ROYAL GEORGE HOTEL SITE REDEVELOPMENT - LOT 303 (34) DUKE STREET, EAST FREMANTLE SIGNIFICANT DEVELOPMENT APPLICATION SDAU-018-20 - Department of ...
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ROYAL GEORGE HOTEL SITE REDEVELOPMENT LOT 303 (34) DUKE STREET, EAST FREMANTLE SIGNIFICANT DEVELOPMENT APPLICATION SDAU-018-20 APRIL 2021
Landowner Architect Urbis Planning, and Developer Property Economics & Urban Design Saracen Properties Spaceagency Urbis Contact Contact Joel Saraceni, Development Director Michael Patroni, Architect Contact Megan Gammon, Planner David Cresp, Economist Heritage Advisory Landscape Architecture Traffic Element CAPA GTA Consultants Contact Contact Contact Marc Beattie Steven Postmus Rodney Ding Acoustic Community Sustainability and Stakeholder Engagement Stantec Cundall Creating Communities Contact Contact Imran Khan Contact Oliver Grimaldi Andrew Watt Waste Management Stormwater Management Encycle Stantec Contact Contact Geraldine Busby Erika Voges Urbis staff responsible for this report were: Director Kris Nolan Associate Director Megan Gammon Graphic Designer Kelwin Wong Project Code PA1402 Report number Lodged April 2021 © Urbis 2021 This publication is subject to copyright. Except as permitted under the Copyright Act 1968, no part of it may in any form or by any means (electronic, mechanical, photocopying, recording or otherwise) be reproduced, stored in a retrieval system or transmitted without prior written permission. Enquiries should be addressed to the publishers. URBIS.COM.AU
CONTENTS 1.0 Introduction 4 9.0 State Planning Assessment 52 2.0 Development Approval 6 9.1 Summary of Key Documents 52 3.0 Contribution To Economic 9.2 State Planning Policy No. 7.0 And Covid Recovery 7 - Design of the Built Environment 53 4.0 The Journey 11 9.3 State Planning Policy No. 7.3 – Residential 4.1 The Planning Journey 11 Design Codes Volume 2 – Apartments 53 4.2 Government Agency Engagement 12 10.0 Local Planning Assessment 54 4.3 Community Engagement 13 10.1 Town of East Fremantle 4.4 Timeline Of Key Events Local Planning Scheme No.3 54 And Milestones 14 10.2 Local Planing Policies 58 5.0 The Site And Locality 16 11.0 Condition Request and Approval Timeframe 62 5.1 Regional Context 16 11.1 Condition Request 62 5.2 Local Context 17 11.2 Approval Timeframe 62 5.3 The Site 19 12.0 Conclusion 63 5.4 Site Heritage And Existing Development 19 5.5 Existing Access 23 6.0 Royal George Hotel Site Appendix A Economic Benefit Assessment (Urbis) Redevelopment 24 Appendix B Certificate of Title 6.1 Royal George Hotel Restoration Appendix C Heritage Impact Statement (Element) And Reactivation 24 Appendix D Transport Impact Statement 6.2 Residential Apartments 26 (GTA Consultants) 6.3 Vehicle, Service And Pedestrian Access 27 Appendix E Landscape Plan (CAPA) 6.4 Car, Motorcycle And Bicycle Parking 27 Appendix F Acoustic Assessment (Stantec) 7.0 Specialist Technical Inputs 30 Appendix G Sustainability Report and Carbon 7.1 Heritage Impact Statement 30 Neutral Report(Cundall) 7.2 Transport Impact Statement 30 Appendix H Waste Management Plan (Encycle) 7.3 Landscape Plan 30 Appendix I Stormwater Technical Note 7.4 Acoustic Treatment 31 Appendix J SDRP Minutes 7.5 Sustainability 31 Appendix K SPP 7.3 – Apartment Guide assessment 7.6 Waste Management 31 Appendix L View Analysis Diagrams 7.7 Stormwater Management 31 8.0 A Bold And Iconic Design Outcome 32 8.1 Design Evolution Through State Design Review 32 8.2 Architectural Design Statement 37 8.3 10 Design Principle Assessment 38
1.0 INTRODUCTION This proposal presents an exciting collaboration between We have undertaken a highly collaborative approach developer, Saracen Properties, and renowned Fremantle- with both the Town of East Fremantle, State Government based Architect, Michael Patroni of spaceagency. We are agencies and the local and broader community of East pleased to lodge this development application for what will Fremantle both pre and post-acquisition of the site. This be a long-awaited contributor and eastern bookend to the development application is the culmination of many years thriving George Street Heritage precinct and an important of engagement and negotiation with the National Trust, the contributor to the local and regional economy, assisting Department of Planning, Lands and Heritage and Town of with economic recovery during unprecedented times. East Fremantle in order for Saracen to firstly acquire the site and then to work through the complex planning, design The lodgement of this development application represents and heritage process. the culmination of decades of considerable work by the community and State Government, and in more recent The proposal presented in this application successfully years, Saracen Properties, in saving and now restoring delivers a vision for the site which: the much-loved Royal George Hotel. It is clear through the ▪ Restores a significant piece of the Town’s (and Perth’s) significant community engagement undertaken as part of architectural heritage. this project that people want to see the Hotel and site come ▪ Fulfils the long-held community ambition to have alive again, which is already becoming a reality through the the building restored, reactivated and returned to external restoration works which are currently underway as community use. part of the Heritage Agreement. ▪ Reinforces the commercial and social viability of Given the significant interest in this proposal and its the George Street precinct and contributes towards financial value, this application is being lodged in the form economy recovery during unprecedented times. of a Form 17B application through the State Significant ▪ Provides diversity of living options and residential infill, Development Assessment Unit (SDAU). It will therefore in proximity to transport and amenity, in one of the most be assessed by the Department of Planning, Lands and successful and vibrant main streets in Perth. Heritage (with advice from the Town of East Fremantle and We are very pleased and excited we have reached this relevant Government agencies) and ultimately determined milestone and look forward to continuing to work further by the WA Planning Commission. with the Department of Planning, Lands and Heritage, the This report has been prepared by Urbis, in collaboration Town and other agencies to deliver this iconic development. with spaceagency and a team of technical consultants, in support of a development application for Lot 303 Duke Street, East Fremantle. This application proposes to restore and reuse the iconic Joel Saraceni Royal George Hotel after sitting vacant and decrepit for Director, Saracen Properties many years, into a flourishing food, beverage, entertainment and accommodation precinct. To the north, an architecturally designed residential apartment building will sit comfortably with the restored Hotel, providing 23 high- quality apartments which will cater for a variety of boutique local housing needs. The proposal has been designed within the statutory parameters for the site, delivering a landmark building worthy of the sites rich history and significance. 4 Royal George Hotel Significant Development Application SDAU-018-20
2.0 DEVELOPMENT APPROVAL This application seeks development approval for the: ▪ Demolition of minor internal components of the Royal George Hotel, consistent with the Conservation Management Strategy. This includes the existing (non- original) toilet blocks, some walls and an existing roof structure. ▪ Restoration of the Royal George Hotel. This includes conservation of the exterior and the adaptation of the internal spaces to accommodate the contemporary hotel and food and beverage venue. ▪ Construction of a 9 storey, 43.0m AHD (to roof) residential apartment building to the north of the site on land which is currently vacant. ▪ Following land uses: – Hotel – Accommodation comprising 10 boutique rooms – Restauarant – Small Bar – Shop – Multiple Dwellings (22 or 23 apartments, with flexibility for two scenarios to be delivered on the upper level). – Use not listed - Artisanal Food and Beverage Production, Cellar Door and Private Retail Sales External heritage restoration works are currently underway consistent with the Conservation Management Strategy. All components of this proposal (internal Hotel uses and works and residential apartments) are proposed to be construction simultaneously, with anticipated commencement in Q4 2021 and completion in Q1 2023. 6 Royal George Hotel Significant Development Application SDAU-018-20
3.0 CONTRIBUTION TO ECONOMIC AND COVID RECOVERY The project has and will continue to deliver a significant contribution to the local economy as well as considerable other benefits through the following means: ▪ Nearly $3 million in consultant fees. ▪ Over $23 million in development costs, including approximately $7.9 million being undertaken to restore the Royal George Hotel. ▪ Construction phase and ongoing employment, with approximately $16 million direct (and $5.9 million indirect) gross value added to the State economy during the construction and operational phases. ▪ Many other benefits beyond the quantification of economic contributions including – attracting further investment within the precinct, supporting additional visitation, creation of employment diversity, new community space and importantly – the long-awaited restoration and reuse of an important heritage asset. An independent Economic Benefit Study has been prepared by Urbis to quantify the economic and employment benefits this project will deliver. This report is attached at Appendix A, with a summary of key benefits provided below. Construction Ongoing employment and phase benefits economic benefits $23.8M 1,199sq.m Total development cost Employment floorspace for all components 72 41 Total FTE construction Ongoing jobs supported job years supported per annum (directly (directly and indirectly) and indirectly) $8.1M $5.7M Value added in the WA Value added in the economy per annum over WA economy per the construction phase annum attributable to operations on-site $1.05M Total resident and worker spend Prepared by Urbis for Saracen Properties 7
The Quarterdeck Deli & Lunchbar Block of flats 9 storeys Liquor Barons Western Terminus Young George Hubbles George Street Yard Café Chiropractic Vivante Atelier on George Fashion GE Savvy Brands REET OR GLYDE ST Glasson Park GE ST Gratias Bakery Ari & Esmay RE Nook Property ET ET Luxxe E STRE HUBBL Renovations BO Blonde Northern George Star Street Hair Canary Ocean Quarters ET Products ELL STRE SEW Floral Army Limones The Pilates Centre WA Eighty One on George ET STRE KING Harpers Emporium Natmed Clinic LEGEND: Retail George Street Food + Bev Physiotherapy & Pilates Services Other E T TRE ES DUK GEORGE STREET HERITAGE PRECINCT George Street is a popular, mixed-use environment in The Royal George Hotel is one of over 30 properties along the suburb of East Fremantle. It was one of the first main George Street listed on the State Register of Heritage streets established in Perth, playing a key servicing function Places and/or Town of East Fremantle Local Heritage for the residents within the Plympton Precinct, even back Register. In February 2020, the Town of East Fremantle when the first worker’s cottages were established largely Council resolved to add the George Street Designated between 1890 and 1910. Heritage Area to their Planning Scheme. This designation holistically and collectively recognises the overall Today, George Street continues to maintain this main street cultural heritage value of the area as a historic precinct. It and community function, providing a variety of unique comprises historic shops primarily located along George retail, food and beverage and other land uses, below and/or Street, surrounded by homes for workers and their families alongside iconic terrace/townhouse houses and preserved all in traditional architectural styles date from the late 19th worker’s cottages as shown in the graphic above. George and early 20th century. These buildings are predominantly Street continues to have a significant role in servicing the built of limestone and brick with corrugated iron roofs and surrounding community with daily goods and services, as timber front verandahs. well as community development through annual events such as the George Street Festival. 8 Royal George Hotel Significant Development Application SDAU-018-20
Lantern Architecture Manlisa Organic Day Spa Dental on George Cook & Mason AY Giorgio’s Pizza Eastern W Terminus GH HI G Brush Factory LIN IR ST Opening its doors in 1903, the Royal George Hotel has been reinforced through this application for the internal uses. In a key eastern anchor on George Street for over a century, many respects, the community see the current restoration however its poor preservation, management and resulting works and this current proposal as the last chance to save degradation has seen its presence on the street noticeably this iconic heritage building and community asset. fade overtime. While there have been numerous attempts This proposed redevelopment undertaken by Saracen to restore and reopen the Hotel over many years, many Properties will re-establish the Hotel’s role on George have failed to achieve a commercially viable outcome. Many Street and within the wider locality, as a premium and of these proposals also focused on the privatisation of the bespoke hospitality and residential destination. Hotel primarily for residential purposes. When Saracen acquired the site, it had a distinct vision to facilitate the reuse of the Hotel for a community purpose where people could come and enjoy reactivated uses within a historic setting – a vision that is coming to fruition through the external restoration works that are currently underway under the Heritage Agreement, and will be further Prepared by Urbis for Saracen Properties 9
4.0 THE JOURNEY 4.1 THE PLANNING JOURNEY Planning for the redevelopment of the Royal George Hotel Importantly, given the significant community attachment site has been ongoing for many years. More recently, it and interest in the proposal, Saracen engaged Creating re-commenced in 2016, when the Town of East Fremantle Communities to design and implement a comprehensive initiated Scheme Amendment No.10 which simply rezoned and independent engagement strategy which was highly the site to ‘Special Zone – Royal George Hotel’ under its interactive and targeted a broad range of community and Planning Scheme. stakeholder groups. This engagement process and the feedback received is discussed in the following section. It was on this flexible planning basis that Saracen continued investigations and negotiations with the National Trust Following this engagement process, a high level of which eventuated in Saracen acquiring the site from the engagement was undertaken with State Government and State Government under a strict Heritage Agreement and the Minister for Transport, Planning and Lands and Minister Conservation Management Plan in June 2017. Immediately for Heritage. Ultimately, Scheme Amendment No.15 after, the Town of East Fremantle initiated another was amended and approved by the Minister as part of a amendment - Scheme Amendment No.15, which introduced negotiated outcome for the site, which was subsequently a range of detailed development provisions to guide the gazetted in February 2020. These provisions form the basis future redevelopment of the site, including the Hotel and for which this proposal has been designed and include (at a new development on the northern, vacant portion of land. high level): Since this time, planning for the site has endured a ▪ A maximum plot ratio of 2.0. relatively complex process. While as part of the initiation ▪ A height limit of 43.0m AHD (the height of the Hotel of Scheme Amendment No.15, the Town nominated a plot cupola), with flexibility for minor projections to ratio requirement of 3.0:1.0 for the infill development, this accommodate plant and service equipment. was reviewed by the Town post-advertising and reduced, ▪ Design objectives for the site, which will be utilised by resulting in an unworkable solution for the site. the State Design Review Panel and decision makers to assess the design merit of the proposal. The following year comprised numerous events ▪ Flexibility for carparking for the non-residential uses to and milestones. Engagement with the Town and the be reduced to zero where it is demonstrated that the Department of Planning, Lands and Heritage (DPLH) provision of the required parking on site will result in an progressed, and meetings were held with the Heritage undesirable built form outcome. Council of WA and Main Roads WA in relation to heritage and traffic/parking matters. While the Town pushed Despite the relatively complex planning history, Saracen is strongly for a 6-storey cap on height (referenced by the confident that the proposal presented in this application is reduction in plot ratio), Saracen continued to justify the consistent with the Scheme objectives and requirements need for greater height and flexibility in order to deliver and reflects an appropriate architectural design response the feasible restoration of the Hotel to a level which the for the site. community would be proud of, while delivering an iconic architectural outcome for the infill development. Prepared by Urbis for Saracen Properties 11
4.2 GOVERNMENT AGENCY In the initial two meetings with HCWA, the proposal has received a positive response and where alterations to the ENGAGEMENT design have been recommended by HCWA, these were incorporated into the evolving design. At the most recent A high level of engagement with State and local meeting on the 11 December 2020, formal comment was government agencies has been undertaken both prior to received as follows: the acquisition of the site by Saracen as well as through 1. The Heritage Council remains supportive of the proposed the planning, design, heritage and engagement process. urban winery, food and beverage venue, and short stay This includes: accommodation in the heritage building. ▪ Town of East Fremantle – ongoing engagement with the Town has occurred since 2016. This includes a high The current proposal lacks detail in the design approach level of Officer level liaison as well as engagement with in the heritage building. The following information Elected Members and the Town’s Community Design or detail should be submitted at the time of formal Advisory Committee. lodgement: ▪ Department of Planning, Lands and Heritage – i. treatment of new openings, with the retention of several meetings have been held with DPLH, with all significant nibs and three agencies (Planning, Lands and Heritage) having ii. downstands and ornamentation. an interest in the sale of the site, Scheme Amendment iii. interpretation of demolished internal walls No.15 and the Conservation Management Strategy iv. glass roof in the courtyard and Heritage Agreement prepared for the Royal v. service infrastructure and mechanical plant location George Hotel. This current application is now subject to assessment vi. acoustic separation, fire separation and reticulation. by the SDAU and determination by the WA Planning Commission, with various meetings held with officers 2. Further consideration should be given to the Duke St including a technical workshop held with DPLH, Main façade articulation to assist in transitioning between Roads WA and the Town on the 21st December 2020 to the fine grain scale on the heritage building to the discuss key details of the proposal. contemporary style of the new build. At the junction of ▪ Heritage Council of WA (HCWA) – several meetings the new and old, the corner of the original hotel building have been undertaken with HCWA, firstly through the should be more prominent. preparation of the Conservation Management Strategy and Heritage Agreement prior to the acquisition of the 3. The colour scheme for the hotel building should be site by Saracen. revised to have tonal variations based on original/early scheme as previously advised by the Heritage Council. Since this time, several presentations have been made to the Development Committee of HCWA – on A majority of the above advice notes relate to matters of 8 December 2017, 8 June 2018 and most recently on detailed design that will be addressed within the post- the 11 December 2020. lodgement and documentation stages. A response to each is provided within the Heritage Impact Assessment. ▪ Main Roads WA – several meetings have been held with Main Roads WA to firstly discuss the interface with Stirling Highway (albeit no direct access exists or is proposed) as well as external parking opportunities in the locality. 12 Royal George Hotel Significant Development Application SDAU-018-20
4.3 COMMUNITY Feedback forms were provided to all attendees on the various days as they arrived to the event, as well as ENGAGEMENT anecdotal notes being taken by the project team during the event. Over the open days, Creating Communities collected In 2018, Creating Communities were engaged by Saracen 152 (participant completed) feedback forms and collected to undertake an independent community and stakeholder anecdotal feedback that were completed by the project engagement process to inform people of the planning team from discussions with 74 attendees. process as well as to obtain feedback regarding the Following the open days, Creating Communities received proposed restoration and reuse of the Royal George Hotel 13 feedback forms (emailed and posted combined) as well and design of the residential apartments. as 10 written emails with feedback. Participants at the The key community engagement initiatives included a Open Days were also given the opportunity to share their business forum held on the Thursday, 12 April 2018, with memories of the Royal George Hotel using a sticky note local businesses in the George Street Precinct invited, and display board, of which 52 were collected. two Community Open Days which were held on Friday, The feedback from the open day was utilised to inform 13 April and Saturday, 14 April 2018. Approximately 800 the final design and this application. This feedback is people attended all three sessions. All events were held on summarised as follows: site at the Royal George Hotel in the basement and carpark area of the Royal George Hotel, with numerous information ▪ Royal George Hotel – there was significant support for boards and audio-visual material to inform attendees of the the proposed restoration and revitalisation of the Hotel. proposal. Project team members were on hand to answer or This was consistent across all groups and did not differ discuss any queries and Saracen conducted several guided depending on the respondents’ residential location. walking tours of the Hotel. The concept proposal presented There was strong support for re-opening the hotel and at this engagement was focused on a 19 storey tower. for restoring original features to create a high-quality hospitality venue. Very few issues were raised in regard The events were advertised extensively in recognition of the to the Hotel restoration, other than parking and traffic likely high community interest in the proposal which would which was cited as a broader and existing issue in the extend beyond the immediate and local East Fremantle area. area. In that regard, advertising was undertaken via multiple ▪ Apartment Development - there was a diverse mechanisms including: mix of feedback received regarding the proposed apartment development. Some respondents were highly supportive of the development, due to its design, provision of additional housing and the funding it would An extensive A face-to-face A personalised provide to finally rejuvenate the Hotel. There were also letterbox-drop door knock with visit and invitation those who supported higher density development and to approximately adjoining residents to local businesses the physical appearance of the tower but had issues 11,000 residents and personal on George Street to with the number of storeys that are proposed in the in the local invitation to the the business forum community open and community concept design. area (including Fremantle, East days. open days. There were however respondents who raised issues or Fremantle, White concerns regarding the proposed height of the apartment Gum Valley and tower, its design and visual impact. Overall, however, beyond). this view was balanced, with 42% of all responses raising concern about the height of the building (noting again that this feedback was based on a previous proposal at 19 storeys). Additionally, concerns were raised regarding A newspaper Signage on site. A specific Royal advertisement. George Hotel parking and traffic issues in the local area. proposal website landing page and Facebook page. Prepared by Urbis for Saracen Properties 13
4.4 TIMELINE OF KEY EVENTS AND MILESTONES A timeline of key events and milestones since the Hotel was built in 1903 through to the current planning process is presented below. 1984 Rear stables demolished 1979 1983 1983-85 1986-87 Ceased Main Roads WA acquires Community Action Group Hotel partially 1903 operation Hotel with intention to formed, saving Hotel from reconstructed Royal George Hotel opened as a Hotel demolish demolition and restored 1900 7 Jun 2017 Scheme Amendment No.15 Initiated by Town of East Fremantle Jun 2017 Saracen Properties 2016 acquire the site Conservation 8 Dec 2017 Management 11 Oct 2016 Jun 2017 Presentation to Strategy Scheme Amendment Heritage Agreement Heritage Council prepared No.10 Gazetted Signed of WA #1 2016 Saracen undertakes engagement with Town of East Fremantle, Heritage Council of WA and other State Government agencies 2017-2020 18 Aug 2020 State Design Review #2 18 Mar 2021 SDAU 14 Feb 2020 Aug 2020 Meeting with Scheme Amendment External Chairman, No.15 Gazetted (in 7 Apr 2020 restoration works 4 Sept 2020 8 Dec 2020 Chief entirely different State Design to the Royal George Form 17A State Design Planning form to initiation) Review #1 Hotel commenced application lodged Review #3 Advisor 2020 14 Royal George Hotel Significant Development Application SDAU-018-20
1987 1997 Oct 1998 2005 2007 Royal George Arts Royal George Hotel Royal George Hotel Royal George Conservation 2009 to and Community listed on Local listed on State Register Hotel classified by Plan current Centre opened Heritage Inventory of Heritage Places National Trust prepared Hotel vacant 2009 5 Feb 2018 12-14 Apr 2018 8 Jun 2018 Presentation by Saracen to Extensive Community Presentation to Town’s Community Design Engagement undertaken Heritage Council Advisory Committee by Saracen of WA #2 2019 Mid to end WE ARE HERE 2021 Early 2023 April 2021 Detailed design, Planned Lodgement of Form condition End 2021 opening of Royal 17B Development July 2021 clearance and Anticipated George Hotel Application Anticipated development commencement and residential planning approval preparation of construction apartments 2023 Prepared by Urbis for Saracen Properties 15
5.0 THE SITE AND LOCALITY 5.1 REGIONAL CONTEXT The subject site is located with the Town of East Fremantle local government area, approximately 13km south-west of the Perth CBD and just over 2km north-east of the Fremantle CBD. The site is located 2km north-east of Fremantle Train Station, the end of the Fremantle train line, which provides convenient access to the Perth CBD. The site is also located only 350m south of Canning Highway, which has frequent bus services that provide connections through to the Perth CBD, Fremantle and Curtin University. The site abuts Stirling Highway, which is a regional road running from Crawley to High Street in Fremantle. The regional context of the site is shown in the figure below. Figure 1 Regional Location Plan Perth CBD 20km ay hw Hig ing Swan River rl Sti Westfield Booragoon East way ing High Fremantle Cann Town Centre Royal George Hotel Redevelopment Leach Highway George St Ham Royal Fremantle Fremantle pton Fremantle Cemetery CBD Golf Club Road 16 Royal George Hotel Significant Development Application SDAU-018-20
Styling Wizard: Google Maps APIs 5.2 LOCAL CONTEXT Locally, the site sits at the juncture of George and Duke Street, abutting Stirling Highway to the east. It is located within the Plympton ward of East Fremantle which is predominantly a residential area comprising of single storey 19th and early 20th century bungalows. A majority of properties to the west of the Royal George Hotel, north of Marmion Street through to East Street are individually included in the Town’s Local Heritage Inventory, recognising the overall cultural heritage value of the area as a historic townscape precinct. Where modern infill development has occurred, it is generally of a scale similar to the traditional scale of the area. Two notable exceptions are: ▪ The new Brush Factory development on the southern side of Duke and George Street junction. This development generates a contemporary adaptive re-use of a light industrial building into a ground floor jazz bar and upper level apartments. ▪ Harbour Heights is an existing nine storey residential apartment building at the corner of East Street and George Street. The George Street precinct is a unique main street comprising a mix of food and beverage, retail and service type land uses. George Street, along with the East Fremantle town centre located 250m north of the site, make up the ‘core’ area of the Town. The Royal George Hotel is the primary landmark in the street and forms a key vista termination when looking along George Street from both the east and west. The figure below illustrates the site's localised context. Figure 2 Local Context Plan Perth CBD 20km Left Bank Hotel Plympton Ward East Fremantle Town Centre Canning Highway Tradewinds Hotel St irl in gH ig hw ay Royal Harbour George Heights George Street Brush Factory East Street Duke Street East Fremantle Football Club Marmion Street Prepared by Urbis for Saracen Properties 17
The triangular site has an area of 1,499sq.m and experiences a level difference of 7.0m (south to north). The Hotel portion occupies approximately 650sq.m, leaving a 850sq.m vacant development site to the north. The key characteristics of the site is shown in the below graphic. George 60m Street Duke Street 7m Site Area 1500 sq.m Development Site 850 sq.m Heritage building footprint 650 sq.m Busy, noisy highway George Street (Shopping) Pedestrian and cycle connection Duke Street (local street) Stirli ng Hi ghwa y Large scale neighbour Small scale neighbours 18 Royal George Hotel Significant Development Application SDAU-018-20
5.3 THE SITE The proposal sits wholly within Lot 303 (No.34) Duke Street, East Fremantle, as highlighted in the table below. The Certificate of Title for Lot 303 lists numerous limitations, including a Memorial to the Heritage Council of WA and Caveat to the State Government – both of which relate to the Royal George Hotel and Heritage Agreement. A copy of the Certificate of Title for Lot 303 is provided at Appendix B of this report. Table 1 Lot Details LOT NO. STREET ADDRESS DIAGRAM AREA VOLUME FOLIO REGISTERED PROPRIETOR 303 34 Duke Street 91758 1,499sq.m 2929 940 34 Duke Street Pty Ltd 5.4 SITE HERITAGE AND EXISTING DEVELOPMENT 5.4.1 SITE HISTORY The Royal George Hotel sits within the southern portion of the triangular shaped lot, with frontage to both George and Duke Street. It was developed in 1903 by the Mulcahy brothers and designed by Emil Mauermann, a prominent architect and civil engineer of Fremantle. The Hotel was designed in a Federation Free Classical style, typical of the gold rush years at the turn of the century in WA. Like many Hotels of the time, it was built to address the corner location which now together with the cupola feature, forms the primary landmark value of the building. It continued as a hotel or tavern through to 1979, under successive ownerships of the Mulcahy brothers – the Castlemaine Brewery, Swan Brewery and Burgess family. It was then de-licensed and used as a school for five years, followed by a Thai restaurant and finally an arts and community centre before becoming vacant in 2009. In 1983, while it operated as a school, the site was acquired by Main Roads WA and the demolition of the Hotel was announced to make way for the extension of Stirling Highway. However, due to significant community lobbying, the extension was re-routed in order to retain the Hotel building. The Stirling Highway extension cut off portions of the site, resulting in the current triangular shaped lot evident today. The road was constructed in the mid-1980’s and in 1984, the horse stables at the rear of the Hotel were demolished. The Hotel was partially restored following the road construction in 1986/87 before the arts and community centre opened. Since the arts and community centre ceased operation at the Hotel (in 2009), the Hotel has sat vacant and has continued to erode as well as being a target for graffiti and occasional anti-social behaviour. Prepared by Urbis for Saracen Properties 19
5.4.2 HERITAGE SIGNIFICANCE In 1997, the Hotel was listed on the Local Heritage Inventory (Category A) and in 1998 it was formally listed on the WA State Register of Heritage Places (Site P00794). It was then classified by the National Trust in 2005 – a non-statutory yet important recognition. Overall, the Hotel is afforded a high level of protection and conservation. The highest level of significance (‘exceptional’) is given to the cupola – a rounded dome structure which sits on the roof of the Hotel – located towards the corner of George and Duke Street. The remaining Hotel building (including verandah) is considered to be of ‘considerable’ significance and the remainder of the site to the north, which sits vacant, is identified as having ‘little’ significance’. The statement of significance for the Hotel (as described in the 1980/90’s when it was still being utilised as arts and community centre) is as follows: Royal George Hotel, a two-storey, Federation Free Classical style brick and limestone corner hotel building currently used as the Royal George Arts and Community Centre, has cultural heritage significance for the following reasons: ▪ the place is a notable landmark and an important townscape element, particularly in the George Street historic precinct; ▪ the place has social importance as a community gathering place, first as a hotel, then as a school, and now as an arts and community centre; ▪ the place was saved from demolition by local community lobbying and has become a symbol of the attitudes of local people towards their built heritage; ▪ the place demonstrates high standards of architectural and engineering design and remains in sound structural condition despite its age and the proximity of the Stirling Highway extension; ▪ the place, from ground floor level up, is a typical example of a Western Australian gold boom hotel with much of the original form and fabric intact; the cupola is a rare example still in its original form and still capable of use; ▪ the basement levels are a rare arrangement where coach house and workshop areas are incorporated with cellar facilities underneath the hotel building; and, ▪ the place is important for its connections with the Mulcahy family of hoteliers A Conservation Management Plan was prepared in 1998 and was then updated in 2007 on behalf of the National Trust. A further Conservation Management Strategy was prepared in 2016 which formed the basis for Saracen’s acquisition of the site and identified a comprehensive scope of conservation works that was to be attached to the Heritage Agreement (signed in 2017). A Heritage Impact Assessment has been prepared by element to accompany this application which demonstrates the retention, conversation and protection of the sites historical significance is consistent with the Conservation Management Strategy. This is further discussed at Section 7.0 and provided at Appendix C. 20 Royal George Hotel Significant Development Application SDAU-018-20
A series of photographs illustrating the Hotel through the years is provided below. Figure 3 Royal George Hotel under construction c.1903 Figure 4 Archival photograph taken from the corner (Source: Royal Historical Society RWAHS of George and Duke Streets, c.1910 (City of Figure 5. Aerial view of1999_5388) Royal George Hotel, 1957. From Charlesworth (Source: Battye Library BA 342/3996) Fremantle Local History Collection LH000912) Heritage Impact Sta tement (HIS) Figure 6. Royal George Hotel under construction c.1903 (Source: Royal Historical Society RWAHS 1999_5388) Figure 5 Aerial view of Royal George Hotel, 1957. Figure 6 Archival Drawing of the West Elevation, From Charlesworth (Source: Battye Library undated (Royal Historical Society of WA) BA 342/3996) erial view of Royal Geo rge Hotel, 1957. Fro m Charlesworth (So urce: Battye Library BA 342/3996) Prepared by Urbis for Saracen Properties 21
5.4.4 CURRENT RESTORATION WORKS In December 2019, a detailed scope of restoration work was approved by the Heritage Council and these works commenced on-site in August 2020. The current works underway have been informed by the Conservation Management Strategy and comprises: ▪ Restoring the zinc clad cupola and expertly reinstating its original appearance. ▪ Removing the acrylic pant from the face brick and repairing the tuckpointing. ▪ Repairing and, where necessary, replacing rotten and damaged window joinery. ▪ Reroofing with short sheet galvanised iron to match original detailing. ▪ Overhauling the rainwater disposal system to ensure the building is watertight. ▪ Refurbishment of the reconstructed verandah. 22 Royal George Hotel Significant Development Application SDAU-018-20
5.5 EXISTING ACCESS Currently, vehicle access to the site is provided via Duke Street only, with an existing crossover located to the north of the site, which leads to the vacant portion of the site and the Hotel basement. The site abuts Stirling Highway, which is a Primary Distributor road, however no access to the site is provided. Local roads within the vicinity of the site include Duke Street and George Street. In addition, Silas Street is located east of Stirling Highway and connects to George Street via a pedestrian underpass beneath Stirling Highway. Pedestrian access is provided via an existing footpath network along all roads adjoining the site. This path links to Silas Street via the underpass, which links to the East Fremantle town centre located immediately south of Canning Highway. Prepared by Urbis for Saracen Properties 23
6.0 ROYAL GEORGE HOTEL SITE REDEVELOPMENT 6.1 ROYAL GEORGE HOTEL and back of house areas, with the first floor accommodating ten contemporary boutique hotel rooms generally within RESTORATION AND the historical configuration of the former accommodation. A new glazed access stairway is proposed on the eastern REACTIVATION side of the building to provide an address directly to George Street. This proposal will see the long-vacant Royal George Hotel reactivated as a publicly accessible hospitality and hotel The proposal embodies a strategy for providing efficient and venue as well as being materially and intricately restored to universal access throughout the four levels of the heritage its original form and function. building, by combining a lift and stair access column directly off Duke Street. This also provides universal The proposal will breathe new life to these areas, housing access to all levels from street level and allows all three an artisanal food and beverage production area (with other original entrances (that incorporate stairs) to remain concepts for an urban brewery/winery and small scale unmodified, maintaining significant heritage details and bread production) and associated tasting and cellar door avoiding the cumbersome modifications to accommodate sales. This will be a bespoke proposition to George Street BCA requirements and Perth more generally. Floor areas of the various land uses within the Hotel To enable flexibility for this concept to evolve in are highlighted in Table 2, with an 'ant farm' view of the consultation with the proposed operator, approval is sought proposed uses provided below. Note that consistent with for a use not listed for the use of 'Artisanal Food and the provisions of the Town of the East Fremantle Planning Beverage Production, Cellar Door and Private Retail Sales' Scheme, these areas do not contribute to the overall plot The ground floor of the Hotel will be occupied by a bar, ratio area for the site. restaurant, and kitchen facilities and associated customer Courtyard Accommodation Bar or restaurant Commercial kitchen Artisanal Food Cellar door and Beverage Production, Cellar Door and Sales 24 Royal George Hotel Significant Development Application SDAU-018-20
Internally within the Hotel building, the Conservation Management Strategy schedules the repair and restoration of original detail, as well as well as strategies for installing new building services and compliance provisions without materially impacting on the heritage fabric of the building. Overall, the level of internal demolition is minimal to allow the original internal layout and function of the place to be effectively interpreted. Localised demolition will occur on the first floor where the original hotel rooms are being enlarged to accommodate the requirements of a modern hotel. Where demolition is proposed, it is the intention of the architect to provide 450mm wall nibs and bulk heads to clearly demarcate the original floor plan. Previous advice received from the Heritage Council in relation to an earlier proposal supports this approach (letter dated 21 June 2018). It is likely that new mechanical and electrical services (including fire suppression and detection) will be reticulated through the building to accommodate the new function but the specific location and detailing of these is not evident at this stage. The proposed demolition is detailed on the lodged drawing DA10 and is assessed within the Heritage Impact Statement (Appendix C). Table 2 Hotel Floorspace Breakdown STOREY PROPOSED USE NET FLOOR AREA Level 3 Hotel (10 rooms) 301.68sq.m (First Floor) Level 2 Amenities 40.94sq.m (Ground Floor) Restaurant 81.79sq.m Small Bar 89.14sq.m Kitchen and Back 85.73sq.m of House Courtyard 68.47sq.m Dining Area Level 1 Cellar Door and (Lower Ground 200.77sq.m Private Retail Sales Floor) Public and Staff 35.91sq.m Amenities Artisanal Food and Basement 159.87sq.m Beverage Production Services and Staff 29.72sq.m Amenities Total 1,094,02sq.m Prepared by Urbis for Saracen Properties 25
6.2 RESIDENTIAL The proposed dwelling sizes range from 58.8sq.m (one- bedroom) to 188.18sq.m (or potentially larger, as explained APARTMENTS below). The mix of apartments is detailed in the table below: The restoration and reactivation of the Royal George Hotel Table 3 Dwelling Type Schedule provides a necessary opportunity for urban infill to balance the cost of restoring the heritage building and to ensure LEVEL a comprehensively designed infill site. The proposal for TYPE DWELLINGS 1 2 3 4 5 6 7 8 residential apartments provides an opportunity to achieve a commercially viable project while at the same time 1x1 5 providing an alternative housing typology to diversify local housing choice. This will enhance the social, cultural and 2x2 9 commercial vitality of George Street and the broader East 3x2 8 or 9 Fremantle area. The site is located within the George Street precinct and Total 22 or 23 is located in close proximity to the East Fremantle town centre, both focus areas for increased residential density identified within the Town of East Fremantle Draft Local With regard to the upper level (Level 8), the DA plans Planning Strategy. The proposal facilitates residential infill illustrate two different scenarios which could be in an area of high amenity which is well-serviced by public accommodated, including: transport. ▪ Two 3x2 penthouse suites, sized 148.23sq.m and 188.18sq.m. Over a number of years, spaceagency has investigated ▪ One large penthouse suite, sized 336.41sq.m (effectively a number of built form outcomes on site. This has taken an amalgamation of the two apartments above). into account the interface with the heritage building, streetscape, street activation, and the broader street Development approval is sought for both scenarios above. context, balancing overall height, bulk and scale, The reason for this is that based on economic and market articulation, heritage interface, streetscape, immediate advice, Saracen consider there to be potential for there to street views and long vistas. be demand for a single large penthouse suite to occupy the entire floor. As a result of these design investigations and through negotiation with the State Government through the To allow for both scenarios be tested through the sales finalisation of Scheme Amendment No.15, a building process, it is respectfully requested both scenarios are envelope for the site was established which set the approved. Both scenarios meet the key requirements in framework for the design to be finalised. As such, a 9 storey terms of alignment with SPP 7.3 (Apartment Guide). For the building is proposed comprising a total of 23 apartments. purposes of the planning assessment undertaken in this A diversity of apartment typologies are proposed including report (such as carparking), the greater total number of 1, 2 and larger 3-bedroom options tailored to appeal to local apartments (23) has been utilised. owner occupiers, particularly ‘empty nesters’ wishing to A recommended approval condition to enable this flexibility remain in their current neighbourhood. is provided at Section 11.1. 26 Royal George Hotel Significant Development Application SDAU-018-20
6.3 VEHICLE, SERVICE AND For hospitality staff, bicycle parking is provided in a secure undercover area accessible from Duke Street, en-route PEDESTRIAN ACCESS to the staff entrance. For visitors, short term parking is provided on Duke Street under street trees and near the Access to the site is maintained at a similar, single location entrance to the cellar door. A total of six bicycle parking on Duke Street however will be upgraded and formalised at locations are proposed with a minimum of two bicycle a width of 6.0m. This requires the removal of one on-street parking areas at each (totalling 12 visitor bays). car bay on Duke Street in order to provide access to the visitor parking within the development. From a pedestrian access perspective, an upgrade of the adjacent footpath network beneath the Hotel verandah is proposed. The low traffic volumes on the surrounding local streets makes crossing simple and safe and therefore no further upgrades are required or proposed. While Saracen has been in discussions with the Town of East Fremantle and Main Roads WA regarding the upgrade of the Stirling Highway underpass, it is outside the scope of this application and will be the responsibility of other parties given its contribution to the broader precinct. 6.4 CAR, MOTORCYCLE AND BICYCLE PARKING A total of 52 bays are proposed on-site as part of the development, as follows: ▪ 25 bays across two basement levels serviced by a car lift and turntable. ▪ 21 cars within an above ground car stacker system. ▪ 2 visitor bays on-ground with direct access from Duke Street (located at the northern point of the development). ▪ 4 bays on-ground located behind security gates for residential use (likely the penthouse apartment/s). The main security gate will remain open during business hours and allow access to the basement levels and car stacker but will be closed outside these hours. Details regarding the operation and management of the car stacker system are provided within the Transport Impact Statement at Appendix D. An additional 5 bays will be provided for motorcycle/ scooter parking. The development proposes the following bicycle parking facilities: ▪ 24 bays in a secured storage area. ▪ 6 bays for Hotel staff with associated end-of-trip facilities (including 1 shower/toilet/changeroom). ▪ 12 off-site visitor bays (located on Duke and George Street). The location of the residential bicycle parking has been driven by its proximity to the street at-grade as well as providing direct access to the lobby on the lower ground level. Further, resident storerooms are oversized, providing additional secure bicycle storage options for each apartment. Prepared by Urbis for Saracen Properties 27
6.4.1 STATUTORY CARPARKING REQUIREMENT Consistent with Clause 5.9.8.12 of the Town of East Fremantle Planning Scheme, carparking for the Hotel component of the development may be reduced to zero where it can be demonstrated that the provision of the required parking would result in an undesirable built form outcome. The inclusion of all required carparking for the residential, office and Hotel (non-residential) uses has been considered in detail (refer Transport Impact Statement at Appendix D). This assessment concludes that a statutory requirement of approximately 146 bays is required on-site of which 109 bays would need to be publicly accessible (ie. external to the car stacking system). As shown by the figure below, the inclusion of these bays results in a highly undesirable and dysfunctional built form outcome and severely compromises the activation of Duke Street. Due to the size and configuration of the vacant portion of the site, in addition to the need to accommodate services such as residential and bin stores and meet Building Code requirements, a maximum of 26 at-grade parking spaces would be able to be delivered at-grade. This would result in two-levels of carparking to Duke Street, creating a blank façade which has no relationship to the street. It would also result in the need for two crossovers on Duke Street, creating conflict issues from a vehicle/pedestrian safety perspective and would compromise the ability for required turning circles to be achieved within the site. This matter has been presented to SDRP who is supportive of reducing hotel parking to nil. Max of 28 at grade parking spaces compliant with TOEF TPS3. Australian Core Standard turning circles not achievable Residential storage Lower ground Two-level car park without internal ramp requires 2 entry/exit crossovers (undesirable built form) Core Bldg Bin services Basement Two-level car park façade facing Duke Street Lower ground Basement 28 Royal George Hotel Significant Development Application SDAU-018-20
6.4.2 EXTERNAL CARPARKING CONSIDERATIONS Notwithstanding Section 6.4.1, it is recognised that there is a general undersupply of parking in the broader George Street precinct and therefore a need to consider opportunities for additional carparking. While not subject this current application, Saracen (in conjunction with the Town of East Fremantle) is currently undertaking an urban design exercise to investigate the potential of reconfiguring existing on-street parking on Duke Street. This exercise aims to deliver additional on- street bays as well as undertake additional streetscape enhancement work to improve accessibility and amenity more broadly within the area. Prepared by Urbis for Saracen Properties 29
7.0 SPECIALIST 7.2 TRANSPORT IMPACT STATEMENT TECHNICAL Prepared by: GTA Consultants INPUTS A Transport Impact Statement (TIS) has been undertake to review the traffic and parking components of the proposal. This includes vehicle access, carparking, active transport and external carparking upgrade opportunities. The key components of the TIS are explained within various sections of this report, with a full copy of the TIS provided at 7.1 HERITAGE IMPACT Appendix D. STATEMENT Overall, the following key traffic and parking elements are noted: Prepared by: element ▪ The proposed development provides ample parking on-site (within an efficient car lift, stacker system and A Heritage Impact Statement has been prepared to examine basement) for the residential and hotel accommodation the potential for impact on the cultural heritage values of components of the development. Consistent with the Royal George Hotel, as expressed in the Statements of Town of East Fremantle Planning Scheme, carparking Significance contained in the State Register of Heritage for other non-residential uses (bar/restaurant/artisanal Places and Town of East Fremantle Heritage List. food and wine production ) has been reduced to zero on Additionally, consideration has been given to the content the basis that: and policies within the 2007 Conservation Management Plan, which remains generally valid, as well as the Town’s – It would result in a highly undesirable and inefficient planning and heritage policies including Policy 3.1.1 – built form outcome on site. Residential Design Guidelines (Development Impact – There are ample opportunities to improve carparking Statement) and Policy 3.1.6 – George Street Designated provision within the locality to service the broader Heritage Area. George Street precinct, including the development. – Actual parking demand will be able to be provided for A detailed assessment against the above is provided within by the available parking supply on-site, immediately the Heritage Impact Statement however overall, the report adjacent to the site, in of-street public parking and concludes that the composition of the new form has been on-street parking bays adjacent to the Stirling designed to provide the greatest separation between Highway reserve. old and new while providing a high-quality architectural – The proposed development is in a catchment which response that retains views to the cupola. The report also will encourage walking and cycling trips to and from confirms: the site and nearby residential areas ▪ Key views and vistas to the building are largely ▪ The development should generate approximately 400 unaffected and any impact on the landmark presence vehicle trips per day – the impact of these trips on is acceptable in light of the considerable conservation nearby local streets is considered acceptable. benefits. ▪ No modifications to on-street parking or local roads is ▪ The proposal will fulfil the long-held community considered required for the development. ambition to have the building restored and returned to community use. ▪ Suitable levels of motorcycle and bicycle parking is provided. ▪ The proposal has been designed to address the site-specific principles set out in the George Street Designated Heritage Area Policy and Scheme objectives. 7.3 LANDSCAPE PLAN Prepared by: CAPA ▪ The potential impact on the cultural heritage values of the Royal George Hotel is acceptable and the CAPA prepared a landscape proposal for the development conservation benefits are great. which details the landscaping proposed both within the private and communal areas of the apartment development. A copy of the Heritage Impact Statement is contained at Landscaping is proposed at key locations such as the Appendix C. central courtyard as well as feature tree planting and lower landscaping on Stirling Highway and to the north of the site to soften the development interfaces. The key landscape strategies for the development are explained in Section 8.3.2, with a full copy of the landscape report provided at Appendix E. 30 Royal George Hotel Significant Development Application SDAU-018-20
7.4 ACOUSTIC TREATMENT 7.6 WASTE MANAGEMENT Prepared by: Stantec Prepared by: Encycle An Acoustic Assessment has been prepared by Stantec and A Waste Management Plan (WMP) has been prepared and is is provided at Appendix F. The assessment confirms the included at Appendix H. The development proposes three following: bin stores – a residential and separate commercial store for ▪ Noise emissions from the Hotel development have been storage and collection of waste, recycling and FOGO and an assessed in relation to the proposed apartments as interim hotel bin store for temporarily storing hotel waste well as to the nearest sensitive receivers. The following prior to transfer to the commercial bin store for collection. recommendations have been provided to achieve The WMP proposes a private waste service provider to compliance: service both the residential and commercial general waste, – Where music is not present, the ground floor areas recycling and FOGO bins. On the days of collection, rear-lift of the Hotel can be used at any time of the day. vehicles for general waste, recycling and organics will park The first floor can be used at any time of the day, in a designated loading bay on Duke Street, with drivers however limited to internal areas during night entering the bin stores to retrieve relevant bins and transfer periods. them to the vehicle. The apartment building caretaker and – Where music is present, the noise levels associated hotel operator will be responsible for overseeing the waste with music-related sources shall be limited to 65 management systems. dB(A) at 1m from speaker when measured within the ground floor courtyard area. A private waste system and loading bay will eliminate the need for kerbside servicing on Duke Street, which presents – Music which is played at night shall be limited to 50 numerous amenity issues. dB(A) when measured inside the restaurant area. – If music is to be played in external areas at night, the courtyard should be completed enclosed with a 7.7 STORMWATER ▪ retractable or permanent roof. The noise impact of the nearby Duke of George live MANAGEMENT music venue on the development has been assessed Prepared by: Stantec with appropriate façade construction details provided to maintain appropriate internal noise levels. A stormwater technical note has been prepared and is included at Appendix I. The note confirms the development ▪ Glazing treatments have been selected to meet the proposes to manage all stormwater on-site (within the acceptable indoor noise requirements due to noise property boundary). Detailed stormwater modelling will be generated from Stirling and Canning Highways, and the undertaken as part of the detailed design phase. Hotel. ▪ A detailed noise assessment of mechanical services information will be undertaken at the detailed design phase. 7.5 SUSTAINABILITY Prepared by: Cundall A Sustainable Design Report has been prepared and is included at Appendix G. The development aims to be designed to the equivalent standard of a 5-Star under the Green Star Design and As-Built v1.3 rating system and will be Carbon Neutral certified. Key aspects of the sustainability strategy are provided within the report. Prepared by Urbis for Saracen Properties 31
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