USING LAND FOR LIVING Item 14, Ordinary Meeting, 15.12.09 SUBJECT: SPRINGWOOD TOWN CENTRE PROJECT FILE NO: F04400 - 09/195013 Source (PDF 3.4 MB)
Management Plan Link Principal Activity: Providing Good Government Service: Strategic Planning for the City Project: Springwood Town Centre
[A rescission motion was discussed, and defeated, at a special Council meeting on 30 December. Click here for details.]
[Updated to show the amended motion, which was carried by Council on 15 December.]
The purpose of this report is to continue to respond to the resolution of the Council of 17 February 2009 on the Springwood Town Centre Project.
"1 . That given the global financial and economic difficulties being faced by many companies, Council write to each shortlisted proponent who has lodged an expression of interest for the Springwood Town Centre Project, seeking to know as a matter of priority if they intend to remain in the process and deliver the standard and type of development previously indicated;
2.That the proponents' responses and any implications for the process arising from those responses be reported back to Council within 90 days;
3.That, if all the proponents indicate an intention to continue in the process, a public consultation on the Springwood Town Centre Project will take place and this process will include a 'poll'/referendum of community opinion in Faulconbridge, Springwood, Hawkesbury Heights, Sun Valley, Winmalee, Yellow Rock, Hawkesbury Heights, Sun Valley and Warrimoo;
4.That the process of public consultation on the Springwood Town Centre Project also include options for obtaining input on the issues referred to in 3, above, from residents outside of those Townships, possibly through the BMCC website;
5.That a report to the Council on the exact process and approach for implementing the strategies in 3 and 4 above, be provided after Councillor input; and
6. That no further action be taken on the Springwood Town Centre project until the above matters have been actioned."
(Minute No 35, 17 February 2009)
This report provides a summary of the findings of a "Community and Cultural Facility Needs Assessment" and proposes further work to assess the detailed requirements for the upgrade or renewal of existing facilities. The Needs Assessment report considers existing facilities to be inadequate for the current and future community needs. This report then goes on to discuss the consultation processes of poll and referendum in regards to the Springwood Town Centre Project
A key objective at this stage of the project is the determination of an appropriate process for engaging with the community to inform decisions around how or if the project should advance and the desired outcomes being sought.
A program for consultation and reporting is provided which seeks to address the Council resolution. The consultation process focuses initially on the priorities and requirements for the provision of community and cultural facilities and options to deliver these, with surveys of community opinion to be conducted in March 2010. Following assessment of the results of this consultation, a report would be presented to the Council in April 2010 with the results of this and recommendations around the way forward. Further consultation would then be undertaken from July 2010 on outcomes from the first stage of the Request for Detailed Proposals.
The Springwood Town Centre Project (STC Project) was initiated by the Council in 2006 as a way to support the continued viability of Springwood as a village and district centre and to upgrade or seek the replacement of community and cultural facilities. Expressions of interest were sought in 2008 and 3 proponents were selected to proceed to stage 2 of the tender process, being a Request for Detailed Proposals, following community consultation and at a date yet to be determined by the Council.
A review of the expressions of interest and an evaluation of the proposed developments identified a number of key matters to be addressed prior to beginning Stage 2 of the tender process. These matters included:
In response to the Council resolution of 17 February 2009, the proponents were contacted. All 3 proponents indicated an intention to remain in the process and to deliver the same standard and type of development previously indicated. These responses were reported to the Council on 5 May 2009.
Since that time a number of workshops and discussions have been held seeking Councillor input prior to preparation of this report. Later in this report a summary of priorities for community and cultural facilities is provided and this was supported by a number of the Councillors. There have been various inputs in terms of expectations for the process, ranging from moving slowly and listening to the community through to seeking more detailed demonstration of the types of offer from the proponents and seeking community comment at that stage. The options for community consultation and proceeding with decisions around the project provided in this report seek to accommodate the range of views presented by the Council.
No further work other than responding to the Council resolution of 17 February has been initiated on the Springwood Town Centre Project since that time.
The Council has an unusual opportunity to make a positive contribution to the future of Springwood. As a major land owner the Council holds a unique position for achieving responsible and high quality development within the STC that could support the sustainability of the centre while funding significant improvements to public facilities.
Development within the town centre is currently guided by the strategic framework of Local Environmental Plan 2005 (LEP 2005) and the Better Living Development Control Plan (DCP). For this project it is recommended that the statutory planning instruments are also supported by more detailed specifications for the development of the Council's land. Preparation of this documentation would complement identification of the requirements for community and cultural facilities.
A draft report "Springwood Cultural and Community Facilities and Services - Needs Analysis" has been prepared for the Council by consultant Anni Gethin of Argyle Research and Training Pty Ltd. This report was prepared in consultation with key stakeholders such as service providers and main user groups, and it provides an assessment of community needs in relation to cultural and community facilities and services within the STC over the next fifteen to twenty years. A summary of the findings of the report follows.
Springwood is an important service centre for the lower mountains and the location of a range of well utilised cultural and community facilities and services. The population of Springwood and the lower mountains is expected to remain relatively static over the next twenty years, but the number of those persons aged over 65 years is expected to increase significantly. This changing demographic will increase the demands made on facilities and services, and increase the demand for easily accessible facilities.
The assessment found that all services operating within Council owned facilities in Springwood are operating at capacity. All require more space (operational and storage) in order to operate more effectively. Some services are particularly constrained by the lack of space, leading to concerns about levels of service provision, the protection of client privacy, and proper storage of records and equipment.
The report stated that a strong view was expressed by stakeholders to continue to locate all major cultural and community services on one site, preferably the existing Civic Centre Site.
The feeling expressed was that this is also likely to be the most cost effective option. The report suggests that relocating facilities to another site would be supported if significant benefits (over the retain option) to services and the community could be demonstrated, and if existing synergies between services can be preserved or enhanced.
In terms of individual facilities currently located on the Civic Centre Site, it was found that enhancements and/or extensions are required to all existing buildings, or that new purpose built facilities need to be constructed within the existing or new Cultural and Community Precinct (see above). In addition, the report suggests that a new multipurpose facility would be an ideal addition to the precinct, meeting a wide range of user needs. Other pertinent report findings include:
The Civic Centre is used by numerous performing arts and community groups for diverse purposes. It requires at minimum a general refurbishment addressing issues of acoustics, storage, access, and climate control, in addition to general updating.
The Springwood Branch Library needs to be extended, requiring additional floor space, study rooms and a training/conference room.
The Local Studies Collection requires additional floor space and facilities to allow improved public access and correct storage of its archival materials and maps. Additional archival treatment and display space would greatly enhance the role of the Local Studies Collection.
The Springwood office of Blue Mountains City Council requires additional office and meeting space to effectively run its services.
Springwood Neighbourhood Centre Cooperative needs access to additional space for running programs and activities, and to provide confidential client services. Other users of the Springwood Neighbourhood Centre would benefit from additional space and access to interview and meeting rooms and activity / training rooms.
The report also noted that facilities located on other sites of Springwood are not fully meeting the needs of users - including the Early Childhood Health Centre, Manners Park Building and the Red Cross Hall. The report suggests that the Council and the services occupying these facilities work in partnership to determine the best ways of meeting service needs. The report identifies that the former Integral Energy building could provide additional space for service delivery, but will need extensive renovation. (N.B.: The former Integral Energy Building has been recently acquired by the Council and an expression of interest process for use of this space by community organisations is currently underway).
In regard to public open space, the report identifies the need for the retention of the vista from the Town Square, and for a fenced children's playground within the Town Centre, either in its present location or another central location. A plan is also required for the improvement of the small 'Pocket Parks' in Springwood as currently the parks are of poor amenity and safety with passive surveillance of park activities currently difficult.
The existing main public toilets in Springwood are poorly located in the middle of the northern car park and there is currently no dedicated parenting room. Additional facilities for parenting (for example attached to a new multipurpose room and improvements to the safety of access to the northern car park toilets are recommended for consideration.
On the basis of this analysis, the report presents prioritised recommendations to enhance cultural and community facilities in Springwood to meet the needs of services and local and visiting populations over the next two decades. These recommendations have been reviewed in the context of the STC Project and a modified list is provided in this report. It is suggested that this provides a basis for more detailed investigations and preliminary costing, together with stakeholder and community consultation.
The study report contained recommendations for the location of facilities, arguing that these should all be co-located as the most efficient option. There is, however, scope to vary the location and mix of facilities to better complement the operation of the town centre as a whole, while still achieving efficient operations. Redistributing groups of complementary facilities needs careful consideration in weighing up the benefits of different development proposals and in terms of freeing up sites for development.
While there may be location advantages in grouping certain facilities, there are also benefits from splitting the location of different types of services into clusters. For example: the Library, Community Hall and Council Office type functions might be suited to a more central location. Community health and social services might be suited to easily accessible locations and benefit from being closer to other health and medical facilities and services.
In support of the needs assessment, a further report is required which outlines the estimated floor space and land area needed for the identified community and cultural facilities. Determining the floor space requirements, acceptable locations and the co-location options for related facilities are essential development parameters that are needed to:
Subject to approval of the Council, further work is proposed to be undertaken to prepare this information. This would provide an outline of proposed Council requirements to be met within the STC Project. Consultation with stakeholders and the wider community around these proposed requirements would confirm proposed outcomes, and inform the STC Project.
It is important to note that this work is necessary to provide clarity in establishing the Council's desired outcome for the provision of community and cultural facilities in Springwood, whatever delivery route is subsequently adopted to achieve this outcome.
The consultant report provides a list of priorities for attention to the facilities within Springwood but it is considered that this list extends beyond the scope of the STC Project. It is proposed that the assessment of priorities is informed with more detailed investigation of requirements and preliminary costs of various broad options for improvement, including new facilities and retrofitting the existing facilities, and subsequent community consultation.
As part of the discussions with the Councillors a variety of opinions were expressed regarding the priorities for action. These all included asking the community for their input. Some Councillors did not wish to indicate any priority for provision of facilities at this stage, but a preliminary list was also supported by a number of Councillors and a summary of this list of priorities is provided below.
Other comments from some Councillors:
Advice received from the NSW Electoral Office is that use of a constitutional referendum is limited by legislation and would not be permitted in this project.
Consequently the various ways that a poll can be carried out and the advantages and disadvantages of these have been considered and a summary of provided below. A draft program is presented which seeks to address the Council part resolutions 4 and 5; Minute No. 35, 17 February 2009, as highlighted earlier in this report and this is also provided below
In order to conduct an effective opinion poll on the Springwood Project it is considered necessary to provide upfront information to the community on the matters for consideration, key issues to be addressed and the potential outcomes of the current tender process. Provision of this information could be progressive over a period of time to give the opportunity for members of the community to develop a greater level of understanding of the issues and options available.
Key matters identified for the first phase of consultation proposed for March 2010 are the outcomes required for improved community and cultural facilities, together with other outcomes sought for the three sites within the context of the broader town centre.
The second phase of consultation is proposed to be based upon information from the proposal/s received in the Request for Detailed Proposals - Stage 1. The extent of the information provided will be dependent upon the proposals submitted as well as commercial in confidence considerations.
It is possible that one or more proposals could be recommended for proceeding to stage 2 of the RDP and the proposed outcomes of the preferred proposal/s would placed on public exhibition and a poll conducted on these outcomes. It is likely that this will be a difficult exercise as the expected outcomes are complex and multi faceted.
The table below provides an outline of the proposed consultation and reporting program.
Matters for consideration
Method of consultation
Time Period
Report to Council
Provision of information on needs for community and cultural facilities in Springwood and release of consultant report
Information provided on Council website
December 2009 and ongoing as information is made available
Documentation of requirements for community and cultural facilities and other requirements for development of each site
Expert advice
Specific stakeholder interviews
December 2009 to February 2010
Councillor Briefing February 2010;
Council report 23 February 2010
Design draft survey and liaise with Councillors.
Approval to proceed with consultation
Briefing with Councillors
February 2010
Councillor Briefing in February 2010;
Results of community consultation on priorities for community facility improvements and decision on way forward
Phone survey of representative sample of population complemented by paper and online survey and blog page on Council website
March 2010
Councillor Briefing April 2010;
Council Report 27 April 2010
Prepare documentation for Request for Detailed Proposals (RDP) Stage 1
Expert advice and probity advice
February to April 2010
Seek RDP Stage 1
May - June 2010
Council report 20 July 2010
Tender panel assessment of RDP: stage 1
June - July 2010
Consultation around proposed outcomes of preferred proposals
Exhibition of information on proposed outcomes from the preferred proposal and local community poll on proposed outcomes
July to September 2010
Council report 20 July 2010 with poll proposals;
Council report / with results of consultation November 2010
Depending upon Council satisfaction with one or more of the detailed proposals and decision to proceed to RDP stage 2
Seek RDP Stage 2
February to March 2011
Council report June 2011
For this project proposal to proceed within the proposed timeline the Council will need to resolve to take certain actions and the recommendations for these are identified at the front of this report.
It is important to note that documenting the requirements for Community and Cultural facilities is necessary to provide clarity in establishing the Council's desired outcome for the provision of community and cultural facilities in Springwood, whatever delivery route is subsequently adopted to achieve this outcome. It is recommended that the Council proceed with this work immediately regardless of other considerations.
Effects
Positive
Negative
Environmental
Not applicable at this stage of the project
Social
Provision of information and consultation with the community and stakeholders will increase awareness of the opportunities available through the STC Project and encourage input to decisions around this project;
Improvement to community and cultural facilities will greatly enhance service provision for the future community.
Economic
The project considers opportunities to realise funding for public infrastructure through development of valuable but under utilised parcels of land in the Springwood Town Centre
Governance
Community input is to be sought on important issues for the Springwood community;
The Project seeks to provide improvements to community and cultural facilities through use of assets owned by the Council.
The STC project has funds of $70,000 carried over from 2008-9 to support studies and community consultation. It is expected that a further allocation of funds in 2009-10 would be required to conduct Stage 2 of the tender process (a proportion of this may need to be brought forward and these details can be provided in the report to the Council in February 2010).
The EOI process offered one or more of three sites for sale, lease or other form of agreement. These publicly owned sites are large and relatively under developed sites within the town centre, and provide opportunities for significant income generation. Financial offers and detailed design proposals from each proponent would be required within the Request for Detailed Proposals - stage 1.
The existing buildings on the Civic Centre site and the Northern Car Park site have been assessed for their condition, and the adequacy of their accommodation. Preliminary estimated costs for minimal upgrade such as air conditioning of the Civic Centre have been assessed. However, the buildings are all considered to require significant upgrade and expansion to provide for future uses. The costs of maintenance, energy and water are expected to increase significantly over time as the buildings are aging and are not designed to be energy or water efficient. In order to consider all options available for the provision of energy efficient and adequate facilities for the future, as part of this process options for retrofit and/or upgrading the existing buildings should be investigated alongside the provision of major new facilities including a Civic Centre, Library, Neighbourhood Centre and Council Offices.
The Council is currently mid way through a public tender process which necessitates strict probity requirements to be observed with the STC Project. The timing and content of community consultation needs careful consideration so that it informs the outcomes of the STC Project without compromising the tender process.
In March 2008 the Council invited 3 proponents to stage 2 of the tender process at a date yet to be determined, and indicated that consultation with the local community and other stakeholder engagement would be undertaken in the development of detailed requirements for the Town Centre and the community and civic facilities and services prior to the second stage commencing.
A needs assessment for community and cultural facilities and services was undertaken in 2008 - 2009 and this included consultation with community and cultural facility user groups and service providers. This report is proposed to be made public.
Other work is required to supplement the needs assessment and it is recommended that further consultation is undertaken with the general community regarding the priorities for improvements to community and cultural facilities.
This report provides a program for the Springwood Town Centre Project with specific recommendations around staged consultation and reporting. .
The report recommends undertaking a representative survey of local community opinion along with web based consultation on the priorities for the provision of community and cultural facilities. The results of this consultation process would then be provided to the Council to inform other decisions yet to be made by the Council on the STC Project. A community poll is proposed on the preferred detailed proposal/s should the Council decide to proceed to Request for detailed proposals - Stage 1.
In order to provide adequate information for the community to form considered opinions on these matters it is proposed that the Council proceed in the short term to document requirements for provision of updated or new community and cultural facilities in Springwood Town Centre to be potentially funded by the Springwood Town Centre Project.