Billgate Pty Ltd v Woollahra Municipal Council

[2007] NSWLEC 399

Land and Environment Court

of New South Wales

CITATION:	Billgate Pty Ltd v Woollahra Municipal Council [2007] NSWLEC 399
PARTIES:	APPLICANT Billgate Pty Ltd RESPONDENT Woollahra Municipal Council
FILE NUMBER(S):	10898 of 2006
CORAM:	Tuor C
KEY ISSUES:	Development Application :- Residential Flat Building SEPP 1 Objection - Site frontage Consistency with the desired future character Impact on adjoining heritage item and conservation area
LEGISLATION CITED:	Environmental Planning and Assessment Act 1979 Land and Environment Court Act 1979 State Environmental Planning Policy No 1 - Development Standards Woollahra Local Environmental Plan 1995
CASES CITED:	Billgate Pty Limited v Woollahra Municipal Council and Anor [2005] NSWLEC 61; Segal & Anor v Waverley Council [2005] NSWCA 310; Billgate Pty Ltd v Woollahra Municipal Council (2004) NSWLEC 436; Project Venture Developments v Pittwater Council [2005] NSWLEC 191 ; Seaside Property Developments Pty Ltd v Wyong Shire Council [2004] NSWLEC 117
DATES OF HEARING:	20, 21 & 22 February 2007
DATE OF JUDGMENT:	3 July 2007
LEGAL REPRESENTATIVES:	APPLICANT Mr T Hale SC SOLICITORS Colin Biggers & Paisley RESPONDENT Mr P Rigg SOLICITORS Deacons

JUDGMENT:

THE LAND AND
ENVIRONMENT COURT
OF NEW SOUTH WALES

Tuor C

3 July 2007

10898 of 2006 Billgate Pty Ltd v Woollahra Municipal Council

JUDGMENT

1 COMMISSIONER: This is an appeal against the deemed refusal by Woollahra Municipal Council (the council) of a development application (DA352/2006) under the Environmental Planning and Assessment Act 1979 (the Act) to demolish an existing house and construct a new residential flat building comprising three attached dwellings at 20 Roslyndale Avenue, Woollahra (the site).

2 For the reasons set out in this judgment I have concluded that the appeal should be dismissed and development consent refused.

The site and its context

3 The site is a hatchet shaped allotment on the eastern side of Roslyndale Avenue, to the south of Edgecliff Road. The frontage of the access handle to Roslyndale is a splayed width of 8.01m, the width of the access handle itself is about 7.6m with a maximum length of about 32.3m along its northern side. The main part of the site has a width of about 27m and a maximum depth of about 54m. The site area including the access handle is 1,582.2sqm (1348.8sqm without the access handle). The site has a fall from the street to the rear eastern boundary of 19.55m, measured along the southern boundary. The site is developed with a two storey house with an elevated swimming pool and deck. There are a number of large canopy trees on the site.

4 Adjoining the site to the north is Struan Lodge (14 Roslyndale Avenue), a detached dwelling with extensive gardens which adjoins another dwelling, Hawthornden (6 Roslyndale Avenue). Both these houses are identified as heritage items in Woollahra Local Environmental Plan 1995 (LEP 1995). A duplex (16-18 Roslyndale Avenue) is located to the north of the access handle and shares its eastern boundary with the main portion of the site. To the south, the site adjoins a battleaxe block with a two storey dwelling (22 Roslyndale Avenue), its access handle adjoins the access handle of the site. Adjoining the site to the east are two detached dwellings, including the United States Consulate (20 and 26 Wallaroy Road). The dwellings to the east are below the level of the site and front Wallaroy Road. There is a landscape corridor that runs between the rear of the houses that face Roslyndale Avenue and those that front Wallaroy Road.

5 Surrounding development is detached houses in landscaped settings. The houses are mainly from the Victorian period and range from detached villas to single storey semi detached houses. There are also residential flat buildings in the area.

The history of the proposal

6 The application was lodged on 19 June 2006 and was notified to adjoining and nearby residents. Council received seventeen objections. The applicant lodged an appeal against council’s deemed refusal of the application on 28 September 2006. At the date of the hearing council had not determined the application.

7 On 18 February 2005, Bignold J dismissed an earlier appeal (see Billgate Pty Limited v Woollahra Municipal Council and Anor [2005] NSWLEC 61). This appeal included the site and the adjoining property at 22 Roslyndale Avenue and was for a different residential development.

8 The parties held different opinions as to the weight that I should give to this earlier decision, in which I assisted Bignold J. Consistent with the decision in Segal & Anor v Waverley Council [2005] NSWCA 310, the Court is not bound to follow the decision of Bignold J or even to take it into account if irrelevant to the resolution of the contested issues. This application must be considered on its merits in the particular circumstances of this case. However, I note that the decision in Segal also stated that it is desirable to apply consistent principles and to refer to a previous decision, where relevant.

9 Prior to the merits appeal, Bignold J considered a preliminary question of law (see Billgate Pty Ltd v Woollahra Municipal Council (2004) NSWLEC 436), namely:

Whether the Council or the Court have the power to grant development consent to the proposal having regard to the lack of a relevant downstream drainage easement to dispose of stormwater from the proposed development, given the requirements of clause 25(2) of the Woollahra Local Environmental Plan 1995.

10 In answering this question, Bignold J found

The Court may not grant development consent unless it is satisfied that adequate provision has been made for the disposal of stormwater from the land it is proposed to develop in terms of cl 25(2) of the LEP.
In the present cases where it is proposed to utilise the existing easement over an adjoining property the question of the adequacy of the provision may legitimately include consideration of the legal capacity or competence to utilise the existing easement (in addition to any consideration of its physical capacity).
If on the hearing of the appeals it be held that the existing easement is not legally available for the proposed purpose the requirements of cl 25(2) of the LEP would not be capable of being satisfied by the imposition of a condition of development consent requiring such provision but those requirements would be capable of being satisfied by the making of an order pursuant to the LEC Act, s 40 for the creation of any necessary easement if the Court, on the hearing of those appeals, determines to grant development consent.

11 This appeal also proposes to use an exiting easement over an adjoining property for the disposal of stormwater. The parties agreed that if the Court determines to grant development consent for this application the course of action outlined by Bignold J must be followed. This would require that, if on merits, I determined that the application warranted approval, an Order under s 40 of the Land and Environment Court Act 1979 (the LEC Act) is required prior to development consent being issued.

The Proposal

12 The proposal involves the demolition of the existing buildings, including the house, garages and swimming pool and construction of three attached dwellings with garages. Each dwelling comprises three bedrooms with parking for two cars. The proposal is two to three storeys and is entered off Roslyndale Avenue via the access handle.

Planning Framework

13 The site is zoned Residential 2(b) under LEP 1995. The proposed development is permissible with consent within the zone.

14 Clause 8 of LEP 1995 provides development control tables that set out the applicable zones. Clause 8(4) and (5) provide:

(4) The development control table for each zone must be read subject to the special provisions and heritage provisions in Parts 3 and 4 of this plan, respectively. In the event of an inconsistency between a provision of a development control table relating to a zone and a special provision or a heritage provision in Part 3 and 4 of this plan, the special provision or heritage provision shall prevail.
(5) The Council shall not grant consent to the carrying out of development on land to which this plan applies unless the Council is of the opinion that the carrying out of the development is consistent with such objectives of this plan and of the zone within which the development is proposed to be carried out as apply to that development.

15 The development control table provides the following description of the 2(b) zone:

The Residential “B” Zone applies to areas characterised by existing medium density residential flat buildings and areas where potential has been identified for increased medium density residential development. Floor space and height controls, contained in Part 3, set the maximum permissible density and building heights for new development. Site area and frontage controls, also contained in Part 3, specify minimum site requirements for new development.

16 The objectives of the zone relevantly include:

(a) to provide for areas of medium and high density residential development in appropriate locations,
(b) to encourage a diversity of dwelling types and tenure,
(c) ….

17 Houses further to the south in Roslyndale Avenue and to the east in Wallaroy Road are zoned Residential 2(a). which is described by the LEP 1995 in the following manner:

The Residential A Zone is characterized by dwelling-houses and is the largest zone within the Council’s area, applying to suburbs from Watsons Bay to Paddington and covering large sections of the foreshore and conservation areas. Pockets of medium density housing, individual apartment buildings and occasional shops and commercial buildings are scattered throughout the zone, reflecting the historical development of the Council’s area. A diversity of residential allotment sizes is provided.

18 The main issue in dispute between the parties is the proposal’s compliance with the site frontage standard in cl 10B of LEP 1995. The applicant has submitted an objection under State Environmental Planning Policy No 1 – Development Standards (SEPP 1). Clause 3 of SEPP 1 provides that the aims and objectives are:

This Policy provides flexibility in the application of planning controls operating by virtue of development standards in circumstances where strict compliance with those standards would, in any particular case, be unreasonable or unnecessary or tend to hinder the attainment of the objects specified in section 5 (a) (i) and (ii) of the Act.

19 The objectives of the standard are set out in cl 10A. These clauses provide:

10A Objectives of site area and site frontage standards for residential flat buildings
The objectives of the minimum site area and frontage standards set by clause 10B are as follows:
(a) to achieve compatibility between the scale, density, bulk and landscape character of buildings and allotment size,
(b) to provide sufficient space between buildings, to maximise daylight and sunlight access between buildings, to ensure adequate space for deep soil landscaping and to preserve view corridors,
(c) to prevent permanent barriers to sub-surface water flows,
(d) to ensure that there is sufficient land for car parking on site,
(e) to encourage consolidation of allotments in appropriate locations to enable the development of a diversity of dwelling types.

10B Site area and frontage standards
(1) A site must not be developed for the purpose of a residential flat building containing 3 dwellings or fewer unless the width of the site at the front alignment is 15 metres or more.
Note. No minimum site area requirements apply.
(2) …..

20 Site area is defined as:

site area means the area of land to which an application for consent under the Act relates, including any land on which the development to which the application relates is permitted by or under this plan, other than any long narrow corridor or accessway in the case of hatchet shaped or irregular allotments or land which was below the line of maximum tidal reach as at 15 December 1972 or at a date determined by the Council.

21 The site adjoins Struan Lodge which is a heritage item under LEP 1995 and it is adjacent to the Woollahra Conservation Area (Rosemont Precinct). Clause 27 of LEP1995 provides:

27 Development in the vicinity of heritage items, heritage item groups, heritage conservation areas, archaeological sites or potential archaeological sites
The Council must take into consideration the likely effect of the proposed development on the heritage significance of a heritage item, heritage item group, heritage conservation area, archaeological site or potential archaeological site, and on its setting, when determining an application for consent to carry out development on land in its vicinity.

22 Woollahra Residential Development Control Plan 2003 (DCP 2003) is also relevant. The site is located within the Wallaroy Precinct. Clause 4.3.1 of DCP 2003 describes the precinct as:

The Wallaroy Precinct is sited along a ridgeline and hillside overlooking Double Bay and Sydney Harbour. The precinct extends from the valley floor of Manning Road to the main arterial of New South Head Road and the Woollahra Heritage Conservation Area adjacent to Edgecliff Road.

The steeply sloping topography has meant that the roadways are not particularly well connected, but it does allow for many expansive views from the streets as they wind down the hill from Edgecliff Road.

23 Clause 4.3 provides Desired Future Character objectives and performance criteria for the Wallaroy Precinct which include:

O 4.3.1 To establish a development transition from the large residential buildings and allotments of New South Head Road and Edgecliff Road to the smaller dwelling houses situated on the slopes.

O 4.3.2 To reinforce the precinct’s landform and landscape qualities including the steep topography, terracing of development, and the curvilinear road pattern.

C 4.3.1 Development respects and enhances the existing elements of the local neighbourhood character that contribute to the Wallaroy Precinct including:

· The large Victorian and inter war houses set within spacious grounds:

· The stepping of development on the hillside;

· The well established private gardens and trees;

· The curvilinear streets following the contours of the land;

· The mature street trees and sandstone walls at the street;

· The highly visible tree canopy providing a dense green backdrop to views from Sydney Harbour and surrounding lands: and

· The highly visible roof forms as development steps down the hillside.

24 C 4.3.6 requires that for development adjoining the Woollahra Heritage Conservation Area the impacts on the heritage significance of the area must be considered.

25 DCP 2003 also provides general controls which include Building size and location (cl 5.2); Open space and landscaping (cl 5.3); Stormwater management (cl 5.7); Acoustic and visual privacy (5.8) and Car parking and driveways (5.9).

26 Woollahra Heritage Conservation Area Development Control Plan provides controls for land within the Woollahra Conservation Area which adjoins the site.

The evidence

27 The Court heard evidence from Mr J Oultram, the Court appointed heritage expert. For the reasons given on 16 February 2007, I granted leave for the Mr R Staas, heritage architect, to provide evidence on behalf of the applicant and Mr H Tanner, heritage architect, on behalf of the adjoining owner, Mr T Arcus, 14 Roslyndale Ave, to provide evidence in support of council’s case. Mr L Adey, on behalf of council and Mr M Buckley, on behalf of the applicant, provided expert planning evidence.

28 The Court heard evidence on site from the following residents:

· Mr T Arcus, 14 Roslyndale Avenue

· Mrs N Lucas, 22A Roslyndale Avenue

· Mr and Mrs G Waugh, 22 Roslyndale Avenue

· Mr P McMahon, 26 Wallaroy Road

· Mr G Rundle, 28 Wallaroy Road

29 Mr R McCuaig, 30 Roslyndale Avenue, Provided evidence in Court. The resident’s concerns are summarised in Exhibit 16 and in their letters of objection made in response to notification of the application.

30 The issues raised by the objectors generally reflected those issues raised by council.

31 The Statement of Issues before the Court contained 13 issues. A number of issues were resolve through amendments, proposed conditions and expert evidence. The key issues can be summarised as whether:

i) the non compliance of the proposal with the site frontage standard in clause 10B(1) is acceptable and the SEPP 1 Objection is well founded.
ii) Whether the proposal is consistent with the desired future character for the Wallaroy Precinct
ii) the proposal has an adverse impact on the heritage significance of Struan Lodge and the adjoining conservation area.

32 The width of the site at the street alignment is 8.01m. Clause 10B(1) of LEP 1995 requires that:

A site must not be developed for the purpose of a residential flat building containing 3 dwellings or fewer unless the width of the site at the front alignment is 15 metres or more.

33 The objectives of the site and street frontage control are stated in cl 10A. The objectives do not distinguish between those which relate to site area and those which relate to street frontage. Mr Hale SC, for the applicant submitted that the proper interpretation of cl 10A and cl 10B relies on the definition of site area which excludes any long narrow corridor or access way in the case of hatchet or irregular allotments. Mr Hale SC submits that:

The intent of Clauses 10A and 10B is clearly directed to long narrow sites which have sufficient area but due to their narrowness do not meet the objectives of Clause 10A. It is clearly not directed to the access handle of a battle axe site.

34 Bignold J considered this issue in Billgate where at para 55 His Honour found:

55 Coming to the requirements of cl 10B of the LEP I think that when regard is had to the stated objectives (vide cl 10A) and to the headings of both cll10A and 10B, when cl 10B(2)(b) refers to “the width of the allotment at the front alignment”, it is referring to the street frontage of the lot. I think that this is a preferable interpretation to that adopted by Ms Laidlaw in her Report (Exhibit 10) when she takes the requirement to be referring to the width of the allotment measured at the front alignment of the residential flat building. Accordingly, again the proposed development may not be carried out (vide cl 10B(2) of the LEP) unless the Court grants development consent by upholding the Applicant’s objection pursuant to SEPP 1.

35 While Mr Hale SC disagreed with this finding he recognised that this Court is bound by it.

36 Mr Buckley prepared a SEPP 1 Objection which concluded that:

The departure from the required minimum street frontage does not generate any adverse environmental impacts and is unnecessary and unreasonable in the circumstances of the case.

37 The key disagreement between Mr Buckley and Mr Adey was whether the proposal met objective 10A(a) to achieve compatibility between the scale, density, bulk and landscape character of buildings and allotment size.

38 Mr Buckley noted that the battle axe portion of the site will not accommodate any building and is not used for the calculation of floor space ratio (FSR) or landscape area. The main part of the site has a width at its western end of about 27m which exceeds the standard. The control does not specify a minimum allotment size but is of sufficient width and size to meet all the controls in DCP 2003 including landscape area, side, rear and front boundary setbacks, building height, FSR and manoeuvring area.

39 In Mr Buckley’s opinion:

Objective (a) requires the development to be compatible with the land size. There is no minimum allotment area for residential development containing three or less dwellings….. The development proposal as amended is consistent with the surrounding residential character and built form of dwellings.

40 Mr Adey agreed that the site area is adequate but did not agree that the objective is more related to the building being compatible with the size of the allotment rather than with the width of the site at the front alignment. As the control does not specify an allotment size, in his opinion, “compatibility” can only be achieved where allotments are compatible in terms of their site frontage. He stated:

In this case because the allotment frontage is narrow, being a hatchet shaped allotment, any development is necessarily forced towards the rear of the site. This results in development of excessive bulk (three stories and over 9m in height) at the rear of the allotment in a zone further to the rear of any buildings on adjoining allotments. Where development does exist towards the rear of adjoining allotments (although there is no development as far to the rear as proposed here) it is generally single storey or ancillary development to the main dwelling houses. The main bulk of buildings on all adjoining sites are located towards the front of their sites.

The proposed development will be three stories high and accommodate three dwellings, all located towards the rear part of the site. This is not compatible with the scale, density, or bulk of buildings on adjoining allotments.

41 Mr Hale SC submitted that objective (a) is not directed to frontage standards but is to ensure that the building (in terms of scale, density, bulk and landscape character) is compatible with the area of the lot. Mr Rigg, for the council, submitted that frontage is part of allotment size and that objective (a) required compatibility of the proposal to the characteristics of the site itself and with other allotments.

Findings

42 Consistent with the decision of Bignold J, site frontage is to be measured at the street alignment and the proposal is prohibited unless the SEPP 1 objection is upheld. The appropriate manner of dealing with a SEPP 1 objection is found in the judgement of Lloyd J in Winton Property Group Limited V North Sydney Council [2001] NSLEC 46. The key disagreement between the parties was whether the proposal met the underlying purpose of the standard, particularly the objective in cl 10A(a).

43 I do not accept Mr Hale’s submission that cl 10A(a) does not relate to site frontage. Clause 10A states that it provides “the objectives of the minimum site area and frontage standard set by clause 10B”. Clause 10B(1) specifies a minimum width of site at the front alignment. It does not specify a minimum site area. Clause 10A(a) is a relevant objective for the standard in clause 10B(1). In considering the purpose of a standard which specifies a minimum frontage an appropriate objective would be to achieve compatibility between the scale, density, bulk and landscape character of buildings and allotment size. To determine whether compatibility is achieved requires an assessment of the characteristics of the site and its context as well as regard to the planning controls.

44 Roseth SC in Project Venture Developments v Pittwater Council [2005] NSWLEC 191 set out principles to establish the compatibility of development with its surrounding context. In summary to achieve compatibility a proposal:

should contain, or at least respond to, the essential elements that make up the character of the surrounding urban environment.

45 To achieve compatibility of the proposal to its allotment the essential elements of the character of other buildings and their allotments needs to be considered, while recognising the different use of the land. The key characteristic of the area is that building are generally built fronting the street which establishes a building to building relationship in the front part of the sites with a corridor of open space to the rear. Due to the steep slope of the land this corridor of open space between dwellings which front Roslyndale Avenue and Wallaroy Road provides a highly visible landscape which serves to screen and soften the built form.

46 Bignold J in Billgate in assessing the earlier application for the combined site stated:

81. My evaluation of this extensive evidence leaves me in no doubt that the proposed development is an overdevelopment of the development site in the sense that it concentrates all of the residential buildings on the rhomboid shaped area of the development site, which is significantly sloping land, forming an essential feature (physical and visual) of the Edgecliff ridgeline, with the intrinsic capacity to be visually dominating of the adjoining residences in Wallaroy Road situate well below (but nonetheless well within the viewing catchment, of the development site and the proposed development).
82 This concentration of the proposed development, at the scale and intensity proposed (which far exceeds the existing development on the development site) within this topographically significant and visually prominent part of the development site which is far removed from the Roslyndale Avenue frontage and streetscape, is entirely uncharacteristic of the development in this discrete section of the Edgecliffe Road Precinct formed by Roslyndale Avenue and the residential development on its eastern side……

47 While Bignold J was dealing with a different development on a different site his observations about the landform and the characteristics of development are relevant to this application.

48 The proposal concentrates development at the rear of the site. This is a direct result of it being a battle axe site with insufficient width at the front to accommodate any part of the development other than the driveway. Consequently the relationship of building to building and building to open space which is characteristic of the area is not replicated by this development. Clearly as the development is for a residential flat building it is not expected that the same relationship would be achieved, but a degree of compatibility is required. By concentrating the development at the rear of the site there are clearly adverse impacts on adjoining properties which may not result on a site with a wider street frontage as required by cl 10B(1).

49 The proposal complies with the minimum rear setback control, Dwelling 3 having a setback from the rear of about 12.5m. This setback is correctly calculated on the average width of the site excluding the access handle. However, a site with a street frontage that complied with the control in cl 10B(1) would require a rear setback in the order of 20m. This would reduce the impact of the proposal on the properties in Wallaroy Road and 22 Roslyndale Avenue.

50 Part of the rear setback area is steeply sloping with a change in level between the ground level of dwelling 3 and the rear of the properties in Wallaroy Avenue of about 4m. These properties are zoned Residential 2(a).

51 In Seaside Property Developments Pty Ltd v Wyong Shire Council [2004] NSWLEC 117, Bly C set out the principle concerning development at zone interfaces. The Commissioner said:

As a matter of principle, at a zone interface as exists here, any development proposal in one zone needs to recognise and take into account the form of existing development and/or development likely to occur in an adjoining different zone. In this case residents living in the 2(b) zone must accept that a higher density and larger scale residential development can happen in the adjoining 2(c) or 2(d) zones and whilst impacts must be within reason they can nevertheless occur. Such impacts may well be greater than might be the case if adjacent development were in and complied with the requirements of the same zone. Conversely any development of this site must take into account its relationship to the 2(b) zoned lands to the east, south-east, south and south-west and the likely future character of those lands must be taken into account. Also in considering the likely future character of development on the other side of the interface it may be that the development of sites such as this may not be able to achieve the full potential otherwise indicated by applicable development standards and the like.

52 Adopting and applying those principles to the present case, I note that the separation distance, the treatment of the upper floor and the proposed landscaping between Dwelling 3 and the houses in Wallaroy Avenue will assist in mitigating the impacts of the proposal. However, due to the change in level, the height and bulk of the proposal will be accentuated and will have an overbearing impact from the rear garden area of 26 Wallaroy Road. Based on the section in DA-GA-04B the height of Dwelling 3 will be about 16m above the garden level. The landscaping will obscure the lower levels of Dwelling 3 but its overall height will be visible. While the rear setback and height comply with the controls, the impact is beyond that envisaged by these controls given the topography of the site and its relationship to dwellings at the rear. A proposal, which recognized these constraints by either increasing the setback or reducing the height, would achieve an impact more consistent with that envisaged by the controls.

53 Dwelling 3 extends beyond the building line of 22 Roslyndale Avenue. The proposal will impact on the amenity currently enjoyed by this property. Particularly the outlook from the living area which is partly orientated towards the site and will look into the blank wall of the rear of the proposal rather than the outlook to trees that it currently enjoys. Again, while the rear setback complies with the control, a proposal, which better maintained the relationship of building to building, would reduce the impact on 22 Roslyndale Avenue.

54 The proposal will be visible from certain vantage points in Wallaroy Road and the surrounding area. From Wallaroy Road the northern section of the proposal will be visible. The proposal is stepped up the slope which will reduce its impact, however, due to the retaining walls and the limited opportunity for landscaping within the planter boxes on the terrace area, four levels of the proposal will be visible, albeit screened to some extent by the canopy tree which is to be retained on the site.

55 The site is within an area zoned for residential flat buildings, however, under cl 8(4) this zoning is subject to Parts 3 and 4 of LEP 1995. Clause 10B in Part 3 of LEP1995 relates specifically to residential flat buildings. For sites with three dwellings or less the site frontage is the applicable control. The proposal does not comply with this control and the objectives of the control include compatibility between the scale, density, bulk and landscape character of buildings and allotment size. Neither Roslyndale Avenue which is zoned 2(b), nor Wallaroy Road which is zoned 2(a) are areas in transition, the proposed building and its allotment size do not achieve the compatibility required by cl 10(a).

56 For the above reasons, the SEPP 1 objection is not well founded and the granting of consent to the development application would not be consistent with the aims of SEPP 1. The application must therefore fail.

Desired future character for the Wallaroy Precinct

57 If I am wrong with regard to the interpretation of cl10A and cl10B, the matters which I have discussed above are relevant to a consideration of whether the proposal is consistent with the desired future character for the Wallaroy Precinct envisaged in DCP 2003. The objectives for the Desired Future Character relevantly include:

O 4.3.1 To establish a development transition from the large residential buildings and allotments of New South Head Road and Edgecliff Road to the smaller dwelling houses situated on the slopes.

O 4.3.2 To reinforce the precinct’s landform and landscape qualities including the steep topography, terracing of development, and the curvilinear road pattern.

58 The proposal does not provide a transition between the larger buildings on the ridge and those on the slopes. The proposal is for three attached dwellings, which while broken up by courtyards, changes in level, and materials will be clearly visible from parts of Wallaroy Road and the surrounding area. The proposal will read as a large building in comparison to other buildings in the area. The landscaping will assist in screening and softening the development, however, opportunities for substantial landscaping and canopy trees are generally around the perimeter of the site. The landscaping between the buildings and on the terraces will do little to screen the building or to reduce the appreciation of its mass.

59 The terracing of the development follows the landform and topography of the land but from vantage points in Wallaroy Road and the surrounding area, the stepped levels of the proposal will be visible together as a building with more than three levels and will not reinforce the landform or topography consistent with that envisaged for the desired future character of the precinct.

60 The difference of opinion of the heritage experts is summarised in their joint report as follows:

Mr Oultram considers that the proposal introduces a greater bulk and scale than the current house closer to the rear terrace of Struan Lodge that will have an adverse impact on the heritage significance of the item and increase the sense of enclosure affecting the planned amenity of the terrace and Struan Lodge.

He also considers that the introduction of stepped, two to three storey buildings in the garden of the subject site will have an adverse impact on the setting of Struan Lodge and will introduce an uncharacteristic element into the landscape slope from Roslyndale Avenue to Wallaroy Road and is an overdevelopment of the site. This will also result in an adverse impact on the setting of the Rosemont Precinct of the Woollahra Heritage Conservation Area.

Mr Staas considers that the bulk of the proposal at its closest point to Struan Lodge is similar to the existing house and is compatible with the allowable development potential of the site given the setbacks achieved from the boundary and the landscape treatment of the edge of the site. In his opinion development of the site as proposed will have a minimal impact on the setting of Struan Lodge and will not effect its identified heritage significance as a local heritage item.

Mr Staas is of the opinion that the development proposed is what would reasonably be envisaged by the planning controls for this site and does not have a significant adverse impact on the wider setting of the heritage item and will have no impact on the heritage significance of the Rosemont Precinct of the Woollahra Local Environmental Plan…….

Mr Tanner is of the opinion that the proposed buildings do not appear to have been designed with the protection of Struan Lodge’s heritage significance and setting as the primary objective. Analysis of the proposed development readily reveals a change of the Struan Lodge setting from a secluded setting to one in which the new development is highly intrusive. This would compromise any future appreciation of Struan Lodge. In his opinion any residential development at 20 Roslyndale Avenue must be withdrawn (by at least five or six metres) from the northern boundary, clearly reveal the “Edgecliff” and retain the landscape qualities of this site including deep planting in a wide belt of at least 3 metres along each boundary.

Findings

61 The key disagreement between the heritage experts is the extent of impact on the setting of the item. The proposal and Struan Lodge will be able to be viewed together only from a limited vantage point in Wallaroy Road and from distant views. The impact of the proposal of the setting of Struan Lodge from these view points and the public domain is acceptable.

62 The impact on the setting of Struan Lodge when viewed from within the property itself is also a relevant consideration. The full extent of the development along the common boundary will not be visible from any one location in the gardens of Struan Lodge. The proposal is setback from the boundary at the lower garden levels of Struan Lodge. These have been altered over time and are not part of the significance of the item. The impact on the setting of Struan Lodge from these lower levels is acceptable.

63 The main impact of the proposal results from Dwelling 1 when viewed from the terrace and upper garden level of Struan Lodge. This impact will be greater than that of the existing house as the extent of the two storey component that is visible from Struan Lodge is increased. This will adversely affect the setting and amenity of Struan Lodge. The setback of Dwelling 1 at ground level ranges from about 1.9m to 3.3m from the common boundary. However, part of this setback area is a pathway that is raised above ground level, which limits landscaping to narrow triangular areas. The view of Dwelling 1 will therefore be softened but not screened by landscaping.

64 While the impact of the proposal on the setting of Struan Lodge would individually not warrant refusal of the application, it is a negative aspect of the proposal that combined with the other impacts renders the proposal unacceptable. A proposal that increased the setbacks adjacent to the terrace and upper garden level would better respect the setting and significance of Struan Lodge.

65 The impact of the proposal on the Rosemont Precinct of the Woollahra Conservation Area is acceptable would also not warrant refusal of the application.

Orders

66 For the above reasons the Orders of the Court are:

1. The appeal is dismissed.

2. The development application (DA352/2006) to demolish an existing house and construct a new residential flat building comprising three attached dwellings at 20 Roslyndale Avenue, Woollahra is refused.

3. The exhibits, except exhibits1 and 2, may be returned.

__________________
Annelise Tuor
Commissioner of the Court