Nonlow Pty Limited v Hunters Hill Council

[2019] NSWLEC 1631

Land and Environment Court

New South Wales

Medium Neutral Citation:	Nonlow Pty Limited v Hunters Hill Council [2019] NSWLEC 1631
Hearing dates:	Conciliation conference on 12 December 2019
Date of orders:	20 December 2019
Decision date:	20 December 2019
Jurisdiction:	Class 1
Before:	O’Neill C
Decision:	The Court orders: (1) The applicant is granted leave to amend the application to rely on the amended plans and documents listed in the conditions of consent at Annexure A. (2) The Applicant is to pay the Respondent’s costs thrown away pursuant to s 8.15(3) of the Environmental Planning and Assessment Act 1979 in the agreed amount of $7,500.00 within 28 days of these orders. (3) The appeal is upheld. (4) Development Application No. DA2017/1183 for the retention of the heritage façade and front portion of the existing building and the demolition of the rear portion of the existing building and construction of a new five storey shop top housing development with two levels of basement parking and associated landscaping, at 219-221 Victoria Road, Gladesville, is approved, subject to the conditions of consent at Annexure A.
Catchwords:	DEVELOPMENT APPLICATION – conciliation conference – agreement between the parties – alterations and additions to a local heritage item – exceedance of the height of buildings development standard
Legislation Cited:	Environmental Planning and Assessment Act 1979 Hunters Hill Local Environmental Plan 2012 Land and Environment Court Act 1979
Cases Cited:	Four2Five Pty Ltd v Ashfield Council [2015] NSWLEC 90 Initial Action Pty Ltd v Woollahra Municipal Council [2018] NSWLEC 118 RebelMH Neutral Bay Pty Limited v North Sydney Council [2019] NSWCA 130 Wehbe v Pittwater Council (2007) 156 LGERA 446
Category:	Principal judgment
Parties:	Nonlow Pty Limited (Applicant) Hunters Hill Council (Respondent)
Representation:	Counsel: S Patterson (Solicitor) (Applicant) M Staunton (Respondent)   Solicitors: Wilshire Webb Staunton Beattie Lawyers (Applicant) HWL Ebsworth Lawyers (Respondent)
File Number(s):	2018/208397
Publication restriction:	No

Judgment

1. COMMISSIONER: This is an appeal pursuant to the provisions of s 8.7(1) of the Environmental Planning and Assessment Act 1979 (EPA Act) against the deemed refusal of Development Application No. 2017-1183 for the retention of the heritage façade and front portion of the existing building and the demolition of the rear portion of the existing building and construction of a new five storey shop top housing development with two levels of basement parking and associated landscaping (the proposal), at 219-221 Victoria Road, Gladesville (the site) by Hunters Hill Council (the Council).

2. The Court arranged a conciliation conference under s 34 of the Land and Environment Court Act 1979 (LEC Act) between the parties, which has been held on 12 December 2019. I presided over the conciliation conference.

3. At the conciliation conference, the parties reached agreement as to the terms of a decision in the proceedings that would be acceptable to the parties.

4. Under s 34(3) of the LEC Act, I must dispose of the proceedings in accordance with the parties’ decision, if the parties’ decision is a decision that the Court could have made in the proper exercise of its functions. The parties’ decision involves the Court exercising the function under s 4.16 of the EPA Act to grant consent to the development application.

5. There are jurisdictional prerequisites that must be satisfied before this function can be exercised, pursuant to cll 4.6(2) and 5.10(4) of the Hunters Hill Local Environmental Plan 2012 (LEP 2012).

Planning framework

6. The site is zoned B4 mixed Use Development pursuant to LEP 2012 (Land Zoning Map – Sheet LZN_002 of LEP 2012). The objectives of the B4 zone are:

• To provide a mixture of compatible land uses.

• To integrate suitable business, office, residential, retail and other development in accessible locations so as to maximise public transport patronage and encourage walking and cycling.

• To ensure that new buildings provide an appropriate transition between the business zones and surrounding residential localities.

• To maximise levels of pedestrian and business activity along street frontages.

7. The site has two, height of buildings development standards of 19m for the front portion of the site fronting Victoria Road and 16m for the rear portion (Height of Buildings Map Sheet HOB_002 and cl 4.3 of LEP 2012). The objectives of the height of buildings development standard, at cl 4.3(1) of LEP 2012 are:

(a) to specify limits for the size and scale of development that would be compatible with the character, amenity and potential of particular locations,

(b) to maintain the character and identity of Hunters Hill by limiting the scale of buildings to a maximum of two storeys in the low density residential zone, heritage conservation areas and foreshore areas facing Lane Cove River or Parramatta River,

(c) to consolidate developments that would be taller than two storeys in business zones, while ensuring a suitable visual transition to the adjoining zones,

(d) to protect existing dwellings from excessive overshadowing, loss of privacy, obstruction of views and general visual impacts.

8. The site is identified as a local heritage item (Item 488 Schedule 5, Part 1, LEP 2012) and is within a heritage conservation area (Hunters Hill Conservation Area No. 3 Gladesville Village, Schedule 5, Part 2, LEP 2012). The consent authority must, before granting consent under cl 5.10 of LEP 2012, in respect of a heritage item or heritage conservation area, consider the effect of the proposed development on the heritage significance of the item or area concerned, pursuant to cl 5.10(4) of LEP 2012.

Contravention of the height of buildings development standard

9. The proposal has a maximum height of 19.75m in the front portion of the site and 18.69m in the rear portion of the site.

10. The applicant provided a written request seeking to justify the contravention of the height of buildings development standard prepared by GAT & Associates and undated.

11. Clause 4.6(4) of LEP 2012 establishes preconditions that must be satisfied before a consent authority or the Court exercising the functions of a consent authority can exercise the power to grant development consent (Initial Action Pty Ltd v Woollahra Municipal Council [2018] NSWLEC 118 [13] “Initial Action”). The consent authority must form two positive opinions of satisfaction under cl 4.6(4)(a). As these preconditions are expressed in terms of the opinion or satisfaction of a decision-maker, they are a “jurisdictional fact of a special kind”, because the formation of the opinion of satisfaction enlivens the power of the consent authority to grant development consent (Initial Action [14]). The consent authority, or the Court on appeal, must be satisfied that the applicant’s written request has adequately addressed the matters required to be addressed by cl 4.6(3) and that the proposal development will be in the public interest because it is consistent with the objectives of the contravened development standard and the zone, at cl 4.6(4), as follows:

...

(4) Development consent must not be granted for development that contravenes a development standard unless:

(a) the consent authority is satisfied that:

(i) the applicant’s written request has adequately addressed the matters required to be demonstrated by subclause (3), and

(ii) the proposed development will be in the public interest because it is consistent with the objectives of the particular standard and the objectives for development within the zone in which the development is proposed to be carried out, and

(b) the concurrence of the Secretary has been obtained.

12. On appeal, the Court has the power under cl 4.6(2) to grant consent to development that contravenes a development standard without obtaining or assuming the concurrence of the Secretary of the Department of Planning and Environment, pursuant to s 39(2) LEC Act, but should still consider the matters in cl 4.6(5) (Initial Action [29]).

The applicant’s written request to contravene the height of buildings development standard

13. The first opinion of satisfaction required by cl 4.6(4)(a)(i) is that the applicant’s written request seeking to justify the contravention of a development standard has adequately addressed the matters required to be demonstrated by cl 4.6(3) (see Initial Action [15]), as follows:

"(a) that compliance with the development standard is unreasonable or unnecessary in the circumstances of the case, and

(b) that there are sufficient environmental planning grounds to justify contravening the development standard."

14. The applicant bears the onus to demonstrate that the matters in cl 4.6(3) have been adequately addressed by the written request in order to enable the Court, exercising the functions of the consent authority, to form the requisite opinion of satisfaction (Initial Action [25]). The consent authority has to be satisfied that the applicant’s written request has in fact demonstrated those matters required to be demonstrated by cl 4.6(3) and not simply that the applicant has addressed those matters (RebelMH Neutral Bay Pty Limited v North Sydney Council [2019] NSWCA 130 at [4]).

15. The common ways in which an applicant might demonstrate that compliance with a development standard is unreasonable or unnecessary are summarised by Preston CJ in Wehbe v Pittwater Council (2007) 156 LGERA 446 [42]-[51] (“Wehbe”) and repeated in Initial Action [17]-[21]. Although Wehbe concerned a SEPP 1 objection, the common ways to demonstrate that compliance with a development standard is unreasonable or unnecessary in Wehbe are equally applicable to cl 4.6 (Initial Action [16]):

1. the objectives of the development standard are achieved notwithstanding non-compliance with the standard;

2. the underlying objective or purpose of the development standard is not relevant to the development, so that compliance is unnecessary;

3. the underlying objective or purpose would be defeated or thwarted if compliance was required, so that compliance is unreasonable;

4. the development standard has been abandoned by the council;

5. the zoning of the site was unreasonable or inappropriate so that the development standard was also unreasonable or unnecessary (note this is a limited way of establishing that compliance is not necessary as it is not a way to effect general planning changes as an alternative to strategic planning powers).

16. The five ways to demonstrate compliance is unreasonable/unnecessary are not exhaustive, and it may be sufficient to establish only one way (Initial Action [22]).

17. The applicant’s written request justifies the contravention of the height of buildings development standard on the basis that compliance is unreasonable or unnecessary because the retention of the front portion of the existing building creates a constraint to the reasonable development of the site. The exceedance of the height of buildings development standards for the site is justified because the building form steps up at the front of the site in response to the change in heights envisaged by the height of buildings map in LEP 2012; the breach at the front of the site is caused by the parapet at the rear of the front portion of the proposal which cannot be seen from Victoria Road; the breach at the rear of the site is a result of the lift and stair well access to the rooftop communal space and cannot be seen from the public domain; the portion of the built form that exceeds the development standard does not result in any amenity impacts on adjoining properties; and the facades of the proposal comply with the height of buildings development standards for the site.

18. The grounds relied on by the applicant in the written request under cl 4.6 must be “environmental planning grounds” by their nature, and environmental planning grounds is a phrase of wide generality (Four2Five Pty Ltd v Ashfield Council [2015] NSWLEC 90 [26]) as they refer to grounds that relate to the subject matter, scope and purpose of the EPA Act, including the objects of the Act (Initial Action [23]). The environmental planning grounds relied upon must be sufficient to justify contravening the development standard and the focus is on the aspect of the development that contravenes the development standard, not the development as a whole (Initial Action [24]). Therefore the environmental planning grounds advanced in the written request must justify the contravention of the development standard and not simply promote the benefits of carrying out the development as a whole (Initial Action [24]).

19. I am satisfied, pursuant to cl 4.6(4)(a)(i), that the applicant’s written request has adequately addressed the matters required to be demonstrated by cl 4.6(3). The applicant’s written request defends the exceedance of the development standard as a justified response to the constraint of retaining the front portion of the existing building.

20. I am satisfied that justifying the aspect of the development that contravenes the development standard as an acceptable response to the constraint created by the retention of the front portion of the existing building on the site can be properly described as an environmental planning ground within the meaning identified by his Honour in Initial Action [23].

Whether the proposal is in the public interest because it is consistent with the objectives of the contravened development standard and the zone

21. The second opinion of satisfaction in cl 4.6(4)(a)(ii) is that the proposed development will be in the public interest because it is consistent with the objectives of the development standard that is contravened and the zone objectives. The consent authority must be satisfied that the development is in the public interest because it is consistent with these objectives, not simply that the development is in the public interest (Initial Action [27]). The consent authority must be directly satisfied about the matters in cl 4.6(4)(a)(ii) (Initial Action [26]).

22. I am satisfied that the proposal will be in the public interest because it is consistent with the objectives of the development standard and the zone, for the reasons given by the applicant in the written request.

Effect of the proposal on heritage significance

23. I have considered the effect of the proposal on the heritage significance of the item and the heritage conservation area and I am satisfied that the retention of the front portion of the existing building on the site is satisfactory and preserves the original form of the heritage item when viewed from the public domain in Victoria Road.

Orders

24. The orders of the Court are:

1. The applicant is granted leave to amend the application to rely on the amended plans and documents listed in the conditions of consent at Annexure A.

2. The Applicant is to pay the Respondent’s cost’s thrown away pursuant to s 8.15(3) of the Environmental Planning and Assessment Act 1979 in the agreed amount of $7,500.00 within 28 days of these orders.

3. The appeal is upheld.

4. Development Application No. DA2017/1183 for the retention of the heritage façade and front portion of the existing building and the demolition of the rear portion of the existing building and construction of a new five storey shop top housing development with two levels of basement parking and associated landscaping, at 219-221 Victoria Road, Gladesville, is approved, subject to the conditions of consent at Annexure A.

____________

Susan O’Neill

Commissioner of the Court

Annexure A (326 KB)

Plans (2.98 MB)

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Decision last updated: 23 December 2019