DECISION OF 3# COUNCIL (#) MEETING...DECISION OF 3705th COUNCIL MEETING HELD ON MONDAY 25 JUNE 2018...

DECISION OF 3705th COUNCIL MEETING

HELD ON MONDAY 25 JUNE 2018

194. CiS05: Ward Street Precinct Masterplan - Stage 2

Report of Jennifer Lawley, Senior Strategic Planner

In order to deliver much needed public domain and amenity improvements to the North

Sydney Centre, Council has been undertaking the Ward Street Precinct Masterplan

project. The Masterplan was prompted most significantly by the opportunities

presented in the upcoming release of a large Council landholding and reinforced by the

delivery of Sydney Metro in 2024.

At its meeting of 5 December 2016, Council endorsed the draft Ward Street Precinct

Masterplan for public exhibition. The draft Masterplan was publicly exhibited between

26 January and 10 March 2017, where valuable feedback was obtained from the

community and stakeholders. At the same time, the release and subsequent exhibition

of the Draft North District Plan occurred, containing key objectives for strengthening

the economic and employment role of the North Sydney CBD. In considering these

two important factors, on 1 May 2017 Council endorsed a further process of design

development, referred to as Stage 2.

The highly constrained nature of the North Sydney CBD, combined with the ambitious

jobs targets identified in the North District Plan and the accessibility of Metro

immediately to the north and south of the precinct, provide a unique opportunity for

this precinct to deliver both a significant number of jobs as well as critical public

domain/infrastructure improvements that contribute significantly to the attractiveness,

appeal and general amenity of the North Sydney CBD.

The Stage 2 Masterplan sets out to deliver a more informed, comprehensive and

realisable vision for the precinct. This exploration has ensured that:

the development potential of key sites has been examined;

the masterplan achieves the objectives of the Greater Sydney Commission’s North

District Plan;

the potential for different amalgamation patterns has been considered; and

the relationship to the North Sydney CBD Capacity and Land Use Strategy has

been clarified.

The Stage 2 design process has developed two masterplan options for consideration:

‘Miller St Square’ Option 1; and

‘Central Square’ Option 2.

Both options deliver transformative public domain amenity and significant community

use benefits that, whilst being financially viable, can be staged depending on the market

uptake.

This report seeks Council’s endorsement to proceed with public exhibition of the Stage

2 Masterplan options and associated documentation. It is proposed to undertake the

exhibition in late July 2018. Key stakeholders will be actively consulted and following

consideration of any submissions received, will be reported back to Council for

consideration.

The post exhibition report is likely to consider recommendations in relation to:

finalising a preferred final masterplan and an implementation strategy, in conjunction

with resourcing implications.

Masterplan - Funding for this project has been included in the adopted 2016/2017

budget and a budget has been allocated for this project for 2017/18.

Implementation of a preferred masterplan will require further funding and resourcing

allocations as these are not present in the draft Integrated Planning and Reporting

framework documents. The financial implications of this project are discussed further

at section 8 later in this report.

Recommending:

1. THAT Council resolve to place the material prepared for the Stage 2 Ward Street

Precinct Masterplan Options (Attachment 1) on public exhibition for 42 days.

2. THAT a future report be prepared for Council’s consideration accounting for

submissions made and any resulting amendments to the final selected Masterplan.

3. THAT Council write to all parties who made submissions advising the of the

exhibition of this draft Masterplan. This in addition to Council’s usual notification of

relevant stakeholders.

4. THAT Council offer landowners within the Masterplan precinct, the opportunity to

meet and discuss details associated with the Masterplan.

5. THAT a plain English more concise version of the Masterplan be prepared for the

purposes of public exhibition.

6. THAT in order to maintain high levels of pedestrian amenity and achieve sustainable

mode share in favour of public transport to the North Sydney CBD, that parking rates

for the precinct are foreshadowed at 1 car parking space per 600sqm of gross floor area.

7. THAT Council be aware that the Department of Planning and Environment is

currently considering issuing a Gateway Determination for the Planning Proposal for

41 McLaren Street which was recommended to be exhibited concurrently with the

Ward Street Masterplan by the North District Planning Panel.

A Motion was moved by Councillor Baker and seconded by Councillor Beregi,












6. THAT in order to maintain high levels of pedestrian amenity and achieve sustainable

mode share in favour of public transport to the North Sydney CBD, that parking rates

for the precinct are foreshadowed at 1 car parking space per 600sqm of gross floor area.





An Amendment was moved by Councillor Gibson and seconded by Councillor Mutton,
















The Amendment was put and carried.

Voting was as follows: For/Against 7/2

Councillor Yes No Councillor Yes No

Gibson Y Barbour Y

Beregi N Drummond Y

Keen DoI Gunning Y

Brodie Y Mutton Y

Carr Y Baker N

The Amendment became the Motion and was put and carried.

Voting was as follows: For/Against 7/2

Councillor Yes No Councillor Yes No

Gibson Y Barbour Y

Beregi N Drummond Y

Keen DoI Gunning Y

Brodie Y Mutton Y

Carr Y Baker N

RESOLVED: 1. THAT Council resolve to place the material prepared for the Stage 2 Ward Street















ITEM CiS05 REPORTS 25/06/18

N O R T H S Y D N E Y C O U N C I L R E P O R T S

Report to General Manager

Attachments:

1. Ward Street Precinct Masterplan (Stage 2)

2. Ward Masterplan Transport Strategy June 2018

3. Design Excellence Panel March 2018 comments

4. Design Excellence Panel May 2018 comments

SUBJECT: Ward Street Precinct Masterplan - Stage 2

AUTHOR: Jennifer Lawley, Senior Strategic Planner

ENDORSED BY: Joseph Hill, Director City Strategy

EXECUTIVE SUMMARY:

In order to deliver much needed public domain and amenity improvements to the North Sydney

Centre, Council has been undertaking the Ward Street Precinct Masterplan project. The

Masterplan was prompted most significantly by the opportunities presented in the upcoming

release of a large Council landholding and reinforced by the delivery of Sydney Metro in 2024.

At its meeting of 5 December 2016, Council endorsed the draft Ward Street Precinct Masterplan

for public exhibition. The draft Masterplan was publicly exhibited between 26 January and

10 March 2017, where valuable feedback was obtained from the community and stakeholders.

At the same time, the release and subsequent exhibition of the Draft North District Plan

occurred, containing key objectives for strengthening the economic and employment role of the

North Sydney CBD. In considering these two important factors, on 1 May 2017 Council

endorsed a further process of design development, referred to as Stage 2.

The highly constrained nature of the North Sydney CBD, combined with the ambitious jobs

targets identified in the North District Plan and the accessibility of Metro immediately to the

north and south of the precinct, provide a unique opportunity for this precinct to deliver both a

significant number of jobs as well as critical public domain/infrastructure improvements that

contribute significantly to the attractiveness, appeal and general amenity of the North Sydney

CBD.

The Stage 2 Masterplan sets out to deliver a more informed, comprehensive and realisable

vision for the precinct. This exploration has ensured that:

the development potential of key sites has been examined;

the masterplan achieves the objectives of the Greater Sydney Commission’s North District

Plan;

the potential for different amalgamation patterns has been considered; and

the relationship to the North Sydney CBD Capacity and Land Use Strategy has been

clarified.


Re: Ward Street Masterplan - Stage 2

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The Stage 2 design process has developed two masterplan options for consideration:

‘Miller St Square’ Option 1; and

‘Central Square’ Option 2.

Both options deliver transformative public domain amenity and significant community use

benefits that, whilst being financially viable, can be staged depending on the market uptake.

This report seeks Council’s endorsement to proceed with public exhibition of the Stage 2

Masterplan options and associated documentation. It is proposed to undertake the exhibition in

late July 2018. Key stakeholders will be actively consulted and following consideration of any

submissions received, will be reported back to Council for consideration.

The post exhibition report is likely to consider recommendations in relation to: finalising a

preferred final masterplan and an implementation strategy, in conjunction with resourcing

implications.

FINANCIAL IMPLICATIONS:

Masterplan - Funding for this project has been included in the adopted 2016/2017 budget and a

budget has been allocated for this project for 2017/18.

Implementation of a preferred masterplan will require further funding and resourcing

allocations as these are not present in the draft Integrated Planning and Reporting framework

documents. The financial implications of this project are discussed further at section 8 later in

this report.

RECOMMENDATION:

1. THAT Council resolve to place the material prepared for the Stage 2 Ward Street Precinct

Masterplan Options (Attachment 1) on public exhibition for 42 days.

2. THAT a future report be prepared for Council’s consideration accounting for submissions

made and any resulting amendments to the final selected Masterplan.

3. THAT Council write to all parties who made submissions advising the of the exhibition of

this draft Masterplan. This in addition to Council’s usual notification of relevant stakeholders.

4. THAT Council offer landowners within the Masterplan precinct, the opportunity to meet and

discuss details associated with the Masterplan.

5. THAT a plain English more concise version of the Masterplan be prepared for the purposes

of public exhibition.

6. THAT in order to maintain high levels of pedestrian amenity and achieve sustainable mode

share in favour of public transport to the North Sydney CBD, that parking rates for the precinct

are foreshadowed at 1 car parking space per 600sqm of gross floor area.

7. THAT Council be aware that the Department of Planning and Environment is currently

considering issuing a Gateway Determination for the Planning Proposal for 41 McLaren Street

which was recommended to be exhibited concurrently with the Ward Street Masterplan by the

North District Planning Panel.



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LINK TO COMMUNITY STRATEGIC PLAN

The relationship with the Community Strategic Plan is as follows:

Direction: 1. Our Living Environment

Outcome: 1.5 Public open space, recreation facilities and services that meet community

needs

Direction: 2. Our Built Environment

Outcome: 2.1 Infrastructure, assets and facilities that meet community needs

2.2 Improved mix of land use and quality development through design

excellence

Direction: 3. Our Economic Vitality

Outcome: 3.1 Diverse, strong, sustainable and vibrant local economy

3.2 North Sydney CBD is one of Australia's largest commercial centres

Direction: 4. Our Social Vitality

Outcome: 4.3 Enhanced arts and cultural programs and facilities

4.8 Enhanced community facilities, information and services

Direction: 5. Our Civic Leadership

Outcome: 5.2 Council is financially sustainable

BACKGROUND

Stage 1 of the Ward Street Precinct Masterplan was undertaken throughout 2016. A draft

Masterplan was exhibited between January and March 2017. Following the exhibition at its

meeting on 1 May 2017, Council resolved to further refine the draft Ward Street Precinct

Masterplan as follows:

1. THAT Council note the issues raised by the community as part of the exhibition of the draft

Ward Street Precinct Masterplan.

2. THAT Council resolve to take steps toward the finalisation of the draft Masterplan through

further specialist input and design development that responds to community, industry and

landowner feedback, according to the following:

The content and strategic direction identified in the draft North District Plan inform the

refinement of the Masterplan.

The scope of opportunity sites be expanded to ensure opportunities are investigated on all

sites within the Precinct.

The scope of design investigation include the potential for a greater variety of site

amalgamation options for opportunity sites.

The relationship of the Ward Street Masterplan and the Capacity and Land Use Study be

clarified, with the development potential of all sites within the Masterplan area identified.



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The East Walker Street opportunity site be detached from the Ward Street Precinct

Masterplan project and separately pursued by Council staff.

The boundary of the North Sydney Centre, as defined in NSLEP 2013, be reviewed for

potential expansion to the east.

3. THAT a final draft Masterplan be prepared and reported to Council for the purposes of

exhibition.

In response to the above resolution, Council’s City Strategy Division undertook an open tender

process calling for a suitable design and financial consultant team to contribute to further

refining the Stage 1 work completed. Hassell was the successful tenderer with Stage 2

Masterplan project works having commenced February 2018.

The Ward Street Precinct forms the northern end of North Sydney Centre. The precinct supports

a mix of privately owned commercial, mixed use and residential development. It also contains

the Ward and Harnett Street car parks, which are in Council ownership.

The overall Masterplan project is intended to allow Council to appropriately plan for a precinct

that is undergoing significant and transformational changes, including:

• Return of a major Council asset: There is a need to plan for the long-term future of

the Council-owned Ward and Harnett Street car parks. The Ward Street car park will

return to Council control in 2020.

• New transport infrastructure: The proposed Victoria Cross Metro Station will

provide faster and more frequent services to the city and major business centres of

Sydney’s northwest, Macquarie Park and Barangaroo. The station is to be located just

outside the Ward Street precinct and is due to open in 2024 with access portals to the

north and south of the precinct.

• Strong private development interest: Private development interest from within the

precinct continues to be strong, with a number of possible ‘opportunity sites’ for

redevelopment.

• Decommissioned substation (70-74 Berry Street): Ausgrid has advised the

decommissioned portion of the substation fronting Berry Street is surplus to its needs.

As such, there is the potential for the site to be offered to the market for sale.

In the Conditions of Consent for the Substation Redevelopment at 3-11 Ward St

(MP10_0092) there is a requirement for the proponent, in consultation with Council, to

prepare a study identifying future landuse options for the approval of the Director-

General. The study shall specifically consider options for parts or the whole of the site

to be made available for public use (including options for landscaping). It is not

considered that this masterplan constitutes compliance with this consent condition and

that the proponent would still need to demonstrate compliance in this regard.

• Objectives for the public domain and through-site links: In some instances,

development approvals are restricting the opportunity to cohesively address Council’s

public domain and pedestrian permeability objectives within the precinct. A Masterplan

provides an opportunity to more effectively plan for a meaningful public domain with

plaza(s) and linkages.



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The combination of these significant factors in and around the Ward Street Precinct provide a

unique catalyst for positive change. The Masterplan will be used to inform any future

consideration of the planning controls in the precinct to implement this change.

CONSULTATION REQUIREMENTS

Community Engagement will be undertaken in accordance with Council’s Community

Engagement Protocol.

It should be noted that an internal project team has been involved in the identification of

community needs, opportunities and constraints from an early stage. The draft Stage 2

Masterplan has been reviewed by the project team for the purpose of public exhibition.

The usual consultation protocols will be observed in terms of advising all landowners within

the precinct as well as nearby and adjacent owners and occupiers, Precinct Committees as well

as other relevant stakeholders. Council will also offer landowners within the Masterplan

precinct, the opportunity to meet and discuss details associated with the Masterplan throughout

the exhibition process. It is recognised that there will be signification levels of interest in this

exhibition and therefore will need to be appropriately resourced and accessible to stakeholders.

Advice has also been obtained from Council’s Design Excellence Panel regarding the design

attributes of the Stage 2 Masterplan. This advice is elaborated upon within the body of this

report.

SUSTAINABILITY STATEMENT

The following table provides a summary of the key sustainability implications:

QBL Pillar Implications

Environment The environmental implications of the proposed project are as follows:

Masterplanning of the precinct will result in improved urban outcomes,

particularly within the public realm, and make the North Sydney Centre

more walkable, accessible and attractive.

Social The social implications of the proposed project are as follows:

Improved street level amenity will make pedestrian journeys more

enjoyable.

Improved linkages between origins and destinations (train station, open

space, civic precinct and future metro station).

Making areas of high amenity more accessible for residents/workers.

New civic and/or open space in areas of high demand to operate as

informal community meeting places.

The redevelopment of Council land provides opportunities for significant

public and social benefit, including a new branch library, multi-use

community hub and public square for gathering and hosting events.



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QBL Pillar Implications

Economic The economic implications of the proposed project are as follows:

Improved amenity within the North Sydney Centre will attract investment

and improve the status of the commercial centre.

Redevelopment of Council assets has the potential to significantly

contribute to Council’s continued financial sustainability.

Governance The governance implications of the proposed project are as follows:

Project aims to implement action 2.1.2.1.5 of the North Sydney Council

Delivery Program 2013/14-2016/17.

The masterplan represents a step in the prudent management of Council

assets.

In a broad sense, Council acting as both a regulator and landowner will

require a continued high level of transparency and openness.

DETAIL

1. Vision, Project Objectives and Principles

A guiding objective of the North Sydney Community Strategic Plan is to strengthen the North

Sydney Centre’s role as a key component in Sydney’s global economic arc and the principle

economic engine of Sydney’s North Shore. Council therefore recognises that the Ward Street

masterplan is a key document in continuing the transformation of the North Sydney Centre into

a vibrant and engaging CBD for residents, workers, businesses and visitors.

The following objectives and principles have informed the Stage 2 Masterplan preparation and

will continue to govern the project direction as it evolves.

1.1 Objectives

a) Building on the outcomes of the North Sydney Centre review and applying a

precinct scale methodology.

b) Assisting property owners and Council by providing clarity on the future strategic

growth of the precinct.

c) Providing a bold and vibrant public domain and built form response to the proposed

Victoria Cross Metro Station.

d) Ensuring a built form response that effectively balances growth within the Centre

and amenity to surrounding properties.

e) Improving the public domain across the precinct by identifying the precinct as a

destination, via high quality new and embellished public spaces, that prioritise

pedestrians.

f) Encouraging public and private development outcomes that activate the precinct,

stimulating North Sydney Centre as a destination.

g) Ensuring that significant public benefit is achieved as a result of development that

is seeking to amend the planning controls.

h) Identifying opportunities for the Council-owned Ward and Harnett Street car parks.

i) Ensuring that community benefit is a key project driver.

j) Ensuring that a financial return to Council is a key project driver.



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1.2 Principles

P1 Advocate design excellence, best practice and sustainability in both the built form

and public domain.

P2 Capitalise on placemaking and land use opportunities associated with the proposed


P3 Facilitate safe, attractive and high quality public and community spaces to best

practice standards.

P4 Require universal access principles govern all new public and community spaces.

P5 Ensure transparency where the leveraging of public benefits is pursued in exchange

for additional development potential.

P6 Prioritising pedestrian amenity.

P7 Advocate for a mix of uses to revitalise the precinct, with a focus on employment

generation, community spaces and the 18-hour economy.

P8 Acknowledge that commercial amenity and viability of the North Sydney Centre is

critical to future investment and prosperity.

P9 Ensure that total parking provision, including public and private parking assets,

delivers no net increase in traffic generated with the Ward Street Precinct and responds

to the Victoria Cross Metro Station.

2. Stage 1 Masterplan Outcomes

The Stage 1 draft Masterplan was placed on public exhibition between 26 January and 10 March

2017. A total of 30 submissions was received, raising a variety of issues. More than half of

these complimented Council on its initiative and supported the significant contribution the

project is seeking to make to the public domain. The variety of issues raised generally fell into

the following categories, and are explored further in the report:

• Residential amenity impacts including solar access, views, wind and acoustic privacy

• East Walker Street opportunity site concerns

• Traffic and parking

• Scale and density of building envelopes

• Heritage concerns

• Public space amenity impacts

• Security and antisocial behaviour

• Rationale behind selection of opportunity sites

• Financial feasibility

• Commercial amenity impacts

• Interaction with the Capacity and Land Use study

• Concerns with existing controls of North Sydney Local Environmental Plan 2013.

3. Strategic and Policy Context

3.1 A Metropolis of Three Cities

The final regional strategic plan for Sydney, A Metropolis of Three Cities, was released in

March 2018 and replaced the previous draft plan, A Plan for Growing Sydney. The final

regional plan identifies North Sydney as part of “Global Sydney”. This plan outlines that there



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will be 817,000 new jobs created by 2036 in Sydney and that there will need to be an additional

725,000 new dwellings created by that year.

Specifically, a strong theme of the Plan is to align growth with infrastructure investment.

3.2 North District Plan

The North District Plan developed by the Great Sydney Commission is intended to provide the

level of regional strategic planning that links A Metropolis of Three Cities and local planning

at the local council level. The role of the District Plan it to guide land use, transport and

infrastructure planning at the local level.

The Plan identifies that the Greater Sydney Commission will work with Council to:

a) maximise the land use opportunities provided by the new station

b) grow jobs in the centre and maintain a commercial core

c) strengthen North Sydney’s reputation as an education centre, to grow jobs and add

diversity

d) expand after hours’ activities

e) encourage growth in business tourism as a conference location that takes advantage of

North Sydney’s identity as a business hub, its location, access and views

f) provide a variety of high quality civic and public spaces befitting a globally-oriented

CBD, which can be utilised for a range of cultural and entertainment activities

g) improve amenity by reducing the impact of vehicle movements on pedestrians

h) create capacity to achieve job targets by reviewing the current planning controls.

The job target identified in this Plan to 2036 for the North Sydney CBD is 15,600–21,100

additional jobs. The Stage 2 Ward Street Precinct Masterplan is consistent with the above

objectives of the North District Plan and sets out to achieve between 2,800 and 5,800 additional

jobs for the precinct.

3.3 North Sydney Community Strategic Plan 2013-2023

The North Sydney Community Strategic Plan (CSP) identifies the community's main priorities

and aspirations for its future and sets out strategies for achieving these outcomes. The “key

directions” identified in this plan are “Our Living Environment”, “Our Built Environment”,

“Our Economic Vitality” and “Our Civic Leadership”. The CSP outlines various outcome

statements and strategies on how to achieve these. The Plan contains general guiding directions

on improved and enhanced infrastructure, assets and facilities, sustainability in transport, strong

and sustainable local economies and supporting active and healthy communities.

The Community Strategic Plan 2013-2023 has consistently emphasised the importance of North

Sydney Centre as a destination for commercial and economic activity. If properly planned for,

the combined result could contribute to a North Sydney Centre that is far more active through

a connected, safe and high amenity public domain.

The draft Community Strategic Plan 2018-2028 reinforces the role of the North Sydney CBD

focussing on the centre’s economic performance as well as strengthening its identity amenity

and vibrance.



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The Ward Street Precinct Stage 2 Masterplan is consistent with, and seeks to facilitate many of

the objectives of the Community Strategic Plan.

3.4 Land Use and Capacity Strategy (2017)

The Capacity and Land Use Strategy sought, amongst other things, to identify sites within the

North Sydney Centre that can accommodate uplift by applying solar access criteria, in order to

ascertain development potential. The Study makes specific reference to the Ward Street

Precinct, noting that it is subject to further investigation under the current Masterplan process.

Both Stage 1 and Stage 2 Ward Street Masterplans applied a detailed design testing

methodology, looking at the individual impacts of each site to ascertain development potential.

New modelling was undertaken as part of Stage 2, to test and analyse different options and

iterations of built form and public domain outcomes. Stage 2 will therefore function as an

additional layer of detail, for landowners within this Precinct seeking clarification of Council’s

vision.

Furthermore, the Land Use and Capacity Strategy identified specific land use considerations

for the CBD and Ward St Precinct. These have been analysed and suitable land uses have been

identified for application in the Ward St Precinct. This is further discussed under section 4.5

Community Infrastructure later in this report.

4. Stage 2 Detail

4.1 The Precinct

The Ward Street precinct forms a large component of the northern end of the North Sydney

Centre. The 3.2 hectare area comprises the block bounded by McLaren Street, Berry Street,

Miller Street and Walker Street. The precinct supports a mix of privately owned commercial,

mixed use and residential development. Existing buildings vary between 10-20 storeys in

height.

The area also contains a number of public and semi-publicly owned assets. The Ward and

Harnett Street car parks are owned by Council. A decommissioned electricity substation

fronting Berry Street (70-74 Berry St) is owned by Ausgrid.

As identified in the Interim Submissions Report to Council (dated 1 May 2017), the East Walker

St opportunity site was excised from the Ward Street Precinct Masterplan project and will be

separately pursued.



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Figure 1. Stage 2 Ward Street Precinct

4.2 Masterplan Development

The exploration and studies of the precinct have resulted in the development of two distinct

Masterplan options. The most central driver of each option is the location of a new and

significant public domain offering. Option 1 (herein referred to as the “Miller Street Square

Option”) contains a new Miller Street square (1,280 sqm) which would be directly accessible

from Miller Street and in turn influences the design and scale of other buildings and spaces

within the precinct. Option 2 (herein referred to as the “Central Square Option”) identifies a

more central plaza type space of a similar scale (1,200sqm) accessible via Ward Street. This

similarly influences the scale of buildings to its north.

Both Masterplan options offer a different experience of the precinct and have been designed to

take into account the different site features created by each Masterplan. The southern end of the

precinct does not change in either Masterplan option, however, key northern sites 41 McLaren

and 45 McLaren St have development potential only under the Miller Street Square Masterplan

Option given their impact on solar and visual amenity to the precinct. All other sites retain a

largely similar planning outcome in both Masterplan options.



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4.3 Masterplan Option 01 - ‘Miller St Square’:

The Miller Street Square option presents a place-making opportunity for Miller Street further

enhancing it as the ‘main street’ of North Sydney. The new open space proposed will have great

natural amenity and will have good solar access from lunch time into the late afternoon

throughout the year. A modern branch library in the podium of the new development at 213-

215 Miller Street, proposed to be setback onto existing council land, further activates the space

and will provide the public ‘bridge’ from the Miller St Square to the ‘cultural hub’ precinct

behind the set-back tower.

As the central square is smaller in this masterplan, solar studies completed by our consultants

showed the addition of a slim tower positioned over the south-east corner of the existing

heritage-listed building at 41 McLaren Street would not create unacceptable additional shadow

on the square during the key winter months. However, the tower would need to be restricted to

the narrow envelope detailed to ensure the square and overall precinct amenity would not be

heavily compromised by this development. The tower would also need to meet Apartment

Design Guidelines (ADG) setback requirements for surrounding residential development, and

this has been taken into account with the masterplan documentation.

Similar findings were evident for 45 McLaren Street, however, the site’s impact is more heavily

felt in the morning period and impacts on its southern neighbours to the east of the public

square.

Figure 2. Miller Street Square Masterplan Option 01

Key features:

• Creation of a Miller Street Square with dimensions of approximately 40 metres by 32

metres with a total of approximately 1,280sqm on the existing 213-219 Miller Street

site.



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• Creation of a central square ‘Ward Street Square’ with dimensions of approximately 23

metres by 23 metres with a total of approximately 530sqm positioned on the northern

end of the Ward Street carpark connecting to the Harnett Street Carpark site.

• Pedestrian links to both squares from multiple points on the north, south, east and west

linking the squares into the wider pedestrian network.

• Pedestrianisation and conversion of Ward Street to the new ‘Eat Streets’ laneway.

• Accessible rooftop on the cultural hub with approximately 810sqm of space.

• Significant landscape upgrade of the Miller Street setback area, north of Berry Street

and south of McLaren Street, facilitating green space and sitting areas within the

existing public domain and providing up to 1,400sqm of space.

• Creation of Berry Street Square North with dimensions of approximately 58 metres by

18 metres with a total of approximately 1,044sqm in conjunction with the downgrading

of Berry St/introduction of pedestrian crossing to facilitate way finding and access from

Metro to Ward St Precinct (as supported in the Traffic and Pedestrian Study 2014 and

subject to future negotiation with TfNSW and RMS).

4.4 Masterplan Option 2 - ‘Central Square’:

Central Square offers a civic precinct that allows both a modern-branch library and cultural hub

to face into a large civic square that will be highly activated by these two buildings and

surrounding ‘Eat Streets’ laneway precinct. For majority of the year sunlight will reach the

square from late morning through to lunch and which could transform in the afternoons/evening

to a ‘mid-town entertainment precinct’ with the branch library, cultural hub and eat streets

offering reinforced activation allowing the precinct to become a destination.

For this square to be successful, it has been tested and demonstrated by our consultants that a

large high-rise development over 41 McLaren Street (PP4/17) would impact on the amenity of

the square by blocking sunlight in the morning to early lunch period and block sky views and

essentially bear down over the site dramatically. This proposal has been the subject of much

reporting and is discussed in more detail in section 5.11(a) of this report.

There is also future potential for a Metro portal to potentially be negotiated adjacent to the

square, further activating the square. Such a connection would truly capitalise on the Metro

investment in regards to maximising the attractiveness of North Sydney.



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Figure 3. Central Square Masterplan Option 02

Key Features:

• Creation of a central events square ‘Ward Street Square’ with dimensions of

approximately 35 metres by 35 metres with a total area of approximately 1,200sqm.

• Pedestrian links to the square from multiple points on the north, south, east and west

approaches to link the square into the wider pedestrian network.

• Pedestrianisation and conversion of Ward Street to the new ‘Eat Streets’ laneway.

• Accessible rooftop on the cultural hub and branch library with a combined area of

approximately 1,310sqm of space.

• Significant landscape upgrade of the Miller Street setback area, north of Berry Street

and south of McLaren Street, facilitating green space and sitting areas within the

existing public domain and providing up to 1,400sqm of space.

• Creation of Berry Street Square North with dimensions of approximately 58 metres by

18 metres with a total of approximately 1,044sqm in conjunction with the downgrading

of Berry St/introduction of pedestrian crossing to facilitate way finding and access from

Metro to Ward St Precinct (as supported in the Traffic and Pedestrian Study 2014 and

subject to future negotiation with TfNSW and RMS).

4.5 Community Infrastructure Plan

Early in the Stage 1 project, a needs analysis was undertaken to identify Council’s adopted

community infrastructure priorities. The analysis revealed a wide range of priorities and

desirable uses specifically for the future investigation of the Ward and Harnett Street Car Park

site. These priorities were rationalised to the following:



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Provide for public benefit

Ensure sound financial outcomes for the community

Unlock development opportunities for the car park site

Promote employment growth

Integrate redevelopment with new transport infrastructure

Improve pedestrian movement and amenity

Provide new public open space

Provide an active recreation facility

Provide affordable housing

Ensure an appropriate mix of land uses that considers surrounding residential amenity.

In creating this list of preferences, it is acknowledged that the Ward Street car park site is finite,

with several constraints impacting its full potential. Being the largest and most under-utilised

asset in Council’s portfolio, it is incumbent on Council as a responsible manager of its assets to

realise a tangible community return on this parcel of land.

The full extent of these priorities cannot be delivered simultaneously by this asset alone. The

site has been examined and through internal consultation the following uses were identified to

best capitalise on the site’s strengths while facilitating the objectives and principles of the

overall project:

• Modern CBD Branch Library

• Gallery/performance multi-use space within a centralised ‘Cultural Hub’

• Conference facilities/hotel

• Mid-town ‘Eat Streets’ dining/bar precinct

CBD Branch library

The Stanton Library Masterplan (endorsed by council on 21 March 2016) highlighted the

requirement for a CBD Branch library that will meet the needs of the growing North Sydney

work-force. The Community and Library Services department have advised a modern branch

library of approximately 1,000sqm would be a suitable size to meet the requirements as per the

State Library of NSW ‘Small Library Project’ Guidelines.

Cultural Hub

Gallery and performance spaces were identified as a priority requirement for the CBD and

surrounding areas in the ‘Cultural and Strategic Plan’ 2015-17. A purpose-built facility

contained in the ‘heart of the precinct’ will create a cultural destination and will be supported

and mutually reinforced by the branch library and newly formed ‘Eats Street’ thus providing a

multi-faceted destination experience.

Conference facilities/hotel

As identified in the North Sydney Centre Capacity and Land Use Strategy, as well as in the

North District Plan, conference facilities are considered a missing element to a diverse and

vibrant North Sydney. Likewise, hotels have been identified in the same study as a desirable

use that will become more essential as the CBD continues to develop and grow. The tower

proposed over 41 McLaren Street, as demonstrated in the Miller Street Square Masterplan



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Option presents an appropriate opportunity to pursue this, subject to Miller Street Square

proceeding to ensure public amenity requirements are being met for the precinct.

Mid-town dining/bar precinct

A focus on delivering a modern, activated streetscape with restaurants/cafes/bars highly

proliferated around the podiums has resulted in the provision of a main ‘Eat Streets’ laneway

along the existing Ward Street into the heart of the Ward Street precinct. This new dining

district will help foster the development of the 18-hour economy within the city centre and

assist with activating the night-time economy.

Furthermore, the expansion of the proposed laneways precinct at 1 Denison Street into Ward

Street will reinforce and assist the centre’s ability to develop a rich and varied night-time

economy with many varied destinations all within walking distance of the new metro.

The following diagrams (Figures 4 and 5) illustrate these aspects of each option.



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Figure 4. Miller Street Square Masterplan Option 01: Community spaces identified



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Figure 5. Central Square Masterplan Option 02: Community spaces identified

4.6 Built Form Masterplan



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Figure 6. Miller Street Square

Masterplan Option 01: Built Form

Envelope as viewed from the north

west and in plan

Common elements to Options 1

and 2:



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SITE A (not shown on Figure 6) - Commercial building at 50 Berry Street. This site

was investigated for development potential and existing LEP controls were found to be

appropriate for the site constraints. Therefore, this site has been removed from Section

7 – Site Amalgamations and Test Fits of the attached masterplan.

SITE B - A commercial building at an amalgamated 201 Miller Street, 56 and 66 Berry

Street and southern end of 22 Ward Street. The envelope is of podium and stepped tower

form, supporting up to a maximum of 96,424sqm of gross floor area (subject to market

review) and with heights ranging from RL 80 (podium matching Historical ‘Rag &

Famish’ RL height benchmark) to RL 230 with a possibility of consideration of RL 285

if various matters are addressed including site amalgamation, provision of local public

benefit consistent with the Masterplan and design excellence. A variety of potential uses

can be supported, including a hotel and conference facility along with the proposed ‘Eat

Streets’ Precinct along the ground plane.

SITE D - A civic ‘Cultural Hub’ building on the Harnett Street Council carpark site,

supporting a variety of exhibition, performance space and retail uses. The envelope has

a maximum height of RL 85 supporting up to 3,740sqm of gross floor area.

SITE G - A commercial building at an amalgamated 70 - 76 Berry Street, in a stepped,

raked building envelope supporting up to a maximum of 66,326sqm of gross floor area

(subject to market review) and with heights ranging from a podium height of RL 80 to

a maximum height of RL 209. A variety of potential uses can be supported in

conjunction with the commercial office space, including a hotel and conference facility

along with retail on the ground plane.

Features - Masterplan 01 ‘Miller St Square’:

SITE C - A commercial building setback from 213-219 Miller Street onto the north

end of the Ward Street carpark site with a mixed-use podium that will connect Miller

Street Square to the Central Square behind. It will contain the CBD branch library and

retail on the ground plane. The envelope is of podium and tower form, supporting up to

38,087sqm of gross floor area and with height up to RL 80 (podium) and RL 190

(tower).

SITE E - A mixed-use building at 41 McLaren Street, supporting street level

retail/commercial uses with hotel above, in a narrow form, supporting up to 32,935 sqm

of gross floor area, with a tower up to 30 storeys with a maximum height of up to RL

160.

SITE F - A residential building at 45 McLaren Street in stepped form with podium,

supporting up to 16,750 sqm of gross floor area and tower up to 25 storeys with a

maximum height of up to RL 144.



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Figure 7. Central Square Masterplan

Option: Built Form as viewed from the north

west and in plan view



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Features - Central Square Masterplan Option:

SITE C1.1 - A commercial building fronting 213-219 Miller Street with a mixed-use

podium with retail on the ground plane. The envelope is of podium and tower form,

supporting up to 17,600sqm of gross floor area, 18 level tower and with height up to RL

100 (podium) and RL 170 (tower).

SITE C1.2 - A civic building containing the CBD Branch Library that is approximately

1,500sqm (includes rooftop) of gross floor area with a height up to RL 100.

SITE E - Existing heritage building at 41 McLaren Street to remain with existing LEP

height control to protect solar access and amenity to ‘Central Square’ public square.

Investigations indicated it would be economically unfeasible to pursue Stage 1 envelope

– refer to pages 35-36 of this report for more information.

SITE F - A residential building at 45 McLaren Street to remain with existing LEP

height control to protect solar access and amenity to ‘Central Square’ public square.

Investigations indicated it would be economically unfeasible to pursue Stage 1 envelope

– refer to pages 36-37 of this report for more information.

4.7 Masterplan Components Comparison

A detailed summary of the Masterplan components can be seen in the Masterplan attached. The

below table summarises the Masterplan key deliverables:

Component Existing

(precinct-wide)

Masterplan 1 addition

(precinct-wide)

Masterplan 2 addition

(precinct-wide)

Public open space 20sqm (approx) 5,337sqm 4,742sqm

Indoor community use

space None 4,750sqm 4,750sqm

Commercial/

employment floor

space supply

75,000sqm

(approx.)

166,000 - 185,058sqm

of additional space.

155,650 - 174,790sqm

of additional space.

Residential supply 1,115 dwellings 308 additional hotel

rooms Nil

Maximum height of

buildings in the

precinct

RL 160 (213-

219 Miller St)

RL 230-285

(201 Miller St, 56 & 66

Berry Street & portion

of 22 Ward St)

RL 230-285

(201 Miller St, 56 & 66

Berry Street & portion

of 22 Ward St)

5. Planning Appraisal

The Masterplan options are underpinned and supported by the new Victoria Cross Metro

Station, to be located in very close proximity to the precinct. The station will have a

transformative effect on this part of the Centre. Regardless of the station, this is a dense part of

the North Sydney Centre that has potential to accommodate a number of outstanding

community and commercial needs.



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As a result of increased development in the precinct, environmental impacts to varying degrees

are anticipated. Those impacts occurring as a result of the Masterplan have been explored

through the design development process in both stages. Given Ward Street precinct’s central

location within a major and growing CBD and close proximity to significant transport

infrastructure, these impacts are considered reasonable in this context.

5.1 Stage 2 Masterplan approach and public benefit

The Stage 2 Masterplan has been created to ensure the future growth potential of the precinct

has been allowed for within the context of a major growth period for the CBD and delivery of

a Metro Station whilst also addressing some of the overall CBD shortfalls with a strong focus

on delivering an 18-hour economy offering.

The proposed plan is the sum of public domain and built form components, supported by

economic feasibility. This seeks to achieve a balanced outcome in accordance with the project

objectives and principles.

The public domain outcomes for both Masterplan Options include:

New public squares with combined areas of 1,810sqm (Miller Street Square Option 01)

and 1,200sqm (Central Square Option 02) respectively.

Pedestrian permeability, new laneways and miscellaneous public domain upgrades

throughout the precinct.

Internal community spaces amounting to 4,740sqm of gross floor area in both

masterplan options.

Facilitating this public benefit is a built form envelope proposal that seeks to guide development

within the precinct. The built form envelope uses the potential for uplift to incentivise

development that:

Cohesively delivers the various public domain upgrades envisaged.

Contributes to the desired range of land uses within the precinct.

Responds to the need for additional density in the precinct that accompanies the new

Victoria Cross metro station nearby.

Is sensitive to surrounding development and represents only acceptable environmental

impacts, such as solar amenity.

The public domain and built form components are then embellished in an effort to provide

cohesion through the critical activation, necessary for a successful public spaces:

A focus on delivering a modern activated ground-plan with restaurants/cafes/bars highly

proliferated around all edges to provide the required dining/entertainment requirements

Retail components, with both permanent and temporary opportunities provided to

ensure public spaces are active, versatile and provide reason for people to gather in the

new square and its ancillary spaces.

An appropriate amount of parking is indicated, shown below the square to allow

servicing vehicle critical journeys and to facilitate the mixed uses above.

Public parking accommodated within the current car park on the site is largely removed

to reinforce the pedestrian nature of the new spaces to be created. This is discussed

further in sections below.



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The Stage 2 Masterplan Options have sought to provide uplift to a number of sites that reflect

a reasonable expectation of any growing commercial / mixed use precinct that is within 50

metres from the proposed Victoria Cross Metro Station within a CBD context. The Masterplan

Options then uses this uplift to deliver the above noted public benefits to the precinct.

5.2 Public domain

The following section describes the distinguishing factors of each Masterplan option and briefly

outlines the implications of land ownership that impact upon the implementation of each.

5.2.1 Option 1 Masterplan - ‘Miller St Square’

The Option 1 Masterplan focuses on delivering a public square off Miller Street and a smaller

central square within the core of the precinct. A new modern CBD branch library is strategically

placed between the two forming a public connection between the two squares.

Miller Street Square holds significant potential as an attractive and lively public square that

could deliver transformative public domain amenity in addition to the highly activated inner

cultural / dining events precinct in the core of the precinct. Supporting and connecting both

Miller Street Square and the Central Square are numerous pedestrian connections, public

domain upgrades and the central cultural destination hub.

Both the ‘Miller Street Square’ and ‘Central Square’ are accessible via various pedestrian links

throughout the block. A number of these already exist or have been negotiated via the North

Sydney Development Control Plan in existing development approvals. Others will require

future negotiation with adjoining landowners.

Of particular note is that ‘Miller Street Square’ is proposed on private land with the tower

setback onto Council land thus necessitating the swap of land on these two parcels. Further

refinement of this master plan option depends on the outcome of such negotiations with the

land owner of 213-219 Miller Street.

Figure 8. The proposed new public square ‘Miller St Square’, looking south east.



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5.2.2 Option 2 Masterplan - ‘Central Square’

The Central Square Masterplan Option focuses on delivering a highly activated ‘Central

Square’ that is characterised by high levels of amenity and framed by a new CBD branch

library, the Community Hub as well as the new eat street precinct and accompanying retail

tenancies. The Central Square will receive direct sunlight in the middle of the day during the

majority of the year (refer to solar studies included in the attached masterplan) and will be

designed to function as a day/night plaza in the heart of the CBD.

Like Miller Street Square option, the ‘Central Square’ option, will be accessible via various

pedestrian links throughout the block with the main connection being the new laneway

conversion of Ward Street.

Importantly, both Masterplan Options remove traffic from the precinct, in order to allow the

human scale activation, safety and amenity that will be critical to the success of both public

squares. This is discussed in further detail in section 5.7 of this report.

Masterplan Option 2 has been designed to ensure that the public benefit components can

function entirely independently. It is beneficial that the ‘Central Square’, CBD branch library

and the community hub are on land that is presently in public ownership and therefore, the

materialisation and success of each does not depend on the cooperation of any one surrounding

landowner, rather the value capture from surrounding uplift.

Figure 9. The proposed new public square ‘Central Square’, looking north west.

5.2.3 North Berry Square

Both Masterplan Options include a North Berry Square which will expand and reinforce the

significance of Berry Street Square, provide an ‘entrance’ to the new Ward St precinct and



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forms a fundamental continuation of the new ‘laneways precinct’ triggered by Metro and 1

Denison Street development. The proposed crossing on Berry St at this junction, as part of the

future down-graded Berry Street (as supported in the Traffic and pedestrian Study, 2014), will

form a critical element of this expanded Berry Street Square and allow for Metro pedestrians to

cross safely.

Figure 10. The proposed North Berry St Square

5.3 Victoria Cross Station

As previously discussed, the Ward Street Masterplan objectives are strongly supported by the

potential transformative benefits of the Victoria Cross Metro which is scheduled to be

operational in 2024. The additional connectivity to the Sydney CBD and wider metropolitan

area, increased pedestrian activity and attractiveness of the North CBD, bring enormous

potential benefit to the city. Importantly, the Ward Street precinct will be “bookended” by

Metro portals, providing a very high degree of accessibility to the precinct.

It is critical, however, that detailed design work complement these aspirations. The role of

surrounding streets, particularly Berry and Miller Streets, from their current, largely through

traffic function which detract from a high amenity, comfortable and inviting CBD core, must

be re-imagined and reconsidered. The Metro project is the ideal catalyst to begin to address

this and this need is only reinforced by the objectives of Ward Street Masterplan.

5.4 Employment Floor Space and the Integrity of the Commercial Core

The North Sydney CBD is very constrained in terms of its capacity to grow laterally. In the

context of ambitious jobs growth targets as outlined in the North District Plan, the Ward Street

precinct provides one of the last opportunities of achieving this expansion without significantly

intruding into residential areas, schools and other constraining factors. The map below shows

the extent of the B3 Commercial Core zone in dark blue. The northern boundary of this zone

occurs through the Ward Street precinct and is replaced by a B4 Mixed Use to the north which

has enabled residential development to occur in the northern part of the precinct.



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Figure 11. North Sydney LEP 2013 zoning map for the CBD

A central principle of Stage 2 has been to promote employment floor space. The Stage 2

Masterplan has achieved considerable additional floor space over the Stage 1 Masterplan

primarily through additional commercial floor space proposed within the new amalgamated site

‘B’ (as referenced in the Masterplan in attachment 1) by combining 201 Miller Street, 56 and

66 Berry Street and southern section of 22 Ward Street carpark site. Site ‘G’ has also achieve

considerable additional floor space through the amalgamation of 70-74 and 76 Berry Street.

To achieve a significant increase in employment/commercial floor space, whilst promoting a

high level of public domain improvement and appeal, both Masterplan options are contingent

on amalgamations. Given the subdivision pattern and distribution of existing development,

planning for significant growth in this precinct is undesirable if constrained only to existing



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allotment boundaries. As a result, a level of cooperation and negotiation will be required

between landowners to implement either Masterplan option.

Site ‘C’ has the ability to deliver between 17,600sqm in the Central Square Option and

38,097sqm of gross floor area in the Miller St Square Option depending on which Masterplan

option is pursued.

Collectively, the three envelopes have the ability to contribute up to approximately 185,000

square metres gross of floor space to the existing commercial supply of North Sydney Centre.

Sites B and G and potentially site E (41 McLaren Street) also have the ability to support new

hotel and conference facilities, while also delivering commercial floor plates that could support

‘Premium grade’ office space.

5.5 Solar Access

The height of each built form envelope identified in both the Stage 2 Masterplan Options is

largely dictated by its resulting shadow cast upon surrounding spaces and particularly,

important public domain elements.

It should be noted that some level of solar impact from the various building envelopes occurs.

These impacts have been carefully considered through the development of the both the

Masterplans, with the project objectives and principles weighed up in an effort to establish a

suitable balance of each interest. It is considered the shadow impacts of each envelope are

reasonable in the context of a competitive and growing CBD, particularly with a new metro

station in such close proximity.

A key example is that of the amalgamated 201 Miller Street, 56 and 66 Berry Street and

southern section of 22 Ward Street carpark site envelope, which is constrained most

significantly by solar access to the south. Berry Square and the ‘Beau Monde’ mixed use

building at 79 - 81 Berry Street, being the most susceptible to shadow from this site. In response,

the form of this envelope has been carefully shaped to minimise shadow upon these elements

as far as possible. The shadow impact inevitably cast upon Berry Square and 79-81 Berry St is

considered reasonable in its CBD context.

Importantly, this solar impact has been considered reasonable, only in the context of the creation

of new, high amenity pubic squares that are in public ownership. Both options create these

opportunities, which in the North Sydney CBD, are in very short supply.

5.6 View Sharing

As with solar access, view loss impacts from the proposed building envelopes will occur to

varying extents. These impacts occur to existing and approved buildings, predominately those

buildings to the north of the proposed commercial envelopes. It is considered these impacts are

a reasonable expectation of ongoing development in a competitive and growing CBD,

particularly with a new metro station tower proposed and 1 Denison Street a 38-Storey

commercial tower in close proximity.

The exact impact of each envelope will vary from different perspectives and will need to be

investigated in more detail within detailed design and Development Application stages. The

view sharing impacts posed by the envelopes envisaged in the Masterplan Options are



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considered to present a reasonable and manageable outcome in the context of a major and

growing CBD.

Figure 12. No existing views of the Harbour Bridge or Opera House from northern residences

5.7 Traffic and Parking

The Stage 2 Masterplan seeks to remove vehicular movement from Ward Street, in order to

allow for a complete pedestrianisation of the precinct. This approach is essential for safety,

amenity, permeability, activation and the general perception of public space within the precinct

and forms the laneway of the new ‘Eat Street’. It also facilitates and reinforces a north-south

pedestrian spine that has the ability to connect St Leonards Park to Greenwood Plaza.

In testing design possibilities, the development of built form options on the Ward Street car

park site has adopted the following key principles that relate to parking:

• P2 Capitalise on place-making and land use opportunities associated with the proposed


• P9 Ensure that total parking provision, including public and private parking assets,

delivers no net increase in traffic generated with the Ward Stree t Precinct and responds

to the Victoria Cross Metro Station.



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Commercial Car Parking

The existing public car parking facility on the Council owned Ward Street site accommodates

570 parking spaces. Council’s traffic consultants have advised in both Stage 1 and Stage 2 that

the majority of this services commuter parking.

The work completed in Stage 1 found replacement of commercial parking within the scope of

this project was not possible without significant compromise to public domain, best practice,

place-making and financial return principles. The design testing exercise for stage 2 looked at

comparative maximum parking provisions in the City of Sydney and the recently completed

Barangaroo Precinct (1 space per 600 sqm of GFA) and found the North Sydney CBD’s existing

parking controls (1 space per 400 sqm of GFA) were well above the comparable requirements

and would significantly contribute to traffic if applied in the Ward Street Precinct. Thus, an

amendment to the parking rate per square metre of gross floor area was recommended by Arup

in its assessment and review of the Masterplan. Further analysis is provided in the attached

Masterplan documentation. This is also consistent with the sentiments of the North Planning

Panel in its review of the Planning Proposal for 41 McLaren Street on 7 March 2018 in which

it stated that any Precinct plan should not increase existing car parking beyond existing levels.

Figure 13. Graph showing high volume of traffic triggered by existing carpark.

Essential Car Parking

Based on a revised parking rate of 1 space per 600sqm of GFA, a total of 434 car spots coupled

with space for 1,220 bicycles is proposed for Masterplan 1 and 332 car spots and 781 bicycles

is proposed for the Central Square Masterplan Option. This option has a smaller overall

floorplate calculation hence the reduced rates. The bicycle rates are notably high and are in

recognition of the growing trend of cycling across Sydney which will be reinforced by Metro

and it is estimated by Arup that 10% of all trips to the precinct will be by bicycle.



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Site Existing parking

Proposed parking: Masterplan Option 01

Proposed parking: Masterplan Option 02

Notes

Site A 25 No change No change No change proposed

Sites B, C & D (Ward St Carpark, 201 Miller St, 213-219 Miller St, 56 Berry St, 66 Berry St)

863 255 214 Site amalgamations have resulted in reduced parking requirements

Site E (41 McLaren St) 90 59 No change Reduced number of spots to allow space for bicycles and conversion of at-grade parking to retail for Harnett St activation

Site F (45 McLaren St) 18 3 No change Proposed parking - car share model

Site G (76 Berry St) 120 118 118

Total 1116 435 332

In order to provide this parking and bicycle storage along with site servicing and vehicle critical

journeys, a basement complex is envisaged below the new square. It comprises up to three

levels. A low volume access point would be obtained via Harnett Street. Specific access

arrangements will need to be investigated further within detailed design and development

application stages.



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Figure 14. The proposed new basement configuration for the Miller Street Square Masterplan

Option 01.



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5.8 Site D - 201 Miller Street, 56 and 66 Berry Street and 22 Ward Street: (Masterplan

Options 01 & 02)

Figure 15. Site D built-form envelope

A primary objective of the North Sydney Growth Plan is to ensure an increase in the supply of

‘Premium Grade’ and ‘A Grade’ office space in the North Sydney CBD. The proposed

amalgamation of these four sites allows the potential development of a building which will

deliver ‘Premium grade’ office space to the commercial core of the North Sydney CBD.

The buildings located at 56 and 66 Berry Street are presently zoned B3 – Commercial Core,

with height limits of RL 120 and RL 95, respectively. All sites are presently constrained

predominately by their small site areas and the solar access control to Berry Square. The site

has been identified as being able to achieve a height of RL 230 with an incentive to potentially

achieve a height of RL 285 if sites are amalgamated, significant local public benefits are realised



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through contributions to the public domain or other infrastructure as well as design excellence

being demonstrated. The overall height and form of the building will be subject to further

market analysis as well as the relationship to the Victoria Cross over-station development which

is still in design phase.

Based on shadow analysis and test form modelling by our consultants the tower location and

envelope form of the tower has been limited toward the western end of the site to avoid

significant shadow impacts to Berry Square. Where shadow does occur, the form is designed

to allow this shadow to be somewhat limited and continue to allow a degree of solar access.

There are also likely to be view sharing impacts to buildings fronting Miller Street. Further

analysis is provided in the masterplan appendixes.

The Stage 2 Masterplan suggests a means through which this site can be pursued for

development as sensitively as possible, while contributing to the employment floor space

targets of the North District Plan. In the context of Sydney Metro and a growing CBD, the

impacts resulting from the indicative envelope at Site ‘D’ are considered reasonable.

The adjoining 201 Miller Street property contains a heritage listed commercial building which

will largely remain in its current form and be connected to the new adjacent tower through a

portal connection to maintain the essential heritage elements of the building. The proposed form

of the tower behind has been carefully considered to ensure the visual reading of the façade at

201 Miller Street is maintained whilst working within the Miller Street setback LEP principles.

5.9 Site G - 70-74 & 76 Berry Street: (Masterplan Options 1 & 2)

Figure 16. Site G built-form envelope



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The building at 70-74 Berry Street is the redundant component of the North Sydney zone

substation, owned by Ausgrid. The site has been earmarked for decommissioning for some

time. The site is zoned B3 – Commercial Core and has a height limit of RL 110.

Council’s Stage 2 architectural consultant identified that the existing site holds high potential

if amalgamated with 76 Berry Street which would then facilitate the creation of a significant

new public square which would partially form the new North Berry Street Square whilst

allowing the creation of a ‘Premium Grade’ building on the new Site ‘G’.

This proposed use of the site would also be working to address the requirements of the Major

Project Conditions of Consent (MP10_0092) for the North Sydney Electricity Substation which

requires explorations and the development of a study which includes considering 70-74 Berry

Street being made available for public use.

5.10 Ward Street car park

Both Stage 2 Masterplan options seek to facilitate independent elements on the site of the

existing Ward Street car park and both seek to retain partial council ownership of the land.

Refer to diagrams below for a breakdown of proposed ownership and further information

provided in the attached Stage 2 Masterplan.



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Figure 17. Miller Street Square Masterplan Option 01: The proposed new council ownership

boundaries



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Figure 18. Masterplan Central Square option: The proposed new council ownership

boundaries



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5.11 SITE E - 41 McLaren Street

Figure 19. Miller Street Square Masterplan Option 01: The proposed 41 McLaren envelope

The building located at 41 McLaren Street is presently zoned B4 Mixed Use, with a height limit

of RL 100. The building is a listed heritage item in NSLEP 2013. The site was previously

identified as an opportunity site for investigation. It has been concluded that the ‘Miller Street

Square’ option provides an opportunity for a slim eastern tower to be pursued, however,

Masterplan Option 2 ‘Central Square’ would be severely impacted by a tower addition and to

overshadow this new public space would be to compromise a central objective for embarking

on this project and undermine its public benefit intent.

Furthermore, taking into account the LEP controls and the identified lack of hotel facilities in

the North Sydney CBD as documented in the Land Use and Capacity Strategy the tower shown

in the Miller Street Square Masterplan Option would best meet the objectives of the relevant

controls and studies if it was a hotel facility and not a residential tower. The form and position

of the tower has taken into account both ADG requirements and solar amenity impacts.

In the Stage 1 Masterplan it was concluded an additional six stories of residential floor space

could be contemplated and would not create additional adverse over-shadowing. Stage 2 test

modelling demonstrated similar effects over the new ‘Central Square’. Whilst the original

position is supported, the financial impediments of such development are acknowledged

therefore this has not been shown in the Central Square Masterplan option.

Comments from Stage 1 Masterplan which remain relevant are outlined below:

As a result of the design exercise, the Masterplan contemplates an addition of five

residential stories to the existing six storey commercial building, achieving RL 110. The

addition could be residential in use, added above the existing heritage element. The

addition takes a stepped form in response to the solar access constraint of the public

square to the south.



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The form identified in the Masterplan remains low enough to avoid substantial solar

access implication to NOC Square and surrounding mixed use developments to the east

and west. It is feasible that the proposed envelope may have view sharing implications

for the lower floors of buildings to the west, which presently obtain views immediately

above 41 McLaren Street to the east. These potential impacts are not considered

unreasonable in the scope of the increasing density around the new Victoria Cross

Metro Station.

An uplift of this nature is envisaged to be initiated by a developer, which would

acknowledge the preconditions to achieving uplift include:

• That the heritage element of the building be retained both in form and its

commercial use.

• The proponent enter into a Voluntary Planning Agreement (VPA). The VPA

would seek to make contribution to the public infrastructure components of the

Masterplan.

The proposed envelope would require an increase in the height limit to RL 110.

a) Planning Proposal for 41 McLaren Street

It should be noted that the owners of 41 McLaren Street lodged a Planning Proposal for a mixed

use building on the site with a maximum height of RL 226 on 1 September 2017. This

represents an increase of 126m from the current height limit. On 19 February 2018, Council

resolved not to support the Planning Proposal given that the Ward Street Masterplanning

Process was nearing completion and approval of a significant development within the precinct

had the potential to undermine the objectives of this process.

The matter was considered by the North Planning Panel at its meeting on 7 March 2018. The

Panel conditionally supported the Planning Proposal, requiring that it be exhibited concurrently

with the Council’s Ward Street Masterplan process as a potential alternative Masterplan option.

It additionally required that the non-residential floor space ratio be a minimum of 3:1 and that

there be no increase in car parking beyond the current level.

At the time of writing, the Department of Planning and Environment was yet to issue a Gateway

Determination to enable the exhibition of the Planning Proposal for this site. If this is issued

prior to exhibition of the Ward Street Masterplan, however, the Proposal will be exhibited

concurrently with the Council endorsed Masterplan. It should be noted that notwithstanding

the Panel’s deliberations, matters of heritage and engineering capacity and the relationship of

the two, will need to be considered in much more detail when assessing the future actual

development of this site.



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5.12 Site F - 45 McLaren Street

Figure 20. Miller Street Square Masterplan Option 02: The proposed new 44 McLaren St

envelopes

The building located at 45 McLaren Street is presently zoned R4 – High Density Residential,

with height limit of 12 metres. It contains a strata titled residential building of four stories, on

the immediate edge of North Sydney Centre.

The Stage 2 Miller Street Square Masterplan Option design development identified that this site

has a greater capacity for density, particularly in light of Victoria Cross Metro Station and

development precedents nearby. The Miller Street Square Option identifies that the site could

accommodate a height of up to RL 144, within a specific stepped envelope. This envelope is

designed to avoid shadow to the southern neighbouring site and provide a consistent bulk and

scale to Walker Street, while defining the corner of McLaren and Walker Streets. This envelope

allows that environmental impacts resulting from any built form, particularly shadow and view

loss, can be minimised and the built form effectively integrated into the streetscape.

An uplift of this nature is envisaged to be initiated by a developer, which would acknowledge

the preconditions to achieving uplift including:

That the ground floor is activated with commercial uses, reflecting the majority of its

neighbours.

The proponent entering into a VPA. The VPA would seek to make contribution to the

public infrastructure components of the Masterplan.



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The Stage 2 ‘Central Square’ Masterplan modelling concluded a similar stepped envelope to

RL100 as previously illustrated in Stage 1 Masterplan could be suitable for the site. Whilst the

original position is supported, the financial impediments of such development are

acknowledged therefore this has not been shown in the Central Square Masterplan option.

6. Design Excellence Panel Review

Council’s Design Excellence Panel (DEP) most recently reviewed the Masterplan on 8 May

2018. Overall, the Panel has been supportive of the Masterplan, its rationale and thorough

testing of forms and outcomes. Its comments are provided as Attachments 4 & 5.

The Panel’s predominant feedback related to careful consideration of activating public space,

environmental impacts to surrounds and integration of the Masterplan Options into a broader

vision for the North Sydney Centre.

This being a concept design process, the issues raised by the Panel will be used to inform any

further development of the Masterplan and its individual components.

7. Implementation

Following public exhibition, a preferred Masterplan option will be recommended to Council.

The Masterplan will be facilitated by changes to the planning controls including potential

changes to height and zoning to incentivise private landowners to pursue development

outcomes consistent with the Masterplan. Public components will be pursued at the resolution

of Council, firstly via necessary planning control amendments, allocation of funding and

detailed design. This outcome could also be facilitated by the preparation and lodgement of

planning proposals consistent with the adopted final Masterplan. Submissions received during

the exhibition process may also result in amendments to the Masterplan prior to being finally

endorsed.

Implementing the development of Council’s own site will be subject to future consideration,

underpinned by the requirement to deliver the stated public benefit.

Following public exhibition and consideration of submissions, Council staff will consider what

amendments will be required to Council’s Planning Instruments and other implementation

measures, to realise the vision outlined in the Masterplan.

7.1 Dealing in Council Land

Council faces unique challenges in dealing with planning controls that may benefit the value of

its own land. It plays the role as land owner at the same time as land regulator. This is not

unusual and all Councils face this challenge from time to time. It is therefore important that

the process be as transparent as possible. In this context, Council has ventilated its intentions

with this work with a previous version of the Masterplan which has been the subject of public

consultation. It has also been the subject of independent design advice on several occasions

and importantly, the work has taken a precinct wide perspective, which places all landholdings,

including Council land, in a wider broader planning context than simply considering Council

land in isolation.



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Any exhibition of the Masterplan will need to continue to clearly articulate what is Council

land, what interests Council has in such land and what benefit there may arise from any changes

to the planning controls.

It should be noted that Council’s land ownership of the current carpark, Ward Street as well as

Harnett Street, are both classified as operational land under the Local Government Act, which

enables the land to be the subject of sale or long term lease.

7.2 Risks

The following provides an overview of the risks with the implementation of the Masterplan.

a) Property amalgamations

Both options 1 and 2 require a degree of property amalgamations to secure the benefits

of each masterplan option. These have been kept to a minimum, however, the future

development of the precinct, strictly along existing ownership boundaries, limits the

potential to achieve good public domain and building footprint outcomes. It is

considered that this risk is mitigated by the development potential that each masterplan

option provides for, which is likely to overcome the risk of amalgamations not being

achieved. Nonetheless, the property amalgamations and in particular the degree of

public benefit they deliver and their timing, will need to be closely managed.

b) Miller Square dependent on knockdown of existing building

The creation of a new square just off Miller Street as outlined in Option 1 is dependent

on the existing commercial building being demolished with a replacement building

being built to a new alignment. The current building has a height of RL 136 and the

Miller Street Square option Masterplan identifies a potential height of RL 190 which

is a substantial increase. Ultimately, the market will determine the appetite for this

change, but independent advice received by Council is that this is feasible. The timing

of the delivery of this as outlined in a) above, is critical as it represents one of the most

tangible benefits to arise from the Miller Square Masterplan Option.

c) Council “upzoning” its own land

As discussed in section 7.1 above, there are certain risks associated with Council

changing the planning controls for its own land that increase its value. This is largely

a perception issue and can be mitigated by the holistic nature of the planning work that

has been undertaken over a prolonged period of time with full public disclosure. One

of the key outcomes of this masterplan project is the public domain and facilities

benefits that are given rise as a result of Council’s land being included in the

Masterplan process. There is a continued need however, to remain transparent

throughout the process given Council’s land ownership within the precinct.

d) State Bodies - RMS

Both Options 1 and 2 create a strong link between the new pedestrian environment of

the Ward Street precinct, and the emerging laneway environment of Denison Street.

Berry Street plays a key role in knitting these precincts together to achieve a more

holistic outcome that places a stronger emphasis on pedestrian comfort, access and

amenity, particularly post Metro. The current role of Berry Street, being largely a

through road, is contrary to these objectives. Council is currently pursuing a CBD



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Transport Masterplan, which examines the role of Berry Street and considers

alternatives, to achieve pedestrian and place making benefits. The RMS will play a

central role in this ongoing process.

e) State Bodies – TfNSW/DPE

There is some discussion that the Department of Planning and Environment (DPE) is

currently considering a new value capture regime in the North Sydney CBD to replace

the current Railway Infrastructure levy that is applied through the North Sydney Local

Environmental Plan. Whilst little is known of this detail, if it merely replaces the

quantum of the levy currently charged, it may not have a significant impact. It is clear,

however, that a strong basis of both masterplan options is the notion of creating

additional value within the precinct, part of which will fund public infrastructure and

public domain works. The capacity to achieve this outcome should not be undermined.

8. Financial Implications

The precinct has the ability to leverage return and funding mechanisms that could support

infrastructure not only in this specific precinct, but also alternate community infrastructure

projects within the North Sydney local government area. A level of care will be required to be

exercised in this context being mindful of Council’s competing responsibilities to provide for

direct community benefit on site, whilst being economically responsible and leveraging

potential income to assist with the delivery of other infrastructure or service responsibilities

identified in the Community Strategic Plan.

8.1 Costs

8.1.1 20 Ward Street - Council owned site

The Stage 2 Masterplan has been created on the premise of a financially positive outcome to

Council. The revised masterplan feasibility modelling has indicated that this is possible,

however, the need, if any, for Council to inject funding at various stages will ultimately depend

on the development and funding model Council seeks to pursue. Such approaches may include:

• Independent development – substantial cost of developing 20 Ward Street civic

buildings and squares borne by Council upfront after the sale and amalgamation

process and developer contributions negotiations with private developers. This

option carries the benefit of full control of the site by Council in perpetuity.

Public Private Partnership – splitting of costs by Council and a private

development entity. Partial control of the site could be retained by Council.

• Sale of the site, with Masterplan in place – positive financial outcome upfront for

Council. Development cost borne by the developer, who will assume control of the

site in perpetuity.

The cost of development on Council’s site in isolation has potential upfront costs if Council is

to pursue development independently and retain full control of the site. Alternate funding

models are available that would allow the private sector to hold a stake in the scheme,

constructing community facilities in exchange for a stake in private development components.



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The decision of funding models is best investigated further once the Stage 2 Masterplan can be

finalised after community consultation and a preferred option is identified and endorsed by

Council.

8.1.2 Sites subject to private development interest

Various private interests in properties around the precinct should be capable of delivering

community facilities within the precinct, in exchange for height and zoning incentives on their

own sites. This approach of value capture, is similar to that being employed by Council in St

Leonards and will ensure that the resultant demand from surrounding development will

contribute to funding of community facilities within the precinct.

8.2 Feasibility

Financial feasibility consultants SGS Economics & Planning have been involved in the

development of the Stage 2 Masterplan, providing market advice and ensuring the forms, uses

and outcomes contemplated are likely to see implementation from the market. Their input is

integrated throughout the Masterplan document.

9. The Way Forward

This report seeks Council endorsement to proceed to public exhibition of the Stage 2 Masterplan

documentation attached.

Following consideration of submissions and further consultation with key stakeholders, it is

anticipated that the Stage 2 Masterplan Options will be refined accordingly with council

developing a final masterplan design document which will include finalised computer-

generated renders, drawings and diagrams. An implementation strategy can then be established

that will facilitate the amendment of planning controls and detailed design to be undertaken in

the future. Development models, staging and funding plans will also be investigated and

established.

10. Conclusion

The return to Council of Ward Street car park, coupled with the introduction of Victoria Cross

Metro Station nearby presents a significant opportunity for Council to achieve the

transformational changes in the North Sydney Centre that have long been desired. Such factors

give opportunity to implement large scale, best practice planning outcomes that will encourage

visitor, business and residential communities to locate in North Sydney.

The highly constrained nature of the North Sydney CBD make lateral expansion very difficult.

With the arrival of Metro which provides for access portals to the north and south of this

precinct, the opportunity to provide a significant contribution to the job targets identified in the

North District Plan. Significant, precinct wide positive change within this precinct, raises the

opportunity to not only deliver jobs, but to provide for a strong pedestrian focused identity with

high levels of amenity and interest which knit back into a developing laneway network.

For these reasons, it is imperative that Council apply a cohesive and informed strategic process

to the area via the development of the Stage 2 Ward Street Masterplan. This will guide



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Council’s future planning and asset management decisions, while giving necessary clarity to

various stakeholders.

DECISION OF 3# COUNCIL (#) MEETING...DECISION OF 3705th COUNCIL MEETING HELD ON MONDAY 25 JUNE 2018...

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