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City of Perth Local Development Assessment Panel Agenda

Meeting Date and Time: Thursday 5 September 2013; 4pm Meeting Number: PLDAP/14 Meeting Venue: City of Perth - 27 St George’s Terrace Perth Attendance

DAP Members Mr Paul Kotsoglo (Presiding Member) Mr Brian Curtis (Deputy Presiding Member) Mr Paul Drechsler (Specialist Member) Cr James Limnios (Local Government Member, City of Perth) Cr Rob Butler (Local Government Member, City of Perth) Officers in attendance Mr Ian Patterson (DAP Secretariat) Ms Margaret Smith (City of Perth) Mr Craig Smith (City of Perth) Local Government Minute Secretary Ms Natasha Hilton (City of Perth) Applicant and Submitters Mr Peter Simpson (TPG) Mr Sam Down (TPG) Mr John Dunn (Uniting Church in Australia) Ms Kay Dowling (Uniting Church in Australia) Mr Greg Howlett (Cox Architects) Mr Jason Willoughby (Willoughby Property Group) Mr Steve Artelaris (Steve Artelaris Architects) Members of the Public Nil 1. Declaration of Opening

The Presiding Member declares the meeting open and acknowledges the past and present traditional owners and custodians of the land on which the meeting is being held.

2. Apologies

Mr Peter Lee (Specialist Member) Lord Mayor Lisa M-Scaffidi (Local Government Member, City of Perth)

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3. Members on Leave of Absence

Nil

4. Noting of Minutes

Note the Minutes of the City of Perth LDAP meeting no.13 held on 7 August 2013.

5. Disclosure of Interests Nil

6. Declarations of Due Consideration

Any member who is not familiar with the substance of any report or other information provided for consideration at the DAP meeting must declare that fact before the meeting considers the matter.

7. Deputations and Presentations

7.1 Mr Peter Simpson (TPG) presenting for the application at Item 8.1. The

presentation will provide an overview of proposed development and support for recommendation.

8. Form 1 - Responsible Authority Reports – DAP Application 8.1 Property Location: 36 (Lot 18) St Georges Terrace and 10-14 Pier

Street (Lots 19 and 50), Perth Application Details: Demolition of two existing buildings and the

construction of a 22-level office development including 50 tenant car parking bays and the conservation of the existing St Andrew’s Uniting Church heritage building

Applicant: TPG Town Planning, Urban Design and Heritage Owner: Uniting Church in Australia Property Trust (WA) Responsible authority: City of Perth Report date: 14 August 2013 DoP File No: DP/13/00397

9. Form 2 – Responsible Authority Reports - Amending or cancelling DAP

development approval

Nil

10. Appeals to the State Administrative Tribunal

Nil

11. Meeting Closure

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Form 1 - Responsible Authority Report (Regulation 12)

Application Details: Demolition of two existing buildings and the construction of a 22-level office development including 50 tenant car parking bays and the conservation of the existing St Andrew’s Uniting Church heritage building

Property Location: 36 (Lot 18) St Georges Terrace and 10-14 Pier Street (Lots 19 and 50), Perth

DAP Name: City of Perth LDAP Applicant: TPG Town Planning, Urban Design and

Heritage Owner: Uniting Church in Australia Property Trust

(WA) LG Reference: 2013/5160 Responsible Authority: City of Perth Authorising Officer: Martin Mileham – Director Planning and

Development Application No and File No: DP 13/00397 Report Date: 14 August 2013 Application Receipt Date: Application lodged 9 May 2013, Revised

Plans received 19 July and 9 August 2013 Application Process Days: Attachment(s): 1) Location plan

2) Perspectives 3) Development plans

Recommendation: That the City of Perth LDAP resolves to: Approve by an absolute majority DAP Application reference DP 13/00397 and accompanying perspectives (refer to Attachment 2 received on 9 May 2013) and development plans (refer to Attachment 3, received on 9 May 2013, 19 July and 9 August 2013) in accordance with the Metropolitan Region Scheme and Clauses 26, 27, 28, 36, 41, 42, 44, 47 and 48 of City of Perth City Planning Scheme No. 2, subject to the following conditions: 1. the proposed development being restricted to a total plot ratio of 5.8:1,

incorporating 16.7% bonus plot ratio (equivalent to an additional 2,169m² of plot ratio floor area) for the retention and conservation of the St Andrew’s Uniting Church Building in accordance with the requirements of the Bonus Plot Ratio Policy for the Conservation of Heritage Places 5.3;

2. the Conservation Plan for the St Andrew’s Uniting Church building being

amended to include a full schedule of the conservation and structural remediation works to the satisfaction of the State Heritage Office prior to the submission of an application for the building permit;

3. the owner entering into a Heritage Agreement with the State Heritage

Office and the City of Perth to ensure the ongoing conservation,

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interpretation and maintenance of the St Andrew’s Church prior to the submission of an application for a demolition permit;

4. a dilapidation report for the St Andrew’s Uniting Church building being

completed and submitted to the State Heritage Office for comment, prior to the submission of an application for the demolition permit;

5. a program of monitoring any structural movement and potential vibration

impacts on the St Andrew’s Uniting Church building being implemented at the commencement of any demolition works, to the satisfaction of the State Heritage Office;

6. the wind assessment being revised to include the impact of the down

draft from the office tower to the St Andrew’s Uniting Church building on the material of the Church to the satisfaction of the State Heritage Office prior to the application for the demolition permit; and

7. a lighting strategy for the exterior of the St Andrew’s Church and the

office development being prepared and submitted to the satisfaction of the State Heritage Office and the City for approval prior to the occupation of the building;

8. the north-west entrance of the colonnade being constructed to the same

level as the existing footpath level along Pier Street with final details being submitted to the City for approval prior to the submission of an application for a building permit;

9. the structural columns for the triple height loggia on the western elevation

of the building being minimised in terms of the total number of columns and/or east-west dimensions to ensure views to the St Andrew’s Church building along Pier Street are maximised with final details being submitted to the City for approval prior to the submission of an application for a building permit;

10. final details of the external design, finishes, colours and materials for the

proposed building, being submitted and approved prior to the submission of an application for a building permit;

11. final details of the design and treatment of the landscaped plaza areas

(incorporating the City’s Safer Design Guidelines and matching the materials and levels of the adjoining May Holman plaza) including details of the soft and hard landscaping, furniture and lighting, being submitted and approved prior to the submission of an application for a building permit;

12. all external signage for the office tower being integrated into the design of

the building with details of any signs being subject to a separate application for approval;

13. the subject lots being amalgamated into one lot on one Certificate of Title;

14. a maximum of 50 commercial tenant car parking bays being provided on-

site for the exclusive use of the on-site tenants;

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15. a minimum of two service bays being provided on-site and a detailed Service and Delivery Access Plan being submitted and approved prior to the submission of an application for a building permit;

16. the dimensions of all car parking bays, aisle widths and circulation areas

complying with the Australian Standard AS2890.1;

17. a minimum of 140 bicycle parking bays, eight male and eight female shower facilities, 182 lockers as well as facilities and space for changing and drying clothes being provided on-site and being designed and located in accordance with the requirements of the City Planning Scheme No. 2 ‘Bicycle Parking and End of Journey Facilities’, with details of the design and location of these facilities being submitted and approved prior to the submission of an application for a building permit;

18. any proposed external building plant, including air conditioner units,

piping, ducting and water tanks, being located so as to minimise any visual and noise impact on occupants of adjoining properties and screened from view from the street, with details of the location and screening of such plant being submitted for approval prior to the submission of an application for a building permit;

19. a Waste Management Plan, identifying a permanent facility for bins,

(including compactor and waste treatment facilities if applicable) and addressing the City’s requirements for waste collection, being submitted and approved prior to the submission of an application for a building permit;

20. any existing vehicle crossovers that are not required to provide access to

this development being removed and the verge areas being reinstated by the developer to the City’s specifications and at the owner’s expense prior to occupation of the building;

21. in the event of the development of the new office tower not proceeding

within six months of the demolition of the existing buildings on the site, or following any excavation of the site, the site is to be:-

21.1 fenced and screened in order to restrict unauthorised public and

vehicle access to the site and to control the spread of dust and litter, with details of the proposed fencing and screening being submitted for approval prior to erection; or

21.2 contoured, grassed and landscaped in order to preserve the amenity of the area and to prevent dust and sand being blown from the site; and

21.3 maintained in a clean and tidy state;

22. a construction management plan for the proposal detailing how it is proposed to manage:-

22.1 the delivery of materials and equipment to the site; 22.2 the storage of materials and equipment on the site; 22.3 the parking arrangements for the contractors and subcontractors;

and

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22.4 the protection of the structural integrity of the St Andrew’s Uniting Church building;

22.5 maintaining access over the right-of-way and to the public car park throughout construction; and

22.6 other matters likely to impact on the surrounding properties, with particular regard for the adjacent hotel and public car park;

being submitted for approval prior to the submission of an application for a building permit.

This decision constitutes planning approval only and is valid for a period of two years from the date of the approval. If the subject development is not substantially commenced within the two year period, the approval shall lapse and be of no further effect.

Background: Property Address: 36 (Lot 18) St Georges Terrace and 10-14

(Lots 19 and 50) Pier Street, Perth Zoning MRS: Central City Area Zone TPS: ‘City Centre’ Use Area in the Civic Precinct

(P7) Use Class: ‘Office’ Development Scheme: City Planning Scheme No. 2 Lot Size: 2,598m² Existing Land Use: Community and Commercial Value of Development: $ 22.5 million (plus) The application site is located on the corner of St Georges Terrace and Pier Street and is comprised of three separate lots including an existing private right-of-way (Lot 50) with a total site area of 2,598m². An application has been lodged with the Western Australian Planning Commission to amalgamate the three lots into one lot on one Certificate of Title. A similar application, proposing a 22-level office development was approved by the Council at its meeting held on 21 April 2009. The application also involved the demolition of the two existing buildings on site and the retention and conservation of the St Andrew’s Uniting Church building. This application was approved with variations to the maximum height requirements along Pier Street with a building of up to 64 metres high along Pier Street tapering up to a maximum height of 97.5 metres at the rear (eastern boundary) of the site. The building complied with the maximum plot ratio of 5:1 for the site. Details: The application seeks approval to construct a 22-level office development including 50 tenant car parking bays at the subject site. The application includes the demolition of the existing four storey Westminster House building located at 10-14 (Lot 19) Pier Street and the two storey McNess Memorial Hall building located at 36 (Lot 18) St Georges Terrace, Perth. The application also proposes the retention and restoration of the St Andrew’s Uniting Church building which is listed on the State Register of Places of Heritage Significance (Place Number 2099) and on the City of Perth’s

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Register of Places of Cultural Heritage Significance under City Planning Scheme No. 2. The proposed development includes the following: Basement levels: The three split-level basement contains a total of 50 commercial tenant car parking bays, 2 accessible bays, 140 bicycle parking bays, male and female shower rooms as well as locker facilities. Ground floor level: This level contains the main office lobby/reception area, lifts, two fire exit stairwells, communications room, bins and recycling area and a service/courier bay, at the rear of the site, adjoining the car park access off the right-of-way. Mezzanine level (First floor): This level comprises of 531m² of office floorspace and the rear service core incorporating the male and female staff amenities, lifts and two fire exit stairwells Second and Third floor: These floors each comprise of 709m² of office floor space with the rear service core incorporating the male and female staff amenities, lifts and two fire exit stairwells. Fourth to Seventeenth floors: These levels each comprise of 904m² of office floor space with the rear service core incorporating the mechanical plant, male and female staff amenities, lifts and two fire exit stairwells. Eighteenth floor: This level contains the mechanical plant room and lifts. The proposed office development will be predominately constructed of glass, steel and concrete with expressed structural bracing to the north and south elevations. Glass is provided to all elevations, with the exception of the imbedded rear core located on the eastern elevation. A landscape plan has also been submitted proposing mainly hard landscaping elements including Melbourne Bluestone pavers around the Church and the new office building. The Melbourne Bluestone pavers will also be used to upgrade the existing right-of-way together with clay panelling to the north-west corner of the office building, complementing the terracotta brickwork of the Church. The alterations and restoration works proposed to the St Andrew’s Uniting Church building includes the demolition of the existing McNess Memorial Centre addition as well as the reinstatement of the stain-glassed windows and the conservation of the brickwork. Restoration works to address the structural integrity of the roof is also included in the scope of works. Legislation and policy: Legislation Planning and Development Act 2005 s. 162 City Planning Scheme No. 2 (CPS2) Clauses 6, 26, 27, 28, 36, 40, 41, 42, 43, 44, 47, 48 and the Civic Precinct Plan requirements Metropolitan Region Scheme State Government Policies

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Perth Parking Policy (PPP) Local Policies City Development Design Guidelines (4.1) Building Heights and Setbacks (4.5) Plot Ratio Policy (4.6) Parking Policy (5.1) Loading and Unloading (5.2) Perth Parking Policy (5.3) Bicycle Parking and End of Journey Facilities (5.4) The proposal generally complies with the abovementioned policies or otherwise can be reasonably conditioned to ensure compliance. Details of non-compliance matters are addressed in the following sections of this report. Consultation: Public Consultation Given the proposed variations to the development standards, the plans were advertised to the owners of the surrounding properties for a period of 14 days, closing on 10 June 2013. These include the owners of the May Holman Centre at 32-34 St Georges Terrace, Panoramic House at 553 Hay Street, Kings Perth Hotel at 517-533 Hay Street, The Deanary at 3 Pier Street and Government House at 13 St Georges Terrace, Perth. The plans were viewed by several owners from the surrounding properties during the advertising period however the City did not receive any submissions on the proposed office development. Consultation with other Agencies or Consultants City of Perth Design Advisory Committee At its meeting held on 20 June 2013, the City of Perth’s Design Advisory Committee (DAC), having considered the proposed development and the awarding of bonus plot ratio, advised that it “ 1. supports the awarding of 16.7% bonus plot ratio, or 2,165m² of additional plot

ratio floor area, for the retention and restoration of the heritage listed St Andrew’s Uniting Church building, in accordance with Section 5.3 of the Bonus Plot Ratio Policy;

2. supports the design of the office tower, including the proposed building height variations, subject to the following aspects of the design being reviewed:- 2.1 it is considered that the design of the ground plane is not fully resolved.

The height of the ground floor level, as it relates to the level of the footpath, affects access and the extent to which the recessed lobby adds interest and vitality to the public domain, whereby the building lacks a clean connection to the street;

2.2 the success of the triple height loggia and the design and scale of the

colonnade in opening up views to the church from along Pier Street;

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2.3 the building’s interface with the right of way and the extent to which the

right of way might be upgraded. ” In response to the advice of the DAC the applicant submitted revised plans. With respect to point 2.1 of the DAC’s advice, the proposed ground floor plane has been amended and split into two levels, improving the connection of the building with the existing street levels along Pier Street. The north-west corner of the colonnade is now in line with the existing level of the footpath along Pier Street providing for a seamless transition from the street. The re-design of the colonnade to eliminate the street edges and balustrading as well as the introduction of steps across the length of the frontage also improves permeability and pedestrian accessibility into and around the building. With regards to point 2.2 of the DAC advice, the applicant has made only minor changes to the triple height loggia and colonnade including the removal of a wall feature to improve views to the Church. The applicant advises that the changes to the lobby levels maximises views to the St Andrew’s Church. The applicant states that the design and scale of the triple height loggia and colonnade, together with the use of floor to ceiling height glazing, will provide for substantial views of the Church from Pier Street. With respect to the DAC’s concerns regarding the obstruction caused by the columns, the applicant advises that the number of structural columns could not be reduced due to the structural requirements of the building. Furthermore the applicant advises that the columns will be constructed to the minimum size that is structurally required for the building. In response to point 2.3 of the DAC’s advice, the applicant advises that that the building’s interface with the right-of-way has been improved through the introduction of Terreal panelling along the northern elevation, complementing the terracotta brickwork of the Church. The applicant also proposes to upgrade the right-of-way with Melbourne Bluestone pavers to match the pavers that are proposed for the landscaping of the St Andrew’s Church grounds. Department of Transport As the proposed office development is seeking a parking bonus of more than 10% permitted in the Perth Parking Management Area, the application was referred to the Department of Transport for comment. In its letter dated 17 June 2013, the Department of Transport advised that it supports the provision of the additional bicycle parking and end-of-journey facilities however, does not have the authority under the Perth Parking Policy to licence the additional 11 tenant bays proposed. The Department of Transport also advised that once an application is received to licence the bays, the Director General of Transport may provide a recommendation to the Minister for Transport in support of an additional 11 tenant bays, provided the proposed office development also incorporates the following additional end-of-journey facilities: • Appropriate space and facilities in the changing area to allow users to change.

For example, a bench with hooks between the lockers and showers. • A drying area for clothes and towels.

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• Sufficient lockers to cater for regular and casual cyclists as well as joggers and walkers. DoT requires a minimum provision of 1.3 lockers for each bicycle bay which amounts to 182 lockers in this case.

In response to the advice of the Department of Transport, the applicant has amended the plans to incorporate additional end of journey facilities. The application proposes benches and locker facilities in both the male and female change rooms with additional space for users to change. A drying area for clothes and towels has also been provided, in addition to bicycle repair facilities. A total of 182 lockers will be provided for the 140 bicycle bays proposed, as per the Department’s requirement for 1.3 lockers per bicycle bay. State Heritage Office The application proposes to retain and conserve the existing St Andrew’s Uniting Church building which is listed on the State Register of Places of Cultural Heritage Significance (Place No. 2099). As such the application was formally referred to the State Heritage Office for comments. In its letter dated 28 June 2013, the State Heritage Office, having considered the proposed office development in the context of the identified cultural significance of the St Andrew’s Church, providing the following advice:- “ • The Conservation Plan, Assessment Document for St Andrews Church, and the

Heritage Impact Statement do not attribute any cultural heritage significance to the McNess Memorial Centre or Westminster House.

• The Church’s Vestry (c.1970s), proposed for removal, is noted as being of contributory significance in the Conservation Plan but is not noted in the Statement of Significance of St Andrews Church.

• Other than the removal of the Vestry, the proposed works will not have a negative physical impact upon St Andrews Church and has been designed in a manner that visually separates old from new.

• The current development is very similar to the scheme that was supported conditionally by the Development Committee in 2008.

• Considering the applicant is seeking bonus plot ratio benefits based on heritage grounds, a Heritage Agreement should be entered into that ties the applicant to updating the Conservation Plan, with a full schedule of conservation and structural works, and a written commitment of providing timeframes of when conservation works to the Church will occur.”

Based on its findings, the State Heritage Office advised that it supports the proposed development subject to appropriate conditions. These conditions include the revision of the conservation plan to include the full schedule of conservation and remedial works; the owner entering into a heritage agreement with the Heritage Council; a dilapidation report being undertaken for the St Andrew’s Church prior to any demolition works; a revised wind assessment being prepared to include the wind impact from the tower on the church; and a lighting strategy being prepared for the exterior of the St Andrew’s Church. These conditions have been incorporated into the recommendation (conditions 2-7). Planning assessment:

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The subject site is located within the City Centre use area of the Civic Precinct (P7) under the City Planning Scheme No. 2 (CPS2). The Civic Precinct will maintain its present function as the focal point of the city’s open space and parkland system, an area of heritage interest and the principal centre for civic and judicial activities. Office development will be permitted in the north eastern section of the Precinct, however, the use of office buildings at street level should stimulate pedestrian interest and activity. The proposed office development is consistent with the Statement of Intent for the Civic Precinct whereby an ‘Office’ use is a preferred use (‘P’) within the Civic Precinct (P7) under CPS2. The building has been designed with a lobby to the ground floor and pedestrian link around the St Andrew’s Uniting Church building from St Georges Terrace to Pier Street, facilitating pedestrian access to the adjoining St Georges Cathedral Precinct. Development Requirements The restoration and maintenance of buildings, groups of buildings and other objects which have substantial historical or other significance will be encouraged. New buildings must be designed to be in close harmony with the style and character of the surrounding buildings. In particular, the area immediately around Cathedral Avenue is to be further enhanced as a historic area and improvements to Cathedral Square encouraged as a public space. The proposal has been assessed against the relevant Scheme and Policy requirements, as summarised below (Note: figures and headings in bold signify non-compliance with the development standards):-

Development Standard Proposed Permitted/Required Plot Ratio

5.8 (15,159m² including a 16.7% Heritage Bonus)

Base Plot Ratio 5:1 (12,990m²)

Heritage Bonus (20%

maximum) providing a total potential plot ratio of 6:1

(15,588m²)

Building Height: St Georges Terrace Pier Street (Lot 18)

Existing St Andrew’s Church building setback 8m from the street frontage up to a height

of 19m, proposed development situated 46m

from the street frontage up to a maximum height of 87.55m

87.55m along street

frontage

35m along street frontage plus additional height, after a

setback of 8m to be contained within a 2:1 height

ratio

16.2m along street frontage plus additional height after a

setback of 8m to be contained within a 2:1 height

ratio

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Development Standard Proposed Permitted/Required Pier Street (Lots 19 and 50)

87.55m along street frontage

16.2m permitted along the street frontage plus

additional height within a 45 degree angle height plane

Setbacks: St Georges Terrace (south) Pier Street North East

46m

Nil

6m

Nil

Not specified

Not specified

Not specified

Not specified

Maximum Car Parking: Commercial Tenant

50 bays (plus two universal access bays and one service

bay)

39 bays (maximum)

Bicycle Facilities: Bicycle bays End of trip facilities

140 bays

8 male and 8 female shower rooms

30 bays (minimum)

4 male and 4 female shower rooms (minimum)

In accordance with the provisions of Clause 47 of the CPS2:- “(3) The Council cannot grant planning approval for a non-complying application

unless - (a) if so required by the Council under clause 41(2), the application has been

advertised; and

(d) the Council is satisfied by an absolute majority that:- (i) if approval were to be granted, the development would be consistent

with:- (A) the orderly and proper planning of the locality; (B) the conservation of the amenities of the locality; and (C) the statement of intent set out in the relevant precinct plan;

and (ii) the non-compliance would not have any undue adverse effect on:-

(A) the occupiers or users of the development; (B) the property in, or the inhabitants of, the locality; or (C) the likely future development of the locality.”

(4) The Council may permit a bonus plot ratio of –

(a) up to a maximum of 20% per lot where in the opinion of the Council the development would -

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(i) result in the conservation of a place on the lot which under clause 30 has been declared by the Council to be significant and worthy of conservation and the development is located within the area shown on the Heritage Bonus Plot Ratio Plan as being eligible for heritage bonus plot ratio.”

(5) The Council may only permit a bonus plot ratio where in addition to the

requirements of this clause and clause 47, the Council is satisfied that the development would not – (a) adversely affect the cultural heritage significance of any place declared by

the Council under clause 30 or any conservation area; and (b) adversely affect the amenity, streetscape or desired character of the

precinct in which the development is located; and (c) have a significant adverse effect on an adjoining property or a property in

the general locality.” Bonus Plot Ratio Under the CPS2, developments proposing additional plot ratio above that specified on the Plot Ratio Plan must incorporate one or more of the eligible bonus plot ratio categories identified within Clause 28 of CPS2 and detailed within the City’s Bonus Plot Ratio Policy 4.6.1. The bonus plot ratio categories include: • Public Facilities and Heritage: Maximum 20% bonus (includes public spaces,

pedestrian links, conservation of heritage places and provision of specific facilities on private land).

• Residential Use: Maximum 20% bonus. • Special Residential Use: Maximum 40% bonus (20% for a special residential

use or 40% for high a quality hotel use). The proposed development has a plot ratio of 5.8:1 or 15,159m² of plot ratio area which exceeds the maximum plot ratio for the site by 2,169m², representing a 16.7% bonus. The applicant has justified the proposed plot ratio bonus on the basis that the development satisfies the performance guidelines of the Policy 4.6.1 including the following: • A conservation management plan will be prepared and approved; • The place will be retained and conserved in full and will continue in accordance

with a conservation management plan; • The new development will preserve the landmark and heritage values of both

the Church and the adjacent Cathedral Precinct, containing the Old Treasury Buildings and the St George’s Cathedral; and

• The place will be publically accessible, with pedestrian access provided around the Church which will continue to serve as an important cultural asset to the City of Perth.”

The St Andrew’s Church is listed on both the State Register of Heritage Places and the City’s Register of Places of Cultural Heritage Significance under CPS2. The application proposes to retain and conserve the existing St Andrew’s Church building, including vital structural remediation works to allow for its future adaptive reuse. The proposed development also seeks to enhance the setting of the heritage building including the introduction of soft and hard landscaping elements around the buildings

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as well as the demolition of the dilapidated 1960’s McNess Memorial Hall addition. The proposed new office development also seeks to provide an appropriate setting and backdrop for the heritage building through its articulation and design. This includes the building’s response to the geometry of the St Andrew’s Church as well as the triple height loggia/colonnade which opens up views of the Church from Pier Street. Given the above it is considered that the proposed development meets the intent of the City’s Bonus Plot Ratio Policy, facilitating the retention, enhancement and maintenance of a place of cultural heritage significance in order to promote and safeguard the City’s heritage. The proposed development is also considered to meet the essential and performance standards for the conservation of heritage places outlined in the City’s Bonus Plot Ratio Policy 4.6.1. Both the Design Advisory Committee as well as the State Heritage Office support the awarding of an additional 16.7% heritage plot ratio bonus. This is subject to various conditions requested by the State Heritage Office including an updated conservation plan and the owner entering into a heritage agreement with the Heritage Council which can be required as conditions of any approval. Based on the above it is considered that a 16.7% bonus plot ratio for the conservation of a heritage place can be supported, in accordance with Clause 28 of the CPS2. Building Height and Presentation to the Street Two separate height requirements apply to the site under the CPS2 Building Heights Plan. The southern portion of the site (Lot 18), occupied by the Church, is subject to a maximum height of 35 metres along the street frontage, with any additional height set back 8 metres from the street boundary and contained within a 2:1 height ratio. Given the significant setback of the office tower from St Georges Terrace (46 metres) and the low scale of the existing St Andrew’s Church building, neither the Church nor the office tower will significantly encroach into the height plane for the lot on the corner of Pier Street and St Georges Terrace. With respect to the northern portion of the site (Lots 19 and 50), where the new office tower is proposed, a maximum height of 16.2 metres applies along the Pier street frontage with any additional height contained within a 45 degree angle height plane. A building height of 87.55 metres is proposed along the Pier Street frontage and therefore the building will encroach into the angled height plane from level four and above. It is noted that the City is currently amending its built form controls as detailed in Amendment No. 26 (Built Form Controls) to CPS2. At its meeting held on 16 July 2013 the Council adopted Amendment No. 26 subject to minor variations and which has been forwarded to the Western Australian Planning Commission and Minister for Planning for final approval and is therefore now an appropriately considered document. Under Amendment No. 26 both Adelaide Terrace and Pier Street shall have a maximum street frontage height of 21 metres with any additional height (up to a maximum of 65 metres) set back 5 metres from the street. Any additional height above the 65 metres (up to a maximum height of 100 metres) shall be set back 10 metres from the street. The proposed development will encroach into the height plane prescribed under CPS2 and the setback requirements along Pier Street under Amendment No. 26. The overall height of the building will however be within the 100 metre maximum height

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limit applicable at the site. With respect to the variation to height along the Pier Street frontage the applicant advises that given the relatively narrow lot width and the retention of the existing St Andrew’s building, a compliant street setback would constrain the development in achieving an efficient office floor plate. Furthermore the variation to the height is not considered to result in any undue adverse impact to local amenity. The design of the colonnade along Pier Street enables the building to achieve a pedestrian scale whilst at the same time maintaining views to St Andrew’s Church. This is considered a better outcome than a fully compliant building built to the street edge which would obstruct views to the Church. Whilst some minor overshadowing will occur to the Cathedral Precinct, Council House Gardens and Government House Gardens, this is not considered to be an unreasonable loss of light for an inner city location and would still occur in the case of a fully compliant building. The Cathedral Precinct, which is located on the opposite side of Pier Street, contains a mix of both heritage and more contemporary developments and therefore varying building heights. The proposed scale and massing of the building will not be out of keeping and is substantially lower than the height of the commercial building currently under construction on the opposite side of the Cathedral Precinct as part of the redevelopment of the old Treasury Buildings (155 metre height). As required under the City’s Development and Design Policy, views to the Cathedral Precinct’s land mark buildings will be protected with the proposed tower creating a termination or ‘bookend’ to the eastern edge of the Precinct The Deanery building which is located directly opposite the subject site is listed on the State Register of Heritage Places and has a height of 10.5 metres. The old Playhouse Theatre site which is located directly north of the Deanery building is intended to be redeveloped with a low scale office building. Given the low scale of the existing and proposed buildings directly opposite the tower on Pier Street, together with the design of the building’s triple loggia/colonnade, it is not considered that the encroachment into the height plane will result in a sense of enclosure along Pier Street. It is also noted that a building of greater overall height (97.5 metres) with a street frontage height of 64 metres along Pier Street (22-levels) was approved by the Council at its meeting held on 21 April 2009. Given that the height and form of the proposed development satisfies the requirements of the City’s Development and Design Policy and has acceptable amenity impacts, the variations to the building height can be supported in accordance with Clause 47 of CPS2 Design The proposed development has been designed to incorporate a triple height loggia/colonnade along the western and southern elevations of the building with the tower element raised on structural columns above the St Andrew’s Uniting Church. The creation of a colonnade along Pier Street and to the southern portion of the building enhances the setting and maximises views to the St Andrew’s Uniting Church building from Pier Street. The office tower has also been designed to respond to the geometry of the roof ridge of the Church building. The revised proposal has altered the design of the ground floor plane of the office development to address the concerns raised by the City’s administration and the

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Design Advisory Committee. This includes the re-design of the colonnade into two split levels, with the north-west corner of the colonnade now in line with the existing level of the footpath along Pier Street, improving connectivity. The removal of the street edges and balustrading along the colonnade as well as the introduction of steps across the length of the frontage also improves permeability and pedestrian accessibility into and around the building. Minor changes have also been made to the triple height loggia and colonnade including the removal of a wall feature to improve views to St Andrew’s Church. With respect to the columns, the applicant advises that the number of structural columns can not be reduced due to the structural requirements of the building. The columns will however be constructed to the minimum size that is structurally required for the building. The applicant has also provided further details on the materials proposed to dress the external of the ground floor structural columns which will include stone cladding. With respect to the building’s interface with the right-of-way the applicant has altered the design to include clay panelling along the north-west corner elevation, complementing the terracotta brickwork of the Church. The applicant also proposes to upgrade the right-of-way with Melbourne Bluestone pavers to match the pavers that are proposed for the landscaping of the office development and St Andrew’s Church grounds. It is noted that the development approved and currently under construction at the adjacent May Holman Centre site will be designed to incorporate a public plaza area which integrates with the levels and landscaping treatment of the plaza proposed at the St Andrew’s Uniting Church site. This will provide a seamless pedestrian environment from one development to the other and encourage pedestrian movement through to the rear of the Church. Based on the above it is considered that the applicant has satisfactorily addressed the design concerns raised by the City’s Design Advisory Committee and administration and is an appropriate architectural response to the site and location. Vehicle Parking, Bicycle Parking and End of Journey Facilities The application proposes 50 commercial tenant car parking bays which is 11 bays above the maximum number of bays permitted at the site under the Perth Parking Policy (PPP). The applicant’s rationale for seeking a variation to the car parking standards is that the proposed development contains the same number of tenant car parking bays approved for a similar 22-level office development at the site under the previous version of the PPP. The applicant is also proposing end-of-journey facilities well in excess of the minimum requirements under the CPS2 (30 bicycle bays required, 140 bicycle bays provided, 4 male and 4 female shower facilities required, 8 male and 8 female shower facilities provided), thereby encouraging staff to use alternative modes of transport. In response to the advice of the Department of Transport, the proposed development has been further modified to incorporate additional end-of-journey facilities. This includes 182 lockers for staff in addition to the 140 bicycle bays proposed (1.3 lockers per bicycle bay). Benches in both the male and female change rooms will provide sufficient space for users to change and a drying area for clothes and towels has been included. Based on these additional facilities being incorporated into the building the Department of Transport has advised that they would be in a position to

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provide a recommendation of support for the additional 11 tenant bays. Approval however can only be granted by the Minister in response to the recommendation of the Director General of Transport following an application to licence the bays. As the proposed development is providing end-of-journey facilities well in excess of the minimum requirements specified in the City’s Bicycle Parking and End-of-Journey Facilities Policy 5.4 it is considered that a variation of an additional 11 tenant car parking bays can be supported in accordance with Clause 47 of CPS2. The Department of Transport has requested that any approval include a condition to ensure the level of bicycle parking and end-of-journey facilities, as prescribed, is maintained. Conclusion: The proposed office development is consistent with the general intent of the Civic Precinct in which the subject site is located. The design of the new office tower colonnade as well as the introduction of hard landscaping elements around the Church grounds will improve pedestrian access to and from the adjacent Cathedral Precinct as well as promoting pedestrian activity and interest at the ground floor plane. The proposed development will facilitate the retention, enhancement and maintenance of the State and locally listed St Andrew’s Church Uniting Church building as a place of cultural heritage significance, thereby promoting and safeguarding the City’s heritage. The awarding of the 16.7% bonus plot ratio floor is considered to be adequately justified in terms of the above as well as addressing the requirements of the City’s Bonus Plot Ratio Policy and Clause 28 of the CPS2. The variation sought to the height plane along Pier Street is not considered to result in any undue adverse impact to local amenity or to the streetscape. Furthermore views to the Cathedral Precinct’s landmark buildings will be protected. The height and form of the proposed development therefore satisfies the requirements of the City’s Development and Design Policy and the variations to the building height can be supported in accordance with Clause 47 of CPS2 Based on the above it is considered that the application for the proposed 22-level office development including 50 tenant car parking bays and the conservation of the existing St Andrew’s Uniting Church heritage building can be supported subject to conditions.

ATTACHMENT 1 (LOCATION PLAN) - 36 (LOT 18) ST GEORGES TERRACE & 10-14 (LOTS 19 & 50) PIER STREET, PERTH

ATTACHMENT 2 (PERSPECTIVE) – 36 (LOT 18) ST GEORGES TERRACE AND 10-14 (LOTS 19 AND 50) PIER STREET, PERTH

City of Perth received 9 May 2013

Landscape Plan Only - Not for JDAP Approval

Landscape Plan Only - Not for JDAP Approval