Online Form Submission - The Bays Precinct Sydney...Time Out should list it as one of 10 places to visit in Sydney. For long-term operational functionality and resilience, the Sydney

Online Form Submission Title: No title provided Details: This submission is a combined response to both the precinct discussion paper and the Call for Great Ideas. The precinct recommendations apply to the whole precinct and its interface with the surrounding land. The City’s ‘Great Ideas’ relate more specifically to the four priority destinations – Bays Waterfront Promenade, Bays Market District, White Bay Power Station and White Bay – within the framework of UGNSW’s criteria. These two sets of recommendations cannot be considered in isolation; the ‘Great Ideas’ may lead to the means of achieving broader goals for the precinct, not actions which should be pursued in isolation. Case-studies presented throughout this submission include both international and local examples where ‘Great Ideas’ such as those on the scale proposed have been successfully implemented. Thematic recommendations: - Planning for the Bays should be tightly referenced to the objectives and principles of Sustainable Sydney 2030 and A Plan for Growing Sydney – both plans should equally and transparently guide both planning and development directions and inclusions. - The Bays should reflect the themes green, global and connected. Success in developing the Bays will be based on establishing and maintaining good working relationships and partnerships, a restorative approach to renewal and resilient outcomes in decision-making – being aware of adaptation and mitigation strategies as we face climate change. - The Bays Precinct contains more water area than land area. The future uses of the water space and the water edge are just as important as the future uses of the land. - The most pervasive land use along the harbour edge elsewhere in Sydney is private (executive-class) waterfront housing. The Bays should focus on new and complementary outcomes which can only be achieved at the Bays and which cannot be achieved elsewhere. There should be a greater emphasis on public access and activity throughout to help balance against the predominant private access outcomes of earlier renewal projects within the harbour reaches. Key precinct-wide recommendations: - The Bays is a necklace of land and edge structures around a valuable waterfront. Retain and enhance harbour functions which support Sydney’s economy. These include White Bay as a deep water port (and cruise ship terminal in the medium term) and the use of Blackwattle and Rozelle Bays for maritime, recreational and tourism uses. Large pleasure craft such as super yachts should be restricted from Blackwattle and Rozelle Bays and these water spaces should be focussed on expanded passive and active recreational water uses given their isolation from deep harbour swells and extensive parkland vehicle access points. - Develop an integrated transport strategy by enhancing existing assets and plans. While the Bays are well located geographically, they are poorly connected on the larger western side reaches except by road.

Water access is good but landings are commercially restricted. We should plan to reuse valuable infrastructure such as the low-level Glebe Island Bridge and investigate light rail and ferry network extensions. Examine future metro rail for a Bays station and fully model WestConnex traffic and exhaust impacts, if it proceeds. A continuous unrestricted pedestrian and cycle foreshore promenade from Pyrmont Point to Rozelle is fundamental. - Create a world class fish market at the head of Blackwattle Bay as an economic engine. This should reflect international best practice in design procurement and be a drawcard experience for a regional catchment. Time Out should list it as one of 10 places to visit in Sydney. For longterm operational functionality and resilience, the Sydney Fish Market cannot be relocated in the basement of a residential development; rather, it should be operationally autonomous with its own distinctive architecture. - Heal the now disfigured Wentworth Park by removing the intrusive greyhound track and stands, returning this inner urban parkland to full public use as regional open space. Upon removal, the park should be redesigned for a wide range of active and passive recreational uses. This would deliver an outstanding and achievable open space outcome based on enhancing an existing Crown asset. As large areas of new open space in the Bays will be a challenge to deliver, but are essential as densities increase, the park must not be seen as a development site for other intrusive (such as housing, retailing or education) uses. A new enlarged park could be integrated with new public access connections to the foreshore and fish market. - Adopt a robust housing policy with diversity targets before any proposals involving housing on any/all UGNSW sites are progressed. Consider how partially subsidised yet genuine needs within the policy mix are funded through development returns or land use allocations...PLEASE REFER TO ATTACHMENT FOR COMPLETE SUBMISSION (exceeds file size for web form)."

"Insert date XX Month Year"

City of SydneyABN 22 636 550 790

GPO Box 1591 Sydney NSW 2001 Australia

Town Hall House 456 Kent Street Sydney NSW 2000 Australia Phone +61 2 9265 9333 Fax +61 2 9265 9222 TTY +61 2 9265 9276

[email protected]

www.cityofsydney.nsw.gov.au TRIM 2015/336036

July 2015

Contents

Executive Summary ................................................................................................................... 3

1 Introduction ............................................................................................................................... 11

1.1 Overview ..................................................................................................................................... 11

1.2 Urban Growth NSW’s objectives for transformation of the Bays Precinct ................................. 11

1.3 Previous findings and feedback on the Bays Precinct ............................................................... 12

2 Employment and Economy ..................................................................................................... 15

2.1 Opportunities for the Bays Precinct ............................................................................................ 15

3 Transport ................................................................................................................................... 20


4 Housing ..................................................................................................................................... 26


5 Open Space ............................................................................................................................... 30


6 Community Facilities ............................................................................................................... 39


7 Cultural Facilities ..................................................................................................................... 43


8 Environmental Sustainability .................................................................................................. 47


9 Renewal and Design Excellence ............................................................................................. 51


10 Governance and Delivery ........................................................................................................ 54


11 Great Ideas ................................................................................................................................ 60

Appendices

Appendix A - Attachments

City of Sydney Submission to Urban Growth NSW – July 2015

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Figures 1 & 2 Current uses at the head of Blackwattle Bay (Images: City of Sydney)


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Executive Summary This submission is a combined response to both the precinct discussion paper and

the Call for Great Ideas.

The precinct recommendations apply to the whole precinct and its interface with the

surrounding land. The City’s ‘Great Ideas’ relate more specifically to the four priority

destinations – Bays Waterfront Promenade, Bays Market District, White Bay Power

Station and White Bay – within the framework of UGNSW’s criteria.

These two sets of recommendations cannot be considered in isolation; the ‘Great

Ideas’ may lead to the means of achieving broader goals for the precinct, not actions

which should be pursued in isolation. Case-studies presented throughout this

submission include both international and local examples where ‘Great Ideas’ such

as those on the scale proposed have been successfully implemented.

Thematic recommendations:

Planning for the Bays should be tightly referenced to the objectives and

principles of Sustainable Sydney 2030 and A Plan for Growing Sydney

– both plans should equally and transparently guide both planning and

development directions and inclusions.

The Bays should reflect the themes green, global and connected.

Success in developing the Bays will be based on establishing and

maintaining good working relationships and partnerships, a restorative

approach to renewal and resilient outcomes in decision-making –

being aware of adaptation and mitigation strategies as we face climate

change.

The Bays Precinct contains more water area than land area. The future

uses of the water space and the water edge are just as important as the

future uses of the land.

The most pervasive land use along the harbour edge elsewhere in

Sydney is private (executive-class) waterfront housing. The Bays should

focus on new and complementary outcomes which can only be

achieved at the Bays and which cannot be achieved elsewhere. There

should be a greater emphasis on public access and activity throughout

to help balance against the predominant private access outcomes of

earlier renewal projects within the harbour reaches.


4

Key precinct-wide recommendations:

The Bays is a necklace of land and edge structures around a valuable

waterfront. Retain and enhance harbour functions which support

Sydney’s economy. These include White Bay as a deep water port (and

cruise ship terminal in the medium term) and the use of Blackwattle and

Rozelle Bays for maritime, recreational and tourism uses. Large pleasure

craft such as super yachts should be restricted from Blackwattle and

Rozelle Bays and these water spaces should be focussed on expanded

passive and active recreational water uses given their isolation from deep

harbour swells and extensive parkland vehicle access points.

Develop an integrated transport strategy by enhancing existing assets

and plans. While the Bays are well located geographically, they are poorly

connected on the larger western side reaches except by road. Water

access is good but landings are commercially restricted. We should plan

to reuse valuable infrastructure such as the low-level Glebe Island

Bridge and investigate light rail and ferry network extensions. Examine

future metro rail for a Bays station and fully model WestConnex traffic and

exhaust impacts, if it proceeds. A continuous unrestricted pedestrian and

cycle foreshore promenade from Pyrmont Point to Rozelle is fundamental.

Create a world class fish market at the head of Blackwattle Bay as an

economic engine. This should reflect international best practice in design

procurement and be a drawcard experience for a regional catchment.

Time Out should list it as one of 10 places to visit in Sydney. For long-

term operational functionality and resilience, the Sydney Fish Market

cannot be relocated in the basement of a residential development; rather,

it should be operationally autonomous with its own distinctive architecture.

Heal the now disfigured Wentworth Park by removing the intrusive

greyhound track and stands, returning this inner urban parkland to full

public use as regional open space. Upon removal, the park should be

redesigned for a wide range of active and passive recreational uses. This

would deliver an outstanding and achievable open space outcome based

on enhancing an existing Crown asset. As large areas of new open space

in the Bays will be a challenge to deliver, but are essential as densities

increase, the park must not be seen as a development site for other

intrusive (such as housing, retailing or education) uses. A new enlarged

park could be integrated with new public access connections to the

foreshore and fish market.


5

Adopt a robust housing policy with diversity targets before any

proposals involving housing on any/all UGNSW sites are progressed.

Consider how partially subsidised yet genuine needs within the policy mix

are funded through development returns or land use allocations (Treasury

interest), inclusive zoning and/or housing levies. Policy settings should set

an average target of 21-24 per cent for affordable rental housing across

all UGNSW inner city redevelopment sites, balancing high-value free

market housing (catering for owner-occupiers and investors) with the

proportionate needs of those not able to compete in what has become a

global market for acquiring housing assets in Sydney. In the context of

site uplifts, clear targets of 60 per cent for market and 40 per cent for all

other non-market housing types should be set for The Bays Precinct to

cater for all of the community. Being an accessible location close to

transport, employment and services, it provides all the requisite attributes

for providing successful affordable housing. The supply of affordable

housing should be complemented by other forms of housing tenure in the

Precinct. The City will work with UGNSW to identify the best locations and

implementation arrangements to ensure the early delivery of affordable

rental housing. These opportunities may include establishment of a new

affordable housing levy on private land specific to the Bays Precinct and

identification of sites best suited to delivery of affordable housing units.

Adapt and reuse the heritage-listed White Bay Power Station as an

economic engine for the western precinct as a driver of our most globally

competitive industries. Suitable uses include a cultural or educational

institution (domestic or internationally funded), or a premium campus

for a commercial enterprise or employer to catalyse the Bays

Precinct’s economic contribution to Sydney’s future. A large integrated

community facility may also be provided to support more localised

facilities. Onsite tri-generation power could provide for cruise ship power

needs overnight and for the institutional needs during the day, providing a

night/day power balance.

Achieve the internationally recognised C40 Climate Positive certification

for the entire Bays Precinct development and establish a Single Utility

Model, using the Barangaroo model as a basis, to manage the delivery of

robust sustainability targets. Also consider certification for a broad

community sustainability rating tool. These provide a framework for the

delivery and monitoring of precinct wide water recycling as well as tri-

generation which could also resolve the dirty fuel issue of night-time

sulphur emissions by cruise ships in port.


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Develop a structure plan for the entire Bays Precinct that sets out the

strategic vision and guiding principles and illustrates the proposed

transformation. This should be done prior to setting dwelling or job

targets. It should detail proposed land uses, open spaces, facilities and

transport, and be accompanied by a delivery plan which sets out staging,

future funding and processes for governance and engagement. A cultural

strategy and an economic strategy should inform and complement the

structure plan so as to optimise the potential of the Bays Precinct as an

economic driver and cultural destination.

Establish a Bays Precinct-specific Memorandum of Understanding

(MoU) between the City of Sydney and UGNSW to set out the parameters

for collaboration to ensure the delivery of international best practice urban

renewal outcomes. Establish an associated MOU with the City and Roads

and Maritime Services to guide the design, implementation and

management of water based activities.

Roll out a clear engagement strategy which guides all stakeholders

through the transformation process and work closely with the City to

ensure programs and efforts of both parties are complementary.

Demonstrate a commitment to best practice and learn from the past

through more transparent governance frameworks that clearly separate

concept plans and architectural and urban design intentions from the

commercial nature of confidential tenders, development bids and project

development agreements. Governance arrangements must enable design

excellence and competitive design processes to be independent of a

development bids for a specific project outcome such as a fish market.

The City of Sydney design excellence processes are a good model.

Return the planning role to the Central Sydney Planning Committee and

City of Sydney once the strategic planning is complete.

‘Great Ideas’ recommendations:

Progressively extend inner harbour ferry services to the Fish Markets,

White Bay Power Station and White Bay Cruise Terminal as part of a

wider integrated transport strategy. To supplement this, allow a private

but regulated Uber-style ferry or water taxi service based on GPS based

hand-held digital technology.

The Pyrmont and Glebe Island Bridges were early, expensive toll-based

transport infrastructure investments by the people of NSW. Retain and

reuse Glebe Island Bridge as a key low-level pedestrian and cycle


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connection, important heritage asset and future light rail link to the White

Bay Power Station, Cruise Terminal and stabling yards at Rozelle from

the existing light rail line.

Open up public access to the Bays foreshore from day one. This can

be achieved through clear signage and low-cost and short-term

treatments wherever land is publicly owned. This should be delivered in

advance of the final promenade.

Fund and negotiate removal of the greyhound racing track and

structures from Wentworth Park (Crown land). Heal the public park and

return this area of land for full public use as part of an expanded open

space asset for the entire precinct. The City of Sydney could use its

processes to develop a design for the healed park to cover the most

current open space needs (open space study is under way). The highly

regarded Prince Alfred Park revitalisation was a project led by the City on

Crown land.

Commit to an open international design competition for the new

Sydney Fish Markets and the surrounding public domain once the best

location has been settled. The vision should be to deliver a new world

class market to rival those of Tokyo and Seattle, and connect the market

to Blackwattle Bay and the waterfront promenade, embracing Wentworth

Park by relocating or calming Bridge Road.

Set up a digital economy working group to explore opportunities to

position the Bays Precinct as the natural extension of the largest

digital and creative precinct in Australia which has emerged in Ultimo

and Pyrmont.

In concert with progressing a White Bay Power Station and Cruise Ship

Passenger Terminal light rail extension, explore a more direct light rail

service between the City and the Bays Precinct via a short tunnel under

Allen Street in Pyrmont. This would provide express services into the

City, connecting the Exhibition and Convention centres via the Fish

Markets to White Bay in a matter of minutes. It would also provide

express services to and from Dulwich Hill and possibly remove 8 to 10

minutes from existing travel time.

The long term use of White Bay will be influenced by the ongoing

presence of the cruise passenger terminal. Given that a high proportion of

cruise trips are taken by domestic passengers, a long term plan would be

to relocate this terminal to Botany Bay closer to the source of fuel and


8

supplies, and closer to the airport. This would enable the larger cruise

ships which cannot pass under the Harbour Bridge to be accommodated

and take pressure off Garden Island to accept domestic cruise ships as

well as seasonal round the world cruise ships.

The review and evaluation of all ‘Great Ideas’ requires a range of perspectives and

independent views. The City recommends that UGNSW extend the Independent

Assessment Panel team assembled to review the ‘Great Ideas’ to include the City,

other agencies, independent multi-disciplinary experts and community

representatives.

An expanded panel will give a better cross-section of interests and is likely to be

better suited to identifying new opportunities for achieving excellence. The City’s

involvement in UGNSW’s Parramatta Road project, including a staff secondment,

illustrates the importance of enhanced relationships and collaboration.


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Figure 3: (above) Bays Precinct 2011 (Image: Google Earth) Figure 4: (right) Melbourne Docklands and Fishermans Bend redevelopment area overlaid Sydney’s Bays Precinct to same scale.


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1 Introduction 1.1 Overview The City of Sydney Council (the City) provides this submission as a combined

response to two requests for comment. The City broadly supports UrbanGrowth

NSW’s (UGNSW) City Transformation Life Cycle approach and the five objectives for

the transformation of the precinct as set out in the discussion paper.

The existing land uses and locational attributes of the Bays Precinct offers real

potential for the precinct to become a place where contemporary and future harbour

industries and land for advanced productive enterprises can coexist. It can be a

place where contemporary dedicated public transport options and digital connections

create a vibrant employment hub. It can also be a place with a distinct cultural

identity which attracts international tourists and showcases best practice

environmental sustainability initiatives. In carefully considered locations that do not

interfere with productive land uses or foreshore access, and is capable of satisfying

relevant housing standards, a diverse range of housing options could be considered.

Compared to Melbourne’s Docklands and Fisherman’s Bend area, the Bays Precinct

is a much smaller harbour edge condition rather than an extensive redevelopment

space. The existence of multiple leases, disparate public land control, private land

ownership, extensive contamination on land and in water and uncertainty over

WestConnex traffic and ventilation impacts challenge a holistic redevelopment

strategy and makes progress slow and genuinely restorative renewal expensive.

The Bays Precinct has been the subject of several studies and investigations over

recent years. The findings of these studies remain relevant and provide insights to

inform current planning and processes. In particular, recommendations of the Bays

Precinct Taskforce in its final report, Bays Precinct Strategic Framework Report to

the NSW Government, August 2012, noted the following: balancing the needs of

ongoing port and maritime operations with the almost default drive for residential

redevelopment; retention of public ownership of foreshore land; continued use of the

bays for recreational and tourist uses; delivering a climate positive, low carbon

precinct with decentralised energy; integrated transport planning; and providing

affordable housing. 1.2 Urban Growth NSW’s objectives for transformation of the Bays Precinct

UGNSW has released two documents as part of its stakeholder engagement process

for the redevelopment of the Bays Precinct: Transforming City Living: The Bays

Precinct and the Call for Great Ideas. In its role as the NSW Government’s

development agency, UGNSW has a mandate to:


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increase the supply of housing and create jobs

strengthen the NSW economy by delivering world class centres that

attract investment and boost productivity

maximise public investment in infrastructure

operate on a commercially astute basis

promote collaboration across government, the private sector, community

and industry

To assist in meeting this mandate, UGNSW has identified the following key

outcomes for the Bays Precinct:

space for knowledge-intensive jobs of the future

a well-connected efficient network of links for movement

a carbon neutral, ecologically pristine precinct that drives a new

vernacular for eco-city planning and design

meeting the requirements of a competitive, global city while still delivering

all that is loved locally

a continuous public waterfront promenade

a diverse offering of housing choices including affordable housing

a transformation to support the growth of global Sydney

valuing the precinct’s heritage and cultural assets

new and improved public spaces

1.3 Previous findings and feedback on the Bays Precinct Work undertaken over recent years on the Bays Precinct highlights common themes

and a shared vision for a precinct which delivers urban renewal excellence and

economic, community and sustainability outcomes for the local area, the Sydney

region and the State.

The Bays Precinct Strategic Framework Report to the NSW Government released by

the Bays Precinct Taskforce in August 2012 made a number of recommendations,

the City supports and reiterates:

Publicly owned foreshore lands and harbour waters should remain in

public ownership (long-term resilience)

An integrated traffic management and transport plan for the entire

precinct should be prepared to guide future development

Glebe Island and White Bay should remain commercial port and maritime

related uses as a minimum capacity for a port city


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Rozelle and Blackwattle Bays should continue to be used for recreational

uses, commercial boating and maritime and tourist purposes

Residential development must be carefully considered in terms of its

impact on the long term flexibility of port and maritime operations and

public open space uses

Future residential uses should include an affordable housing component

More recently, the City commissioned two investigations:

The Bays Precinct Urban Renewal Program – Planning Processes and

Consultation Review Report by Elton Consulting (2014) which

summarised the myriad of documents prepared on the Bays Precinct and

consultation undertaken in the last two decades, their outcomes and

resulting common principles. The study was designed to inform

community participants in contributing to subsequent consultation

processes

The Best Practice Urban Renewal by SGS Economics and Planning

(2015) examines urban renewal case studies in Australia and

internationally. The study points out the planning principles, processes

and governance that lead to best practice urban renewal outcomes.

These studies highlight that, in addition to planning and development outcomes,

effective governance and strategic planning processes are ultra-critical to delivering

viable, sustainable urban renewal that will endure in the long term. The SGS study

highlights the following aims which are strongly supported:

Public interest as a key guiding principle

Rigorous strategic planning process setting out clear measurable

objectives and logical development stages

Provision of key infrastructure prior to development

Smallest lots possible and maximum number of developers

Independent review and effective monitoring and evaluation

1.4 The City’s submission

Building on the recommendations and principles noted above, the City provides this

combined submission to both the discussion paper and the Call for Great Ideas. The

submission includes new recommendations to guide the development of the Bays

Precinct and discusses the City’s position on a number of key areas highlighted in


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the discussion paper. The broad recommendations relate to key areas of concern

including affordable housing, open space, transport and environmental sustainability,

which apply to the whole precinct.

The City’s ‘Great Ideas’ relate more specifically to the four priority destinations –

Bays Waterfront Promenade, Bays Market District, White Bay Power Station and

White Bay – within the framework of UGNSW’s criteria. However, these two sets of

recommendations cannot be considered in isolation; the ‘Great Ideas’ represent

important means of achieving broader goals for the precinct, not actions which

should be pursued in isolation.

All recommendations and ‘Great Ideas’ are discussed in further detail in the body of

this submission. The case studies presented throughout this submission are

examples from around the world and locally where ‘Great Ideas’ such as those

proposed have been successfully implemented.


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2 Employment and Economy

As Australia’s leading global city, Sydney has a critical role to play in the economic

success of the nation and the Bays Precinct. With its proximity to Central Sydney

and especially to the adjacent digital economy hub in Pyrmont and Ultimo, it can

contribute significantly.

Sustainable Sydney 2030 targets at least 97,000 additional jobs in the City by 2030

with an increased share in finance, advanced business services, education, creative

industries and tourism sectors. Redevelopment of the Bays Precinct offers an

opportunity to work towards this target: it can provide space for education and

learning; can be a hub for sustainable research and development; and can support

the expansion of start-ups and creative industries.

Critical to realising the economic potential of the precinct is the provision of housing,

including affordable rental housing, within reasonable proximity of new jobs. Linking

the two with reliable and frequent public transport is also vital. Without focussing on

providing jobs at the same time as housing and transport, the full economic potential

of the Bays Precinct will not be realised.

2.1 Opportunities for the Bays Precinct

Retention of working harbour activities From an economic perspective, the many existing working harbour functions of the

Bays Precinct should be retained. The expansion and creation of a world class Fish

Market as an economic engine is critical to the overall economic success of the Bays

Precinct. Important harbour activities to be retained include Glebe Island and White

Bay’s use for commercial port and maritime related purposes, and the Cruise

Terminal in the medium term and the use of Blackwattle Bay and Rozelle Bay for

maritime, recreational and tourism uses.

Large pleasure craft such as super yachts should be restricted from Blackwattle and

Rozelle Bays and active and passive recreational water uses should be expanded.

These employment generating activities will be central to generating local and

connected employment opportunities as the Bays Precinct develops.

Tech start-ups – the future economy The City believes that the Bays Precinct has the potential to support the growth of

Sydney’s emerging tech sector and provide space for the growing number of tech

start-ups and growth-phase firms. However, this growth is unlikely to occur as a

natural extension of the clusters of activity already occurring in the city without a

significant stimulus such as an introduction of a university campus as well as removal

of locational barriers through the provision of effective transport and connectivity.


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The tech sector has the potential to generate at least 540,000 jobs and contribute

$109 billion to the national economy by 2033 (source: PwC, 2013) but to reach this

aspirational goal, support from government and the education and industry sectors is

needed.

City research suggests that entrepreneurs and tech start-up companies need a local

environment that provides support networks, business and entrepreneurship

education, physical infrastructure including high-speed fibre optics and access to

work space, and financing opportunities.

The City’s data-rich Floor Space and Employment Survey shows that there is a high

density of people with business knowledge, technology expertise and creativity

already working in the city, particularly in Ultimo and Pyrmont. This has created a

talent pool where innovation is thriving and start-ups are being launched and grown.

In the five years from 2007 to 2012, the ICT, higher education and research sectors

in the city grew by 12.4% to 76,952 workers. In ICT alone, in 2012 there were 782

individual businesses. Catalysed by the proximity of Fairfax and Google, the

significant ICT cluster in Harris Street, Ultimo and the remainder of the areas, the ICT

workforce now represents a critical mass of businesses which attracts individuals

who, due to their specialised skills and talent could be encouraged to launch, join or

support tech start-ups. A working group of business, academia, Government

representatives and specialists in the digital economy should be set up to explore

opportunities to position the Bays Precinct as the natural extension of the existing

digital economy hub in Ultimo and Pyrmont.

Harbour ferry service – an economic opportunity The implementation of an inner harbour ferry service, as proposed in the Transport

section of this submission, is an opportunity as well as a functional link for transport –

it offers a tourist experience and opens up new destinations to larger markets

through improved accessibility. The ferry would provide a key transport link to the

White Bay Cruise Terminal, providing convenient access to other tourist and

commercial activities around the harbour, and broader connections and services.

The capacity of the Fish Markets, from an economic perspective will be more

effectively realised through greater accessibility provided by such a service. The ferry

would provide tourist access to arguably Sydney’s greatest asset, being the

extensive harbour. It is a key opportunity for economic growth and capturing tourist

spend. Visitor Accommodation In 2014, the City commissioned a study into supply and demand factors of visitor

accommodation in the city. The study found that there is strong demand (and


17

strengthening demand with Exhibition and Convention Centre venues coming online)

in the 3 and 4 star sector and a shortage in supply. The City has developed a Visitor

Accommodation Action Plan setting out the actions the City will take to encourage

development and investment in visitor accommodation.

In this context, the Bays Precinct presents an opportunity to address the supply side

issue by enabling development of new stock in the 3 and 4 star business visitor area.

The Bays Market destination offers a good opportunity given its proximity to the

future Exhibition and Convention Centre at Darling Harbour, Barangaroo and Central

Sydney. White Bay Cruise Terminal – Supporting services The White Bay Cruise Terminal provides an opportunity to improve economic

outcomes by providing services not currently offered for arriving and departing cruise

ships and their passengers. At present, there is a lack of supporting services. Cruise

ships dock early in the morning and passengers disembark and are often transported

by shuttle bus to the airport or Central Station – which represents a missed

opportunity for the Bays Precinct and the City more generally. Better connectivity at

White Bay, by way of an extended inner harbour ferry service would provide a range

of options for visitors to explore Sydney. A mix of services, which fits within the

broader structure plan for the whole precinct, should be offered at the Cruise

Terminal to maximise economic benefit.

White Bay Power Station Locating a drawcard cultural, educational institution or commercial enterprise or

employer at the White Bay Power Station would deliver significant economic benefits.

This destination can become the economic engine for the entire Bays Precinct and a

driver of our most globally competitive industries.

The White Bay Power Station offers significant potential for a domestic or

internationally funded educational institution to create partnerships with industry to

showcase new, experimental technologies and develop a knowledge-intensive

industry cluster promoting innovation. Using the institution as an anchor, the

destination could support a range of activities and supporting services for students,

academics and businesses. This destination would be particularly attractive as a

premium campus for a commercial enterprise or employer provided physical

accessibility to the city was greatly improved through connections from White Bay to

Darling Harbour and beyond. Key to the success of the White Bay Power Station

adaptation is the provision of world class public transit. Connectivity would include a

ferry service, light rail connections and cycle and pedestrian connectivity from White

Bay to Darling Harbour to attract knowledge industries and their workers. The culture

of workers in these industries is to work using mobile devices while commuting and

public transport suits this style of working and networking.


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CASE STUDY TECHNION CAMPUS – ROOSEVELT ISLAND NYC USA

In December 2010, the City of New York invited top institutions from around the world to propose a new or expanded applied sciences and engineering campus to spur major growth and bolster jobs in the tech industry. In exchange, winners would have access to city-owned land and capital funding. In 2011 the project was awarded to Cornell University and Technion Israel Institute of Technology. The Cornell Tech campus will span 4.9 hectares and include academic buildings, offices and a residential complex. Students will be housed in the first residential high rise building in the world that meets passive sustainability standards and consumes 60 to 70 per cent less energy than typical buildings of the same size.

Figure 5: Cornell Tech on Roosevelt Island (Image source: www.businessinsider.com)


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Recommendations: 2.1 Develop robust new jobs targets for the Bays Precinct should be based on an

overall economic strategy, precinct-wide structure plan, and strategies for achieving

these targets.

2.2 Develop and implement a strategy for the retention and further development of

maritime and commercial activities as part of a commitment to retaining the working

harbour function and character of the Bays Precinct.

2.3 Extend the inner city ferry network to serve the Bays Precinct as both a

transport and economic development initiative.

2.4 Consider the opportunities to provide 3 and 4 star business hotels in planning

for the Fish Market and White Bay Cruise Terminal.

2.5 Develop a strategy for providing supporting commercial and tourist services at

the White Bay Cruise Terminal.

2.6 Investigate the development of a premium campus for a commercial operation

or major cultural or educational institution at the White Bay Power Station, linked to

the economic strategy for the precinct.

2.7 Establish a working group to investigate options for delivering digital economy

and knowledge industry outcomes at the Bays Precinct.


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3 Transport

The City has clear objectives for the future of transport in Sydney based around a

vision that public transport will be strongly integrated with land use and development

and that local needs will be served by broader transport networks. These objectives

and the broad vision are set out clearly in Sustainable Sydney 2030 and the City’s

transport strategy Connecting our City.

While the Bays are well located geographically, they are poorly connected on the

larger western side reaches except by road. Water access is good but landings are

commercially restricted. The Bays Precinct therefore requires an integrated transport

plan which considers all opportunities including potential future metro rail and the

WestConnex, if it proceeds. The impacts of WestConnex on the Bays Precinct,

particularly the former Rozelle Marshalling Yards, are uncertain. The City is

concerned that WestConnex could significantly compromise the strategic urban

renewal opportunities of The Bays Precinct.

Planning must be undertaken prior to redevelopment of land to ensure that transport

solutions are integrated with existing networks. This will ensure the broader network

is strengthened while ensuring that the Bays Precinct is adequately serviced.

Specific opportunities for the Bays Precinct which link into broader networks are

discussed below.


A Bays Precinct Integrated Transport Plan An Integrated Transport Plan for the Bays Precinct should be developed with

stakeholder involvement as an absolute priority. As part of a broader structure plan, it

will identify required transport infrastructure targets, actions and responsibilities and

inform staging, funding commitments and delivery. Following the preparation of the

plan, a Working Group should be established, with the City as a member, to guide

and monitor implementation of the plan. Mode Share Targets The Barangaroo Integrated Transport Strategy outlines aggressive and ambitious

mode share targets for public and active transport. These targets provide a

benchmark for development of mode share targets for the Bays Precinct. Specific

mode share targets should be developed to inform ongoing strategy development

and implementation and should be clearly articulated in the Bays Precinct Integrated

Transport Plan.


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Ferry Service Extension Redevelopment of the Bays Precinct provides an opportunity to extend Sydney’s

ferry network and introduce new timetabled inner harbour ferry services. Additional

residents, workers and visitors will support new ferry services.

Given the increase in activity envisaged at the Fish Market destination, a new stop

should be included in this location. The amount of private vehicle parking available

currently at the Fish Markets incentivises the use of cars. Peak visitor periods such

as Christmas and Easter illustrate the severe congestion that this creates. A

dedicated ferry stop would provide a viable and attractive alternative.

The anticipated increase in intensity of activity at the White Bay Power Station,

including the potential number of commuters would also make a stop at this

destination viable, as would a stop at the White Bay Cruise Terminal which could

transport people disembarking from cruise liners quickly to other locations. Provided

future ferry services are linked to the wider network and to the city, these services

have the potential to take pressure off bus services heading out of Balmain across

Anzac Bridge and address existing congestion in this area.

Figure 6: Glebe Island Bridge transport corridor (Image: City of Sydney)


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Light rail network extension Redevelopment of the Bays Precinct provides an opportunity for the existing light rail

line (which runs from Central, through Pyrmont, Glebe, Jubilee Park and on to

Lilyfield) to be extended with a branch towards Balmain including stops at White Bay

Power Station and White Bay Cruise Terminal. The retention and reuse of the Glebe

Island Bridge offers a key opportunity for a future light rail link from the Fish Markets

to these destinations.

In conjunction, possibilities to provide more time-competitive light rail services should

be explored. By way of example, the City has previously looked at the feasibility of

tunnelling under Allen Street in Pyrmont to provide a more direct Light Rail

connection from Pyrmont out towards the west. Such an extension would link

Convention and Wentworth Park stations directly, making future light rail services

which could connect to White Bay and Balmain quicker than buses and therefore

more attractive to commuters. Such an extension could run an express service into

the city, connecting the Exhibition and Convention Centres via the Fish Market to

White Bay and beyond the Dulwich Hill, possibly taking 8 to 10 minutes off existing

travel times. An all-stations service would also be retained.

Walking and cycling A key part of transport planning for the Bays Precinct should be a commitment to

developing plans that deal with pedestrian and bicycle connections. A continuous

and uninterrupted pedestrian and cycle friendly promenade from Pyrmont to Rozelle

is fundamental.

Pedestrian connections to and from the precinct are particularly poor in some areas,

for example along Pyrmont Bridge Road from the city and from Wentworth Park.

These routes carry a high volume of pedestrian traffic and these numbers will

increase as the precinct is redeveloped. The development of the precinct offers

excellent opportunities to make simple but vast amenity and capacity improvements.

Likewise, bicycle connections along Bridge Road and Pyrmont Bridge Road are very

poor but are used as direct commuter routes despite this. With few interventions they

could be significantly improved to encourage further sustainable transport use.

A key area of focus for pedestrian improvements should be the connection between

Wentworth Park and the head of Blackwattle Bay. Given the anticipated

intensification of land use, the extension of the promenade and the potential future

upgrade of the park, there will be significant levels of pedestrian activity in the area.

The treatment of Bridge Road requires attention in terms of its impact on the amenity

and success of the Market District and effectiveness of connections. Consideration

should be given to two different options. One option might be to remove and relocate

the road to an alignment close to the existing viaduct. The land of the existing road

could be reclaimed and used to connect Wentworth Park directly to the head of the

bay. A second option might be to calm traffic along the existing Bridge Road,


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improving connectivity between Wentworth Park and the head of the bay, which will

contribute to the improved amenity of this key destination.

The Glebe Island Bridge should be retained, restored and re-opened as a critical

pedestrian and cycling link for the Bays Precinct. As outlined elsewhere in this

submission, the bridge provides excellent connectivity and is an important heritage

asset and the City strongly submits it should be included in the integrated transport

planning for the precinct.

Common Parking In terms of private vehicle use, the Bays Precinct provides an opportunity to

introduce ‘common parking’ within precincts. By providing vehicle parking which can

be allocated to individual uses but is not registered on title, future adaptability can be

ensured. As public transport provision improves over time, and less private vehicle

parking is required, areas of parking can be allocated to other uses and/or converted.

This would reduce private vehicle parking provision and further incentive and

promote the use and viability of public and active transport in the precinct. City West Link connection The possibility of an access road under Victoria Road connecting the City West link

to the area around the White Bay Power station and the White Bay Cruise Terminal

is identified in the discussion paper. Subject to further investigation, this initiative is

supported in principle by the City, provided that it does not inhibit cycling and

pedestrian connections along this reservation.

Figure 7: Glebe Island Bridge (Tim Throsby illustration for City of Sydney)


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Amenity and impact management The City is concerned about the impact of busy roads on the amenity of residential

development in close proximity. The location of residential development in the Bays

Precinct should have regard to noise and pollution from busy arterial roads, in

particular the approach to Anzac Bridge, adjacent to the White Bay Power Station

and the Western Distributor over passes in close proximity to the Fish Markets. A

well designed acoustic structure or tunnel structure would mitigate the future impact

on residential development and the future impact on public domain around the Fish

Market and Promenade. Any future structure should be subject to suitable design.

Figure 8: Sydney Harbour Ferries (Image source: Richard Seaman)


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Recommendations:

3.1 Prepare a progressive Integrated Transport Plan for the Bays Precinct to ensure

that a transport strategy integrates new and existing infrastructure into the broader

city network and establish a transport working group, including the City, to guide the

implementation of the plan.

3.2 Develop and deliver on specific mode share targets for the Bays Precinct using

the Barangaroo mode share targets as a benchmark.

3.3 Extend Sydney’s ferry network to service the Bays Precinct including new stops

at the Fish Market, the White Bay Power Station and the White Bay Cruise

Terminal.

3.4 Extend the existing light rail network further into the Bays Precinct with potential

new stops at White Bay Power Station, the White Bay Cruise Terminal and possibly

connecting to the Rozelle Stabling Yards via the Glebe Island Bridge.

3.5 Prepare pedestrian mobility and bicycle network plans as part of the structure

planning process, including the retention and reuse of Glebe Island Bridge and

pedestrian and cycling improvements along Pyrmont Bridge and Bridge Roads.

3.6 Implement a ‘common parking’ principle for private parking by not registering

parking on title. This will allow flexibility for the use of the structure to be repurposed

as public transport services improve over time.

3.7 Investigate an access road under Victoria Road to connect the City West Link to

the White Bay Power station and Cruise Terminal area.

3.8 Implement an acoustic treatment on and over the Western Distributor and

approach to Anzac Bridge to mitigate future impacts on residential amenity.


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4 Housing

Sustainable Sydney 2030 sets out the City’s vision that a range of housing types and

tenures are provided to underpin Sydney’s economic productivity and social and

cultural vitality. Key goals include: providing adequate housing to cater for the needs

of a growing and diverse population; ensuring supply of affordable housing continues

to grow to meet the community’s needs; and ensuring the supply of social housing in

the inner city is maintained or increased.

To help meet these objectives, in 2008 the City set targets of 7.5% of all LGA

dwellings to meet social housing needs and a further 7.5% to meet affordable rental

housing needs delivered by CHP (not-for-profit) and other providers by 2030. The

City also has targets for new dwellings delivered by the market to support the

growing population. The City uses the widely accepted definition for affordable

housing which is rent controlled housing, delivered by a community housing provider,

for which rents are capped at no more than 30 per cent of a very low to moderate

income-household’s income. The affordable housing programs approved by the

NSW Government and currently operating in the City – in Ultimo Pyrmont, Green

Square and Redfern Waterloo – define affordable housing in this way.

In May 2015, the City released its Housing Issues Paper. This paper highlights the

growing housing affordability problem in Sydney, a city where from 2013 to 2014

average sales prices for dwellings grew nine times faster than average earnings. It

also sets out the City’s position on housing and suggests strategies for providing

greater housing affordability in the future, including strategies on how to deliver more

affordable rental housing.


The City recognises that housing will form a key part of the renewal strategy for the

Bays Precinct. Any residential development must be carefully balanced against

important transport and amenity impacts, and also with the importance of creating a

genuine mixed use precinct which includes existing maritime and port uses, other

commercial uses, cultural and educational activities and open spaces.

Before progressing any proposals for housing in the Bays Precinct, the NSW

Government should adopt a robust housing diversity policy with diversity targets of

60% market housing and 40% non-market housing types to cater for all of the

community within The Bays Precinct. This policy should include a range of

considerations such as: ‘first step’ housing (a higher mix of studio and 1 bed units for

a small but strategic percentage of new housing); percentage land allocations for

charity housing (poor mobility and non-worker seniors housing); affordable rental


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housing for key workers and other qualifying lower-paid workers; and state social

housing.

Policy settings should average targets across all UGNSW inner city sites, balancing

high-value free market housing (catering for owner-occupiers and investors) with the

proportionate needs of those not able to compete in what has become a global

market for acquiring housing assets. A target of 21-24% of housing across UGNSW’s

inner city portfolio being affordable rental housing, under the City’s definition of the

term, would assist with the City achieving its broader target of 7.5% of all housing in

the city being affordable rental housing by 2030. The NSW Government should adopt

clear targets for the delivery of affordable rental housing and social housing as part

of an overall diversity strategy.

The Bays Precinct is an accessible location close to transport, employment and

services, providing all the requisite attributes for providing successful affordable

housing. The supply of affordable housing should be complemented by other forms

of housing tenure in the Precinct. The City has a track record in facilitating affordable

housing outcomes and is keen to work with UGNSW to identify the best locations

and implementation arrangements to ensure the early delivery of affordable housing.

These opportunities may include establishment of a new affordable housing levy

specific to the Bays Precinct and identification of sites best suited to delivery of

affordable housing units.


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CASE STUDY CITY OF SYDNEY – AFFORDABLE HOUSING

Affordable housing is a basic requirement for an inclusive, dynamic and

sustainable city. In the rezoning of the former Harold Park Paceway for

predominantly residential uses, The City negotiated a planning agreement with

the developer to provide new affordable housing. Affordable rental housing is

critical social infrastructure necessary to support sustainable employment

growth and efficient business in the City. Affordable rental housing should be

provided and managed so that a socially diverse residential population

representative of all income groups is maintained. Through planning control

changes and negotiations, the City received 2,500 square metres of land

within the Harold Park urban renewal site to increase the supply of affordable

housing and housing for people with a disability. The renewal will provide

about 50 new affordable rental housing dwellings.

Figure 9: City West Housing - Portman Street, Zetland (Image source: City of Sydney)


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Recommendations: 4.1 Develop a housing diversity policy to cater for all of the community with a target

of 60% market and 40% for all non-market housing types specific to The Bays

Precinct. The policy should include consideration of piloting ‘first step’ housing (a

higher mix of studio and 1 bed units for a small but strategic percentage of new

housing); percentage land allocations for charity housing (poor mobility and non-

worker seniors housing); affordable rental housing for key worker and other

qualifying lower-paid workers; and state social housing. In doing so, help achieve

the City’s targets of 7.5% of all housing stock being affordable rental housing, under

the City’s definition, by 2030. The City’s definition is rent controlled housing,

delivered by a community housing provider, for which rents are capped at no more

than 30 per cent of a very low to moderate income-household’s income. The NSW

Government should adopt clear targets for the delivery of affordable rental housing

and social housing as part of an overall diversity strategy.

4.2 Collaborate with the City on strategies to delivery affordable housing through

means including allocation of specific sites and introduction of a new levy.


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5 Open Space

Over the past decade, the City has invested extensively in improving and expanding

existing parks and sporting facilities and delivering new spaces to provide for both

active and passive recreation needs. However, with Sydney’s resident and worker

population set to increase rapidly over the next 15 years, the demand for public open

space, parks and sporting facilities, both indoor and outdoor will increase even

further.

The challenge of delivering new open space in the Bays Precinct will be particularly

great given the narrow waterfront location of much of the land. The City also needs

to respond to changing demographics and trends, including an aging population with

growing needs for indoor recreation space, increasing sports participation by women,

an increasing number of children in the inner city and changing work patterns

(needing access at different hours). These needs and priorities have been identified

by the City through significant research undertaken to date and ongoing studies into

open space, sports and recreation needs and strategies for meeting these needs.

The City believes that without a creative and cooperative approach the high level of

population growth, the high cost of land and the constrained urban environment, will

make it very difficult to maintain current quality and levels of open space provision.

The City generally has good access to local open space, however, there is a strong

need for larger parks and sports fields which provide greater benefits through the

diversity of uses they can accommodate.

The following section outlines recommendations for ensuring that the Bays Precinct

provides public open space to meet the needs not only of the precinct but of Sydney

more broadly.


General principles Generally, the City submits that the approach to delivering open space and

recreational facilities in the Bays Precinct should be informed by the following

principles:

Continuous and uninterrupted pedestrian and cycle access along the

foreshore from Pyrmont to Rozelle is fundamental to the transformation of the

precinct.

The design of open spaces should reflect the character of the Bays Precinct

and provide a range of recreational experiences for a diverse mixed

community.

All residents should have access to local open space within 400 metres.


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Large open spaces for active recreation and larger organised sports need to

be provided.

A diversity of spaces and a range of settings including the waterfront

promenade, local/pocket parks, larger park spaces, civic spaces and spaces

specifically for small children, young adults and older people should be

delivered.

Quality amenities should be provided to support recreational areas including

toilets, seating and drinking fountains.

Development should be planned so there is good access to open space and

existing and planned open spaces have a high level of solar access.

Priority should be given where possible to approaches and technologies that

increase the use of existing open space and facilities, such as multi-purpose

courts and synthetic surfaces.

Shared access facilities should be pursued, for example, joint use of

underused facilities at schools and universities, including possible joint

construction or maintenance agreements in exchange for community access

out-of-hours.

Work with neighbouring councils on a regional approach in preparing our

Central Sub Regional plan (required by the NSW Government’s Metropolitan

Strategy released in December 2014), including joint funding for shared

facilities that might be located outside the local government area.

Ensure renewal of the Bays Precinct and Central to Eveleigh precinct provide

for recreation and sporting needs across the subregion, not just within the

renewal site.

Review planning processes to encourage developers to include sports

facilities, especially indoor courts, as part of new developments. Wentworth Park While Wentworth Park has not been included by UGNSW as part of the Bays Market

District Destination, the City believes it plays a vital role in the broader success not

only of this destination but also of the entire precinct.

By removing the intrusive and tired Greyhound Racing facility and all associated

infrastructure and redeveloping the park for more public uses including passive

recreation and active sports, the park can offer public space to support new

development across the Bays Precinct and the broader population. As new large

areas of open space in the Bays Precinct will be a challenge to deliver, but are

essential as densities increase, the park must not be seen as a development site for

other intrusive uses such as housing, retail or education.


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The return of the entire park for true public use, rather than narrow interest group

use, should be subject to an international design competition. The City has

coordinated successful competitions of this type for Gunyama Park and Aquatic

Centre and the Green Square Library and Plaza. The competition should encompass

the design of the park, the design of the new Market District at the head of

Blackwattle Bay and explore opportunities for greater connectivity between the two.

Key to achieving greater connectivity between the re-imagined park and the new

market development at the head of Blackwattle Bay is the future of Bridge Road. The

City proposes that two options be further investigated. The first option is to remove

and realign the road to run through Wentworth Park in close proximity to the existing

viaduct. This would allow the existing road to be reclaimed as parkland and would

provide better connectivity between Blackwattle Bay, the market and Wentworth

Park. Any realigned road through the park should be heavily calmed and integrated

sensitively into the park. The second option is to retain the existing alignment of

Bridge Road but implement significant traffic calming measures and pedestrian

crossing opportunities. Both options should be investigated by UGNSW in

collaboration with the City.

Figure 10: Wentworth Park and relocated Sydney Fish Market (Tim Throsby illustration for City of Sydney)


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The Waterfront Promenade The Waterfront Promenade provides a significant ‘early win’ opportunity for public

open space. By simply making safe and opening up the foreshore to public access

as early as possible in the planning and design process, as undertaken at

Barangaroo, public access can be provided at minimal cost. This allows the

community to be engaged from day one. If boardwalk structures are to be built out

into the water as a temporary measure prior to privately owned land being

redeveloped or long leases expiring, this should be a temporary measure only and

should not be in lieu of a permanent public waterfront promenade.

The final promenade should take the form of a continuous 10 metre wide path within

a 30 metre wide public space directly fronting the water. This dimension is

commensurate with the 100 foot reserve established elsewhere around the harbour

and originally set out by the Government in 1828. While this will undoubtedly be a

challenge in some locations, it is a sound historical principle to which the design

should aspire. Further to this generous width, there should be areas along the

promenade, such as pocket parks or opportunities to access the water, which create

‘moments’ to linger. Finally, the design of the promenade should be such that there is

maximum permeability from the streets set back from the harbour to the promenade

and these connections should be clearly legible as public spaces. White Bay Power Station The forecourt area of the power station represents an excellent opportunity for a

consolidated public open space. Given the location of this land fronting the harbour

with reasonable distance to residential dwellings, it could accommodate some active

Figure 11: Foreshore promenade (Tim Throsby illustration for City of Sydney)


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sports uses. Within the power station itself, the turbine hall should be retained and

used as a publicly accessible space. Other opportunities The underside of the Western Distributor in the vicinity of the Market District

Destination, currently a hostile and neglected space, should be activated and

transformed through public art and new public open spaces.

In the short term, low expense repurposing of the Rozelle rail yards may be possible

to provide critical recreation space. However, in the long term they should be

reserved for their potential future transport infrastructure needs including light rail

stabling.


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CASE STUDY GUNYAMA PARK AND AQUATIC CENTRE – GREEN SQUARE

Green Square is one of the fastest growing neighbourhoods in the city. The 278

hectare precinct will eventually be home to 54,000 residents and the workplace for

20,000 people. Many of these residents will be living in vertical villages and it is vital

that Green Square’s residents, workers and visitors have open spaces in which to

meet and gather, to play and exercise. To realise this demand for facilities, the City

of Sydney invited architects and landscape architects to enter a design competition

to create a new park and aquatic leisure centre for Green Square. The anonymous,

two stage open architectural design competition has been hailed as an exciting and

worthwhile process, and the independent jury highlighted that the successful

conclusion of the competition might provide impetus to other bodies in Australia to

follow the City’s example. As an indicator of the success of the process, the City

received over 140 entries from both local and international entrants, with a world

class design. Gunyama Park and Green Square Aquatic Centre, which is slated to

open early 2019 will feature a 50 metre heated outdoor pool, a 25 metre program

pool for swimming lessons, an indoor leisure pool, a hydrotherapy pool, a full-size

outdoor synthetic multipurpose sports playfield and many other world class design

features.

Figure 12: Gunyama Park and Aquatic Centre (Image source: Andrew Burgess Architects with Grimshaw and T.C.L)


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CASE STUDY THE LOWLINE – NEW YORK CITY

The Lowline in New York City’s Lower East Side is a plan to use innovative solar

technology to illuminate and activate an historical trolley terminal. The repurposing

of the 0.4 hectare former Williamsburg Bridge Trolley Terminal will improve the lives

of city residents by providing more public open space. The project will highlight the

historic architectural elements of the terminal, including original tracks, while

introducing solar technology and design enabling plants to grow underground. The

community will be engaged in the design process through in-school engagement

programs and the Lowline Lab where the project is researched and exhibited as it is

developed. The project is being supported by Government, commercial partners

and Kickstarter funding.

Figure 13: The Lowline, New York City (Image source: www.thelowline.org)


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CASE STUDY PIKE PLACE MARKET – SEATTLE USA

Built over 100 years ago to connect the city’s citizens and farmers, Pike Place

Market has developed into a Seattle Landmark, attracting over 10 million visitors

annually. Encompassing a 3.6 hectare district, the Market offers locally sourced

foods, where producers including farmers, butchers, fishmongers, cheesemongers,

winemakers and bakers operate on site. The market includes more than 225

independent businesses and restaurants. The market is managed by Pike Place

Market Preservation and Development Authority, a not-for-profit public corporation.

The charter requires that the PDA preserves, rehabilitates and protects buildings

within the market, increase opportunities for farm and food retailing in the market,

support small and marginal businesses and provide services for low-income

individuals. The market is currently undergoing an expansion with the new

MarketFront transforming an existing surface car park into an extension of the

existing market. Multiple access points to the new MarketFront will directly connect

the market with the waterfront. The expansion will include 40 new low-income

seniors housing units and a new neighbourhood centre.

Figure 14: The New Pike Place MarketFront (Image source: www.pikeplacemarket.org)


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Recommendations: 5.1 The approach to delivery of open space and recreational facilities in the Bays

Precinct should be informed by the principles outlined in this section of the City’s

submission.

5.2 Re-imagine and expand Wentworth Park by removing the greyhound racing

track and stands and returning this area to full public use. This park should act as

an open space asset for the entire Bays Precinct and the wider region and should

be used as public open space only and not as a development site for other intrusive

uses such as housing, retail or education. The design of the park should be subject

to an international design competition to include the design of the market buildings

at the head of Blackwattle Bay.

5.3 A consolidated public open space, with the opportunity for active sports uses,

should be investigated on the forecourt of the White Bay Power Station. This could

support future cultural activities within this destination such as performances or

events.

5.4 UGNSW should collaborate closely with the City on the design of the public

domain to facilitate the eventual handover to the City for ongoing management.

5.5 Design the foreshore promenade as a 30 metre wide space with a diversity of

place, amenities and character. Provide opportunities for people to connect directly

from the promenade to the harbour. Ensure connections to the promenade from the

streets behind it are legible and frequent.

5.6 Prior to delivery of the promenade, provide public access to the foreshore at

every possible opportunity. Particular focus should be given to opening up access

through NSW Government owned lands at the northern end of Bank Street close to

the approach to Glebe Island Bridge.

5.7 Activate the area under the Anzac Bridge on Bank Street through public art and

other public domain improvements.


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6 Community Facilities

Redevelopment of the Bays Precinct and the subsequent increase in residential and

worker populations will bring greater demand for community facilities and services.

There was be adequate school planning in the area – the State has shown to date

that while it promotes private development and growth, it is not forward planning or

budgeting for the required community infrastructure in some areas. In addition to

schools and medical services, the new community will require funding and delivery of

child care centres, before and after school care, and the full range of community

facilities and support services. Appropriate funding should be made available as part

of a social infrastructure program to ensure access to suitable sites, and the timely

delivery of both facilities and programs. This should be part of a community facilities

plan for the Bays Precinct.

These broader range of community facilities are crucial for a number of reasons

including: offering residents, workers and visitors opportunities for rest and respite in

a dense urban environment; providing focal points for the community to foster a

sense of belonging, connect with neighbours and build social capital; and supporting

community development and creating opportunities for enterprise and creativity

which in turn supports Sydney’s economic growth and diversity.


General principles Generally, the City submits that the approach to delivering community facilities in the

Bays Precinct should be informed by the following principles: Ensure facilities contribute to the provision of a quality, integrated and

accessible network of facilities across the wider area. This ensures that

facilities make a valuable contribution not only to the area but to the broader

city. Key to this principle is the drive for quality and relative equality of access

across the city.

Facilities should support Sydney’s role as a global city. Quality design and

developing specialist facilities of international statute, which enhance

Sydney’s global appeal are key considerations.

Facilities should be adaptable, multipurpose spaces that provide for a range

of sectors and operate through collaboration with the community. Facilities,

where appropriate to their use, should be adaptable in their form, function,

operation and management to adapt to changing needs and trends.

Facilities should be environmentally sustainable, well designed and built to

last. Best practice design and construction are critical considerations, as are

safety for and accessibility by people of all ages and abilities.


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Large integrated community facility The City recommends that UGNSW investigate the opportunity of providing a large

integrated community facility to support more localised facilities within the Bays

Precinct. The White Bay Power Station is one location which may be suitable for

such a use. This may be a general facility providing programmable space, spaces for

hire and a library link facility. It could also provide co-working and other types of

spaces for local businesses and creative and social enterprises, and be co-located

with supporting business uses and public open space.

Childcare facility Child care is a key community need, and one which will support achieving the

employment targets for the Bays Precinct.

The City has seen an increase in the number of zero to five year old resident children

from 6,040 in 2006 to 7,348 in 2011. This population is forecast to grow to 12,946 by

2031. There has also been significant growth in the population of zero to two year old

resident children, of which there were 3,228 in 2011 and is forecast to increase to

5,380 by 2031. The City’s recent comprehensive Child Care Needs Analysis Study

(2013) identified a current gap of 3,104 places within the LGA. It recommends a

range of strategies to address this gap, and to also address barriers to accessing

places faced by disadvantaged members of the community.

These strategies include direct provision, facilitating delivery of new centres by the

private and not-for-profit sectors through strategic and statutory planning

mechanisms and advocacy with other levels of government. These strategies should

be investigated within the Bays Precinct to ensure that the needs of the future

resident and worker population are appropriately met.


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CASE STUDY SOUTH SYDNEY HOSPITAL SITE – GREEN SQUARE

The City’s plan is to transform Green Square urban renewal area into an attractive,

vibrant and sustainable urban place. With the unprecedented future population

increase (a total of 54,000 residents and 20,000 workers by 2030), the City is

working on priority projects to deliver quality community facilities, good transport

connections, park and open spaces and infrastructure. Two significant City-led

projects include the Green Square Town Centre Community and Creative Facilities

and Matron Ruby Grant Park, which will be built on the former South Sydney

Hospital site. The first stage of the South Sydney Hospital Site is the restoration of

three heritage buildings to house creative art spaces, studios, exhibition areas and

community shed and childcare for 60 children. The estimated delivery date for stage

one is 2017. Stage two consists of a community hall, youth space, specialist

medical centre and rehearsal space.

Figure 15: Esme Cahill Building, South Sydney Hospital site (City of Sydney illustration)


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Recommendations:

6.1 Develop a specific Community Facilities Plan for the Bays Precinct. This should

complement the precinct structure plan and be informed by City guidelines.

6.2 Prepare a funding and delivery plan and implementation program for the

Community Facilities Plan and establish an independent monitoring group to ensure

that targets are achieved and community outcomes delivered. Depending on its final

makeup and transparency, a future Greater Sydney Commission may be able to

fulfil this function.


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7 Cultural Facilities

Australia is shifting from an economy built on manufacturing and primary industries

to one built on knowledge, ideas and creativity. Sydney is at the forefront of this

change. The NSW Government’s Creative Industries Economic Profile notes that

creative industries make up 4.7% of total employment and approximately 6.8% of

total export services with a value of $1.38 billion. Nationally, 39.6% of creative

industries are based in NSW, with the majority in or around Sydney itself.

The NSW Government’s Response to the Creative Industries Action Plan notes that

land use planning and environmental regulatory requirements are a key issue

affecting the development of the industry. Barriers to creative enterprise may have

arisen as an unintended consequence of broader government regulatory

requirements, with potential for creative industry sectors to be disproportionately

impacted given the nature of the work.

The City’s key piece of work in this area, the Creative City Cultural Policy and Action

Plan (2014) outlines the following important principles:

Development of any urban renewal precinct must produce a built

environment capable of growing and retaining creative enterprise for the

long term benefit of the knowledge economy

The provision of a range of cultural infrastructure is essential. The City

has identified five primary types of infrastructure that should be

considered:

o Cultural infrastructure for ‘active’ public participation, such as

spaces for active making, doing, skill-sharing

o Cultural infrastructure for professional creative practice and

artform development, such as rehearsal rooms, artist studios

o Spaces for creative enterprise including retail

o Cultural venues’ and infrastructure for audiences or spectatorship,

such as a lyric theatre, cinemateque, Indigenous cultural centre,

artist-run gallery or exhibition space

o Spaces for temporary, unplanned or ‘special event’ cultural use in

the public domain, such as parks, roads, buildings.

The Bays Precinct offers an excellent opportunity to foster greater cultural activity

and participation, strengthening the knowledge economy and supporting tourism.


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A new Bays Precinct Cultural Strategy and Action Plan A Cultural Strategy for the Bays Precinct should be developed which takes into

account current gaps in Sydney’s cultural offer. The plan should: provide a vision and

identify strategic priorities; consider the existing cultural capital of the precinct;

consider all levels of government; respond to local trends and changes in the cultural

sector; identify regulatory barriers and ways of overcoming them; and develop

evaluation methodologies for all cultural investments.

White Bay Power Station Cultural Hub The White Bay Power Station offers an opportunity to deliver a cultural hub that

supports the creative economy of Sydney. This could be achieved through either:

Creation of a hub that attracts a critical mass of creative workers through

provision of a broad variety of affordable small to medium spaces; or

Introduction of a landmark cultural venue, such as a lyric theatre or Aboriginal

and Torres Strait Island Cultural Centre, that is integrated into a critical mass

of small to medium scale creative activity. Such a facility would drive visitation

to the precinct. However, it is essential that it is supported by public transport

and a range of ancillary activities.

Affordable Housing and Live/Work Spaces Artists and creative workers who contribute to the creative vibrancy of Sydney find it

difficult to afford to live in the city. In consultation for the City’s cultural policy, many

stakeholders supported the suggestion that artists have access to affordable rental

housing and the need for subsidised studio and living space in the city for artists. The

City’s William Street affordable work and living spaces have enjoyed success, but it

has been noted that similar projects need to be scaled up to ensure creative workers

can continue to live and work in Sydney. The Bays Precinct offers an excellent

opportunity to provide these spaces.


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CASE STUDY TATE Modern

The London Dockland Development Corporation has delivered highly successful

cultural infrastructure at both ends of the spectrum. At one end it adapted the

Bankside Power Station into the TATE Modern, hosting work by major international

artists and attracting almost five million visitors annually. At the other, it established

a highly successful Arts Incentive Fund. Canada also provides some case studies in

providing good cultural outcomes through urban renewal. Artscape, a Canadian

urban development organisation focuses on clustering creative people together in

real estate projects to service need within the arts and cultural community and

advance multiple public policy objectives, private development interests, community

and neighbourhood aspirations and philanthropic missions.

Figure 16: TATE Modern (Image source: www.visitlondon.com)


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Recommendations:

7.1 Prepare a Cultural Strategy for the Bays Precinct. This should extend the

current diverse array of cultural facilities and programs across the city and support a

rich and diverse resident and visitor community.

7.2 Establish a cultural hub at the White Bay Power station.

7.3 Deliver landmark cultural facilities at the White Bay Power Station and

investigate options for facilities currently not available including a Lyric Theatre or

an Aboriginal and Torres Strait Islander Cultural Centre and an Asian Arts Centre.

7.4 Provide opportunities for small to medium scale activities including co-working

hubs and provide opportunities for independent live music and performance across

the Bays Precinct.

7.5 Provide affordable live work spaces for artists and creative communities.


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8 Environmental Sustainability

The City defines sustainability in keeping with the Brundtland Report of 1987 as

“meeting the environment, social and economic needs of the present without

compromising the ability of future generations to meet their own needs.”

The City is committed to being an inspiring environmental leader and the City’s

environmental vision, goals, targets and actions for 2030 and beyond are set out in

Sustainable Sydney 2030. Key targets to 2030 are to reduce 1990 greenhouse gas

emissions by 50 percent.

As a major urban renewal initiative and focus for public and private investment,

redevelopment of the Bays Precinct offers an excellent opportunity to deliver world

class sustainability outcomes. The development of exemplar sustainability initiatives

at Barangaroo, Green Square and Central Park can provide a platform for the Bays

Precinct to deliver these outcomes.

8.1 Opportunities for the Bays Precinct The redevelopment of Barangaroo can be considered a robust model in which to

manage the delivery of solid sustainability targets, and should be considered for the

Bays Precinct.

Barangaroo has been designed and planned as a Climate Positive Project initiative

through the C40 Cities framework. It highlights the best practice environmental

outcomes achieved from a significant partnership between the City, the NSW

Government and developer Lend Lease. It is one of six global projects which have

achieved the second stage of the process.

C40 Cities Climate Positive Development Program The Barangaroo development provides a benchmark and a foundation for

establishing effective environmental targets and measurable outcomes. New

processes and governance arrangements for implementation in the Bays Precinct

should mirror, and progress, the work to date to ensure that “cutting edge

environmental, ecological and energy solutions” continue to be delivered as part of

Sydney’s urban renewal processes.

The transformation of the Bays Precinct should leverage the significant public and

private investment in sustainability, environmental performance standards and

commitments achieved as part of the Barangaroo development to deliver “next

generation” sustainability outcomes. It is recommended that the Bays Precinct be

identified as a ‘Climate Positive’ initiative through the C40. (Barangaroo will be

‘Climate Positive’ under C40 Cities– one of only 18 globally and 2 in Australia).


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The interpretation of ‘Climate Positive’ at the Bays Precinct should be based on a

sustainability strategy that sets out specific commitments to targets and indicators,

such as being carbon neutral, water positive and specific waste targets. These

targets should seek to mirror or improve on those set for Barangaroo including for

example: zero net waste to landfill by 2020; 80% diversion of operational waste away

from landfill from day one; water positive capability; and 20% reduction in embodied

carbon compared to standard construction practices.

Environmental targets should be agreed and locked in early in the development

process to provide certainty for developers and investors, and ensure meaningful

sustainability outcomes, public benefit and reduced ongoing infrastructure costs for

Government. Other initiatives Consider achieving certification for a broad community sustainability rating tool, such

as the Green Star Communities sustainability rating tool. These provide a framework

for the delivery and monitoring of precinct wide water recycling as well as tri-

generation. District infrastructure should be a top priority for achieving sustainability

objectives. It should include provision for initiatives that progress the environmental

sustainability of the area, such as recycled water and district cooling.

Further to meeting set environmental targets, there are several proven initiatives and

assets that can enhance the precinct’s resilience. Given the waterfront location,

district cooling utilising the harbour should be implemented. District cooling provides

improved amenity by removing the requirement for cooling towers/structures.

Barangaroo provides a case study for district cooling, but investigations will be

required to establish capacity requirements due to different harbour conditions.

Barangaroo and Central Park provide excellent case studies and guidelines for other

initiatives, such as local energy generation, a single utility model and a ‘mini-grid’.

As a key user of the area, it is suggested that cruise ships hook up to local energy

supply rather than running on diesel while docked at White Bay. This will provide

environmental and amenity advantages, particularly if new residential is to be

provided at White Bay.

Finally, the opportunity for Green Bonds and Climate Bonds, which may provide

cheaper finance, should be investigated as part of the funding strategy for

sustainable development.


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CASE STUDY BARANGAROO SUSTAINABILITY INITIATIVES

Barangaroo, as a local and contemporary case study, provides important insights

for the Bays Precinct as discussed. The development of specific environmental

targets and commitments in conjunction with new governance initiatives has

addressed challenges, which limited sustainability outcomes in the past.

Figure 17: Barangaroo sustainability targets (Image source: www.barangaroo.com)


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Recommendations: 8.1 Commit to attaining C40 Climate Positive certification for the entire Bays

Precinct redevelopment. The interpretation of ‘Climate Positive’ should be the same

as that adopted at Barangaroo including carbon neutral, water positive and a

specific waste commitment. Set out commitments at the earliest stage to ensure

developers consider costs.

8.2 Introduce a Single Utility Model for the Bays Precinct, as successfully used at

Barangaroo.

8.3 Consider certification for a broad community sustainability rating tool. These

provide a framework for the delivery and monitoring of precinct wide water recycling

as well as tri-generation.

8.4 Utilise district infrastructure arrangements including recycled water, district

cooling, harbour heat exchange, local energy generation and specific waste targets.

8.5 Provide for a local energy connection for all cruise ships while docked at White

Bay. This will lead to great environmental performance of cruise ship operators and

increase the amenity and environmental sustainability of the Bays Precinct.

8.6 Investigate the use of Green Bonds and Climate bonds which may provide

cheaper finance.


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9 Renewal and Design Excellence

The renewal of the Bays Precinct should be closely linked to the City and the State’s

key strategic documents: Sustainable Sydney 2030 and A Plan for Growing Sydney.

Both plans should equally and transparently guide the planning and development

outcomes in the precinct. By doing so, the precinct should embody the themes

‘green, global and connected’ and reflect a restorative approach to renewal and

resilient outcomes in decision making. The most pervasive land use elsewhere in

Sydney Harbour is private, executive-class waterfront housing. Renewal of the Bays

Precinct should focus on public access and activity throughout to help balance

against the predominant private access outcomes of earlier renewal projects within

the harbour.

Throughout the consultation undertaken by the City for Sustainable Sydney 2030,

people from local communities and business placed emphasis on the need for

authenticity, diversity and sustainability in the design of existing and renewal areas.

Good urban design contributes to the liveability of the City and plays a major role in

maintaining and improving Sydney’s status relative to other cities. Aspiring to design

excellence in both built form and the public domain should be paramount to the Bays

Precinct transformation.

Placemaking provides an approach ensuring that the future planning and

redevelopment of the precinct considers the social, environmental, economic and

cultural aspects and experiences that make great places to live, work and visit. The

redevelopment of the Bays Precinct, while contributing to Sydney’s global

competitiveness, should also respect the distinct local character and cultural identity.

The future place should embrace the history and stories of this area by weaving the

old and new through the public realm design, materiality and architecture.

The objective of design excellence is to deliver the highest standard of architectural,

urban and landscape design. All buildings contribute to the urban and public domain

character of a city and so design excellence is an important fundamental

consideration for the successful transformation of the city. For urban renewal areas

and large development sites it is important that development achieves high design

quality standards and design variety. Robust design excellence strategies and

processes are a key way of achieving such quality and variety.

In recent years the City has emphasised the importance of design excellence and

the outcomes of this focus on excellent design can be seen across the city in both

the public domain and private development.


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9.1 Opportunities for the Bays Precinct The City’s planning framework contains objectives and provisions which aim to

achieve design excellence through the application of competitive design processes.

The aim is to deliver the highest standard of architectural, urban and landscape

design. The City recommends that objectives such as those set out below be

adopted for the Bays Precinct:

Ensure the development of the individual components of the Bays

Precinct respond to the overall strategic vision and structure plan and

integrate with the diversity and grain of the surrounding neighbourhoods.

Ensure high quality and varied design through the use of competitive

design processes for large and prominent developments.

Ensure development individually and collectively contributes to the

architectural and overall urban design quality.

Ensure multiple design responses and variety in architectural design and

character across large developments to provide a fine grain that offers a

strong identity, enriches and enlivens the public realm.

Ensure that the planning integrates a placemaking approach from the

start and that the relationship between design, development, land uses

and facilities and programming to deliver a people-focussed precinct and

places within it.

Figure 18: Gunyama Park and Green Square Aquatic Centre (Image source: Andrew Burgess Architects with Grimshaw and T.C.L)


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Furthermore, the redevelopment of prominent public buildings and spaces in the

Bays Precinct, such as Wentworth Park and the Fish Markets and the White Bay

Power Station, should be subject to open anonymous design competitions to achieve

the highest standard of design excellence. The City has coordinated this type of

competition for the design of both the Green Square Library and Plaza and Gunyama

Park and Aquatic Centre in Green Square with great success.

Recommendations: 9.1 Ensure design excellence of buildings on redevelopment of large and prominent

sites by adopting design excellence objectives and provisions modelled on the City

of Sydney’s policy.

9.2 Run an open international design competition for the design of new Market

District buildings at the head of Blackwattle Bay. Include an expanded Wentworth

Park and relocated or calmed Bridge Road as part of the competition site.


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10 Governance and Delivery

In 2015 the City commissioned SGS Economics and Planning to undertake a review

of case studies of urban renewal (Elephant and Castle and Kings Cross in London,

HafenCity in Hamburg, Barangaroo and Docklands in Australia, and Brooklyn Naval

Yards in New York) and identify best practice principles, the most effective

processes and outcomes. Given the amount and scale of urban renewal being

undertaken in Sydney, the City commissioned this study to ensure all stakeholders

had access to information on best practices in urban renewal. The report highlights

that in addition to the ‘planning and development’ outcomes on which the success of

urban renewal projects are most often judged, effective governance and strategic

planning processes are critical to delivering viable, sustainable outcomes, which

endure for the long term.

The good will and enthusiasm engendered in the community by the 2014 Bays

Precinct International Summit needs to continue. The 20 high-level Principles it

generated need to continue to guide the transformation for the precinct to also

become an exemplar of best practice. Success in developing the Bays will be based

on establishing and maintaining good working relationships and partnerships, a

restorative approach to renewal and resilient outcomes in decision-making – being

aware of adaptation and mitigation strategies as we face climate change.

The City has a proven track record of understanding and resolving the complex

challenges inherent in urban renewal projects and makes this submission from a

position of extensive experience in delivering meaningful change for Sydney. At

Green Square, the City’s most significant urban renewal project to date, we have

worked with stakeholders to resolve multiple challenges: delivering crucial

community facilities including a library, aquatic centre and childcare centre; working

with providers to deliver affordable rental housing for low to moderate income

households, many of which rely on jobs in the City that are key to its continued

success as a global economic centre; reserving land for future mass transport

infrastructure; resolving major environmental constraints such as flooding; and

delivering environmental sustainability measures such as recycled water systems.

The City has put in place a range of mechanisms to fund infrastructure in Green

Square and ensure an appropriate portion of the uplift in land value is for public

benefit. At Harold Park in Glebe the City has steered model renewal outcomes as a

result of an effective engagement process in which the community supported new

open space and new community facilities in conjunction with rezoning of the site.


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Stakeholder engagement Key to developing shared value is genuine engagement with stakeholders throughout

the planning and development process. Effective stakeholder engagement has been

highlighted as a key urban renewal success factor.

It is important that UGNSW establish trust, a consistent approach and an overall

framework for all three urban renewal initiatives currently underway (the Bays

Precinct, Parramatta Road, and Central to Eveleigh) ensuring that all stakeholders

are properly informed and effectively engaged in the planning and development

process. The City will continue to work with UGNSW to provide advice based on its

extensive community engagement experience and knowledge base.

The Major Urban Renewal Projects Memorandum of Understanding (MoU) that

covers all three urban renewal initiatives establishes a robust governance framework

to foster collaboration between the City and the NSW Government. The shared

objectives and principles in the MoU speak of strong collaboration, developing public

rust and understanding and delivering high quality, innovative and sustainable urban

renewal. The 20 principles generated by the Bays Precinct International Summit

further those in the MoU. There is a need for a Bays Precinct specific MoU to set out

more detailed parameters for the precinct and its destinations. An associated MoU

with the City and Roads and Maritime Services is also sought to guide the design,

implementation and management of water based activities.

Rigorous strategic planning based on the public interest Successful governance of the Bays Precinct transformation relies on processes

which are informed by past experience and do not repeat past mistakes. Critiques of

the Barangaroo redevelopment have included: the need to avoid self-financing

models which may compromise public interest based planning; the need to avoid

single developer or single architect approaches; and the need to separate ownership

and plan making and approvals as much as possible to avoid clear conflicts of

interest. It is vital that redevelopment of the Bays Precinct is informed by absolute

clarity around non-negotiable aspects, logical development stages, transparent

decision making processes and independent review, particularly where departures

from an approved plan are being considered.

To guide the process a structure plan for the entire Bays Precinct is essential to

clearly set out the strategic vision and guiding principles and illustrates the proposed

transformation. This should be done prior to setting dwelling or job targets, be based

on feedback to the discussion paper and the ‘Call for Great Ideas’ and should include

all seven destinations (with Wentworth Park and Glebe Island Bridge). It should detail

proposed land uses, open spaces, facilities and transport, and be accompanied by a


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delivery plan which sets out staging, future funding and processes for governance

and engagement.

The preparation of a cultural strategy and economic strategy as recommended in

previous sections in this submission should inform and complement the structure

plan so as to optimise the potential of the Bays Precinct as an economic driver and

cultural destination. Similarly, the preparation of an integrated transport plan is a

crucial element of such structure plan to guide actions and inform staging, funding

commitments and delivery.

The value of the Bays Precinct will increase as the project proceeds, and the staged

release of land will increase the value obtained as well as maintaining flexibility to

incorporate new ideas and adapt to changing conditions over time. Fundamental

principles for management of the Bays Precinct include:

Leasehold, rather than freehold, arrangements over all land – with no

alienation of the foreshores from public access by sale or long term lease

Coordinate lease end dates. This will ease future renewal of land that will

continue to be highly valuable to the State

Maintain transparency of all aspects of decision making, governance and

financial arrangements

Ensure competition continues throughout the project to maximise value

Exercise flexibility in staging in order to bring forward or delay parts of the

project to maximise value in changing market conditions

Continue a high level of communication and engagement with the public

Place long term State-wide objectives and needs above short term local

objectives

Ensure the land uses maximise the values of the place

Infrastructure planning and funding Early planning for infrastructure is a key feature of successful urban renewal.

Commitment to infrastructure investment encourages private sector investment in the

short term and builds successful and productive places and communities in the long

term. Area such as the Bays Precinct have a greater reliance on early investment in

public infrastructure due to the high number of people living and working in the

precinct and the limited capacity to retrofit infrastructure in high density

environments. Redevelopment of the Bays Precinct also offers an opportunity to

address existing infrastructure shortfalls within precincts, which is appropriate given

the effects of increased traffic and demand for services that neighbouring areas will

experience.

In the MoU covering the three major urban renewal projects within the City of

Sydney, key renewal principles are established that speak to identifying,


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benchmarking and costing infrastructure in a ”funding model and delivery plan with

clear accountabilities, dependencies and timing for delivery”. Significant to the MoU

is an understanding that the City and UrbanGrowth NSW will work together to

develop such funding model and delivery plan to support the renewal. Essential to

this work is the input from NSW Government and Leichhardt Council. The work

should integrate the outcomes of specific investigations recommended throughout

this submission, such as community facilities and transport.

The City stresses the need to commence this work early and recommends the

establishment of a working group with NSW agencies responsible for the delivery of

both physical and social infrastructure, including Local Government to ensure optimal

integration and delivery coordination.

The City has extensive experience in planning for, securing funding for and delivering

infrastructure required to support the renewal of Green Square. This area is expected

to provide for 20,000 jobs and 54,000 residents by 2030 and the infrastructure

required to support this population is significant. The City has used several methods

to secure funding for infrastructure in Green Square including section 94 developer

contributions, the Green Square Community Infrastructure Floorspace Scheme and

the Town Centre Infrastructure Strategy which ties infrastructure costs to the

increase in land value.

Forward-funding of some infrastructure will inevitably be needed. Early provision of

infrastructure will encourage development and private sector

investment. The unique situation that the NSW Government owns most lands in the

Bays Precinct offers a major opportunity to capitalise on the land value uplift that can

be generated on some parcels of land through early infrastructure delivery.

Mechanisms that share the value created from windfall land value increases will best

service the long term public interest. Allowing these benefits to flow only to

landowners will be a missed opportunity.


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CASE STUDY GREEN SQUARE TOWN CENTRE The ‘Green Square Town Centre Development Rights’ scheme, introduced in 2006,

is a source of critical funding to deliver the significant infrastructure needed to

support the high densities of the Green Square Town Centre. This scheme

establishes contributions for each site in the town centre. The scheme operates with

an innovative rezoning model where development can only occur when landowners

in the town centre request that Council rezone their land and offer to commit to fund

the identified infrastructure. This model has proven highly successful in funding and

delivering key infrastructure and reducing unproductive land speculation activity.

GREEN SQUARE COMMUNITY INFRASTRUCTURE SCHEME The Green Square ‘Community Infrastructure Floorspace’ scheme was introduced

when the area was rezoned to mixed uses from primarily industrial land in the late

1990s. This scheme provides that additional development floorspace up to a

specified maximum may only be achieved where community infrastructure is

provided. The scheme, a partnership between the City and private developers, has

been successful in delivering important infrastructure at the time of development

such as parks, streets and incremental drainage upgrades. In 2015 alone, $52

million worth of public benefit offers have been made and are being negotiated and

secured by the City under this scheme in the form of voluntary planning

agreements.

Figure 19: Green Square Plaza and Library (Image source: Stewart Hollenstein)


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Recommendations: 10,1 Develop a structure plan for the entire Bays Precinct that sets out the strategic

vision and guiding principles and illustrates the proposed transformation delivered

through a comprehensive infrastructure and funding regime within an appropriate

governance framework.

10.2 Ensure effective stakeholder engagement throughout the planning and delivery

process

10.3 Implement a rigorous strategic planning process built around public interest

10.4 Establish a Bays Precinct specific MoU between the City and UGNSW to set

out detailed parameters for collaboration to ensure the delivery of international best

practice urban renewal outcomes. Establish an associated MoU with the City and

Roads and Maritime Services to guide the design, implementation and management

of water based activities.

10.5 Ensure early planning of infrastructure to identify, benchmark and cost the

infrastructure needed to support the Bays Precinct

10.6 Establish a working group with agencies responsible for delivery, including

Local Government and ensure optimal integration and delivery coordination with

independent monitoring.

10.7 Deliver infrastructure early to encourage development and private sector

investment and optimise urban renewal outcomes

10.8 Establish responsibility for ongoing operations (cleaning, maintenance etc.) of

the precinct at the earliest opportunity to eliminate uncertainty.

10.9 Utilise funding mechanisms that share value of windfall land value increases.

Secure portion of uplift value in a robust and economically balanced framework for

community infrastructure provision. Consider mechanisms such as the Green

Square Town Centre ‘Development Rights Scheme’.

10.10 Return the planning role to the Central Sydney Planning Committee and City

of Sydney once the strategic planning is complete.


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11 Great Ideas

The City welcomes The Call for Great Ideas and notes that ‘Great Ideas’ need not be

limited to destination specific solutions but can also relate to renewal, governance

and future proofing the management of the precinct. Further, the City believes that a

‘Great Idea’ does not necessarily be a new idea. Some ideas, such as an

educational institution in the Bays Precinct to catalyse a tech start-up hub, may be

new. Others, such as retaining and re-opening the Glebe Island Bridge to support an

integrated transport network may not be new, however, the context is now right for

their delivery.

The City’s ‘Great Ideas’ are summarised below in accordance with word limits

specified by UGNSW. Following this section is a table outlining to which objective

and destination each idea relates.

Extend inner harbour ferry services to service key destinations within the Bays

Precinct including the Fish Markets, the White Bay Power Station and the

White Bay Cruise Terminal as part of a wider integrated transport plan.

Redevelopment of the Bays Precinct provides an opportunity to extend Sydney’s

ferry network and introduce new timetabled inner harbour ferry services. Additional

residents, workers and visitors will support new ferry services, making more of

Sydney Harbour more accessible to local, national and international residents,

workers and visitors. A revitalised ferry network will help establish the Bays Precinct

as a priority public transport destination from day one. The international profile of the

precinct, as Sydney’s newest urban renewal area will be enhanced by a key focus on

public transport while at the same time presenting Sydney’s greatest attribute, its

harbour, as a key connecting element in urban renewal as a driver of transport,

recreation and open space outcomes.

A new stop at the Fish Markets will help achieve shifts in transport modes and assist

in reducing the amount of private vehicle parking required at the Fish Markets and

remove the incentive for the use of cars. Peak visitor periods at the Fish Markets,

such as Christmas and Easter illustrate the severe congestion that this creates. A

dedicated ferry stop would provide a viable and attractive alternative. The anticipated

increase in intensity of activity at the White Bay Power Station, including the potential

number of commuters would also make a stop at this destination viable, as would a

stop at the White Bay Cruise Terminal which could transport people disembarking

from cruise liners quickly to other locations. Provided future ferry services are linked

to the wider network and to the city, these services have the potential to take

pressure off bus services heading out of Balmain across Anzac Bridge and address

existing congestion in this area. To supplement the extended ferry service, a private


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but regulated Uber-style ferry or water taxi service should be allowed which utilises

GPS based hand-held digital technology.

Retain Glebe Island Bridge as part of the same transport plan as a key

pedestrian and cycle connection, an important heritage asset, a future light rail

link and a vital means of protecting the waters of Blackwattle Bay for

recreational purposes.

The Glebe Island Bridge should be retained, restored and re-opened as a critical

pedestrian and cycling link for the Bays Precinct. The bridge provides excellent

connectivity and is an important heritage asset. It can provide a future light rail link to

the White Bay Power Station, Cruise Terminal and Rozelle Stabling Yards from the

existing light rail line.

The bridge integrates the new Bays Precinct with the foreshore promenade and

connects it through to Pyrmont and Central Sydney. It is a landmark entry statement

for the precinct, defining the entry into the quieter inner harbour reaches. As such,

the bridge plays an important role in defining the inner bay areas as part of a mixed-

use community in which residents and visitors may participate in water based

recreational activities such as kayaking or dragon boating. The Bays Precinct

contains more water area than land area and the uses of the water space are every

bit as important as the land uses. The bridge defines and protects the community

activities which will form part of the future water based activities which define the

character of a renewed and revitalised Bays Precinct. Open up all parts of the foreshore in public ownership to public access as an

immediate priority using short-term, low-cost treatments.

The foreshore promenade provides a significant ‘early win’ opportunity for public

open space. By simply making safe and opening up the foreshore to public access

as early as possible in the planning and design process, as successfully achieved at

Barangaroo, public access can be provided at minimal cost. This can be achieved

through clear signage and low-cost short-term treatments wherever land is publicly

owned. This should be delivered in advance of the final promenade and would allow

the community to be engaged and take ownership from day one. If boardwalk

structures are to be built out into the water as a temporary measure prior to privately

owned land being redeveloped or long leases expiring, this should be a temporary

measure only and should not be in lieu of a permanent public waterfront promenade.

The eventual promenade should take the form of a continuous 30 metre wide public

space directly fronting the water. This dimension is commensurate with the 100 foot

reserve established elsewhere around the harbour and originally set out by the

Government in 1828. While this will undoubtedly be a challenge in some locations, it


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is a sound historical principle to which the design should aspire. Further to this

generous width, there should be areas along the promenade, such as pocket parks

or opportunities to access the water, which create ‘moments’ to linger. Finally, the

design of the promenade should be such that there is maximum permeability from

the streets set back from the harbour to the promenade and these connections

should be clearly legible as public spaces.

Undertake an open international design competition to re-imagine the land at

the head of Blackwattle Bay, including the Fish Markets and Wentworth Park.

Retention of all existing parkland, removal and replacement of the Greyhound

Racing track and stands with public parkland and connecting the park to an

expanded market offering at the head of the bay should be non-negotiable

aspects of all designs.

While Wentworth Park has not been included by UGNSW as part of the Bays Market

District destination, it plays a vital role in the broader success not only of this

destination and is a key resource for future residents, workers and visitors to the

entire precinct.

Removal of the intrusive Greyhound Racing track and associated infrastructure

provides the opportunity to “re-imagine” Wentworth Park and reposition it as a quality

recreational resource for the existing and future residents, workers and visitors.

The return of the entire park which is Crown Land for true public use, rather than

narrow interest group use, should be informed by an international design

competition, which encompasses the design of the park, the design of the new

market district at the head of Blackwattle Bay and the potential for greater

connectivity between the two locations. The design of the park and the new market

buildings should be considered holistically and the barrier that Bridge Road currently

creates between the two should be addressed. Investigation of traffic calming or

realignment of Bridge Road should be a key part of the design competition ensuring

that Wentworth Park, the market buildings and the waters of Blackwattle Bay are

seamlessly integrated and connected both visually and physically.

The City has coordinated successful competitions of this type for Gunyama Park and

Aquatic Centre and the Green Square Library and Plaza, to deliver world class

facilities and exemplary open space outcomes.


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Establish a working group of business academia and government

representatives and specialists to explore opportunities to position the Bays

Precinct as the natural extension of the digital and creative precinct, which has

emerged in Ultimo and Pyrmont.

The Bays Precinct, located adjacent to the Ultimo and Pyrmont ICT cluster, has the

potential to support the growth of the digital economy and accommodate a number of

tech start-ups. The provision of appropriate supporting infrastructure with appropriate

planning and design insights is required to attract this rapidly changing sector, and is

the key to capitalising on the potential of this emerging market.

The City’s ‘Floor Space and Employment Survey’ reveals the high density of people

with business knowledge, technology expertise and creativity already working in the

city. This has created a talent pool where innovation is thriving and start-ups are

being launched and grown. In the five years from 2007 to 2012, the ICT, higher

education and research sectors in the city grew by 12.4% to 76,952 workers. In ICT

alone in 2012 there were 782 individual businesses.

Catalysed by the proximity of Fairfax and Google, the significant ICT cluster in Harris

Street, Ultimo and the remainder of the areas, the ICT workforce now represents a

critical mass of businesses which can attract individuals who, due to their specialised

skills and talent could be encouraged to launch, join or support tech start-ups.

Establishing an effective dialogue with key players, analysts and commentators in

the sector is a prerequisite to effective planning for growth. The establishment of an

informed specialist working group to develop a “brief” to inform the ongoing planning

for the Bays Precinct will ensure that this opportunity is properly explored and

initiatives to support growth of the sector are optimised. The potential for growth is

significant and the opportunity to enhance the City’s international reputation as a hub

for knowledge intensive jobs and a globally competitive location is largely dependent

on capturing this globally expanding sector.

Investigate opportunities to provide more direct Light Rail Services to the Bays

Precinct, including a line between Convention and Wentworth Park stops by

tunnelling under Allen Street, Pyrmont.

The Bays Precinct provides an opportunity to develop a truly connected urban

renewal precinct by extending the existing light rail line (which runs from Central,

through Pyrmont, Glebe, Jubilee Park and on to Lilyfield) towards Balmain including

stops at White Bay Power Station and White Bay Cruise Terminal.

In conjunction, possibilities to provide more time competitive light rail services should

be explored. By way of example, the City has previously investigated the feasibility of


64

a short tunnel under Allen Street in Pyrmont to provide a more direct Light Rail

connection from Pyrmont towards the inner west. Such an extension would link

Convention and Wentworth Park stations directly, making future light rail services

which could connect to White Bay and Balmain much more time competitive with

buses and therefore much more attractive to commuters. Such an extension could

be utilised to run an express service to and from Dulwich Hill and possibly remove 8

to 10 minutes from existing travel times. An all-stations service could be retained

also.

Investigate the relocation of the White Bay Cruise Terminal in the long term

There are a number of issues with the current location of the Cruise Ship Terminal at

White Bay. The noise, air and visual pollution caused by large cruise ships docking in

this location and experienced by proximate residents is significant. Poor public

transport provision and an already congested road network mean that travel times to

and from the terminal are unreliable and create further congestion. Given that a high

proportion of cruise trips are taken by domestic passengers rather than international

tourists, a longer term plan may be to relocate this terminal to Botany Bay where it is

closer to the source of fuel and supplies and the airport and far from sensitive

residential uses. This would address amenity impacts but also enable larger cruise

ships which cannot pass under the Harbour Bridge to be accommodated and take

pressure off Garden Island to accept domestic cruise ships as well as seasonal

round-the-world cruise ships. Investigations should be undertaken into the economic,

traffic and transport and amenity impacts of any relocation both at White Bay and

Botany Bay. It is critical that any relocation in the medium or long term does not stop

the significant impacts associated with the current location, including air quality,

amenity, transport and access being addressed in the short term.


65

Great Idea

Temporary

or

Permanent

Objective Destination

Extended inner harbour ferry services

Permanent 2, 4 All

Retain, restore and reuse Glebe Island Bridge

Permanent 2, 4, 5 1

Immediate public access to the foreshore

Both 2, 4, 5 All

Remove Wentworth Park

greyhound track and run international design

competition for head of Blackwattle Bay and

Wentworth Park

Permanent 2, 5 2

Specialist advice on the Bays Precinct as a digital

and creative precinct

Temporary 1, 2 2 and 3

Allen Street light rail tunnel

Permanent 2, 5 All

Relocation of White Bay Cruise Terminal to

Botany Bay

Permanent 2, 3, 5 4

ends


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Appendix A - Attachments

The following documents are referred to in this submission and are available for

download as noted:

Bays Precinct Urban Renewal Program: Planning processes and consultation

review report. Elton Consulting, November 2014.

(http://sydneyyoursay.com.au/bays-precinct)

Best practice urban renewal: Input into Bays Precinct forum. SGS Economics

and Planning, November 2014. (http://sydneyyoursay.com.au/bays-precinct)

Housing Issues Paper. City of Sydney, April 2015.

(http://sydneyyoursay.com.au/housing-issues-paper)

Visitor Accommodation Action Plan (Hotels and Serviced Apartments). City of

Sydney, June 2015.

(http://www.cityofsydney.nsw.gov.au/__data/assets/pdf_file/0010/236719/150

623_PDC_ITEM07_ATTACHMENTB.PDF)

Creative City: Cultural Policy and Action Plan 2014 – 2024. City of Sydney,

August 2014.

(http://www.cityofsydney.nsw.gov.au/__data/assets/pdf_file/0011/213986/Cult

ural-Policy-and-Action-Plan-2014-2024.pdf)

Barangaroo Integrated Transport Plan. Barangaroo Delivery Authority, 2012.

(http://www.barangaroo.com/media/83121/bitp%20lowresfinal.pdf)

City of Sydney Competitive Design Policy. City of Sydney, 2012.

(http://www.cityofsydney.nsw.gov.au/__data/assets/pdf_file/0004/128065/Co

mpetitive-design-policy-adopted-09-December-2013.pdf)

City of Sydney Child Care Needs Analysis. Cred Community Planning, 2013

(http://www.cityofsydney.nsw.gov.au/__data/assets/pdf_file/0007/189835/CC

NA-7-Nov-2013.PDF)

Documents

Online Form Submission - The Bays Precinct Sydney...Time Out should list it as one of 10 places to visit in Sydney. For long-term operational functionality and resilience, the Sydney