Westfield Knox Proposed Retail Expansion

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Westfield Knox Proposed Retail Expansion
Town Planning and Urban Context Report

Westfield Knox
Proposed Retail
Expansion
April 2014
Westfield Knox Proposed Retail Expansion
Town Planning and Urban Context Report

                                                                  Westfield Knox Proposed
                                                                  Retail Expansion
                                                                  April 2014

                                                                  Contents

                                                                  1    Executive Summary ................................................ 3
                                                                  2    Introduction ............................................................. 4
                                                                  3    Site Description ....................................................... 6
                                                                  4    Knox Planning Scheme Provisions........................ 9
                                                                       4.1 State Planning Policy Framework ............... 9
                                                                       4.2 Local Planning Policy Framework................ 9
                                                                       4.3 Zoning ........................................................... 13
                                                                       4.4 Overlays ........................................................ 14
                                                                       4.5 Particular Provisions ................................... 16
                                                                       4.6 Knox Central Urban Design Framework.... 16
                                                                       4.7 Aboriginal Cultural Heritage ....................... 17
                                                                  5    Concept Masterplan ............................................. 18
                                                                  6    Opportunities and Constraints: Site Planning and
                                                                       Built Form Strategy .............................................. 21
                                                                       6.1 Opportunities ............................................... 21
                                                                       6.2 Constraints ................................................... 22
                                                                       6.3 Site Planning/Built Form Strategy............. 22
                                                                  7    Proposal ................................................................. 24
                                                                       7.1 Planning Permit Application....................... 24
                                                                       7.2 Development Plan ....................................... 26
                                                                  8    Policy Considerations ........................................... 27
                                                                  9    Other Planning Considerations ........................... 32
                                                                       9.1 Floor Area ..................................................... 32
                                                                       9.2 Built Form ..................................................... 32
                                                                       9.3 Landscaping ................................................. 33
                                                                       9.4 Traffic Engineering ...................................... 33
                                                                       9.5 Socio Economic Considerations ................ 35
                                                                  10   Conclusion ............................................................. 36

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    1 Executive Summary

    This town planning and urban context report supports a submission to
    the City of Knox seeking concurrent approval of a Development Plan
    and a Planning Permit associated with a $450 million expansion of the
    Westfield Knox complex.

    The expansion contemplates an increase in the existing gross leasable
    area by approximately 45,000 sqm, meaning the overall total gross
    leasable area associated with the Westfield Knox complex would be
    approximately 188,500 sqm.

    The proposal also includes an increase in the current supply of parking
    from 6,200 spaces to 8,850 spaces (i.e. an increase of 2,650 spaces).

    The submission also seeks Council’s endorsement of a Concept
    Masterplan for the whole of the Westfield site.

    With regard to the planning and urban design assessment contained in
    the report, the conclusions are:

    •    The proposals are consistent with and will deliver key planning
         policy outcomes associated with activity centre planning and
         economic development;

    •    The proposals are consistent with the Knox Central Urban Design
         Framework, and the urban design and architectural outcome is of a
         high standard;

    •    All traffic engineering considerations are properly resolved; and

    •    Detailed issues associated with local flooding, acoustic
         attenuation, sustainability and cultural heritage have been
         addressed.

1
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    2 Introduction

    This town planning and urban context report has been prepared on
    behalf of the owners of the Westfield Knox complex of the submission
    of a Development Plan and a Planning Permit Application associated
    with the proposed expansion of the Westfield Knox complex in Wantirna
    South. The proposed expansion is Stage 1 of Westfield’s long term
    masterplanning vision for the site.

    The report provides:

    →     A description of the site and the surrounding area;
    →     An overview of the applicable planning policy framework, the
          existing Zone and Overlay provisions and other relevant
          statutory considerations;
    →     Discussion regarding the long term masterplanning for the
          whole of the Westfield site;
    →     An assessment of the redevelopment opportunities and
          constraints, and the site planning and built form strategy for
          the current project;
    →     An overview of the proposed development; and
    →     An assessment of the proposal taking into account all relevant
          town planning and urban design considerations.

    The project team comprises:

    Project Architects
    Westfield Design

    Town Planners
    Contour Consultants Australia

    Landscape Architects
    Land Design Partnership

    Traffic Engineers
    GTA Consultants

2
    Sustainability Consultants
    Cundall

    Acoustic Engineers and Scientists
    Vipac

    Hydraulic Engineers/Flooding Consultants
    Cardno

    Economists
    Urbis

    Natural and Cultural Heritage Consultants
    Archaeology at Tardis

    Access Consultants
    MGAC
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2 Introduction

CPTED Consultants
Securecorp

Arborist
Homewood Consulting

Separate reports have been prepared by each of the consultants.
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    3 Site Description

    The Westfield Knox complex is located on the eastern outskirts of
    metropolitan Melbourne in Wantirna South (Refer Figure 3.1) The site
    has a frontages to Burwood Highway and Stud Road, and the overall
    leasable area is approximately 142,500sqm.

    In terms of existing conditions, the Westfield Knox complex is
    conveniently described in two parts.

    Firstly there is the core retail area located on the west side of
    Melbourne Road, and this area comprises an internal double height
    mall, with the retail composition being a department store, two
    discount department stores, two supermarkets, mini major tenancies,
    specialty tenancies, fresh food tenancies and food and beverage
    tenancies. It is this part of the Westfield Knox complex that is the
    subject of the Development Plan and the Planning Permit Application.

    The total leasable floor area (commercial and retail) of this part of the
    complex is currently approximately 95,000sqm.

    On the east side of Melbourne Road is the ‘Ozone’ precinct comprising
    predominantly external focussed food and beverage tenancies and the
    cinema complex. Other uses on the east side of Melbourne Road
    include restricted retail premises, convenience restaurants and other
    commercial tenancies. It is this part of the Westfield Knox complex that
    is the subject of the concept masterplan.

    The total leasable floor area (commercial and retail) of this part of the
    complex is currently approximately 47,500sqm.

    A total of approximately 6,200 car parking spaces are located
    throughout the Westfield Knox complex, and a description of the
    surrounding road network, the existing site access strategy, parking
    provision, vehicle circulation, loading/service vehicle access and public
    transport is included in the separate GTA report.

3
    The Westfield Knox complex is part of the Knox Central Principal Activity
    Centre as illustrated in Figure 3.2. The activity centre is anchored by the
    Westfield Knox complex, and other land uses include the Council civic
    precinct, large public open space areas, mixed use development and an
    employment precinct.

    Figure 3.3 illustrates the pattern of land use in the area including the
    residential areas to the north-west.
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                                 3 Site Description

Figure 3.1                       Source: streetdirectory.com.au
Subject Site :Regional Context

                                                                            Subject Site

Figure 3.2                       Source: Knox Central Urban Design Framework (July 2005)
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                    3 Site Description

Figure 3.3          Source: Nearmap Pty Ltd
AERIAL PHOTOGRAPH
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                        4 Knox Planning Scheme
                          Provisions

                        The following clauses from the State Planning Policy Framework (SPPF)
4.1
State Planning Policy   are relevant to the proposal:
Framework
                        →     Operation of the State Planning Policy Framework (Clause 10)

                        →     Settlement (Clause 11)
                              → Activity Centres (Clause 11.01)
                              → Urban Growth (Clause 11.02)
                              → Metropolitan Melbourne (Clause 11.04)

                        →     Built Environment and Heritage (Clause 15)
                              → Urban Environment (Clause 15.01)
                              → Sustainable Development (Clause 15.02)
                              → Aboriginal Cultural Heritage (Clause 15.03)

                        →     Economic Development (Clause 17)
                              → Commercial (Clause 17.01)

                        →     Transport (Clause 18)
                              → Integrated Transport (Clause 18.01)
                              → Movement Networks (Clause 18.02)

                        Within Clause 15.01-3, it is noted that the Activity Centre Design
                        Guidelines 2005 are a reference document.

                        Municipal Strategic Statement (MSS)
4.2
Local Planning Policy
Framework               The Municipal Strategic Statement (MSS) provides the strategic
                        planning framework for the City of Knox. Several of the identified issues
                        raised within the MSS are of relevance to the proposal.

                        These include:

                        →     Municipal Profile                    Clause 21.01
                        →     Key Influences                       Clause 21.02
                        →     Urban Design                         Clause 21.04

4
                        →     Environment                          Clause 21.06
                        →     Economic Development                 Clause 21.07
                        →     Reference Documents                  Clause 21.09

                        Municipal Profile --
                                           - Clause 21.01

                        Knox Central Principal Activity Centre provides a regional retail,
                        commercial and entertainment focus for the municipality and the outer
                        east with significant opportunities for mixed use and residential
                        development.

                        Key Influences --
                                        - Clause 21.02

                        Clause 21.02 covers the key land use and development considerations
                        for the municipality under the themes of urban design, housing,
                        environment, economic development and infrastructure.
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4 Knox Planning Scheme Provisions

In terms of economic development, the key influences for business and
employment within the City of Knox include:

→     JThe ability for Knox to maintain and enhance its image as a high
        quality, attractive business location.
→     JThe need for enhanced transport infrastructure servicing, local,
        regional and wider markets.
→      JThe availability of a range of industrial sites and premises for
        sale or lease.
→       Access to a skilled workforce and to educational
        establishments.
→       Clear and consistent development guidelines that are not overly
        restrictive or prescriptive.
→       Work in partnership in implementing the initiatives in the
        Regional Economic Strategy for Melbourne’s South East 2003-
        2030 (2003).

The key influences for Activity Centres within City of Knox include:

→     JImplementation of Council’s Place Management program and
          structure planning to improve centre vitality by focussing on
          development of centres as community hubs.
→     JAbility of centres to offer a mixed range of commercial,
          residential and community based activities.
→      JImprovements to pedestrian links and pathways within centres.
→       JEnhancement of shopping environments in older centres
          through traffic management and urban design initiatives.
→        JAbility to increase land utilisation within certain centres and
          capacity to reduce the geographic spread of certain centres.
→         Location of bulk retailing, wholesale sales outlets and
          showrooms in or in proximity to Principal and Major Activity
          Centres.
→         Quality of urban design in both the public and private domain,
          including the ability to encourage high quality built form that
          adds to the vibrancy of the centres.
→         Ability to encourage higher density residential development in
          activity centres.
→         Ability to consolidate fragmented land holdings that inhibit
          redevelopment and change within activity centres.

The key influences for Industry/Commerce Precincts within City of Knox
include:

→     JEnhancement of precincts to maintain their attractiveness to
      business.
→     Consolidation and redevelopment of underutilised sites within
      the Bayswater precinct.
→     The introduction of a greater mix of uses to support new
      employment and improved streetscapes in the Knox Central
      Principal Activity Centre precinct.
→     Enhanced accessibility and marketability introduced with the
      construction of EastLink.
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4 Knox Planning Scheme Provisions

Urban Design --
              - Clause 21.04

Clause 21.04 highlights the potential to accommodate more mixed uses
within Knox’s activity centres, and in a way that contributes to the
economic and cultural vitality of the centres.

Environment - Clause 21.06

The Westfield Knox complex is partly located within an area of
Aboriginal Cultural Heritage sensitivity. Clause 21.06 notes the
importance of managing and protecting these areas and states that if
development is proposed to occur close to these heritage places,
consideration is required to be given to the potential impact on these
heritage values at all stages of the planning and development process.

Economic Development - Clause 21.07

Clause 21.07 is specific to industrial, business and retailing activity.
With specific reference to the Knox Central Principal Activity Centre, the
following is noted:

The Knox Central Principal Activity Centre is the principal activity centre
for Knox serving as the civic, retail, commercial and entertainment
focus for the municipality. The Centre performs a regional role for the
outer east and will see significant investment and growth over the next
25 years as a retail centre of regional significance that is a thriving,
lively focal point for the outer eastern suburbs. The Precinct includes
land along Burwood Highway from Stud Road to Scoresby Road, areas
south of Blind Creek and also includes Lewis Park, the adjacent
retarding basin and the Swinburne University of Technology.

The vision for the Knox Central Principal Activity Centre is to create a
cohesive physically, economically, socially and culturally vibrant centre
that will become the pre-eminent centre and focal point of regional
activity in Knox. The Precinct will be a modern mixed-use activity
centre, with a shift in its role and form brought about by focusing on the
highest quality urban design (including Ecologically Sustainable Design
principles) and the broadest possible range of activities in a physically,
economically, socially and culturally cohesive vital and vibrant place.

Significant opportunities exist to achieve integration with existing and
proposed public transport, furthering transit oriented development
objectives at the local and broader level through the implementation of
Melbourne 2030 transport initiatives.

The following objectives apply to Activity Centres:

→     To ensure a hierarchy of viable, accessible activity centres with
      a greater range of complementary activities for domestic,
      business, leisure and social life with improved public transport
      services.
→     Encourage development of more viable mixes of land uses
      within activity centres.
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4 Knox Planning Scheme Provisions

→     To ensure activity centres are attractive and safe settings for
      pedestrians and make shops and services more accessible for
      local residents and workers.

Reference Documents Clause 21.09

Relevant reference documents set out at Clause 21.09 of the
Municipal Strategic Statement include:

→     Knox Central Urban Design Framework, Knox City Council, 2005

→     Knox Urban Design Framework 2020, Planispehere, 2003

→     Knox Vision 2025, Knox City Council, 2007

→     Water Sensitive Urban Design Guidelines for the City of Knox,
      2002

→     Knox Economic Development Strategy, 2008-2018, Knox City
      Council, 2008

→     Knox Integrated Transport Plan, Knox City Council, 2004

Local Planning Policy Framework (LPPF)

In addition to the MSS, the following Local Planning Policy is relevant to
the proposal:

Knox Central Principal Activity Centre-Clause 22.04

Within this policy, the following objectives are relevant to the
proposal:

→     To implement the land use and development vision for Knox
         Central based on the Knox Central Urban Design Framework.
→     JTo achieve a high intensity of activity throughout the area that
         creates the critical mass needed to support the widest possible
         range of higher order commercial, community and other uses.
→      JTo achieve high standards in landscape architecture and urban
         design that contribute positively to the urban environment.
→       JTo improve access to and throughout the activity centre, and
         improve legibility for all forms of transport including
         pedestrians.
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                    4 Knox Planning Scheme Provisions

                    The Westfield Knox complex is included within the Commercial 1 Zone
4.3
Zoning              pursuant to the provisions of the Knox Planning Scheme (Refer Figure
                    4.1).

                    The purpose of the Commercial 1 Zone is:

                    →     To implement the State Planning Policy Framework and the
                          Local Planning Policy Framework, including the Municipal
                          Strategic Statement and local planning policies.
                    →     To create vibrant mixed use commercial centres for retail,
                          office, business, entertainment and community uses.
                    →     To provide for residential uses at densities complementary to
                          the role and scale of the commercial centre.

Figure 4.1
ZONING PLAN

Commercial 1 Zone
                                                                 SUBJECT SITE
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                           4 Knox Planning Scheme Provisions

                           Development Plan Overlay (Schedule 2)
4.4
Overlays
                           The whole of the Westfield Knox complex is subject to a Development
                           Plan Overlay Schedule 2 (Refer Figure 4.2).

                           Schedule 2 to the Development Plan Overlay (DPO) is specific to the
                           Knox City/Towerpoint Shopping Centre. Schedule 2 states:

                           ‘A permit may be granted before a development plan has been prepared
                           to the satisfaction of the responsible authority if the proposal will not
                           result in the leasable floor area for shop exceeding 86,500 square
                           metres.’

                           Schedule 2 to the DPO contains provisions relating to traffic and car
                           parking, management and landscaping.

                           The Schedule sets out requirements which the development plan
                           submitted under the DPO2 must satisfy. These include:

                           →     A three-dimensional building envelope showing RL levels.
                           →     Building setbacks from the boundaries of the land.
                           →     Appropriate landscape buffer strips along the Stud Road and
                                 Burwood Highway boundaries and interfaces with residential
                                 areas.
                           →     Vehicle access to and from the land.

                           The Schedule to the DPO states that the Development Plan, once
                           approved, may only be amended with the consent of the owners of
                           the land.

Figure 4.2
DEVELOPMENT PLAN OVERLAY

Schedule 2
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4 Knox Planning Scheme Provisions

Land Subject to Inundation Overlay

Part of the Westfield Knox Shopping Centre is affected by the Land
Subject to Inundation Overlay (LSIO).

The purpose of the Overlay is:

→     To implement the State Planning Policy Framework and the
      Local Planning Policy Framework, including the Municipal
      Strategic Statement and local planning policies.
→     To identify land in a flood storage or flood fringe area affected
      by the 1 in 100 year flood or any other area determined by the
      floodplain management authority.
→     To ensure that development maintains the free passage and
      temporary storage of floodwaters, minimises flood damage, is
      compatible with the flood hazard and local drainage conditions
      and will not cause any significant rise in flood level or flow
      velocity.
→     To reflect any declaration under Division 4 of Part 10 of the
      Water Act, 1989 where a declaration has been made.
→     To protect water quality in accordance with the provisions of
      relevant State Environment Protection Policies, particularly in
      accordance with Clauses 33 and 35 of the State Environment
      Protection Policy (Waters of Victoria).
→     To ensure that development maintains or improves river and
      wetland health, waterway protection and flood plain health.

A permit is required to develop any land with buildings and works within
the LSIO area.

Pursuant to Clause 44.04-5, an application must be referred to the
relevant floodplain management authority pursuant to Section 55 of
the Act unless in the opinion of the responsible authority, the proposal
satisfies requirements or conditions previously agreed in writing
between the responsible authority and the floodplain management
authority.

In response to the LSIO provisions, a separate report has been prepared
by Cardno. The report concludes:

Based on our assessment, we believe that there are no major flooding
constraints on the site that would require a significant redesign of the
proposed layout. The hydraulic model of the proposed development
shows no increase in the flood extent and the increase in flood depths
can be managed with appropriate design levels.
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                                     4 Knox Planning Scheme Provisions

Figure 4.3
LAND SUBJECT TO INUNDATION OVERLAY

                                     The following Particular Provisions are relevant to the proposal:
4.5
Particular Provisions
                                     →     Advertising Signs                            Clause 52.05
                                     →     Car parking                                  Clause 52.06
                                     →     Loading and unloading of vehicles            Clause 52.07
                                     →     Land adjacent to a Road Zone, Category 1     Clause 52.29
                                     →     Bicycle facilities                           Clause 52.34
                                     →     Integrated Public Transport Planning         Clause 52.36

                                     Whilst relevant to the redevelopment of the Westfield Knox complex, we
                                     note that a separate application and associated submission will be
                                     lodged for the erection and display of advertising signs.

                                     The Knox Central Urban Design Framework underpins the Council’s
4.6
Knox Central Urban Design            vision for the Principal Activity Centre. It is a document that assists to
Framework                            understand the issues that Council wishes to address as part of the
                                     future planning and development of the Knox Central Principal Activity
                                     Centre.

                                     The Urban Design Framework envisages that the Westfield Knox
                                     complex will expand and strengthen its role as the pre-eminent
                                     destination for retailing and shopping in the outer eastern suburbs of
                                     Melbourne. The Urban Design Framework includes provisions that
                                     address the activity mix, built form and scale of new development,
                                     transport and movement and landscape and environmental issues.

                                     With reference to the Westfield Knox complex, built form variations
                                     generally ranging from 2-3 storeys to 5+ storeys with ‘feature forms’ of
                                     greater building scale and intensity extending along the Burwood
                                     Highway frontage are contemplated and the activity mix includes core
                                     retail, office/commercial use, leisure, and entertainment and housing.
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                                    4 Knox Planning Scheme Provisions

                                    Pursuant to the Aboriginal Heritage Act 2006, a Cultural Heritage
4.7
Aboriginal Cultural                 Management Plan is required if all or part of the proposed activity is in
Heritage                            an area of culture heritage sensitivity, and all, or part of the activity is a
                                    high impact activity.

                                    As illustrated in Figure 4.4, part of the site is identified as being within a
                                    cultural heritage sensitivity area. .

                                    In response, an assessment of the site and the need for a Cultural
                                    Heritage Management Plan has been undertaken by Archaeology at
                                    Tardis, and a copy of their advice is provided separately.

                                    The advice concludes:

                                    This investigation has reviewed the statutory obligations associated
                                    with both the Aboriginal Heritage Act 2006 and the Victorian Heritage
                                    Act 1995. The proposed works at Westfield Knox Shopping Centre,
                                    Burwood Road, Wantirna South will not require the preparation of a
                                    mandatory CHMP because the activity area is no longer situated within
                                    an area of legislated cultural heritage sensitivity.

                                    There are no further historic archaeological or heritage matters that
                                    need to be addressed prior to the expansion of the existing shopping
                                    centre and car parks taking place.

Figure 4.4
CULTURAL HERITAGE SENSITIVITY MAP
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    5 Concept Masterplan

    The Development Plan submission and the Planning Permit Application
    are accompanied by a concept masterplan for the whole of the
    Westfield Knox complex.

    This masterplan is illustrated in Figures 5.1 and 5.2 and it forms the
    basis for the proposed Development Plan and Planning Permit
    Application.

    Consistent with the applicable Urban Design Framework and Clause
    22.04, the key features of the masterplan concept include:

    →     A more ‘urban’ built form response in terms of building scale
          and intensity;

    →     Provision of a more robust-street edge condition adjacent to
          the main road interfaces (Burwood Highway and Stud Road);

    →     Maintaining and nurturing a diversity of built form, and the
          delivery of different built form typologies on the east and west
          sides of Melbourne Road;

    →     Managing and engaging with the interfaces to the public open
          space areas to the north;

    →     Provides an opportunity for the introduction of a mix of uses on
          the site, notably the eastern precinct that would include the
          existing entertainment and hospitality uses, new retail formats,
          new commercial/employment generating uses, residential
          accommodation and residential apartments;

    →     Improving internal linkages through the establishment of a
          legible movement network that manages and provides for
          vehicles (private and service/loading), cyclists and pedestrians;

    →     Improving connections between precincts in the overall activity
          centre area, and ‘blurring’ the interface between

5
          precincts/activities in order to create a bona fide integrated
          mixed use outcome; and

    →     Accommodating the site’s longer term public transport options,
          and therefore achieving a higher usage of public transport as a
          mode of travel to and from the activity centre.
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                     5 Concept Masterplan

Figure 5.1
CONCEPT MASTERPLAN
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                                             5 Concept Masterplan

Figure 5.2
CONCEPT MASTERPLAN --- NORTH EASTERLY VIEW
TOWARDS EAST SIDE OF MELBOURNE ROAD
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                6 Opportunities and
                  Constraints: Site Planning
                  and Built Form Strategy
                In addition to investigating longer term masterplanning options, it is
                necessary to assess the opportunities and constraints associated
                with the proposal as detailed in the Development Plan and the
                Planning Permit Application.

                Having undertaken this analysis, and taking into account the applicable
6.1
Opportunities   statutory planning framework, the following planning and urban design
                opportunities are noted:

                →     The ability to accommodate additional retail floor space in the
                      Knox Central Principal Activity Centre, and by doing so:

                      →      Improve the variety of retailing through the inclusion of
                             new and additional retail formats;

                      →      Reduce escape expenditure to other competing higher
                             order centres in Melbourne’s eastern suburbs; and

                      →      Contribute to the economic and employment base of the
                             municipality.

                →     In developing additional retail floorspace, achieving a range of
                      urban design improvements, including:

                      →      Improved built form edges to Burwood Highway and Stud
                             Road;

                      →      Improved built form presentation to the Lewis Road
                             Reserve;

                      →      Improved architectural expression, and a contemporary
                             presentation commensurate to other recently expanded
                             higher order centres in the Melbourne metropolitan area;

                      →      Creation of a ‘front door’ or identity for the complex in
                             comparison to the existing conditions;

6
                      →      The ability to maintain the existing ‘bush’ boulevard
                             character along the Burwood Highway frontage, and
                             introduce new tree planting and landscaping throughout
                             the site;

                      →      Investigating improvements to the existing site access
                             strategy, general circulation and existing public transport
                             infrastructure provision;

                      →      Delivering improved linkages to the balance of the
                             Westfield Knox complex, and the broader activity centre
                             area; and

                →     The ability to accommodate a range of community
                      infrastructure including relocation of the existing library and
                      provision of a new bus facility.
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                           6 Opportunities and Constraints: Site Planning and Built Form
                           Strategy

                           In addition to realising these opportunities, the following constraints
6.2
Constraints                are acknowledged and need to be addressed:

                           →     Managing the provision of car parking at a rate commensurate
                                 to the expanded retail area, including how new parking areas
                                 present to the wider public realm.

                           →     Managing the introduction of ‘big box’ anchor tenants in terms
                                 of their architectural expression and external presentation.

                           →     How to design a very large building, and in particular ensuring
                                 the overall length of building is sufficiently modulated in its
                                 presentation.

                           →     Ensuring that potential noise impacts are identified and
                                 managed in terms of off-site amenity consequences for the
                                 residential areas to the north.

                           →     Managing the local flooding issues associated with the Land
                                 Subject to Inundation Overlay.

                           →     Accommodating all the necessary servicing requirements
                                 associated with a higher order retail centre.

                           →     Integrating with the existing mall configuration, and managing
                                 leases.

                           Having regard to the opportunities and constraints noted above, the
6.3                        key site planning and built form strategies that have driven the
Site Planning/Built Form   project are:
Strategy
                           →     Development of second double height retail mall parallel and to
                                 the south of the existing mall.

                           →     Introduction of new larger format retail offers in strategic
                                 positions in order to generate increased activity for the
                                 intervening speciality stores.

                           →     Consistent with contemporary retail development trends,
                                 introduce improved hospitality retailing and a range of
                                 externally focussed food and beverage tenancies.

                           →     Use the externally focussed area as the major public realm
                                 gesture and new identity for the retail core within the larger
                                 Westfield Knox complex (Refer Figure 6.1).

                           →     Pursue a contemporary design aesthetic that uses a variety of
                                 techniques to properly modulate the scale and form.

                           →     Introduce a hard and soft landscape program that integrates
                                 with the building’s architecture and that contributes to ‘place
                                 making’ principles.
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                            6 Opportunities and Constraints: Site Planning and Built Form
                            Strategy

                            →     Consolidate the provision of parking into decked parking areas
                                  that are distributed in order to properly service the whole of the
                                  complex.

                            →     Providing for improved access points within the overall site
                                  access strategy consistent with specialist traffic engineering
                                  advice, including relocation of the signalised access to Stud
                                  Road further north than its current location.

                            →     Creation of a legible private motor vehicle and service vehicle
                                  movement system including a better defined perimeter
                                  circulation road along the north boundary.

                            →     Incorporation of design solutions that address acoustic,
                                  flooding, safety and disabled access issues.

                            →     Incorporation of a range of best practice sustainability
                                  initiatives.

Figure 6.1
NEW BURWOOD HIGHWAY ENTRY
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                  7 Proposal

                  The Planning Permit Application plans are consistent with the key site
7.1
Planning Permit   planning and built form strategies noted in the earlier section and the
Application       proposed Development Plan. The key components of the proposal are:

                  →     Retention of the majority of the existing east-west mall;

                  →     Extension of the shopping centre to the south of approximately
                        45,000sqm in the form of a double-loaded, double height (with
                        a small additional upper level) east-west mall, with the overall
                        retail composition west of Melbourne Road comprising a
                        relocated discount department store, additional mini major
                        tenancies (including provision for accommodating new large
                        format international brands), reconfiguration of the existing
                        supermarket offer, specialty shops and a new fresh food
                        precinct;

                  →     Construction of a new entry statement at the western end of
                        the Burwood Highway frontage, and inclusion of externally
                        focussed food and beverage retailing tenancies in this area;

                  →     Construction of approximately 2,650 net additional parking
                        spaces located in a basement, on the roof of the building and in
                        decked parking areas on the east and north side of the building;

                  →     Construction of new and modified vehicle access points along
                        Burwood Highway and Stud Road that are described in more
                        detail in the separate report prepared by GTA Consultants;

                        It is noted that the new signalised intersection at the northern
                        end of the Stud Road frontage may require minor widening of
                        the existing road reservation. The extent of any widening will be
                        determined in consultation with Council and VicRoads during
                        detailed design of the proposed intersection.

                  →     Construction of new loading areas to service the additional
                        retail floorspace ; and

7
                  →     New landscaping / tree planting throughout the site.

                  On the west side of Melbourne Road, the total floor area of expanded
                  development is approximately 140,000 sqm.

                  The application also proposes relocation of the existing municipal
                  library to the east side of Melbourne Road (which is to be agreed with
                  Council), and the development of a new bus interchange to the east of
                  the existing KFC convenience restaurant (also on the east side of
                  Melbourne Road). Details of the new bus facility are set out in the
                  separate report prepared by GTA Consultants.

                  A copy of the application plans for Level 1 and Level 2, being the main
                  retail levels are included at Figures 7.1 and 7.2.
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                          7 Proposal

Figure 7.1
NEW LEVEL 1 RETAIL PLAN

Figure 7.2
NEW LEVEL 2 RETAIL PLAN
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                                  7 Proposal

                                  As required by the Development Plan Overlay (DPO) provisions in the
7.2
Development Plan                  Knox Planning Scheme (as the proposed leasable shop floorspace
                                  exceeds 86,500 sqm), the Planning Permit Application is accompanied
                                  by a Development Plan.

                                  As required by the DPO Schedule 2 provisions, the Development Plan
                                  includes:

                                  →     A three dimensional building envelope;
                                  →     A building setbacks plan;
                                  →     A plan illustrating the proposed access points; and
                                  →     A plan illustrating landscape buffers along the Burwood
                                        Highway frontage, the Stud Road frontage and along the
                                        residential interface to the north.

                                  A copy of the three dimensional building envelope plan (that is part of
                                  the Development Plan) is included at Figure 7.3.

Figure 7.3
3 DIMENSIONAL BUILDING ENVELOPE
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    8 Policy Considerations

    The planning assessment begins with policy considerations.

    At Clause 11.01-1 of the State Planning Policy Framework, the
    ‘Objective’ for ‘Activity Centres’ is:

    →     To build up activity centres as a focus for high-quality
          development, activity and living for the whole community by
          developing a network of activity centres.

    The same clause then sets out the following strategies to achieve the
    objective:

    →     Develop a network of activity centres that:
          → JComprises a range of centres that differ in size and
              function
          → JIs a focus for business, shopping, working, leisure and
              community facilities.
          → JProvides different types of housing, including forms of
              higher density housing.
          → JIs connected by public transport and cycling networks.
          → JMaximises choices in services, employment and social
              interaction.
    →     Support the role and function of the centre given its
          classification, the policies for housing intensification, and
          development of the public transport network.

    Clause 11.01-2 within the State Planning Policy Framework (as an
    extension of Clause 11.01-1) relates to ‘Activity Centre Planning’ and
    the ‘Objective’ is:

    →     To encourage the concentration of major retail, residential,
          commercial, administrative, entertainment and cultural
          developments into activity centres which provide a variety of
          land uses and are highly accessible to the community.

    The strategies associated with achieving this objective are:

8
    →     Undertake strategic planning for the use and development of
          land in and around the activity centres.
    →     Give clear direction in relation to preferred locations for
          investment.
    →     Encourage a diversity of housing types at higher densities in
          and around activity centres.
    →     Reduce the number of private motorised trips by concentrating
          activities that generate high numbers of (non-freight) trips in
          highly accessible activity centres.
    →     Improve access by walking, cycling and public transport to
          services and facilities for local and regional populations.
    →     Broaden the mix of uses in activity centres to include a range of
          services over longer hours appropriate to the type of centre and
          needs of the population served.
    →     Provide a focus for business, shopping, working, leisure and
          community facilities.
    →     Encourage economic activity and business synergies.
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8 Policy Considerations

→     Locate significant new education, justice, community,
      administrative and health facilities that attract users from large
      geographic areas in or on the edge of Central Activities Districts,
      Principal or Major Activity Centres with good public transport.
→     Locate new small scale education, health and community
      facilities that meet local needs in or next to Neighbourhood
      Activity Centres.
→     Ensure Neighbourhood Activity Centres are located within
      convenient walking distance in the design of new subdivisions.
→     Improve the social, economic and environmental performance
      and amenity of the centre.

Then Clause 11.04-2 of the State Planning Policy Framework
references ‘Activity Centre Hierarchy’, and the objective is:

→     To create a network of activity centres comprising the Central
      Activities Districts, Principal Activity Centres, Major Activity
      Centres, Specialised Activity Centres and Neighbourhood
      Activity Centres.

Within this hierarchy, Knox Central is classified as a Principal Activity
Centre, and the Planning strategies associated with Principal Activity
Centres are:

→     Develop Principal and Major Activity Centres to accommodate
      ongoing investment and change in retail, office, service and
      residential markets.
→     Ensure Principal and Major Activity Centres:
      → Have a mix of activities that generate high number of trips
           including business, retail, services and entertainment.
      → Are well served by multiple public transport routes and are
           on the Principal Public Transport Network or capable of
           linking to that network.
      → Have, for Principal Activity Centres, a large catchment
           covering several suburbs and attracting activities that
           meet metropolitan needs.
      → Have the potential to grow and support intensive housing
           developments without conflicting with surrounding land-
           uses. Locate new Principal and Major Activity Centres on
           the Principal Public Transport Network or link them to the
           network as part of developing the site.
→     Broaden the role of stand-alone centres to provide a greater
      mix of uses and improving linkages to the Principal Public
      Transport Network.
→     Ensure Principal Activity Centres are a focus for a range of
      government and community activities, services and investment
      and are priority locations for government investment and
      support.
→     Give priority to Principal Activity Centres for investment and the
      location of significant land uses where catchments overlap in
      any part of the network of centres.
→     Encourage Major Activity Centres with good public transport
      links to grow in preference to other centres with poor public
      transport links serving the same catchment.
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8 Policy Considerations

In response to these State level policy statements, Knox Central is part
of metropolitan Melbourne’s network of activity centres, and the
proposed expansion of the Westfield Knox complex will support its role
and position in the hierarchy. The expansion will also assist in
attracting public and private sector investment in new employment
generating uses, additional housing and community/public
infrastructure.

With regard to the ‘Activity Centre Planning’ and the ‘Activity Centre
Network’ objective and strategies, the planning submission properly
articulates:

→     Longer term masterplanning, and a framework for future
      development investment;
→     Opportunities for accommodating higher density housing and
      generally a broader mix of land uses;
→     Consolidation or aggregation of different land use types to
      encourage economic activity and business synergy;
→     Improvements to the movement networks within the site and
      linkages beyond the site to other precincts; and
→     Improvements to the public transport facilities, and the ability
      to accommodate longer term public transport infrastructure.

In addition to the State policy statements directly relevant to Activity
Centres, Clause 17 (Economic Development) is also directly relevant in
that it relates to planning objectives associated with economic
prosperity, and the need to meet the communities’ needs for retail,
entertainment and other commercial services.

The same clause also references the planning concept of net
community benefit in relation to accessibility, efficient use of
infrastructure, land use aggregation and sustainability.

The planned short term and longer term proposals for the Westfield
Knox complex (as illustrated in the Planning Permit Application and the
concept masterplan respectively), clearly will achieve these objectives
given the higher order activity centre context, and the ability to leverage
off the existing land use concentration and infrastructure investment.

Turning to the Local Planning Policy Framework provisions, key policy
provisions relate to urban design, housing, environment, economic
development and infrastructure.

Whether it be the immediate and first stage of the masterplan for the
Westfield site, or looking at the longer term planning horizon, the
projects for the site will deliver a range of local policy outcomes.

More specifically:

Urban Design

The urban design outcomes associated with the proposals are
discussed variously throughout the report.
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8 Policy Considerations

Housing

Large areas to the east of Melbourne Road provide a longer term urban
renewal opportunity for the Knox Central Principal Activity Centre, and
as the centre continues to mature (as has occurred with other higher
order outer suburban activity centres in Melbourne), the centre will
become an attractive and viable housing alternative.

This maturing process will be the catalyst for the delivery of higher
density housing formats, and a new housing typology that is more
affordable and suited to different demographic groups.

The concept masterplan provides for this opportunity, and the catalyst
for the necessary longer term private investment will in part be the early
stages of development that change perceptions of the centre and
improve local amenity.

Environment

Environmental considerations and how the proposal seeks to embrace
macro and micro sustainability initiatives include:

→     Recognising and addressing potential cultural heritage
      sensitivity;
→     The aggregation of land uses into the Principal Activity Centre
      that is best provided for in terms of a range of urban
      infrastructure in the local region;
→     Managing stormwater related issues, and harvesting
      stormwater for re-use;
→     Incorporation of bio-filtration systems within the landscaping
      concept in order to ‘clean’ the stormwater before it enters the
      local drainage system; and
→     Introduction of a new landscape program in order to provide a
      positive contribution to the ‘bush’ character of the municipality.

We also note that a separate sustainability report has been
prepared by Cundall.

Economic Development

The City of Knox Economic Strategic Framework Plan identifies the
Knox Central Activity Centre as being the regional retail and
entertainment focus, and the proposed development will assist in
achieving in achieving the local objectives associated with economic
activity and activity centres.

Further discussion regarding economic/commercial considerations is
included in Section 9.5.
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8 Policy Considerations

Infrastructure

The infrastructure references include integrated transport, open space
and recreation and community health and wellbeing.

The proposals for the Westfield Knox complex support and contribute
to local infrastructure provision by virtue of the land use concentration,
and the ability of new land uses that will take advantage of existing
infrastructure rather than having to provide new or additional
infrastructure in another location.

The contribution to local infrastructure includes the new public
transport (bus) facility, the relocated library and more generally
improving local amenity through built form, landscaping and good
urban design practices.
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             9 Other Planning
               Considerations

             Within the Commercial 1 Zone, there is no maximum leasable floor
9.1
Floor Area   area, and therefore unlimited shop floorspace is as-of-right pursuant
             to the applicable zoning provisions.

             However, within the Schedule 2 provisions within the Development Plan
             Overlay there is a requirement to have a Development Plan approved if
             the proposed leasable shop floorspace exceeds 86,500.

             Consistent with this DPO provision, a Development Plan has been
             prepared and has been submitted concurrently with the Planning
             Permit Application

             The Concept Masterplan for the whole of the Westfield Knox Complex
9.2
Built Form   provides a general framework for future stages of expansion, and it
             responds directly to the Urban Design Framework and the state-wide
             Activity Centre Design Guidelines. The Planning Permit Application
             plans illustrate the first stage of an overall vision, and they propose a
             built form response that appropriately balances the influences of the
             existing conditions and the preferred activity centre character.

             More specifically, the plans illustrate:

             →     A scale of building and development commensurate to a higher
                   order activity centre;
             →     A dramatically improved external presentation that is
                   articulated by a variety of design techniques;
             →     Improved ‘centre’ legibility with a new entry statement and
                   external design solutions that identity the different elements
                   within the overall land use composition;
             →     The renewal of existing at-grade parking areas and
                   subsequently the creation of a more ‘urban’ built form
                   compared to the existing ‘building surrounded by parking’ sub-
                   urban template;
             →     A focus on creating enjoyable high amenity external spaces in
                   the western part of the overall centre to complement the
                   existing Ozone precinct; and

9
             →     Introduction of modern design idioms as part of an innovative
                   and contemporary architectural approach.
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                      9 Other Planning Considerations

                      The landscape principles are set out in the separate report prepared by
9.3
Landscaping           Land Design Partnership, and the report concludes:

                            The landscape and public realm associated with the proposed
                            retail expansion of Westfield Knox will embody the key urban
                            design aspirations of the Knox Central Urban Design Framework,
                            and will contribute to the integration of the new building with its
                            urban context in the following key areas:

                      →     Creation of new public spaces in high profile locations, with a
                            clear and distinctive identity.
                      →     Reinforcement of pedestrian movement patterns from
                            residential areas, through careful planting and path
                            alignments.
                      →     Continuation of established landscape themes along the key
                            road frontages.
                      →     Additional planting to existing landscape areas to enhance the
                            new built form.
                      →     Softening of new car parking buildings through the introduction
                            of planted panels in selected locations of the facades.

                      GTA Consultants have worked closely with the design team throughout
9.4
Traffic Engineering   the evolution of the project, and the conclusions set out in their report
                      in relation to the sustainable transport, car parking, traffic impacts and
                      loading and waste collections are:

                      Sustainable Transport

                      →     The proposed location of the bus interchange is positioned on
                            the northeast corner of the Burwood Highway/Melbourne Road
                            intersection generally in accordance with the location as
                            specified in the Knox Central UDF.
                      →     The proposed bus interchange location is expected to improve
                            the overall accessibility of Knox City and Knox Ozone (and
                            commercial uses to the east) by bus by providing a high- quality
                            interchange at a location more central to and integrated with
                            the Centre.
                      →     The design of the bus interchange represents an efficient
                            design, with the provision of a total of ten bus bays considered
                            to be appropriate.
                      →     The proposed development will not prejudice the potential
                            extension of tram route 75 (should this extension be completed
                            by State Government in the future).
                      →     It is understood that the bicycle parking provisions/facilities are
                            to be provided as part of the expansion in accordance with
                            statutory requirements.
                      →     The proposed development will incorporate improved walking
                            and cycling pathways between the Centre and surrounding land
                            uses.
                      →     The proposed development incorporates an improved taxi rank
                            which is to be located adjacent to the new bus interchange.
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9 Other Planning Considerations

Car Parking

→     The expanded Centre generates a statutory car parking
      requirement of 8,694 to 10,132 car spaces.
→     An 85th percentile car parking demand of approximately 7,171
      car spaces can be expected (based on existing car parking rates
      calibrated for the Centre).
→     The proposed post-development car parking supply of
      approximately 8,850 car spaces is expected to adequately cater
      the car parking demand of the expanded Centre and is
      generally in accordance with the range of the statutory car
      parking requirements.
→     The proposed layout of new car parking areas generally
      complies with the Australia Standard for off-street Car Parking
      Facilities (AS/2890.1), with typical dimensions of car spaces
      being 2.6 m wide by 5.4 m long and with a 6.8 m aisle. These
      dimensions exceed those specified in the Knox Planning
      Scheme and are considered to be acceptable.

Traffic Impacts

→     The proposed development can be expected to generate
      approximately 318,792 and 867 additional vehicle movements
      (above existing 85th percentile ‘design day’ traffic volumes)
      during the AM, PM and Saturday peak periods.
→     The traffic impacts of the proposed development will be
      mitigated (off-set) by the road works proposed at vehicle
      access points to the Centre and at the Burwood Highway/Stud
      Road intersection.

Loading and Waste Collections

→     The proposed loading and waste collection arrangements
      generally meet the statutory requirements and are considered
      to be appropriate.
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                 9 Other Planning Considerations

                 The principles of promoting investment and employment growth are
9.5
Socio Economic   key planning objectives.
Considerations
                 To this end, the proposal represents an investment of approximately
                 $450 million in the Knox Central Principal Activity Centre. This
                 investment will have positive effects for the local area and the City of
                 Knox through the creation of employment during the construction
                 period, creation of further retail and associated service industry
                 employment upon completion of the development and off-site
                 employment through multiplier effects.

                 Other considerations include the improved retail offer that will act as a
                 catalyst to the ongoing viability / vibrancy of Knox Central as a bona-
                 fide higher order activity centre, and allow it to compete successfully
                 with other higher order centres in the eastern region of metropolitan
                 Melbourne.

                 Urbis have assessed the positive economic impact, and following
                 conclusions are noted in their separate submission.

                 →     The proposed retail expansion will create:
                       → 2,000 retail related jobs;
                       → 1,600 indirect jobs through multiplier effects;
                       → 1,800 construction jobs; and
                       → 2,800 indirect jobs through multiplier effects in the
                           construction industry;

                 →     The increase in retail activity will generate benefits to other
                       uses within the Knox Central Principal Activity Centre; and

                 →     The proposed retail expansion will address the need for
                       additional floorspace in the primary and secondary trade area.
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     10 Conclusion

     In summary, the proposed expansion of the Westfield Knox complex is a
     significant development investment, and one that is strongly supported
     by the State and Local Planning Policy Frameworks.

     The proposal reinforces the designation of the centre as a regional
     (Principal Activity) centre, and will implement a range of strategic
     objectives of State and Local Planning Policy.

     The project represents the culmination of a detailed design process,
     and this process has produced:

     →     An urban design outcome that fits within the overall vision for
           the activity centre as detailed in the Urban Design Framework;

     →     A contemporary makeover for the existing development, and a
           built form outcome that will contribute positively to the local
           urban fabric;

     →     Improved landscaping opportunities throughout the site;

     →     Improved legibility for visitors in terms of a well-structured
           movement network that manages private motor vehicles,
           service vehicles, public transport, pedestrians and cyclists;

     →     A satisfactory traffic engineering outcome; and

     →     Management of all potential off-site amenity consequences.

10
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