Council
Meeting 29 January 2025
Reports to Council
(Item 1/25) Croydon Transport-Oriented
Development (TOD) Program - Alternate Masterplan Post Exhibition Report and
Final Submission to the NSW Government
File No: 25/944
Report by Director City Strategy
Summary
This report seeks a decision from
Council regarding its final submission to the NSW Government in response to the
Croydon Transport-Oriented Development (TOD) Program.
Following the public exhibition
of Council’s draft alternative
Masterplan, this report presents four (4) dwelling density distribution
options (included under Attachment 1) for Council’s consideration:
1. The original NSW Government TOD proposal.
2. Council’s exhibited alternative Masterplan within
the Housing Investigation Area (HIA).
3. A refined Council alternative Masterplan redistributing
density within the HIA.
4. A refined reduced-density Masterplan near Croydon
Station with unmet targets redistributed to the Burwood North Masterplan.
This report also presents the
community feedback received during the public exhibition of Council’s
alternative Masterplan for the TOD, held between 23 October 2024 and 22
December 2024 (in Attachment 2). It also provides a copy of all submissions
received by Council during the consultation period (in Attachment 3).
Council must finalise its
decision by 31 January 2025, as the NSW Government will proceed with the TOD
Program or an alternative through a State Environmental Planning Policy (SEPP)
from February 2025. Any alternative submitted to the NSW Government must meet
or exceed the housing targets set by the NSW Government’s TOD proposal.
Operational Plan Objectives
A.98 Undertake
comprehensive community engagement programs to seek community input on Council
projects, operations, initiatives and major decisions.
C.3 An
urban environment that maintains and enhances our sense of identity and place.
C.3.1 Facilitate well
designed, high quality and sustainable land use and development that is
appropriately scaled to complement its surroundings.
C3.2 Protect
our unique built heritage and maintain or enhance local character.
C.4 Sustainable,
integrated transport, infrastructure and networks support population growth and
improve liveability and productivity.
C.4.2 Plan
for a city that is safe, accessible and easy to get to and move around in.
Background
In December 2023, the NSW
Government launched the Transport-Oriented Development (TOD) Program, aligned
with the National Housing Accord, to accelerate housing delivery by increasing
density around 38 train stations, including Croydon. The TOD Program seeks to
address housing supply challenges by promoting higher densities near public
transport and activity centres.
The Department of Planning, Housing, and Infrastructure
(DPHI) released documents outlining the program’s criteria and approach: Transport-Oriented
Development Program (December 2023) and Transport-Oriented
Development (TOD) Program – Assessment Criteria (March 2024).
However, no details were provided on infrastructure capacity.
The Croydon TOD Precinct, spans
the Burwood and Inner West LGAs. Confidential dwelling yield requirements have
been assigned to each Council.
Council successfully advocated
for the protection of heritage areas, resulting in the deferral of
Croydon’s inclusion in the NSW Government TOD Program until January 2025.
This allowed time for a localised planning process to address housing and growth
needs.
On 11 April 2024, the Minister
for Planning and Public Spaces formalised the deferral. However, TOD provisions
were incorporated into Chapter
5 of the SEPP (Housing), gazetted on 29 April 2024 and made effective from
13 May 2024. These provisions apply to other TOD precincts and set the
framework for implementation.
By June 2024, Council identified
a Housing Investigation Area (HIA) on the northern side of the rail corridor
between Croydon and Burwood Town Centres, and a precinct south of the corridor
near Shaftsbury Road. These areas were selected to meet housing targets while
preserving heritage conservation zones. The decision was guided by community
feedback, the Burwood Housing Strategy 2020, and principles prioritising
connectivity, density transitions and improved liveability. Consultants were
engaged to analyse constraints and draft an alternative Masterplan.
On 22 October 2024, Council resolved
to exhibit the draft Masterplan for four weeks, which was later extended to 22
December 2024 to enable further community engagement. In response to community
feedback, Council has now prepared four (4) density distribution options for
Council’s consideration.
The following table summarises
key milestones in Council’s response to the NSW Government TOD Program.
Table 1: Key Milestones -
Council’s response to the NSW Government TOD Program
|
Timeframe
|
Activity
|
|
December 2023
|
Initial NSW Government announcement. Council
resolved to commence advocacy.
|
|
February 2024
|
Council
resolved against TOD and determined to protect HCAs.
|
|
March 2024
|
Council
resolved against TOD.
|
|
April 2024
|
NSW
Government announced deferral. Council initiated community engagement.
|
|
June 2024
|
Council
resolved Housing Investigation Area (HIA).
|
|
August 2024
|
DPHI TOD Planning Guidelines released. Consultants
engaged to complete constraints analysis and prepare an alternate
Masterplan.
|
|
October 2024
|
Council
resolved to exhibit the alternate
Masterplan with removal of the precinct south of the rail corridor from
further consideration. Council commenced consultation as per engagement plan
as well as direct consultation with Lucas Road HCA residents.
|
|
October to
December 2024
|
Exhibition of Alternate Masterplan. Council
resolved to extend exhibition period to two months and prepare alternate
options to TOD.
|
|
December 2024
to January
2025
|
Review of submissions and preparation of options for
consideration by Council.
|
|
29 January 2025
|
Extraordinary Council Meeting to consider public
submissions and options, and determine final submission to the NSW
Government.
|
Proposal
Following the public exhibition
period and an in depth review of community feedback, Council is now presented
with the following four (4) dwelling density distribution options (refer to
Attachment 1) for consideration:
1. The original NSW Government TOD proposal.
2. Council’s exhibited alternative Masterplan within
the Housing Investigation Area (HIA).
3. A refined Council alternative Masterplan redistributing
density within the HIA.
4. A refined reduced-density Masterplan near Croydon
Station with unmet targets redistributed to the Burwood North Masterplan.
Based on community feedback
received during the exhibition period and alignment with the Transport-Oriented
Development (TOD) Program – Guide to Strategic Planning, this
report seeks Council’s endorsement of ‘Option 3 - A refined Council
alternative Masterplan redistributing density within the HIA’ as the
recommended density distribution option for submission to the NSW Government.
An overview of the community
engagement process and feedback is provided below, followed by a detailed
explanation of each option.
Consultation
Phase One: Early High Level
Community Engagement Process
On 25 June 2024, Council endorsed
a Housing Investigation Area (HIA) located on the northern side of the rail
corridor between the Croydon and Burwood Town Centres, as well as a precinct
south of the corridor near Shaftsbury Road.
In accordance with the Council
resolution of March 2024, early engagement with the Croydon community was
conducted from 11 April to 17 May 2024. During this time, 2,248 letters were
distributed to property owners and occupiers in Croydon, and a dedicated
section was launched on the Participate Burwood website. This engagement sought
to identify preliminary community issues, concerns and opportunities for future
development, particularly regarding potential housing locations. Feedback was
gathered via a pin-drop map on the Participate Burwood website, where
participants identified areas of interest.
The selection of the HIA was
designed to meet housing targets while preserving heritage areas. This approach
was informed by initial high-level community feedback, Council’s
commitment to heritage preservation, the Burwood
Housing Strategy 2020 and overarching planning principles, including
connecting centres, transitioning densities, enhancing liveability and improving
public spaces. Following the adoption of the HIA, notification letters were
sent to property owners within and adjacent to the identified area.
This engagement was an initial
step and was followed by a broader two-month public exhibition and consultation
process conducted from October to December 2024. During this later consultation
process, 6,454 notification letters were issued to property owners and
occupiers within the HIA and surrounding areas.
Phase Two: Detailed Two Month
Community Engagement Process
On 22 October 2024, Council
resolved to commence the formal public exhibition of an alternative draft
Masterplan for a four-week period, beginning on 23 October 2024, with specific
engagement requirements for the Lucas Road Heritage Conservation Area (HCA). In
November 2024, the consultation period was extended by an additional four
weeks, including further drop-in sessions, and concluded on 22 December 2024.
The consultation process followed
a project-specific Stakeholder
Engagement Plan, aligned with Burwood Council’s Community
Engagement Strategy 2023-2026. This strategy incorporated both face-to-face
and digital methods to maximise participation. It is important to note that
while the DPHI’s Transit-Oriented
Development – Guide to Strategic Planning stipulates that
consultation periods may be limited to two weeks, Council’s formal
detailed engagement program extended over a two-month period.
In early October 2024, over 6,000
letters were sent to property owners and occupiers within the HIA and
surrounding areas to inform them of the October 2024 Council Meeting and the
public exhibition of the alternative Masterplan. A dedicated section was created
on the Participate Burwood website, and information was also shared via
Council's e-newsletter.
Following Council’s
resolution to commence the formal public exhibition of the alternative draft
Masterplan, updates were made to the Participate Burwood website, including
copies of exhibition documents, explanatory details, a short explanatory video
and FAQs. The public was notified through Council’s e-news, social media,
signage in public spaces and 12 face-to-face drop-in sessions held at various
locations across Croydon and Burwood.
In addition, engagement efforts
included direct notification letters, door knocks and a specific consultation
session for the Lucas Road HCA as well as direct notification letters and door
knocks for properties impacted by proposed open space. Targeted outreach to
local schools, utility providers, emergency and health services and government
organisations was also undertaken. Door-knock surveys and postcard drops were
carried out at multiple times and locations to ensure broad participation from
residents in the HIA and surrounding areas, particularly those impacted by
proposed density changes.
Engagement Results
Community interaction and
participation levels associated with the engagement program are summarised in
the following table.
Table 2: Interaction during public exhibition of
alternate draft Masterplan
|
Tool/Technique
|
Response
|
|
Participate
Burwood
|
17,376 views since December 2023.
(10,331 views since 23 October 2024, exhibition
commencement)
|
|
3D
animation video
|
888 views on YouTube
|
|
Community
Drop In Sessions
|
524 attendees
|
|
Written
Submissions
|
743 written submissions
|
|
Door
Knock Surveys
|
175 responses
|
During the exhibition period,
Council received 743 individual submissions through emails, letters, and
Council's Participate Burwood online portal. A further 175 provided valid
responses to the snapshot door knock survey. All written submissions, with identifying
details and inappropriate content redacted are included in Attachment 3.
Analysis of the formal
submissions reveals the following:
Table 3: Breakdown of
feedback in response to exhibited alternative draft Masterplan
|
|
Number of submissions
supportive of relevant plan
|
Percentage of submissions
supportive of relevant plan
|
|
Alternative
Masterplan
|
273
|
37%
|
|
TOD
|
173
|
23%
|
|
Hybrid
|
148
|
20%
|
|
Other*
|
149
|
20%
|
* Other denotes feedback in complete objection to the
exhibited alternative draft Masterplan or indicated no clear position for
support or against the proposal.
The key themes raised in these submissions are summarised as
follows:
Table 4: Key themes from
unique submissions expressed as number and percentage of total formal
correspondence
|
Key
themes mentioned in submissions
|
Number
of submissions mentioning theme
|
Percentage
of submissions mentioning theme
|
|
Density
|
650
|
87.5%
|
|
Height
|
619
|
83.3%
|
|
Heritage
|
322
|
43.3%
|
|
Engagement
|
285
|
38.4%
|
|
Transport/Traffic
|
283
|
38.1%
|
|
Open
Space/Infrastructure
|
211
|
28.4%
|
|
Parking
|
86
|
11.6%
|
|
Site
Amalgamation
|
80
|
10.8%
|
|
Privacy
|
28
|
3.8%
|
|
Overshadowing
|
26
|
3.5%
|
A high-level summary of the key
themes arising from formal submissions is as follows:
High-Density Development
A diverse range of views were
provided on density, with many submissions opposed to the extent of density in
the exhibited Masterplan across the HIA, in particular the developments near
Shaftsbury Road and the central 15 storey towers (corner of Cheltenham
Road and Cross Street, and Cheltenham Road and Albert Crescent). Some expressed
that such high densities should be contained to Burwood Town Centre and away
from significant local heritage, while others objected to increased density
altogether. A portion of residents supported greater uplift within the vicinity
of Croydon Station to address housing affordability and provide future
generations with opportunities to remain in the area. Areas to the south of
Croydon Station, such as The Strand, were seen as underutilised and lacking
vibrancy as a town centre. Overall, submissions were largely supportive of some
density uplift, provided it was not excessive, compatible with medium-density
forms, fairly distributed, and focused on higher densities near train stations.
Building Heights
Objections centred on proposed 15
and 30 storey buildings, with concerns about overshadowing, privacy, and
traffic. Many preferred lower buildings (4–6 storeys or up to 10 in
appropriate areas) and equitable height distribution. Gradual height
transitions were suggested to reduce heritage and visual impacts, particularly
near Lucas Road HCA and schools. Supporters argued that taller buildings near
railway corridors would minimise overshadowing of residential areas.
Traffic and Transport
Increased density was linked to
concerns about traffic congestion, especially on Shaftesbury Road and near
schools. Submissions called for comprehensive traffic modelling, road widening,
and improved access during construction. Concentrating development near Croydon
Station was seen as a way to alleviate pressure on Burwood Station. Support for
active transport strategies, such as cycleways and reduced parking provisions,
was also noted.
Parking
Opponents raised concerns about reduced on-street parking due to narrow streets
and increased development. Issues included congestion, restricted emergency
access, and driveway impacts. Supporters advocated for maximum off-street
parking limits and strategies to encourage walking, cycling, and public transport
use.
Heritage Conservation
Submissions supported the
Masterplan’s effort to protect HCAs, particularly south of the railway.
However, concerns were raised about the impact of surrounding density on
heritage areas like Lucas Road HCA. Suggestions included exploring respectful
infill development near Croydon Station and re-evaluating height transitions to
preserve heritage character. The Strand was seen as underutilised and lacking
vibrancy as a town centre with possible inclusion with an appropriate character
response.
Community Engagement
Criticism was directed at the
engagement process, with claims of inadequate transparency and insufficient
consultation time. Some felt the Masterplan favoured certain areas, unfairly
impacting others. Suggestions included better collaboration with neighbouring
councils and more community engagement sessions.
Site Amalgamation
Concerns included forced
acquisitions, property devaluation, and inconsistent streetscapes if some
owners chose not to sell.
Open Space and Infrastructure
Many submissions highlighted
inadequate open space and community facilities to match the proposed density.
Suggestions included larger central parks instead of small pocket parks,
enhanced connectivity to open spaces, and better planning for libraries,
community centres, and cultural amenities.
Affordable Housing
Submissions criticised the 2%
affordable housing target as insufficient. Equitable distribution of affordable
housing ae area, including south of the rail corridor, was recommended to
ensure better access and address housing affordability challenges.
A detailed review of the themes
and a location-based analysis is provided in the Engagement Outcomes Report in
Attachment 2. A copy of all submissions received by Council during the
consultation period is also available under Attachment 3 (with identifying
details and inappropriate content redacted and duplicates removed).
Options
Key themes, concerns and
suggestions raised through public submissions and community engagement have
been considered and tested in further iterations of the exhibited draft
Masterplan. As per Council’s resolution of 26 November 2024, additional
viable options have also been developed for Council’s consideration.
In addition to the original NSW
Government TOD proposal and Council’s exhibited alternative Masterplan,
two (2) additional options have been prepared in response to the community
feedback received.
The Masterplan refinement process
and development of options have been driven by the following feedback
responsive design principles, including:
A: Reduced building heights.
B: Reduced impacts to heritage character and significance.
C: Reconsideration and redistribution of density to minimise impacts to
residential amenity.
D: Higher density within 400–600m of key centres of activity, the railway
corridor and transport hubs.
Further testing has been
undertaken to develop the additional options. In addressing the key issues
raised by the community, the two additional options respond to the following
community feedback:
· Reduced
height and density along Shaftsbury Road.
· Concentrated
height along the railway corridor with gradual height transition to the north.
· Lower
heights at the interface with low density and/or heritage items/conservation
areas.
· Focus
on areas within the 400m catchment of the railway station for additional
height/density, including The Strand.
· Reduced
density at the centre of the HIA, particularly in Boronia Avenue, Webb Street,
Cross Street, and Lucas Road.
· Exclude
Lucas Road HCA from rezoning under the Masterplan.
· Transition
heights gradually from Lucas Road HCA interface to minimise impacts to heritage
significance and built form character.
· Include
PLC site, which is zoned R2 Low Density Residential, as an opportunity for
future growth.
· Density
uplift to include Hampton Court site (10 Webb St) to achieve more evenly
distributed heights across the HIA.
· Remove
requirements for private lots to be dedicated as public domain as part of site
amalgamations.
· Remove
proposed density to the north of Cross Street, between Cheltenham Road and Webb
Street.
· Additional
setback controls combined with landscape buffer at transitional boundaries
between proposed higher density and existing low-density (to incorporate into
DCP).
· Consideration
of compatible uplift in The Strand to benefit from the site’s proximity
to Croydon Station.
The redistributed densities
maintain the vision for a localised planning and design response to Croydon by
further compacting uplift within 400-600m of both Croydon and Burwood stations.
This approach ensures the principles of distinct neighbourhoods located within
proximity to high amenity areas with increased opportunities for walkability
and cycling, and reduced car-dependence are achieved.
An explanation of each option is provided below.
OPTION 1 - ORIGINAL NSW GOVERNMENT TOD PROPOSAL
The first option available to
Council is the adoption of the Original NSW Government TOD proposal. The
Croydon TOD Precinct, identified in the SEPP (Housing) (Figure 1), spans the
Burwood and Inner West LGAs. Confidential dwelling yield requirements have been
assigned to each Council.
Figure 1: Croydon TOD precinct as identified in SEPP
(Housing)
Despite the deferral of the
Croydon TOD precinct until 31 January 2025, the TOD provisions were
incorporated into Chapter 5 of the SEPP (Housing), which was gazetted on
29 April 2024 and took effect on 13 May 2024. These provisions now apply to
other TOD precincts and establish the framework for implementation.
Key provisions include:
· Permissibility –
Allowing residential flat buildings in residential and local centre zones,
along with shop top housing in local centre and commercial zones within identified 400m precinct of TOD stations.
· Building height –Maximum
22m height for residential flat buildings and 24m for shop top housing for
commercial ceiling heights.
· Floor Space Ratio –
Maximum FSR of 2.5:1.
· Lot size and width –
Minimum lot width of 21m and no minimum lot size.
· Street frontages –Clause
encouraging active street frontages of buildings at ground floor.
· Affordable housing –
A 2% mandatory affordable housing contribution (increasing over time),
delivered onsite and in perpetuity for developments with a minimum Gross Floor
Area of 2000 m2. managed by a registered community housing
provider.
· Apartment Design Guide –
under SEPP Housing will apply.
Much of the Burwood LGA south of
the NSW Government TOD proposal lies within two Heritage Conservation Areas
(HCAs): Malvern Hill Estate (circa 1909) and Cintra Estate (circa
1911–1920), which are well-preserved examples of early 20th-century
garden suburb design. These areas have maintained largely unchanged subdivision
patterns and housing since the 1930s. North of Croydon railway station, the
area consists mainly of medium to high-density strata developments and large
school properties. The largest development, completed in the early 2000s,
includes townhouses, apartment towers, and open space. While Croydon Public
School is unlikely to redevelop, sites like Presbyterian Ladies College (PLC)
could offer future housing opportunities.
The implementation of SEPP
(Housing) provisions would override Council’s planning controls,
including those for land use, building heights, floor space ratios, and
protections for Heritage Conservation Areas (HCAs), which are distinct from
Local and State heritage-listed items.
A visual representation of how
Part 5 of the SEPP (Housing) TOD provisions would apply to the Burwood LGA,
projecting an estimated dwelling capacity increase of 3,249 within the Burwood
LGA, is provided in Attachment 1 (with key extracts shown in Figure 2 below).
Figure 2: Structure Plan as exhibited for the
alternative draft Masterplan
For reference, a visual
representation of how Part 5 of the SEPP (Housing) TOD provisions would apply
to the Inner West LGA portion of the NSW TOD precinct is available. This
includes an estimated dwelling capacity increase of 3,717, in addition to the
capacity required for the Burwood LGA. See Figure 3 below.
Figure 3: Inner West Council’s TOD Program
Based on the analysis and the
application of the gazetted TOD provisions, the combined dwelling yield
capacity increase for both the Burwood and Inner West LGAs is approximately 6,966
dwellings.
It should be noted that according
to a report tabled at the Inner West Council (IWC) Meeting of 3 December 2024,
the Minister for Planning and Public Spaces informed IWC in April 2024 that the
TOD Program for the Croydon Station precinct was deferred until January 2025,
similar to Burwood. However, the report indicates that IWC has opted to prepare
a Local Environmental Plan (LEP) for the entire LGA, encompassing precincts
near train stations, light rail stops, and main streets, rather than creating a
Croydon-specific masterplan. As a result, the TOD provisions for the IWC
portion of the Croydon TOD precinct are expected to be activated by the NSW
Government in the near future.
OPTION 2 - COUNCIL EXHIBITED
ALTERNATIVE MASTERPLAN WITHIN HIA
The exhibited alternative
Masterplan in response to the NSW TOD Program proposed 3,651 additional
dwellings within the HIA precinct, aiming to meet the required housing capacity
while achieving "City Excellence" and transit-oriented development
outcomes. The plan was developed through site analysis, visioning sessions and
scenario workshops.
The Masterplan was underpinned by
a vision statement and five priorities to guide the precinct's evolution. These
priorities are outlined as follows:
1. Locate well-designed housing in areas with high amenity
2. Create neighbourhoods that are distinct and contextual
3. Plan for better active transport outcomes to improve
connectivity to surrounding centres
4. Improve access to existing open spaces and provide
opportunities for new ones
5. Create a green and resilient neighbourhood
The vision, priorities, and
principles were translated into five character areas or precincts, along with a
structure plan, reflecting a strategic approach to density, built form,
amenity, liveability, open space, movement, and connectivity across the HIA.
The plan facilitates development uplift on key sites to improve east-west
connectivity and public open space. Higher densities near Croydon Station and
the rail corridor capitalise on the proximity to public transport and local
amenities. The draft Masterplan integrates heritage fabric by retaining
heritage items and incorporating some into larger developments, while
preserving all Heritage Conservation Areas (HCAs).
Please refer to the exhibited alternative
Masterplan and supporting documentation. Figure 4 shows the structure plan for
the alternative draft Masterplan.
Figure 4: Structure Plan
for alternative draft Masterplan
OPTION 3 - ALTERNATIVE MASTERPLAN REDISTRIBUTING DENSITY
WITHIN HIA
This is a refined alternative
redistributing dwelling yields throughout the HIA with reduced heights.
Key adjustments include:
· Concentrate
additional density in areas within a 400-500m catchment of both Burwood and
Croydon stations.
· Areas
within a 400m catchment of both Burwood and Croydon stations have the highest
density.
· The
height across the HIA, with two notable exceptions, is six (6) storeys,
consistent with the TOD requirements.
· The
block bound by Waimea Street/Shaftsbury Road/Albert Crescent and the block
bound by Boundary Street/Young Street/the rail corridor/Webb Street comprises a
maximum height of 10 storeys.
· A
gradual height transition between proposed higher density and existing low
density, with 4 storeys at the interface edge.
· PLC
is included as a large private land holding site that provides an opportunity
for up to 6 storeys with a sensitive approach to its existing built form
values.
· Inclusion
of lower level uplift in The Strand to a maximum 4-storey height limit, subject
to character review in accordance with the October 2024 Council resolution.
· Option
for Council to include the western side of Lucas Road HCA notwithstanding
initial and secondary heritage advice (see Attachment 4).
This design response results in
an estimated increased dwelling capacity of approximately 3,481 (or 3,569 if
the optional areas of the western portion of Lucas Road HCA are included). It
also includes additional dwellings within the HIA, with a maximum FSR of 3.5:1
for a maximum height of 10 storeys, with the majority of additional density
sitting at 6 storeys, and 4-storey transition zones to lower density areas.
This net increase in dwellings is
similar to Council’s exhibited Masterplan of 3,651 but contained within
reduced height and density to address community feedback and concerns. It also
includes capacity from larger privately owned allotments with redevelopment
potential, including the large landholding fronting Boundary and Webb Streets
and the PLC site.
This is the recommended option as
it responds to community feedback and DPHI requirements for an alternative
proposal, thereby reducing the risk of non-acceptance by the NSW Government. The
built form outcome of this response is presented below in Figure 5.
Figure 5: Design
Response Option 3 Structure Plan – redistributed densities
Option 3 also responds to all the
additional Key Design Principles. It includes a significant reduction in
overall height and density within the HIA, with a substantial decrease in
height and density from Shaftesbury Road, reducing potential traffic impacts.
Height is concentrated along the railway corridor, with a gradual reduction
towards the north and east, minimising impacts on residential amenity.
The impact on Boronia Avenue,
Lucas Road HCA, Cheltenham Road, and the majority of Brand Street and Webb
Street is also reduced due to the lower density. The option also enhances the
development potential for Grosvenor Street and aligns with TOD height and
density principles in the majority of the areas.
OPTION 4 - REDUCED-DENSITY MASTERPLAN NEAR CROYDON
STATION, UNMET TARGETS REALLOCATED TO BURWOOD NORTH MASTERPLAN
This is a reduced-density option
near Croydon Station, reallocating unmet targets to Burwood North. This option
largely responds to community feedback regarding reducing density and heights
within the TOD portion, while still allowing for some flexibility by including
dwelling capacity in The Strand, with an emphasis on protecting heritage. This
design option:
· Significantly
limits heights, density, and its application to certain blocks within a
400-500m catchment of both Burwood and Croydon stations.
· Concentrates
density around Croydon Station with minimal encroachment into the Burwood
Station Precinct.
· Limits
additional density around Burwood Station to one block bound by Waimea
Street/Shaftsbury Road/Albert Crescent.
· The
block bound by Boundary Street/Young Street/the rail corridor/Webb Street
comprises a maximum height of 10 storeys.
· The
maximum height for the remainder of the HIA is six (6) storeys, consistent with
TOD principles.
· A
gradual height transition between proposed higher density and existing
low-density areas, with four (4) storeys at the interface boundary.
· Inclusion
of a maximum height of up to four (4) storeys for The Strand, which benefits
from proximity to Croydon Station, with a sensitive approach to the existing
built form value of the precinct.
Option 4 results in an estimated
increased dwelling capacity of approximately 2,433, with a maximum FSR of 3.5:1
and a maximum height of 10 storeys. The majority of additional density sits at
6 storeys and 4 storey transition zones to lower-density areas. This option
aims to minimise the volume of development within the HIA to protect the
existing residential context, while still meeting the NSW Government’s
requirements to deliver appropriately located additional housing. See Figure 6
(below).
Figure 6: Design
Response Option 4 Structure Plan – reduced densities
However, while this option
responds to community feedback, there is a significant risk that it may not be
accepted by the NSW Government. If the option is not approved, the original
Transit-Oriented Development (TOD) proposal for the entire Burwood LGA could
come into effect as initially proposed by the NSW Government.
To mitigate this risk, this
option seeks to redistribute unmet dwelling targets to the Burwood North
Masterplan precinct, which was adopted by Council in May 2024. In that
resolution, Council committed to ongoing review of densities through a
site-specific process.
It is important to note that the
Burwood North Masterplan, as adopted in May 2024, provided an estimated
additional dwelling yield of 7,729. This yield calculation was based on the
division of the Burwood North Masterplan area into specific zones, each with
its own targeted dwelling capacity. See Figure 8 below.
Figure 7: Block Identification for Burwood North
Masterplan (Source: Cox Architect)
An extract of the correlating adopted FSR plan is provided
in Figure 8.
Figure 8: Adopted FSR Plan for Burwood North
Masterplan (Source: Cox Architect)
To redistribute the unmet
dwelling yields from the Croydon TOD Program and meet the overall target, a
simple increase of 0.5:1 Floor Space Ratio (FSR) across each block in the
Masterplan precinct could be implemented. Additionally, increasing the FSR in the
areas C1-C3 and F1-F3 from 3:1 to 4.5:1 would better align the densities with
adjoining and adjacent blocks, facilitating smoother transitions between areas.
An updated FSR map for the
Burwood North Master incorporating the proposed changes is provided in Figure
9.
Figure 9: Proposed amendments to the Adopted FSR Plan
for Burwood North Masterplan (Source: Cox Architect)
This update would result in an
increased estimated additional dwelling yield in the Burwood North Masterplan
of 9,073 dwellings, an increase of 1,344 dwellings. As a result, the combined
estimated dwelling yield for Option 4 would rise to 3,777.
This option responds to all the
additional Key Design Principles and minimises impacts on the existing
residential character and context by proposing a similar density to the
original TOD, with a maximum height of 6 storeys and a FSR of 2.5:1, except for
the block bounded by Boundary Street, Young Street, the rail corridor, and Webb
Street. It limits development within a 400m catchment of both Burwood and
Croydon stations. The option includes The Strand, benefiting from its proximity
to Croydon Station, with a considered and sensitive approach to the
precinct’s existing built form value.
Planning or Policy Implications
Key strategic documents guiding
land use changes within the Burwood LGA include A Metropolis of Three Cities
and the Eastern City District Plan. Locally, the Community Strategic
Plan - Burwood 2036, Burwood Local Strategic Planning
Statement, and Burwood Housing Strategy 2020 inform planning.
Implementation of the TOD
The NSW Government has amended
the SEPP (Housing) to introduce the TOD Program, which would override existing
planning instruments, including the Burwood LEP 2012. If Council endorses the
NSW TOD Program or fails to respond in time, the provisions in Part 5 of SEPP
(Housing) will be enforced. If Council adopts an alternative response, it is
preferred to use a self-repealing SEPP process, enabling the inclusion of the
provisions into Burwood LEP 2012, with site-specific provisions in the Burwood
DCP. The following proposed
amendments to Burwood LEP 2012 have been exhibited:
· Adjusting
height and floor space ratio (FSR) maps.
· Exception
clauses to permit higher-density development in designated areas.
· Extending
design excellence requirements to the Housing Investigation Area (HIA).
· Adding
environmental impacts as criteria for design excellence assessments.
· Allowing
design competitions for certain developments.
· Exempting
upper-level balconies and ground-floor bicycle parking from FSR calculations.
· Site
amalgamation and area requirements - 2% affordable housing, public space and
parking
Implications
of NSW Low and Mid Rise Housing Program on TOD Program (or alternative)
In December 2023, alongside the
TOD program, the Low and Mid-Rise Housing Program was announced. The Low and
Mid-Rise Housing Program reforms increase permissibility of low and mid-rise housing
across Sydney, and include:
1. Low-rise housing - permit multi-dwelling housing
(terraces) and manor houses in low density zones (R2) that are within station
and town centre precincts;
2. Allow dual occupancy development and subdivision of
dual occupancy development in all low density residential zones (R2) in Greater
Sydney (already permitted in Burwood LGA);
3. Mid-rise housing - permit residential flat buildings in
medium density zones (R3) within station and town centre precincts; and
4. Introduce non-refusal standards for the above forms of
development.
A station and town centre
precinct is defined as being within the Six Cities Region and within 800m
walking distance of heavy rail, metro, or light rail stations; land zoned E2
Commercial Centre or SP5 Metropolitan Centre; or land zoned E1 Local Centre or
MU1 Mixed Use, provided the zone includes a variety of frequently needed goods
and services such as supermarkets, shops, and restaurants.
The DPHI's TOD
- Guide to Strategic Planning reforms do not apply within activated TOD
precincts, they are expected to extend beyond the 400m station radius.
The Croydon Housing Investigation
Area (HIA) is primarily zoned R2 Low Density Residential, with some areas zoned
R1 General Residential under the Burwood LEP 2012. Low-rise housing controls
are therefore likely to apply. However, mid-rise housing reforms are not expected
to apply within the Burwood LGA portion of the Croydon HIA, as there is no R3
Medium Density Residential land within 800m of Croydon Station, and The
Strand's commercial zoning is included in the proposed NSW Government TOD
precinct.
See the DPHI statement
of intended effects and factsheet
for further details including building typologies and non-refusal standards.
NSW Housing Targets for
Burwood LGA
The NSW Government recently
released local
housing targets for the period from 1 July 2024 to 30 June 2029.
Burwood’s new target is set at 3,300 new homes to be delivered by 2029.
These targets refer to the actual construction of dwellings by 2029. While the
TOD Program or any alternative planning response could contribute to housing
delivery, its primary aim is to provide future capacity within the planning
framework for housing development.
Financial Implications
The work undertaken by Council in
response to the NSW Government’s TOD Program has been funded by
Council’s City Planning Operational Budget. An application for $600,000
under Stream 1 of the Australian Government’s Housing Support Program was
unsuccessful. Due to the lack of funding from the NSW Government, Council has
redirected funds and resources from other projects to meet the tight timeline.
This may slow progress on initiatives such as the Burwood North Masterplan
implementation. To date expenditure associated with consultants is $298,000 in
addition to staff salaries.
Conclusion
Public exhibition of
Council’s alternative Masterplan to the NSW TOD program was undertaken
from 23 October 2024 to 22 December 2024, and was a crucial step in gathering
community feedback to better align future planning decisions with the needs and
priorities of the Croydon community. The engagement process was extensive and
far exceeded the NSW Government’s 2-week requirement. It also
incorporated both face-to-face and digital methods, resulting in a wide range
of feedback from residents, property owners, and stakeholders. This feedback
has been instrumental in the development of additional options for
Council’s consideration.
In response to community feedback,
Council has refined the Masterplan, developing two additional options. Option 3
(providing a potential net increase of 3,569 dwellings) proposes a
redistribution of dwelling yields with reduced building heights, focusing
density around transport hubs such as Croydon and Burwood stations. It also
ensures gradual height transitions to existing low-density areas. Option 4
(providing a potential combined net increase of 3,777 dwellings), with its
risks, provides a reduced-density alternative, reallocating dwelling targets to
the Burwood
North Masterplan precinct, which was developed in 2024 and offers
additional opportunities for growth outside the Croydon precinct. Both options
aim to achieve a balanced approach to meeting the NSW Government’s
dwelling capacity targets while addressing community concerns regarding
residential amenity, heritage impacts, and traffic.
This report recommends that
Council adopt Option 3 as its final alternative response to the NSW
Government's TOD program. This is due to its closer alignment with the TOD
Program guidelines and proximity to the Croydon Station, thereby reducing the
risk of non-acceptance by the NSW Government.
To facilitate the implementation
of an alternative Masterplan (if resolved to do so), Council proposes a number
of amendments to the Burwood LEP 2012, including changes to height and FSR
maps, the introduction of design excellence criteria, and the creation of
specific development provisions for the Croydon precinct. The proposed
amendments would enable the Masterplan’s provisions to be integrated into
the local planning framework, ensuring that development aligns with both the
strategic vision for Croydon and the broader goals of transit-oriented
development.
Council must finalise its
decision by 31 January 2025, as the NSW Government will proceed with the TOD
Program or an alternative through a State Environmental Planning Policy (SEPP)
from February 2025. The chosen alternative must meet or exceed the housing
targets set by the NSW TOD proposal. The SEPP may override local planning
controls, with further changes potentially introduced without additional
consultation.
Recommendation(s)
1. That
Council adopt Option 3 as an alternate response to the NSW Government Transit
Orientated Development (TOD) program as included under Attachment 1.
2. That
the adopted Option in (1) above include The Strand, Croydon; and
Council’s engaged consultants commence a precinct-specific study for the
area to identify opportunities to preserve and strengthen character DCP
provisions.
3. That
the adopted Option in (1) above exclude any allotments in the Lucas Road
Heritage Area Conservation from inclusion.
4. That
Council endorse the Burwood Local Environment Plan 2012 clause amended as
exhibited.
5. That
the adopted Option in (1) be forwarded to the NSW Department of Planning
Housing and Infrastructure and NSW Minister for Planning and Public Space by 31
January 2025 as Council’s endorsed alternate response to the NSW
Government Transit Orientated Development (TOD) program.
6. That
Council prepare a report on the adopted option outlined in (1) above, which
includes a public domain plan and works schedule, an updated Infrastructure
Contributions Plan, and a Development Control Plan.
7. That
the General Manager be delegated to undertake minor modifications to any
numerical, typographical, interpretation and formatting errors, or amend any
element of the adopted Option in (1) above, in order to address any post
submission concerns or issues raised by the NSW Department of Planning Housing
and Infrastructure and the NSW Minister for Planning and Public Space if
required to enable implementation.
8. That
all persons who made a submission to the draft Masterplan and landowners within
the study area be advised of Council’s decision.
9. That
the Director City Strategy continue discussions with senior officers of the
DPHI to request the acceleration of the Burwood North Masterplan Precinct
implementation via a State Environmental Planning Policy.
10. That the
General Manager provide updates to Council at key interval stages on the
implementation process.
Attachments (See separate Attachments Paper)
1⇨
Dwelling Density Options - Post-Exhibition of Alternative
Croydon TOD Masterplan
2⇨
Engagement Outcomes Report - Post-Exhibition of Alternative
Croydon TOD Masterplan
3⇨
Engagement Outcomes – Redacted Formal Submissions
4⇨
Additional Heritage Review of Lucas Road HCA
