Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter)
Unit 3, 4 Shepherd Street Darwin NT 0800 PO Box 1017 Darwin NT 0801 T +618 8936 1820 F +618 8936 1839 nt@architecture.com.au architecture.com.au
26 June 2015
The Hon. Gary Nairn AO Chairman NT Planning Commission GPO Box 1680 DARWIN NT 0801
Dear Chairman,
RE: Holtze Area Plan – draft Area Plan and proposed Planning Principles
Thank you for the opportunity to contribute to the draft Area Plan and proposed Planning Principles for Holtze. Please find below a submission of comments, questions, and potential opportunities identified on behalf of the Northern Territory Chapter of the Australian Institute of Architects.
The Australian Institute of Architects is keen to assist and support the work of the Commission and look forward to further opportunities to discuss the work of this Plan.
Regards,
Joshua Morrin RAIA NT Chapter Manager Australian Institute of Architects
June 2015
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter)
General Comments
The area nominated under the Plan occupies a relatively strategic location within the outer limits of the Darwin metropolitan area. In our submission to the Commission in March 2014 (RE: Towards A Darwin Regional Land Use Plan 2014, refer Attachment A), the Institute proposed the merits of "drawing a ring around
the existing footprint" of greater Darwin. We view Holtze as being one such site on the perimeter of this ring. The roughly triangular wedge of land can be therefore be conceived as a fulcrum between a variety of different densities and land uses, between metropolitan, regional, and rural areas, with Palmerston to the south west, Howard Springs to the east, and rural living towards Shoal Bay to the north. Occupying the crown of a local hill, and serviced by significant road networks present and future, including the Stuart Highway and the long term connection to a future Port at Glyde Point, the site is well positioned to service the surrounding areas and accommodate a portion of Darwin's growing population.
Strategic location of Holtze
In line with our comments made early last year in the same submission, we do not believe that the continued low-density expansion of Darwin into the hinterland is the best development option, from any of an economic, social, or environmental point of view. To this end, the Institute supports urban consolidation as general principle for accommodating population growth, and agree with other commentators that the principal benefits are threefold: economic and efficiency, social justice, and sustainability.1
1
Hedgcock, David and Brunner, Julie, “Planning Intervention in metropolitan urban form: the 21st-century challenge of urban consolidation in
Australian capital cities”, in Brunner & Glasson (eds), Contemporary Issues in Australian Urban and Regional Planning (Routledge, 2015), p. 105
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter) Sustainable Development
The Institute advocates for a sustainable approach to the development of our cities. We acknowledge that this is a complex and complicated issue, but are consistent in the view that a holistic approach be taken, which values an integration of the variety of actors in a way that performs economically, socially, as well as environmentally. The Institute also maintains that the best strategies for vibrant communities are those that also view local characteristics as critical to the making of good places in which to live, work, and play.
The Holtze Area Plan in the context
The Holtze Area Plan is viewed as a by-product of the impetus initiated by the
of Darwin’s development
Palmerston Regional Hospital. The Institute supports this government investment in health facilities and services, and agrees that the new Hospital is capable of becoming a focus for urban growth. We also acknowledge that with Darwin’s growing population, there is a need for the provision of new, and affordable, housing. The land nominated under the Holtze Area Plan therefore seems a logical opportunity, and the Institute agrees with the premise that “much of this land is
suitable for urban residential development over time”. In particular, the notion that this new development might be considered as the ‘hospital’ neighbourhood is a powerfully positive idea, if understood as promoting healthy buildings and patterns of life. Questions and Comments
Understanding that the documents as provided for public comment are of a preliminary concept only, there are a number of items where this preliminary nature makes it difficult to comment more comprehensively. The following therefore take the form of questions, observations and suggestions, many of which may already have been considered in the Plan’s development.
Ref. Background, p.1
“An important element in the early stages of urban development in Holtze will be the support available in the Palmerston CBD via Temple Terrace as a priority connection, especially for public transport”.
In theory this sounds sensible, but there is not sufficient content in the Plan to describe the strategy for achieving this. Our view is that there will be practical challenges presented by the constant traversing of the Stuart Highway, which will require a carefully designed solution to minimise the risks to various users. The nature of the intersection (Stuart Highway, Temple Terrace and Glyde Arterial) will require efforts to mediate the scale between heavy vehicle arterials, crossovers, and walkable neighbourhoods. Ref.The Holtze Area Plan and Planning Principles, p.2
“The development of Holtze will be serviced by an integrated framework of roads and trunk infrastructure”
Provided by whom, and when? Is the development of this area to be entirely government-led, or will it also involve private sector investment? The nature of the service arrangements has implications for delivery, as well as providing an impetus for the development of a more detailed spatial plan. “Successful residential development of Holtze will rest on the development of compact walkable neighbourhoods with high residential amenity”.
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter)
In principle, the Institute supports this idea; but the current plan leaves many questions unanswered as to how this will be achieved. For example, what housing types, at what scale, and with which intended family unit size? The Institute maintains that neighbourhoods of the quality nominated result not only from density models, but also from a carefully developed urban design framework, welllocated and relevant community infrastructure and services, and well-designed housing, all of which require collaboration with a range of experienced professionals. Ref. Explanatory Notes – Elements of
“e. The Public Transport Corridor”.
the draft Holtze Area Plan, pp.3-5
The prospect of a future public transport service from Palmerston to Howard Springs via the new hospital is one that the Institute supports, however we note that the success of this initiative relies on agreements regarding the proposed use of Commonwealth land. Are there agreements in place? Further detail is required. “g. Temple Terrace”.
What are the proposed arrangements for the transition across the Stuart Highway for those not utilising the proposed shuttle bus service or travelling by vehicle? This will be a major intersection, where cyclist and pedestrian amenity will need to be carefully considered, in order to support the stated objective of a compact walkable neighbourhood. We note, for example, that at present the closest schools are in Palmerston, and would require school children to cross the busy Stuart Highway. “i. Housing integrated with escarpment edge”.
This is rightly identified as an opportunity for “small-lot housing integrated with
woodland”, but will require specialist design advice to ensure that the two are successfully integrated. The worst outcome, albeit the easiest from a development point of view, is of single detached “cookie-cutter” dwellings occupying an entirely denuded landscape. There are examples of exactly this type of development elsewhere in metropolitan Darwin, which the Institute argues offer a significantly lower level of amenity than is required for the development of vibrant communities. “Community Purpose Land and Open Space Areas”.
It is noted that these are not indicated in this preliminary concept, but what are the bases for the “allowances” made, and what are the principles for their “integration” into the residential area? Taylor Road
What is the future intention with respect to Taylor Road? Large sections of it appear to be rezoned. If this is the case, what are the implications for the traffic network?
Environmental Impact Assessment
The area under question incorporates a significant amount of area that, as Rural Residential zoned land, is relatively undeveloped. Has an Environmental Impact Assessment been undertaken? The Institute anticipates the completion of one as part of informing future development in a manner that attends to the particular characteristics of the site.
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter) Opportunities
All development involves the significant investment of time, resources and energy. Consequently, the Institute believes that a process of constructive engagement and critique is essential in architects achieving the best outcomes not only for their clients, but also for pieces of public infrastructure, as way of promoting the public good. In the same way, the following are offered as opportunities identified, with respect to referenced elements of the Plan.
Ref. Explanatory Notes – Elements of the draft Holtze Area Plan, pp.3-5
“a. A ‘Master Planned’ Palmerston Regional Hospital”: “Master planning of the site is intended to address the neighbourhood centre as the community interface and activity ‘hub’ of the hospital and medical precinct”; “master planning will also inform infrastructure provision and allow access, parking, and the public transport corridor to be well located to service the future development”.
This would appear difficult to deliver in the context of a project for which the Managing Contractor is due to be appointed for the building in July 2015, with construction due to commence in October 2015.2 We are uncertain whether master planning for the site is due to follow construction of the Hospital or not; typically it would precede design of the principle buildings. Either way, the Institute urges that the masterplan for the Hospital be completed, and that the development of the Holtze Area Plan take this into consideration as a foundational element for any proposed new roads or service infrastructure. We agree, as noted earlier, that the Hospital will become a focus for urban growth, and consequentially especially influential with respect to the stated objective of a walkable community. As a significant piece of public infrastructure, how it is planned out matters a great deal. “d. The future Murrumujuk and Glyde Point Arterial Corridor”: “there is no funded program to construct the arterial road further than necessary to access the hospital site. […] It follows that, with no present need for a new port at Glyde Point, the arterial corridor is likely to remain undeveloped into the foreseeable future. […] A minor realignment of the arterial is proposed to provide more Crown land for urban residential development proximate to the hospital”.
This is logical, but what are the plans for the interim? The open space(s) within the Holtze area will be a valuable piece of community infrastructure. The Plan requires a clearer outline of the intentions for these primary pieces of infrastructure. The proposed adjustment of the alignment also results in parcels of what appear to be very small size on the northern side of the Arterial; it is presumed that this is the 'transition area' referred to in the Frequently Asked Questions. “h. The Darwin to Howard Springs Cycleway – old Railway Corridor”: “The recently constructed extension of the cycleway to Howard Springs is of a high quality offering an excellent commuter and recreational facility for future workers and residents. In particular the proposed ‘hospital’ neighbourhood has the opportunity to interface with the amenity of the cycleway and the wooded escarpment edge”.
The Institute agrees with this assessment of the existing infrastructure and its value; what is not clear from the present plan is how it engages with it. The road
2
http://palmerstonregionalhospital.cmail1.com/t/ViewEmail/r/A141F660B20592F02540EF23F30FEDED/B0729D15FF0259E13FEC1D8A50AFD3BD
Accessed 26 June 2015
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter)
pattern appears to turn its back on it, rather than engaging with it in the manner of an activated edge that is critical to a well-integrated, walkable community. Ref. Draft Planning Principles, pp.7-9
"Development of Holtze will respond to the natural topography, environmental constraints and drainage features, having particular regard for the Mitchell Creek catchment".
The Institute proposes that it is important to view the natural topography and features not only in terms of constraints, but also in terms of opportunities; this opens up a discussion about recognising the unique qualities of a place. "2. Demonstrate a design response to the site's land form, land units and natural drainage features".
We submit that a "design response" to the nominated criteria should incorporate more than a strategic drainage framework; it should also articulate a responsiveness to place via urban design criteria, planting strategies (including retention strategies), culturally specific elements, historical overlay, flora and fauna, and so on. A design response to the nominated constraints of drainage might also be viewed as an opportunity to implement best practice principles of water sustainable urban design. Holtze will include compact and walkable urban neighbourhoods with higher density dwellings close to shops and public transport. Interconnected local roads will distribute rather than concentrate traffic, and support convenient access for pedestrians and cyclists.
Is this area large enough to be considered in terms of multiple neighbourhoods? Renowned urbanist Jan Gehl notes the ‘magic one km2’ 3 as a yardstick for defining walkable centres, in that it enables pedestrians to reach all the important functions of a city by walking one kilometre or less. A comparative scale exercise reveals that the total area of Holtze is not dissimilar to Darwin's CBD, which delivers a strong sense of cohesion and is arguably understood as a single "neighbourhood". This suggests that there might be value in reconsidering the location of the primary neighbourhood ‘hub’ in order to make it more central to all residential areas.
Comparative scale exercise with ‘magic one km2’ radius, Darwin CBD and Holtze (Darwin CBD overlaid for comparative purposes). Adapted from Gehl, p.121.
3
Gehl, Jan; Cities for People (Island Press, 2010), p. 121
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter)
The current proposal appears to lack an identifiable 'centre', which is important to the development of legibility, amenity and community. Planning Principle 7(a) refers to the Palmerston Regional Hospital and associated mixed use health precinct as supporting “the early development of a viable activity hub /
neighbourhood centre”. One opportunity might be to review the location of the mixed use medical precinct, and consider a “centralised services” model, in which the Hospital and associated mixed use medical precinct constitute the heart of a new 'health' suburb. This centralised precinct would have arguably better access (at grade) across two primary frontages, rather than just one, which would increase the porosity of the traffic network, and also "benefit from exposure to
passing traffic and incorporate commercial activities with a focus on local community needs and opportunities for employment" (draft Planning Principles, 8(a)(i)).
Current Plan (left); and opportunity for “Centralised Services”model (right) 8 . Provide compact, safe and walkable neighbourhoods by: […] (c) providing a ‘boulevard style’ main street directly through the neighbourhood centre, designed to support efficient public transport, the pedestrian/cycleway network, and with street trees to provide shade and visual amenity.
Whilst we understand that this principle is attempting to describe a complex idea without being specific, we question whether ‘boulevard style’ is the appropriate point of reference for Holtze? We propose that the main street might be approached in a more regionally specific way, that speaks to the identity of the Territory, but still incorporates the same principles (efficient public transport, pedestrian/cycleway network, street trees for shade and amenity). This same principle of trying to instil “local character” should, we propose, be applied across the Plan, from strategies for the Landscape and Urban Design framework, to the design of the housing, Hospital and Health Precinct, and the incorporation of historical points of reference, including Indigenous heritage. 9. Provide housing choice in appropriate locations by: (a) creating lots for single and multiple dwellings across a broad range of residential density, supporting a mix of housing types including small-lot single dwellings; […] (c) facilitating requiring climate responsive design
The Institute supports the promotion of housing choice via the introduction of a diversity of lot sizes for a mix of densities and housing typologies, and views this is June 2015
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter)
a mechanism for the provision of affordable housing. We maintain, however, that affordability pertains not only to the principal construction cost, but also to ongoing costs, in particular with respect to energy efficiency. To this end the Institute submits that design principles for housing should not just facilitate but
require climate responsive design, as a measure which is commensurate not only to the tropical climate of Darwin, but also to the notion of a ‘healthy’ precinct. The Institute would welcome the opportunity to contribute to the development of design principles relating to the provision of future housing within Holtze. Re-zoning of Rural-Residential Land
One of the primary implications of the Holtze Area Plan is the rezoning of Rural Residential to a variety of other uses. It is noted4 that rural-residential land, whilst suitable for the provision of land for housing growing populations, also contribute in a range of other ways, including: + the provision of natural environments and features; + endemic bush areas; + carbon dioxide and oxygen exchange to improve urban air quality; + cooling effects to local built up areas, and + community spaces for connecting to nature. In the interests of maintaining a holistic approach to this development opportunity, the Institute supports the well-designed integration of existing features of the landscape, as well as the incorporation of new landscaping elements into the future suburb that are sympathetic to the qualities of existing flora.
Interface with the surrounding
The Institute's view is that vibrant cities result from, amongst many things, well-
context
connected communities. The nature of the existing and proposed road networks indicate that Holtze runs the risk of becoming isolated from the surrounding context, bounded by Stuart Highway to the diagonal, a future arterial to the north, and another line to the east. These important pieces of road infrastructure pose significant challenges to the integration of Holtze with its surrounding suburban and rural fabric, and it is difficult to identify much in the proposed Plan that demonstrates strategies for increasing connectivity across these boundaries. How the plan engages with other neighbouring communities ‘across the street’, including Palmerston and the adjacent “community living” zone, also requires further consideration and/or additional detail.
The ‘healthy’ suburb?
The Institute supports the development and promotion of healthy neighbourhoods; this involves walkability, recreational provisions, landscape treatment, etc. Given the particular impetus of this Plan, however, how might this Plan engage at a more symbolic and cultural level with the Hospital? How might the suburb be an exemplar of a ‘healthy’ neighbourhood?
Green corridors?
We observe that the shape of the land, as well as the traffic noise associated with the Stuart Highway, might suggest the prospect of a “green buffer” to the southern edge, complimented by a number of “green corridors” along existing
4
Brunner, Julie and Beard, Natalie, “Rural-residential lifestyles: sustainable lifestyle choice or pure extravagance? A Western Australian review”, in
Brunner & Glasson (eds), Contemporary Issues in Australian Urban and Regional Planning (Routledge, 2015), p. 124
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter)
creeks and waterways. The utilisation of these natural features seems an obvious opportunity for providing amenity as well as a natural cooling effect.
Current plan with contour overlay (left); and potential green buffer and corridors overlaid (right) Closing remarks
The Institute appreciates that within the constraints of various departments and stakeholders, it can be difficult to maintain a holistic vision and broader values, and to this end wish to commend the Planning Commission for their commitment to public engagement. Maintaining an open dialogue is essential to both a good process and a good outcome, and is long recognised as one of the four pillars of sustainable development. We look forward to continuing to work with the Commission as the Plan evolves, in order to see the future development of Holtze as one that exceeds the expectations of government, industry and community alike.
END
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Holtze Area Plan – draft Area Plan and proposed Planning Principles NT Planning Commission Submission by the Australian Institute of Architects (NT Chapter)
SUBMISSION BY Australian Institute of Architects - NT Chapter The Royal Australian Institute of Architects trading as Australian Institute of Architects ABN 72 000 023 012 Unit 3, 4 Shepherd Street DARWIN NT 0800 GPO Box 1017 DARWIN NT 0801 Australia T +61 8 8936 1820 E nt@architecture.com.au PURPOSE This submission is made by the NT Chapter of the Australian Institute of Architects (the Institute) to the NT Planning Commission in response to the invitation issued under the Holtze Area Plan suite of documents, published in May 2015. Referenced documents include: -
Holtze Area Plan: Explanatory Document
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Holtze Area Plan: have your say
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Holtze Area Plan: Frequently Asked Questions
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Northern Territory Planning Commission, Media Release: Consultation opens for Holtze area planning (13 May 2015)
At the time of the submission the office bearers of the NT Chapter are Simon Scally (President), Richard Layton (Past President), Andrew Broffman, Alice Chambers, Ross Connolly, Jenny Culgan, Steven Huntingford, Rossi Kourounis, Tammy Neumann, Robert Foote, Katy Moir, Joshua Bellette, Jurse Salandanan. This paper was prepared by Joshua Morrin, NT Chapter Manager, with the contributions of Simon Scally, Jenny Culgan, and Tammy Neumann. ABOUT THE INSITUTE The Australian Institute of Architects is an independent voluntary subscription-based member organisation with more than 12,000 members. The Institute is the peak body for the architectural profession in Australia, and works to improve our built environment by promoting quality, responsible, sustainable design.
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Appendix A: Submission by the Australian Institute of Architects (NT Chapter), RE: Towards A Darwin Regional Land
Use Plan 2014, March 2014
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