Springwood Town Centre Project
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See also: Submission form (PDF 11 KB)

Options Report

July 2007

Blue Mountains City Council

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Table of contents

• Executive summary
• Chapter 1: Introduction
  • 1.1 Background
  • 1.2 Key issues
• Chapter 2: Site descriptions
  • 2.1 Civic Centre Site
  • 2.2 Northern Car Park
  • 2.3 Southern Car Park
• Chapter 3: Planning framework
  • 3.1 Draft Vision for Springwood Town Centre
  • 3.2 Economic Outcomes
  • 3.3 Social and Cultural Outcomes
  • 3.4 Environmental Outcomes
• Chapter 4: Overview of community facilities and car parking
• Chapter 5: Possible options for development
• Chapter 6: Preferred option - Option 2
• Chapter 7: Next steps
• Appendix 1: Traffic summary
• Appendix 2: Economic summary
• Appendix 3: Parking summary
• Appendix 4: Community facilities report summary
• Appendix 5: Detailed site description
• Appendix 6: Crown land assessment
• How do I make comment on the options report
  • Public Exhibition Period
  • Written Submissions
  • For further information
  • Public Information Session and Public Forum

Figures

• Location Map
• Figure 1: Indicative Option Plan for the Civic Centre site
• Figure 2: Indicative Option for the Northern Car Park
• Figure 3: Indicative Option Plan for the Southern Car Park
• Figure 4: Map of the Springwood Town Centre
• Figure 5: Map of the Civic Centre Site
• Figure 6: Map of the Northern Car Park
• Figure 7: Map of the Southern Car Park

Executive summary

In late 2006 Councillors raised concerns regarding depressed levels of retailing of Springwood Town Centre, and a perceived decline in its position in relation to nearby retail centres. Councillors expressed the view that positive action to allow appropriate private sector development of Council managed sites with significant "anchor" retailing could enhance the attraction of the Springwood Town Centre. The Council owns or manages three large sites within the Town Centre that may be suitable for additional development or redevelopment. The three sites are generally known as the Civic Centre site, the Northern Car Park (partly Crown land managed by the Council), and the Southern Car Park. During 2007 the Council has considered ways in which to proceed to invite the private sector to submit proposals for the three sites. Different methods were considered by the Council at its meeting of 30 January 2007 and it was resolved to proceed to seek Expressions of Interest by December 2007.

Various preliminary studies were undertaken including investigation of the sites. A Stakeholder Workshop was held on 29 March 2007 and the outcomes were presented in a report to the Council on 24 April 2007. As a result of that meeting the deadline for receiving and assessing Expressions of Interest was extended to 31 March 2008.

In order to progress the project the Council has produced this Options Report. The purpose of the Options Report is to present a broad range of options for the Council and the community to consider prior to proceeding to an open Expressions of Interest process. The preferred option is based on a draft 'Vision' that has been developed for the Springwood Town Centre. The report describes the sites and the existing land uses. The function of the Town Centre is also analysed and summaries of economic, traffic, parking and community services and facilities studies are presented for information.

The Department of Lands is also participating in the project. As the Crown owns some of the land parcels which form the Northern Car Park the Options Report addresses the principles of Crown land management.

The key recommendation made in the report is that the Council proceed to formally call for Expressions of Interest for all three sites but explain what the Council and community see as generally appropriate forms of development for each particular site (see Option 2 in Chapter 6). The planning controls that apply under Local Environmental Plan 2005 will guide any proposed development.

The community is encouraged to comment upon this Options Report. The public exhibition process is detailed on the back page of this report. Community feed back will influence the way the Council will call for Expressions of Interest.

It is anticipated that the project will support Springwood to remain a vibrant, diverse and economically viable Town Centre, and improve the community services and facilities available.

Chapter 1: Introduction

1.1 Background

At its meeting of 30 January 2007, the Council considered the possibility of using Council managed land within Springwood Town Centre as a catalyst to assist the further development and viability of the Centre (for further details see the Business Paper for the Council Meeting of 30 January 2007 on Council's website at www.bmcc.nsw.gov.au). The land identified for consideration consists of three (3) key sites within the Town Centre, identified respectively as the "Civic Centre site", the "Northern Car Park", and the "Southern Car Park" (see Chapter 2 for a full description of the sites).

The project has been defined relative to those discussions as follows:

The objectives of the Springwood Town Centre Project are:

• To maintain and enhance the community facilities and services currently offered within the Town Centre; and
• To contribute to achieving an ongoing economically viable, vibrant and diverse commercial and retail centre.

This is proposed to be achieved through the identification and progress towards appropriate commercial re-development within the Town Centre, consistent with the draft "Vision for Springwood Town Centre" (see Chapter 3 for the draft Vision). In achieving this, any development proposal for Council owned or Crown land should:

• Provide either a recurring income stream to the Council or the Crown, or market value for any Council owned or Crown land sold;
• Take into account financial returns of any re-development against any extension or enhancement of community facilities which form part of the project area;
• Take into account any financial returns to the Council and the Crown against the contributions any proposed development would make to the economic viability of the Town Centre.

In addition, the project will identify future processes and projects required to progressively enhance the commercial viability of the Town Centre and the adequacy of community facilities.

The project was identified as a priority for the Council due to concerns of the perceived decline of Springwood Town Centre in relation to new commercial developments at nearby local and regional shopping centres. The Council endorsed a process involving initial background studies together with community consultation, leading to an Expression of Interest (EoI) process inviting the private sector to lodge proposals for some or all of the selected sites. The aim was to select a proponent through the open EoI process.

The Council originally set a deadline of the end of December 2007 to have the expression of interest proposal released and evaluated, and a preferred proponent selected. This deadline was subsequently extended to March 2008 at the Council Meeting of 24 April 2007. This Council Report also summarised the outcomes of a Springwood Town Centre Stakeholder Workshop held on 29 March 2007, and endorsed further community consultation on the project (for further details see the Business Paper for the Council Meeting of 24 April 2007 on Council's website at www.bmcc.nsw.gov.au).

The Springwood Town Centre Options Report

The Springwood Town Centre Stakeholder Workshop held on 29 March 2007 demonstrated a strong interest by the community in the future of the Springwood Town Centre and in any re-development proposals. A key issue arising from the stakeholder workshops was the need to establish a long term strategic "Vision" for the Town Centre.

To ensure that both the Springwood community and residents from across the City have input to any proposed re-development, as well as broader issues in relation to the Springwood Town Centre, the Council decided to publicly exhibit an Options Report seeking community comment. This Options Report outlines the potential commercial development options for the three key sites, and provides background information and a draft "Vision" for the Town Centre.

The Council wants your views, ideas and comments on the material in this Options Report. All submissions will be considered and reported back to the Council at a Special Council Meeting to be held in Springwood 16 October 2007.

What is the Springwood Town Centre?

Springwood Town Centre is one of two major retail, commercial and community focal points within the City (the other being Katoomba). For the purpose of the Project, the Town Centre is defined as being the area on both sides of Macquarie Road between the Civic Centre site and Springwood Fire Station. The Town Centre also includes Raymond Road, and the non-residential northern side of Springwood Avenue, from the Civic Centre site to the rear of the Fire Station (see Figure 1).

This is the same definition of the Springwood Town Centre as used in previous strategic planning projects (e.g. Springwood Town Centre Masterplan 1982 - Blue Mountains City Council). While some ancillary retail and commercial activities occur outside this area (e.g. from the Civic Centre east along Macquarie Road, including developments around the Hawkesbury Road roundabout; Macquarie Road west of the Fire Station to Homedale Avenue as well as commercial developments along Ferguson Road), the focus of this Project will be the core retail area, as described above.

1.2 Key issues

Previous planning studies and more recent retail and traffic studies commissioned by the Council as part of the Project, together with recent community consultation, have emphasised the following issues for the Springwood Town Centre.

Retail and Commercial

• Springwood Town Centre is a long linear shopping strip, bordered by the railway line on the north and bushland reserves to the south. This limits the ability of the Town Centre to extend and change its footprint, especially along any north/south axis. The current retail/commercial activities are concentrated on Macquarie Road and Raymond Road, with minor development along Springwood Avenue.
• Springwood Town Centre currently contains a wide diversity of retail and service outlets including key government services (for instance the Roads and Traffic Authority, and Medicare); medical services; a broad range of retail shops including speciality shops; most of the major banks; commercial offices; a range of service providers; and cafes, hotels and restaurants.
• There is no major chain supermarket present but there are two smaller chain supermarkets (Franklins and IGA). There are a small number of minor chain stores or franchises and a large number of low end retail outlets (e.g. second hand stores and budget stores).
• There are currently some vacant shops, including some long term vacancies. Recent retail studies suggest these vacancies may be partly explained by the comparatively high rents for retail shops in Springwood.
• There are few purpose built professional rooms or commercial offices in Springwood. Some professional rooms and commercial offices do exist largely above current retail shops or within small arcades. Recent retail studies suggest there may be additional opportunities for quality office or commercial space.
• Springwood Town Centre is situated off the Great Western Highway, and is not highly visible from the Highway. It is not well promoted from the Highway which may impact on its ability to attract passing tourism trade and, unlike Glenbrook, does not have a tourism information centre.
• Businesses in Springwood largely rely on locally driven trade with only limited tourist trade.
• As the retail and commercial outlets within Springwood rely on local trade, they directly compete with retail outlets in Penrith, Richmond, and the Winmalee Shopping Centre. Retail outlets in Springwood report that, despite the limited retail opportunities at the expanded Winmalee Shopping Centre, it is having an impact on Springwood.

Social and Community

• Springwood Town Centre includes a significant number of major community assets and facilities which service the whole of the City including Springwood and the Lower Mountains. These facilities include the Library Headquarters; the Local Studies Collection; a Civic Centre which is used as a performance and cultural space as well as a community facility; a community run Art Gallery; a Neighbourhood Centre; Council Offices; youth services; an Early Childhood Health Centre; and parks and playgrounds.
• These services are well used. The changing demographics with the aging of the population, and projected population growth in the Springwood area provide a challenge to the Council in terms of maintaining adequate levels of services.
• Future planning for the Centre must incorporate the ability to expand existing, and develop new, community facilities. Issues in regard to community facilities and services are more fully discussed in Chapter 4 and Appendix 4.
• The community facilities also provide an economic boost to the town, as the users of the community services are drawn from across the City and frequently take advantage of shopping opportunities in Springwood at the same time.
• Local retailers and residents describe the centre in a positive way as a "village" Town Centre. What makes Springwood a "village" has not been fully articulated but factors which contribute to the village atmosphere are its location off the Highway; the good pedestrian access; the predominance of small local retail outlets (rather than large chain stores); the diversity of goods and services offered; the presence of only small retail arcades; and the range of community facilities and services located within the Town Centre.

Environment

• Springwood is directly adjacent to major bushland areas, including the Blue Mountains National Park and Council managed reserves. Views to the Greater Blue Mountains World Heritage Area can be seen from a variety of key points within the Town Centre.
• There are five small parks and one playground within the Town Centre itself (Buckland Park, Telecom Park, Early Childhood Health Centre Playground, Manners Park, and Rest Park). Some of these parks are well used open spaces and social meeting points, and some are not. The Town Square also provides a social focus.

Traffic, Car Parking and Pedestrian Access

• Recent traffic studies have identified two main issues in terms of traffic flow (see Appendix 1). While traffic flow is good along Macquarie Road, there are few turnoff opportunities or loops back to Macquarie Road. Cars travelling along Macquarie Road are committed to travelling its entire length unless they turn into Greenway Lane adjacent to the Northern Car Park, while those wishing to travel south and access the southern car park must turn from Macquarie Road into Raymond Road or travel the length of Macquarie Road to Homedale Street.
• The second main traffic issue identified relates to access to the Town Centre itself from the Great Western Highway and Hawkesbury Road, especially during peak afternoon periods when traffic congestion results in considerable delays along Macquarie Road and at the Great Western Highway turnoff.
• A recent car parking study undertaken by Council indicates Springwood is well supplied with a diversity of parking spaces. This includes undercover parking behind some retail shops on Macquarie Road; street parking; and four major public car parks which offer some free limited and some unlimited parking (see Chapter 4 and Appendix 3).
• Some car parks are not well used as they are poorly signposted, lack visibility and are down slope from Macquarie Road.
• Pedestrian access within Springwood is generally regarded as good, despite the footprint of the centre being long and linear. There are three major pedestrian crossings within the Town Centre which are well used and easily distinguished for motorists.
• Some pedestrian access points from the car parks behind the shops are poorly signposted, have low visibility from the main street, and are poorly lit. The current small retail arcades do not provide good through pedestrian access and tend to be "dead ends" rather than assisting pedestrian circulation.

Strategic Planning

• The gazettal of Local Environmental Plan 2005 made changes to permissible land uses and density controls within Springwood Town Centre. The 'Village Town Centre' zoning which applies to the Town Centre allows for an increase in development yield to that which was previously be permissible.
• Springwood Town Centre underwent a major master planning exercise in 1982. Some of the recommendations of the Master plan have been implemented and others have not. It is unclear why some recommendations were pursued and others were not.

Chapter 2: Site descriptions

This section provides a general description of the three key sites, including their current uses and adjoining development. The subject sites have been identified on the map below.

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Location Map: Locality map showing the three subject sites over aerial photography

2.1 Civic Centre Site

This site comprises two lots and has a combined area of approximately 4463m2. There are two street frontages which include Macquarie Road being the northern boundary and David Rd along the western half of the southern boundary.

The length of the site ranges from approximately 108m to 112m. The Macquarie Road and David Road frontages are approximately 77m and 91 m respectively. The site is rectangular in shape with a fall of 13m from north to south. The north of the site is reasonably level; however there is a grade of 16% to the rear of the site.

A one-way traffic lane (north to south) traverses the centre of the site linking Macquarie Road to David Road. The site contains 80 car parking spaces which are principally located at the rear of the site where the slope is greatest.

The Civic Centre and Neighbourhood Centre are located within two attached buildings on the western side of the site. "Braemar" is located on the eastern side of the site, directly fronting Macquarie Road. A public Library and Council Offices are located between the rear car park and "Braemar".

The southern boundary contains two vehicular access points. There is an entry and exit point for the Civic Centre car park at the south western corner of the site, and a single lane driveway is located centrally on the southern boundary which allows vehicles to exit the Library car park. There is a second single entry point at Macquarie Road and this one way lane is adjacent to the eastern boundary.

The Oriental Hotel is located on the corner of Macquarie Road and Raymond Road, adjoining the west boundary. Also adjoining but south of the Oriental Hotel fronting the David and Raymond Road roundabout is a development which includes a supermarket (Supa IGA), and a number of smaller retail stores. Residential dwellings adjoin the site immediately to the south and to the east, including 'Danebury' immediately to the east. To the north of the Civic Centre site is Buckland Park which contains a Red Cross building, a War Memorial and a little used playground.

'Braemar', Buckland Park, the Oriental Hotel and 'Danebury' are listed as heritage items under Schedule 6 of LEP 2005. Draft Amendment No1 to LEP 2005 identifies the Civic Centre site and surrounding precinct as Heritage Conservation Area SP056.

2.2 Northern Car Park

The Northern car park is comprised of five separate lots in two different ownerships. The area is approximately 5197m2, of which the Council owns approximately 1978m2; the remainder (being 3219m2) is Crown land.

The site is reasonably level. The southern boundary adjoins Macquarie Road and is approximately 85m in length. Greenway Lane runs along the western and northern boundaries and importantly is located within the site. This lane does not have a separate title and is not contained within an easement. The Main Western Railway line adjoins the northern boundary of the site, with Springwood Train Station located a short distance to the west.

The site operates principally as a public car park and contains 93 parking spaces. There is one vehicular access point which is located at the north of the site along Greenway Lane. The Crown land contains a toilet block in the centre of the car park, the Early Childhood Health Centre operated by the Wentworth Area Health Service and a children's playground fronting Macquarie Road. The Council land includes the former Scout Hall site and the lot to the west of the toilet block.

Surrounding development includes a supermarket (Franklins) directly to the east of the site, and to the west is a Post Office and real-estate agency. The Post Office site is listed as a heritage item under Schedule 6 of LEP 2005.

2.3 Southern Car Park

The Southern car park incorporates 9 separate lots and has a total area of approximately 4783m2 (excluding the Town Square). The southern boundary is approximately 11 0m to Springwood Avenue. The site is rectangular in shape and is used principally as a public car park, apart from the Town Square which is located between the car park and Macquarie Road. The car park contains 127 public car parking spaces.

There are two vehicular access points to the site, located at the south-western, and the south-eastern corners of the site. Both access points are entry/ exit driveways. The site also provides the only means of vehicular access to 24 private parking spaces located under the shops directly fronting Macquarie Road.

The slope is reasonably consistent and falls from the north to the south increasing to a maximum of 13% towards the southern boundary.

The site adjoins the rear of a number of retail and commercial developments which front Macquarie Road. The western boundary of the site adjoins the rear parking area for the Commonwealth Bank. The eastern boundary adjoins the Presbyterian Church which is listed as a heritage item under Schedule 6 of LEP 2005.

It should be noted that some of the lots comprising the Southern Car Park are classified as Community Land. Community Land cannot be used, sold or leased for many commercial purposes unless it is re-classified as Operational. The land can however, be used for example to accommodate additional or displaced car parking or other community uses.

Chapter 3: Planning framework

The following draft "Vision for Springwood Town Centre" has been developed as part of the Springwood Town Centre Project, and draws on previous studies and strategic planning exercises centred on Springwood.

The Vision was drafted in response to the following:

• The identification by the community in the initial consultation for the Springwood Town Centre Project for the need to have a long term vision and co-ordinated plan for the Town Centre, which took into account social, cultural, economic and environmental outcomes.
• The need to determine a Vision including broad planning objectives for Springwood that address social, cultural, economic and environmental outcomes, by which the Council and the Department of Lands could assess any re-development options for the three sites.
• As outlined above, the community, the Council, and the Department of Lands recognise that it is important that the Springwood Town Centre Project and the potential re-development of the three sites in Springwood is seen as one step in a broader project aimed at revitalising Springwood, economically, culturally, socially and environmentally, and achieving the overall Vision for the town.

The recommended next step in this broader process is to undertake a review of the existing Masterplan for Springwood, and develop a new strategic plan for the Town Centre. This will identify further actions and improvements which in combination with the Springwood Town Centre Project will help realise the "Vision for Springwood Town Centre".

3.1 Draft Vision for Springwood Town Centre

The draft Vision for Springwood Town Centre is:

Springwood Town Centre's position as a vibrant, diverse and economically viable Town Centre is enhanced, and it continues to cater for the current and future social, cultural, retail and commercial needs of the Springwood and Lower Mountains community, retaining both its village atmosphere and its role as one of the two major retail and commercial centres within the City of the Blue Mountains, as well as a centre for community facilities and services for the Lower Mountains and for the City as a whole.

The draft 'Vision' guides this Project and the proposed economic, social, cultural and environmental outcomes of the Project. The proposed outcomes are listed below.

3.2 Economic Outcomes

• Macquarie and Raymond Road are to remain the retail "heart" of Springwood. The Town Centre should not spread beyond the Fire Station (west) or the Civic Centre (east) on Macquarie Road. New retail and commercial opportunities need to be developed on existing sites through intensification, or through the re-development of under utilised sites.
• Any re-development opportunities in Springwood should carefully consider the viability of the entire retail strip, especially given its linear nature, ensuring one end is not over-developed to the detriment of the other end. It is important to avoid development which gives rise to a "lop sided" or uneven retail spread in the Town Centre. Good town planning principles suggest a Town Centre should be "book ended" by major retail or other (civic) developments to ensure the viability of the entire Town Centre, rather than concentrating retail and community opportunities at one key site.
• Retail opportunities within Springwood should, where possible, be expanded with the emphasis on retail and commercial outlets which fulfil the needs of Springwood and the broader Lower Mountains community.
• Improved promotion and signage along the Great Western Highway should be considered in order to increase passing tourist trade.
• Levels of unmet demand and opportunities for the development of professional rooms and commercial offices should be investigated as part of a broader planning exercise for the Town Centre.
• Resolution of traffic congestion during peak periods from the Great Western Highway and at the Hawkesbury Road roundabouts is a critical long term issue for Springwood. The Council should continue to strongly lobby the State and Federal Governments to improve access to Springwood from the Highway at both Macquarie and Hawkesbury Roads.

3.3 Social and Cultural Outcomes

• Springwood Town Centre should maintain and enhance its "village" atmosphere. To achieve this, the following should be reviewed and improvements considered:
  • Urban design of its streetscape, open spaces and town square including seating, footpaths, plantings, lighting, and public art.
  • A review of open spaces usage and recreational opportunities.
  • Maintaining good pedestrian access along Macquarie Road.
  • Reviewing the informal access points and concealed or poorly lit pedestrian laneways which link the car parks to Macquarie Road.
  • Encouraging use of footpaths and arcades for open air eating to take advantage of the bushland views without negatively impacting pedestrian traffic.
• The design of any redevelopment, whether intensification of existing sites or redevelopment of under utilised sites, should strive to blend in with the current low rise and small scale streetscape.
• Any further development in Springwood should not compromise the heritage values of the town, including the buildings and streetscapes.
• Springwood should remain the hub for community services and facilities for the district and, where appropriate, the broader Mountains community. The current level of community facilities and assets at Springwood may need to be enhanced and expanded to cater for the changing demographics of Springwood, the Lower Mountains and the City as a whole. Future strategic planning for the Town Centre should include a social assessment to identify and prioritise need for the future expansion of community facilities and assets.
• The current community facility precinct on the Civic Centre site should be upgraded to better address the street; have improved bus and taxi access; have improved pedestrian access; have improved links to the open space opposite; and be the site for consolidation of existing and future community services and facilities.
• Springwood currently has few dedicated cultural facilities, with major cultural activities being undertaken in buildings which are multi purpose (e.g. 'Braemar' and the Civic Centre). A review of the future cultural needs of Springwood should be undertaken, and take into account the City's Cultural Strategy 2006-2016 and the new Cultural Centre in Katoomba.

3.4 Environmental Outcomes

• Wherever possible, views should be maintained from the Town Centre to the nearby bushland and Blue Mountains National Park.
• The role of some of the existing parks in providing open space, recreational opportunities and social gathering points is recognised as an important part of the Springwood Town Centre. As part of any future master planning exercise for Springwood, the role of each of the pocket parks should be reviewed and the following issues examined:
  • The usage of the parks, including the under-utilisation of some parks
  • The usage of the current playgrounds and
  • Projected needs and requirements for parks
• A pathway network to the surrounding bushland should be encouraged.
• Sustainable building practices should be demonstrated by the Council in any refurbishment or upgrades of Council community facilities, including reduced energy and water consumption.
• Bicycle use should be encouraged within the Town Centre through improved bicycle access and parking.
• The use of public transport (bus, rail and taxis) should be maximised. Use of buses and taxis should be encouraged, through improved placement, signage and access to bus stops and taxi stands within the Town Centre.

Chapter 4: Overview of community facilities and car parking

Springwood Town Centre provides community facilities and services to those who live in the town itself, the broader district, the Lower Mountains and the City as a whole. Various community assets and services are located on the three key sites selected for possible re-development. These community assets and services include the following:

Southern Car Park

• Public car park

Northern Car park

• Public car park
• An Early Childhood Health Centre leased by the Area Health Service
• A children's playground
• A public toilet block

Civic Centre Site

• Public car park, including recycling centre
• Springwood Neighbourhood Centre
• Springwood Branch Library as well as the Blue Mountains Library Headquarters and the Local Studies Collection (the latter housed in 'Braemar' House)
• Civic Centre Halls
• Blue Mountains Food Services - includes Meals on Wheels and a Village Restaurant located within the Civic Centre
• Council Offices
• 'Braemar' Gallery (public gallery housed in 'Braemar')
• Three services located in offices within Springwood Neighbourhood Centre:
  • Anglicare
  • Blue Mountains Recreation and Respite Service
  • Vietnam Veterans' Association
• Community offices and meeting spaces that are used by regular users and are available for casual hire available in the neighbourhood centre, Civic Centre and in the Council offices.

A number of other Council-managed sites and community facilities exist in the Centre, and include the following:

• Town Square - open space and seating
• Rest Park - open space, seating and a closed toilet block
• Manners Park - open space and seating, and a Council owned building that houses the Mountains Youth Services Team
• Buckland Park - open space, children's playground, Council owned building currently leased to the Red Cross
• Integral Energy Site - unused building that Council is acquiring, through subdivision from the electricity sub-station at the rear. The building would need substantial refurbishment before it could house any community services.
• Telecom Park - open space and seating (not Council owned)

In recognition that existing community assets and services are an important part of what makes Springwood an attractive and dynamic Town Centre, and the fact that some of the key sites selected for potential re-development include community facilities and services, the Council has prepared a report assessing existing community services and facilities in Springwood. A summary of the report can be found in Appendix 4. The information in the report was used to assist in the development of the recommended option, option 2, as outlined in this Options Report.

The report includes the following information:

• Analysis of future population trends for Springwood, the broader area, the Lower Mountains and the city as a whole;
• An inventory of existing community services and assets provided within Springwood as well as issues identified by the service providers and users in terms of refurbishment or possible re-location.
• Identification of key needs and priorities in terms of existing and future community assets and services.

A key recommendation of the community services and facilities report was to undertake a comprehensive social assessment of Springwood in order to better understand the existing and future cultural and social needs of the Springwood and Lower Mountains communities. This assessment would form part of the research for development of a new Master plan for Springwood.

Car Parking Provision

Whilst developing the Options Report it was considered prudent to conduct an initial survey of parking demand within the Town Centre. Essentially the survey found that some public car parking areas are significantly under utilized. A summary of this survey is contained as Appendix 3.

LEP 2005 and Council's Better Living - Development Control Plan (DCP) require any new developments within the Town Centre that result in increased floor space to provide additional on-site car parking as Council's Section 94 Contributions Plan for the provision of off-site car parking by the Council does not apply to Springwood Town Centre.

Parking provision is a significant consideration within a development proposal due to the amount of space and the land costs associated with placing parking on-site and many commercial sites in Springwood have limited opportunities available to do so. For this reason car parking requirements in Springwood may be acting as a disincentive to development. This is often a point of much debate and negotiation between developers and the Council.

It is considered that this issue requires further research and investigation separately to this Project. A more detailed parking study could be conducted and this could then inform a review of Council's Section 94 Contributions Plan for Car Parking Provision and the Better Living Development Control Plan.

For this Project any additional development on the three key sites will be required to conform to LEP 2005 and the Better Living Development Control Plan, including car parking.

Chapter 5: Possible options for development

The Council and the Department of Lands have decided to investigate the calling of Expressions of Interest (EoI) for the three sites described in this Options Report as:

• The Northern Car Park,
• The Southern Car Park,
• The Civic Centre site.

The three sites are subject to a range of constraints and there are a number of options open to the Council and the Department of Lands in the calling for Expressions of Interest.

The primary objectives of the Springwood Project are to both enhance the economic health of the Springwood Town Centre and to improve the provision of community facilities. The use or development of one or more of the sites is only one of the possible strategies available to enhance the Centre. In previous years the Council has undertaken works which have been of significant value to the centre. There are further works which, in addition to or as an alternative to the development of the three sites, could also be undertaken. This Options Report suggests that these works are considered, even if redevelopment of any of the three sites does not proceed.

Six (6) broad options with a number of variations have been considered and these are summarised below. An assessment of each option was undertaken and a preferred option identified. Option 2 is the preferred option recommended for use by the Council in seeking Expressions of Interest. Further details on Option 2 are provided in Chapter 6.

Options

Chapter 6: Preferred option - Option 2

The preferred option to be used in seeking Expressions of Interest, Option 2, is outlined below. It has been developed to reflect the draft 'Vision for Springwood Town Centre' as outlined in Chapter 3 of this report. Option 2 involves offering all three sites being the Civic Centre site, and the Northern and Southern Car Parks (together) to the market accompanied by Council identified opportunities and suggestions for consideration.

The following is an outline of the Council identified opportunities and suggestions. Concept drawings with suggestions for development of each of these sites are shown in Figures 1, 2 and 3.

Civic Centre Site (Figure 1)

The proposed opportunities and suggestions for consideration include:

• Retain, enhance or replace existing community buildings and services including the Library and Council Offices, the Civic Centre, the Neighbourhood Centre and Braemar, and continue all community services operating from these buildings. Redevelopment to be confined to the rear of the site only.
• A potential development 'envelope' exists towards the south of the site, south of the existing Library and Civic Centre and east of the existing supermarket. The opportunity exists to utilise the fall of the site to the south to undertake development on the various levels and to provide under building car parking and access.
• Provision being made for limited southwards expansion of the existing Civic
  Centre and westward and southward expansion of the Library building.
• A rebuilding of the existing Neighbourhood Centre over two levels in keeping with the 'Braemar' building and other nearby heritage items. Consider addition of a 'gallery café' in the 'Braemar' building.
• A general upgrade of the Civic Centre forecourt to enhance the Civic Centre and Library entries; remove through vehicular access; provide a lay by for drop off on Macquarie Road; review tree planting and enhance landscaping and surface paving to complement a new Neighbourhood Centre.
• Review pedestrian crossing location on Macquarie Road and provide an integrated design for the northern and southern street frontages to Macquarie Road.
• Relocate the Early Childhood Health Centre from the Northern Car Park elsewhere. Potentially this could be to Buckland Park; and enlarge and relocate the children's play ground closer to Macquarie Road.

Northern Car Park (Figure 2)

The proposed opportunities and suggestions for consideration include:

• The existing Early Childhood Health Centre to be relocated to the Civic Centre precinct.
• Public toilets to be incorporated in any re-development on the Northern Car Park site.
• Any re-development of this site to provide a retail frontage to Macquarie Road in 'Springwood' style and in keeping with the heritage Post Office.
• Access to Greenway Lane to be retained.
• Pedestrian links to be considered westwards to the shops, station and car park and south to the Town Square and the Southern Car Park.

Southern Car Park (Figure 3)

The proposed opportunities and suggestions for consideration include:

• A level deck extension of the Town Square. The extension could create an area suitable for occasional use for markets and ceremonial events.
• Decked car parking utilising the southwards fall of the land.
• A linkage north across Macquarie Road to a re-developed Northern Car Park.
• Retain views out from the Town Square to the National Park.
• Limited commercial or residential development may be possible on the operational parcels of land.

Chapter 7: Next steps

The key milestones for this project are listed below.

Appendix 1: Traffic summary

Council engaged GHD to undertake a traffic study. The investigations were conducted over 2 stages. Stage One was presented at the Community Stakeholder workshop on 29 March 2007. This advice was then summarised and presented in a Council Report dated 24 April 2007. The key findings from Stage One were:

• Macquarie Road/ Hawkesbury Road intersection experiences congestion during the evening peak demand.
• Accommodating additional truck movements for servicing new development is a constraint.

Key issues associated with redevelopment options include:

• Commercial: Intensive weekday peak period traffic, with minimal additional weekend traffic.
• Residential: Modest weekday and weekend traffic, with access to public transport reducing the demand for private vehicles.
• Retail: In conjunction with existing retail usage, most trips would already be in existence on the local road network. Peak traffic periods would be weekday evening and Saturday lunch time.
• Mixed use development: Potential to contain peak hour trips and provide dual usage of parking spaces between land uses with different peak demand times.

The Stage Two advice adds minor detail. This advice is summarised below.

• The lack of southern road links from Macquarie Road to Springwood Avenue has been identified as an issue, especially if the Southern Car Park was redeveloped. Three options were identified:
  • Option 1: New access via Town Square
  • Option 2: New access via Rest Park and private land
  • Option 3: No new access but improved signage on Raymond Road
• A number of difficult issues are associated with each of the options 1 and 2.
• Pedestrian and car linkage between the Northern and Southern car park sites would need consideration if either site is developed to cater to provision of at grade car parking and pedestrian access.
• The eastern laneway adjacent to 'Braemar' could provide one way access to the rear of the Civic Centre site.
• Closure of the current laneway between the library and the Civic Centre would improve the pedestrian environment.
• Moving the pedestrian crossing of Macquarie Road which links the Civic Centre site and Buckland Park eastwards to outside the Library would improve pedestrian access within this precinct, and an additional pedestrian crossing is recommended at the intersection of Greenway Lane and Macquarie Road.
• Other traffic issues include:
  • Impacts on the existing congestion at the roundabout on the intersection of Hawkesbury and Macquarie Road; and RTA requirements in terms of additional traffic at the roundabout resulting from re-development
  • Delivery requirements of any new development in terms of semi-trailers or trucks

Appendix 2: Economic summary

Council engaged consultants HillPDA to complete an economic market review. Their work was conducted over 2 stages. Stage One was an initial market assessment and was presented at the community stakeholder workshop held on 29 March 2007.

A summary of the economic advice was included in the Council Report dated 24 April 2007. The initial finding was that there may be potential for the centre to accommodate a national chain supermarket, in addition to the three supermarkets existing in the area (the Supa IGA and Franklins in Springwood and Coles at Winmalee).

In order to complete their Stage Two advice, further work was conducted by the consultant. Stage Two amends HillPDA's initial advice in relation to the viability of a fourth supermarket and a summary is provided below:

Trade Areas

For the purpose of investigating the Springwood Town Centre, the lower mountains area was broken up into logical trade areas such that Census data could be extrapolated and interpreted. Five trade areas were established for the Blue Mountains. These trade areas have been defined according to a number of key factors including the strength and attraction of the retail centre, proximity to competing retail centres; accessibility; and physical barriers.

Based on Census data, population forecasts for each of the trade areas were generated and are outlined in Table 1 below.

Table 1: Population forecasts by Trade Area

Demand for Supermarket Space

Demand for total retail space per capita is around 2.0 to 2.2m2 . Around 30% of this space (say 0.7m2 per capita) is provided in village centres with floor areas of below 20 ,000m2 and 20% in out-of-centre localities; whilst the balance is in the larger district and regional centres. 'Supermarkets' are between 0.3 to 0.32m2 per capita. Based on a rate of 0.315m2 the trade areas demand the level of supermarket floor space outlined in Table 2 below.

Table 2: Supermarket Space Demand generated by trade area

The numbers within the table above show where demand is generated but not where the dollars are spent. Whilst most supermarket expenditure is local, some of this expenditure will escape to the higher order centres.

After adjusting for levels of escape expenditure the following floor areas are suggested:

Table 3: Supermarket Space Demand within Trade Area

* The level of escape expenditure is estimated at 15% from Winmalee and Springwood, 25% from the lower mountains and 15% from the mid and upper mountains.

The above table shows that Springwood has the potential to support 4,350m2 of supermarket space in combination with 3,500m2 in the Mid-Mountains. This is not to imply that the existing supermarkets are overtrading as there may be factors (e.g. inconvenience) that may be resulting in a larger proportion of escape expenditure. Springwood may support say a 3,000m2 full-line supermarket and a small 1,300m2 supermarket. Currently Springwood has two small supermarkets with a combined floor area of around 2,300m2. Having three supermarkets is most likely unsustainable. Possible options include amalgamating the northern supermarket with redevelopment of the adjoining car park, or amalgamating the southern supermarket with redevelopment of the rear of the Civic Centre site.

Retail Mix

Apart from a national full-line supermarket, other anchors, mini-major and retailers that may be interested in Springwood could include the following:

• ALDI
• Target Country
• Fruit and vegetables markets such as a Harris Farm
• International Food Court
• Cafés

Appendix 3: Parking summary

A parking study was conducted by Council to identify the current supply and peak demand for parking within the Springwood Town Centre. The survey involved manually counting the number of occupied parking spaces during expected peak activity times. The level of demand and the adequacy of parking provision were assessed by comparing the number of occupied spaces with the overall supply of parking. The three peak activity times chosen for this study were Thursday 24 May 2007 between 4:30pm and 5:30pm, Friday 25 May 2007 between 1 pm and 2pm, and Saturday 26 May 2007 between 1 1am and 12 noon.

The principal findings of the analysis have been listed below.

• There are 1474 car spaces within the Springwood Town Centre of which 1338 are off-street, and 136 are on-street.
• The overall demand for parking was low when compared to the overall supply of parking.
• The Friday survey experienced the highest demand with an overall occupancy rate of 71 % of capacity.
• The occupancy rate during both the Thursday and Saturday surveys were low, experiencing 53% and 44% capacity respectively.
• The on-street parking spaces along Macquarie Road were almost at capacity during all three surveys. The main reason for this is most likely due the proximity of these on-street parking spaces to the retail strip.
• The public car park adjoining Franklins (the Northern car park) experienced 93% capacity during the Saturday survey. However, during the Thursday and Friday surveys the occupancy rate fell to 50% and 65% respectively. Although this car park experienced a very high occupation rate on Saturday, the overall occupancy rate within the Town Centre at that time was less than 50%.
• The Southern car park, adjoining the Town Square, experienced a peak occupancy rate of 68% which was recorded during the Friday survey. During the Thursday and Saturday surveys parking demand only reached 50% and 53% respectively which indicates a significant under-utilisation of this parking area.
• The level of demand within the Library and Civic Centre car park was also relatively low during all three surveys. This parking facility experienced a peak occupancy rate of 62% during the Friday survey, and fell to as low as 29% during the Thursday survey. Although the results were quite low, this parking facility is known to quite often reach capacity, especially when events are held at the Civic Centre, and the Library.

The results of this study indicate that the supply of parking within the Town Centre is sufficient to meet the current peak demand for parking. There is a significant under- utilisation of public parking facilities within the Town Centre. This would most likely be attributed to poor access or a lack of public awareness of these facilities.

Appendix 4: Community facilities report summary

As part of the Springwood Town Centre Project, the Council undertook an initial assessment of current community services and assets, and identified a number of strategic issues and priorities in terms of existing and future community and cultural needs within the Springwood Town Centre. Key findings and conclusions of the assessment include the following:

• Springwood Town Centre plays an important role in community service provision. Springwood provides services to those who live in the town, the Springwood district, the Lower Mountains and across the entire City.
• The population of Springwood is expected to increase by 8% between 2001 and 2021 (compared with 1.9% across the Mountains), and the population of people aged 60-69 is forecast to nearly double during this same period. This highlights the need to at least maintain existing services as well as provide additional services into the future, particularly for older people.
• The community and cultural precinct that currently exists on the Civic Centre site could be consolidated and enhanced. The co-location of community and cultural services provides easy access to a range of services for members of the public, and allows synergies between the services. This is a view shared by many of the service providers and community facilities users. However, this view is not shared by all community service providers or community facilities users as evidenced by views expressed at the Springwood Town Centre Stakeholder Workshop (held on 29 March 2007). The alternative view was to maintain the current Council facilities on the Civic Centre site which would be used for mainly performance and cultural purposes (i.e. the Civic Centre, Library and 'Braemar') and consider re-locating to another site, or buildings, the other community services currently located within the Civic Centre and the Neighbourhood Centre.
• All existing community and cultural facilities are barely adequate and would need to be maintained or replaced at a minimum.
• All community and cultural services require continuity of service, and for most services, any new facilities would need to be built before they could relocate. Detailed transition planning would also be necessary.

The following issues were identified for consideration in terms of potential redevelopment of any of the three sites:

Northern Car Park

• Early Childhood Health Centre
  If this is to be moved it could be located closer to the community and cultural precinct, fronting Macquarie Road.
• Children's playground
  This should stay in the centre of town fronting Macquarie Road in a public outdoor space; be small and fenced; include play equipment; have soft fall and be shady.
• Public toilet block Public Toilets should be replaced in any re- development.

Civic Centre Site

• Springwood Neighbourhood Centre
  This is a key service. Existing space needs to be increased significantly in the next ten years to meet the needs of the community in Springwood and surrounding towns, particularly given the ageing population. While it serves the whole community, many using the Neighbourhood Centre are older people, and this age group is set to increase dramatically in Springwood.
• Springwood Branch Library and Blue Mountains Library Headquarters, including the Local Studies Collection (the latter housed in 'Braemar')
  This is a key service, currently operating at capacity. Existing floor space is below industry standards for the size of the population that the library serves. The library building also includes the Library Headquarters for the Blue Mountains. Floor space needs to be increased significantly in the next ten years.
• Civic Centre Hall
  This is a key service, providing an important cultural and performance space, the only one of its size in the Blue Mountains. It is also home to the Monthly Ivy Market and is used for a range of community uses. The pressure needs to be taken off the Civic Centre by reducing demand through providing facilities elsewhere for the provision of some services.
• Blue Mountains Food Services - includes Meals on Wheels & a village restaurant
  This is a key service, particularly given the ageing population, and it requires a centralised commercial kitchen. Its current location is putting pressure on other users of the Civic Centre, and the needs of this service for space will expand significantly with the ageing population.
• Council Offices
  Current space needs to be increased significantly in the next five years to meet future demand and future uses.
• 'Braemar' Gallery
  'Braemar' is an important component of the community and cultural precinct. 'Braemar' is heritage listed and should be retained, and the Gallery remain located in it.
• The three community services currently operating from offices in Springwood Neighbourhood Centre are:
  • Anglicare - No addition to their facilities is needed in the medium-term based on current service provision.
  • Blue Mountains Recreation and Respite Service - No addition to their facilities is needed in the medium-term based on current service provision.
  • Vietnam Veterans' Association - This service would like access to a drop-in and activity space.
• Community offices and meeting spaces that are used by regular users and casual hire available in both the Neighbourhood Centre and Civic Centre: If the Civic Centre or Neighbourhood Centre is re-located, these meeting rooms must be replaced in the new facility as they are currently well used and heavily booked.

Other Springwood Community Services

• Mountains Youth Services Team, which currently operates from the heritage- listed building in Manners Park
  Investigation of the relocation of this service into the community and cultural precinct or co-location with other youth services elsewhere in the City is suggested. This re-location could provide the service with access to meeting and activity space in the Neighbourhood Centre for service delivery.
• Blue Mountains Youth Accommodation Support Service
  This is a key City-wide service currently located in inadequate accommodation in Springwood. They require office space, and would be ideally located in the community and cultural services precinct, or co-located with other youth services elsewhere in the City.

Suitability of Key Sites for Community Assets and Service Provision

The Northern Car Park site has many advantages for the location of community and cultural services due to its proximity to the train station and the Town Centre. However, it is more desirable to ensure the co-location of community and cultural services rather than having proximity to the train station. It is considered that it would be unfeasible to re-locate all existing community and cultural services to that site, and therefore enhancing the current Civic Centre site as a community and cultural precinct is the preferred option. The children's playground, if it is to be moved, should be relocated within the centre of town (possibly Telecom Park).

Priorities for Expansion

The priority for expansion of existing community assets is the Library and Neighbourhood Centre spaces.

Priorities for Relocation

Council needs to continue working with Blue Mountains Food Services, and the State and Federal Governments to investigate options for centralisation of the Blue Mountains Food Services' kitchen, possibly in an alternative location in the Blue Mountains.

Priorities for Refurbishment

The priority for refurbishment is the Civic Centre, to improve its use as a cultural and performance space.

Future Planning

A full social and cultural assessment is recommended, including a comprehensive assessment of the existing and future social and cultural needs of the community of Springwood and the Lower Mountains and involving further community consultation.

Appendix 5: Detailed site description

Maps

Click for larger image Figure 4: Springwood Town Centre
Click for larger image Figure 5: Civic Centre Site	Click for larger image Figure 6: Northern Car Park	Click for larger image Figure 7: Southern Car Park

Appendix 6: Crown land assessment

The sites which are subject of this Options Report are respectively Crown land managed by the Council; or Operational and Community land owned by the Council. All the sites are significant public assets and as such, the proper use and management of these lands is of considerable public interest. The Minister for Lands is responsible for the administration of the Crown Lands Act, 1989 and the Crown Lands Regulation, 2006. In accordance with the Crown Lands Act 1989 - Part 3 the following items are addressed in this report and are placed on public exhibition for the purposes of community comment.

How do I make comment on the options report

Public Exhibition Period

The Springwood Town Centre Options Report is on exhibition from Monday 13 August until Monday 24 September 2007 and is available for perusal at:

• Website www.bmcc.nsw.gov.au 
• Council Business and Information Centres at 2 Civic Place Katoomba, and 104 Macquarie Road, Springwood)
• Blackheath, Katoomba, Wentworth Falls, Lawson, Springwood and Blaxland Libraries

Public participation is encouraged and written submissions should be lodged with the Council by 9am on Monday 24 September, 2007.

Written Submissions

Written submissions should be marked to the Attention of:

Springwood Town Centre Project - Options Report Management File F00241

Submissions should be lodged at a Business and Information Centre;
emailed to council@bmcc.nsw.gov.au> or
posted to the address below:

General Manager,
Blue Mountains City Council,
Locked Bag 1005, KATOOMBA NSW 2780;

For further information

Contact: City Planning Branch on 4723 5000

Public Information Session and Public Forum

On Saturday 25 August a Public Information Session and Public Forum will be held at the Springwood Bowling and Recreation Club (83 Macquarie Rd, Springwood).

The Information Session will be held from 10am to 12pm and the Public Forum from 12.30pm to 2.30pm.