Plot Ratio Controls Amenity, Infrastructure & Other Consequences
MARK SHEPPARD 18 November 2015
INTRODUCTION
INTRODUCTION
Melbourne Amendment C262 Explanatory Report
INTRODUCTION
Melbourne DDO10
INTRODUCTION Reasons for Melbourne plot ratio control: •
•
Internal amenity Equitable development (internal amenity of future development)
• •
Public realm amenity & character Infrastructure capacity
INTRODUCTION
INTRODUCTION Other consequences: •
• • •
•
Greater certainty in relation to property value Transferable development rights Lot consolidation Basement parking & services More diverse built form
AMENITY
AMENITY
Multiple built form scenarios for 600 Lonsdale Street, with differing amenity implications
AMENITY
Multiple use scenarios for 600 Lonsdale Street, with differing amenity implications
AMENITY
Varied built form outcomes for large and small properties, with differing amenity implications
AMENITY Conclusion: We need clear controls to ensure good internal amenity, equitable development opportunities and good public realm amenity. But a plot ratio control will not achieve this. (This is presumably why Amendment C262 also introduced setback controls.)
INFRASTRUCTURE CAPACITY
INFRASTRUCTURE CAPACITY Community facilities Increased density generates increased demand for open space and other community facilities. (And utility services.) Therefore, plot ratio of a development is a useful way to measure the need for additional infrastructure. But it need only be a contribution mechanism, not a limit.
INFRASTRUCTURE CAPACITY Open space
New York experience teaches us that the quality of open space is important
INFRASTRUCTURE CAPACITY Movement Proposition: Melbourne CBD streets are far from full. There is substantial capacity yet to be realised through roadspace reallocation. Melbourne CBD’s streets are wide by comparison with other city centres with plot ratio controls.
INFRASTRUCTURE CAPACITY Infrastructure planning Plot ratio limit may simplify infrastructure planning. But not straightforward, because not all sites will achieve maximum plot ratio. And different uses have different infrastructure demands.
OTHER CONSEQUENCES
OTHER CONSEQUENCES Certainty Plot ratio limits provide greater certainty in relation to land value. This reduces speculation and adversarial planning approval processes.
OTHER CONSEQUENCES Certainty But plot ratio controls don’t provide certainty of amenity outcomes. And they may imply certainty which isn’t justified when formbased controls are taken into account.
OTHER CONSEQUENCES Transferable development rights The ability to purchase the floor area entitlement of an adjoining property could result in: •
An incentive to preserve heritage/ characterful buildings
•
Excessive height
OTHER CONSEQUENCES Lot consolidation The side setback requirements, combined with the ability to combine the floor area entitlement of adjoining properties, encourages lot consolidation. This could result in: •
Feasible development of otherwise undevelopable properties
•
The loss of a fine-grained streetscape character
OTHER CONSEQUENCES Basement parking & services Plot ratio limits may discourage above-ground parking and services, resulting in better street activation.
OTHER CONSEQUENCES Diversity When used without height limits, plot ratio controls may foster a more diverse built form.
OTHER CONSEQUENCES Diversity But Melbourne has a diverse built form anyway, due to highly varied site characteristics. A uniform plot ratio limit may militate against the creation of a legible urban form, e.g. through built form ‘markers’ at key nodes.
CONCLUSION
CONCLUSION A plot ratio control is not the best way to: •
ensure good internal amenity
•
ensure equitable development
•
ensure good public realm amenity
A plot ratio control is not necessary to: •
manage demand for street space
CONCLUSION However: •
Plot ratio is a useful way to measure the need for additional infrastructure. But it need only be a contribution mechanism, not a limit.
•
Plot ratio limits provide greater certainty in relation to the value of land. But they may imply certainty which isn’t justified when form-based controls are taken into account.
•
A plot ratio control could incentivise the preservation of heritage/ characterful buildings.
•
A plot ratio control could discourage above-ground parking and services.
CONCLUSION Consideration should be given to the way that a plot ratio control: •
may militate against the creation of a legible urban form
•
could result in the loss of a fine-grained streetscape character
THANK YOU
DAVID LOCK ASSOCIATES Contact: Mark Sheppard
Level 2 / 166 Albert Road South Melbourne Victoria 3205
t: +61 3 9682 8568 info@dlaaust.com www.dlaaust.com