Epping Central Market Analysis Report (SGS, 2008).

• Significantly increase the density of new residential development within walking distance of the Principal Public Transport Network (PPTN), retail, employment opportunities and community facilities.

• Implement initiatives to support increased numbers of people living in Epping Central such as streetscape improvements, development of additional community facilities, increased job opportunities and improved public transport.

180. Relevant Actions include: • Support high density mixed use development, including shop-top housing, along key activity

spines and transport corridors, particularly in Precincts 1, 6, 7 & 8 (See Section 2: Design). • Prohibit the fragmentation / subdivision of sites and underdevelopment of sites, where higher

density, integrated development outcomes will be jeopardised. 1.2 More Effective Transport

Walking and Cycling

181. To the north of the subject site is the ‘Cooper Street shared path’. Cooper Street and High Street are noted as ‘priority walking and on road cycling routes for upgrade’, and ‘3 metre minimum width shared pedestrian and bicycle path’ areas.


182. Relevant Strategies include: • Develop an integrated network of walking and cycling routes throughout Epping Central that is

safe, connected and demonstrates high levels of amenity for pedestrians and cyclists in accordance with the recommendations of the Epping Central Wayfinding Study (Arup, 2007) and the Epping Central Sustainable Travel Requirements report (Booz & Co, 2011).

• Encourage other sustainable and active forms of transportation such as use of skateboards, non-motorised scooters, prams and shopping buggies.

Public Transport 183. The subject site is adjacent to a variety of bus routes travelling along Cooper Street and High Street.

The Epping Train Station is a short walk to the east. The site is earmarked as a location for ‘significant increase in development density to integrate with public transport interchanges.’

184. Relevant Strategies include:

• Actively advocate for improved public transport services throughout Epping Central. • Facilitate high density, mixed use employment and residential development in close proximity to

Epping Station, the Yellow Orbital Smart Bus and the proposed public transport interchange between Epping Plaza and the Northern Hospital.

185. Relevant Actions include: • Require the development and maintenance of pedestrian and cyclist connectivity and

permeability through all developments adjacent to public transport stops and interchanges. Roads 186. To the west, High Street is within the ‘longer term priority redevelopment’ area. To the northwest, the

Cooper Street / High Street intersection is identified as a location for ‘intersection upgrades’. 187. Relevant Strategies include:

• Undertake significant streetscape improvements in local roads to support increased densities of development on abutting sites and strengthen pedestrian connections.

Parking 188. Relevant Strategies include:

• Integrate a variety of transport modes within developments favouring direct, high amenity access and movement for pedestrians and cyclists.

189. Relevant Actions include:

• Design parking areas to be high amenity landscaped areas by ensuring that they are not visually dominant and do not conflict with other modes of transport.

1.3 Maximising Our Business Opportunities Retail 190. The subject site is within the ‘retail based development supported’ area. Adjacent to the subject site,

High Street is identified as a ‘future extension of the High Street Village’. 191. Relevant Strategies include:

• Facilitate and support an additional 113,000m2 of new retail development that provides local employment, training and entertainment opportunities, particularly for young people.

• Designate significantly increased areas for mixed use development, inclusive of retail uses along Cooper and High Streets, close to the PPTN, that are targeted at the needs of local catchments.


192. Relevant Actions include: • Require the sleeving of existing big box development with new development that responds to

the street through active uses and minimal front setbacks. • In the longer term, investigate the extension of the High Street street-based shopping strip south

along the Epping Plaza and Epping Homemaker Centre frontages to further reinforce the role of High Street as a core pedestrian based retail element of Epping Central.

Sustainable Business 193. Relevant Strategies include:

• Facilitate and support business developments that use sustainable designs and technologies, to achieve innovative development and precinct-scale environmentally sustainable performance outcomes that are efficient and cost-effective.

• Encourage business developments to consider environmental sustainability, including energy and water use efficiencies, at the earliest initial concept design stage to maximise the opportunities to integrate environmental design specifications throughout the project.

1.5 Improving our Public Realm Streetscapes 194. To the north, Cooper Street is identified as a ‘priority streetscape improvement area’. To the west,

High Street is identified as a ‘streetscape improvement area’.

195. Relevant Strategies include: • Design streetscapes to contribute to the overall preferred character of Epping Central and

respond to the needs of different users by providing valued, vibrant public spaces and safe movement corridors.




• Ensure that development fronting onto streets provides a high level of passive surveillance and enhances the appearance of streetscapes.

• To achieve significant improvements to the appearance, safety and functionality of the existing streetscapes, have regard to the following key design principles and outcomes: − An integrated network of off-road paths with an integrated network of amenity

improvements appropriate to the use and function of the paths and streetscape − Design which is attractive, sustainable, distinctive, creative, robust and can be easily

maintained − Consistency with the preferred character of Epping Central which includes significant

landscaping − The physical requirements of pedestrians, cyclists, skaters, and motorists − Inclusion of native street tree and ground cover plant species that are drought tolerant, have

a fast growth pace, are robust, long- living and create habitat for local fauna Open Space 197. Relevant Strategies include:

• Create new publicly accessible open space that is well designed and improves the amenity and functionality of Epping Central through land acquisition, negotiation, partnerships and capitalising on opportunities where possible.


• Focus on creation and improvement of open spaces for passive recreation that support increased residential and commercial development densities.


• Require publicly accessible urban space areas to be developed as part of major developments and ensure they are attractive, highly functional and integrated within the development whilst linking to key pedestrian routes.

Section 2 – Design 199. The subject site is within Precinct 6: Regional Demand. It is described as a major precinct which

encompasses the Epping Plaza Shopping Centre, the Northern Hospital, significant areas of bulky goods retailing including the Epping Homemaker Centre, as well as industrial, entertainment and community uses.

200. The subject site is within the Mixed-Use B land use. These areas are employment-focused, mixed

use higher-density development – Offices and large-format retail at ground floor, with office and residential above.

201. The preferred character is for multi-level, employment generating mixed use development of 3-8

storeys, including retail, office, entertainment and residential uses. New development features active frontages to all streets, reduced setbacks, and reduced visual presence of parking and paved areas. Architectural styles are modern and the built form responds to pedestrian and cyclist networks and movements. Land to the south of Epping Plaza provides significant opportunity for pedestrian scale retail, commercial and residential development set within a new grid-based street network.

202. At the subject site, significant opportunity exists to undertake a comprehensive redevelopment of the existing Homemaker Centre site given its location on a major intersection, with ready access to Epping Station, the High Street Village and Epping Plaza. Collaboration between major land owners or lot consolidation is required to ensure an integrated outcome. Redevelopment should incorporate a mix of uses at higher densities (including employment, retail and residential), public open space, a fine-grained pedestrian network and high quality urban design.

203.

204. Relevant Objectives include: • To significantly intensify the use and development of land in the precinct, and encourage an

improved mix of uses including commercial and residential, in a pedestrian- and cycle-friendly environment.

• To reinforce and expand upon the regional role of the Northern Hospital, Epping Plaza and Epping Homemaker Centre while significantly improving their physical relationship to each other and to surrounding streets and precincts.

205. Relevant Key Challenges include:

• To overcome the existing large format, internalised and car-reliant ‘mall model’ of development, and encourage a more sustainable street-based format.

• To encourage predominantly retail based developments to incorporate a greater mix of uses. • To improve pedestrian and cyclist connectivity through major sites. • To protect the long term development potential of major sites from inappropriate short term

development and subdivision. 206. Relevant Key Design and Development Principles include:

• Encourage redevelopment at the street edge to improve the relationship of major regional facilities with surrounding precincts.

• Encourage built form that provides an inviting and interesting interface with the public realm and contributes to improved pedestrian amenity.

• Develop retailing and office uses at ground level, with residential development on upper storeys where appropriate.


• Diversify uses on major retail sites to capitalise on their strategic location in the heart of the activity centre and on the PPTN.

• Provide safe, direct and attractive bicycle and pedestrian connections within major development sites to improve internal movement networks, and provide connections to the Cooper Street shared path and other key routes.

Other 207. Victorian Urban Design Guidelines (2017): Provides State-wide urban design guidance for new

developments. Synthesizes the key provisions of the previous ‘Activity Centre Design Guidelines (2005)’, ‘Safer Design Guidelines for Victoria (2005)’ and ‘Guidelines for Higher Density Residential Development (2004’).


Appendix C: Precedent Examples

Aldi, Melbourne CBD (source; Google Streetview)

Coles, Collingwood (source: Realestate.com.au)


Coles, East Village Victoria Park (source: Turner Studio)

Aldi, Balwyn North (source: Greythorn Central)


Kaufland, Berlin, Germany (source: Yelp.de)

Kaufland, Sindelfingen, Germany (source: Kaufland)


Kaufland, Romania (source: Kaufland)

Coles, Richmond Plaza (source: SJB)


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