Shire Infrastructure Committee Meeting€¦ · • Design theme. The draft CPDMP proposes a consistently applied design theme for street furniture and street lighting. The design

Business Paper

Shire Infrastructure Committee Meeting

Monday, 3 July 2017 Commencing at the conclusion of the Corporate Governance

Committee and Shire Services Committee Meetings

Committee Rooms 203 and 204, Level 2, Administration Building

4-20 Eton Street, Sutherland

Shire Infrastructure Committee 3 July 2017

ORDER OF BUSINESS

1. APOLOGIES 2. DISCLOSURES OF INTEREST 3. CONFIRMATION OF MINUTES OF THE PREVIOUS MEETING 4. PRESENTATIONS 5. REPORTS FROM OFFICERS

INF001-18 Draft Cronulla Town Centre Public Domain Master Plan

INF002-18 Submission to NSW Parliament Inquiry - Energy from Waste Technology

INF003-18 Sutherland to Cronulla Active Transport Link (SCATL)

6. QUESTIONS 7. CONSIDERATION OF BUSINESS IN CLOSED SESSION

8. CONFIDENTIAL REPORTS FROM OFFICERS INF001A-18 Sutherland to Cronulla Active Transport Link (SCATL) – Route and Project

Cost Estimates

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INF001-18 DRAFT CRONULLA TOWN CENTRE PUBLIC DOMAIN MASTER PLAN

Attachments: Appendix A (Under Separate Cover) and Appendix B (Under Separate Cover)

EXECUTIVE SUMMARY

• The draft Cronulla Town Centre Public Domain Master Plan is intended to guide Council's future

development of the Cronulla town centre public domain.

• The draft Master Plan aims to enhance the town centre's amenity and accessibility, recognising

its importance both as a local centre and as a regional tourism hub.

• The document contains a coordinated suite of proposals for public domain improvement and is

a product of detailed analysis, creative design and extensive community consultation.

• It is proposed that the draft Cronulla Town Centre Public Domain Master Plan be placed on

Public Exhibition to allow further comment and input from the community.

REPORT RECOMMENDATION

That the draft Cronulla Town Centre Public Domain Master Plan, attached to this report as

Appendix A, be placed on Public Exhibition for a period of 28 days.

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PURPOSE

The purpose of this report is to present to Council the draft Cronulla Town Centre Public Domain

Master Plan (CPDMP) for consideration prior to public exhibition. The draft CPDMP is attached to this

report as Appendix A.

BACKGROUND It is often remarked that Cronulla is the Shire’s ‘jewel in the crown’. Indeed, it is one of Sutherland

Shire’s most populated and sought-after suburbs and without question it is the Shire’s premier visitor

hub. Cronulla is expected to attract by far the greatest share of the Shire's estimated 1.4 million

visitors each year.

Cronulla is seen as a 'great place to live or visit'. People are attracted to Cronulla for its famous

beaches and surrounding natural environments. However Cronulla's attractiveness is greatly affected

by the quality of its town centre public domain. The look, feel and functionality of the public domain

have a real bearing on Cronulla’s ability to succeed as a suburban town centre and tourist destination.

The accessibility and the amenity of Cronulla’s public domain are critically important to its future.

A public domain master plan addresses accessibility and amenity; it provides a framework to guide

future development of the public domain in a coordinated and whole-of-place way. The CPDMP is a

very effective way for Council to help facilitate Cronulla's role as a vital town centre and major visitor

hub.

Previous Council Initiatives and Decision

Preparation of the CPDMP follows a series of Council initiatives:

• In 2013-14 Council surveyed users of the Cronulla plaza and Cronulla beaches. Users of the

plaza rated parking problems, traffic congestion, paving appearance and lack of toilets as the

least favourable aspects of their plaza experience.

• In 2014 Council conducted the Cronulla Design Ideas Competition. This was an opportunity to

address the issues identified in the earlier surveys with big picture thinking. The community

generated fresh ideas which have been considered in formulating the draft CPDMP.

• The design ideas competition resulted in the Cronulla Public Domain Strategy being prepared in

2015-2016. The strategy established aspirational goals for Cronulla's future and identified key

actions including the preparation of a public domain master plan. The document drew strong

support from the community.

• At its meeting on 18 April 2016, Council endorsed the Cronulla Public Domain Strategy and

resolved that; "a comprehensive masterplan and financing strategy for the Cronulla CBD public

domain be prepared” (FAS049-16).

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DISCUSSION Consultants In June 2016 Council engaged the following consultant teams to prepare the draft CPDMP:

• Gallagher Studio (team leader), landscape architects;

• Peter McGregor of McGregor Westlake, public domain artist and architect;

• CRED consulting, community engagement experts;

• Studio GL, urban designers;

• Traffix, traffic engineers; and

• Wilde and Woollard, quantity surveyors.

Master Plan – Study Area

The study area for the CPDMP is more than the Cronulla plaza. It covers the Cronulla town centre as

shown below:

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Purpose and Objectives of the Draft CPDMP The purpose of the draft CPDMP is to facilitate 'a more connected and vibrant Cronulla town centre'.

The objectives are to:

• maintain and enhance Cronulla’s distinctive place qualities;

• support Cronulla’s role as a town centre and important visitor destination;

• enhance the amenity and accessibility of the Cronulla town centre’s public domain; and

• provide a comprehensive approach to its long-term development.

Documents Supporting the Draft CPDMP

Importantly, the draft CPDMP is supported by several studies and reports concerning community

engagement, traffic flow, parking and strategic sites within the town centre. The supporting reports and

plans are integral to the preparation of the draft CPDMP. The reports and plans used in the

preparation of the draft CPDMP are:

• Community Engagement Outcomes Report (prepared by Cred Consulting)

This report is attached marked Appendix B. It is discussed later in the report under 'Consultation

during the preparation of the draft CPDMP'.

• Parking and Active Travel Plan (prepared by Traffix, traffic engineers)

Based on the results of parking and travel mode surveys which were undertaken for the town

centre, the Parking and Active Travel Plan makes recommendations to improve parking in the

town centre and proposes an active travel (walking and cycling) plan. The Parking and Active

Travel Plan and the Traffic Plan will both be presented to Councillors at a future workshop.

• Traffic Plan (prepared by Traffix, traffic engineers)

The Traffic Plan report contains a proposal to improve traffic flow around the Cronulla town

centre. The report was prepared in consultation with Council's traffic engineers who have since

progressed alternative traffic flow options. The Parking and Active Travel Plan and the Traffic

Plan will both be presented to Councillors at a future workshop.

• Key Sites Report (prepared by Studio GL, urban design consultants)

This report examines several development sites within the town centre to ascertain their

potential to yield community benefits through development uplift. The Key Sites Report will be

presented to Councillors at a future workshop.

• Cost Report (prepared by Wilde and Woollard, quantity surveyors)

This report provides construction cost estimates for the capital works proposed in the draft

CPDMP. It will form part of the final report back to council following the public exhibition of the

Cronulla Public Domain Master Plan.

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Process of Preparing the Draft CPDMP

The draft CPDMP was prepared in three stages between July 2016 and April 2017 as shown:

Stage Activity Period Stage 1 Research and analysis

• data collection and analysis • stakeholder interviews • pedestrian and parking surveys • traffic flow studies • studies of strategic development sites

July 2016 – Aug 2016

Stage 2 Development of principles and ideas • seven guiding principles • seven design ideas • consultation: online surveys, drop-in sessions;

community/stakeholder workshops • travel mode surveys

Sep 2016 – Nov 2016

Stage 3 Draft public domain master plan • design ideas further developed • draft master plan prepared • council staff consulted on draft • supporting work (traffic and parking studies, key sites

and construction costs) is reported

Nov 2016 – Apr 2017

The research and analysis stage established a strong evidence base for the master plan. It extended

a large body of existing research, and incorporated new data, including stakeholder interviews and

pedestrian surveys.

Building on the findings from Stage 1, the Stage 2 work produced seven guiding principles and seven

key design ideas which were then taken to the community for feedback. In Stage 3, the key ideas

were further developed and the detail of the draft plan produced.

Also during Stage 3, feedback on the draft CPDMP from Council staff was received and considered.

There is broad support from staff for the plan. Issues raised by staff related mainly to matters of detail

design and operations and required no substantive amendment to the plan.

Key Challenges Identified in the Draft CPDMP Analysis

The analysis stage of the draft CPDMP identified several key challenges for the master plan to

address:

• poor access and connections - it is difficult for pedestrians, cyclists and cars to move about the

town centre.

• clutter in the town centre - irregular placement of street furniture, kiosks, trees and services

creates a visual clutter that detracts from amenity and inhibits pedestrian movement.

• lack of public amenities and limited opportunities for play - the town centre generally lacks

sufficient public amenities, such as seating and toilets, and offers limited opportunities for play.

• unsafe at night - at night the town centre attracts a drinking culture and associated antisocial

behaviour. Limited shopfront activation contributes to the problem.

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Public Domain Recommendations of the Draft CPDMP

Section 4 of the draft CPDMP makes public domain recommendations which are grouped under the

headings of, Guiding Principles; Town Centre Approach; Town Centre Proposals; Town Centre

Elements and Features and Town Centre Management. Further detail on each of the groups is

provided hereunder:

Guiding Principles- provide high level direction for future public domain development

The draft CPDMP proposes seven principles to guide future public domain development within the

town centre:

1. Celebrate the main street

2. Make the town centre pedestrian and cyclist friendly

3. Create memorable paths and connections

4. Celebrate local landmarks and stories

5. Create places to stay and play

6. Create a diverse and safe night time experience

7. Reflect local character

Town Centre Approach - a design theme and a design structure is established

Rather than create a generic master plan, the draft CPDMP seeks to be authentic to the local

character, which is a mix of local natural and cultural influences. To reinforce this character the

document contains two main instruments - a design theme and a design structure:

• Design theme. The draft CPDMP proposes a consistently applied design theme for street

furniture and street lighting. The design theme is based on the profound connections of Cronulla

to water and tide, and how these have shaped the way people use and experience the town

centre.

• Design structure. The draft CPDMP establishes a simple, but strong design framework built on

the dichotomy of 'ridge' and 'gullies', or 'formal' and 'informal':

• Ridge - Cronulla Street follows the natural ridge and is treated formally to emphasise its cultural

importance as the town centre's main street

• Gullies - east-west streets, such as Ocean Grove Avenue and Surf Road, have an informal

treatment which features groupings of indigenous palms.

Town Centre Proposals -key capital works proposals

The draft CPDMP puts forward nine capital works proposals that are key to achieving its objectives.

The proposals form a cohesive package that work together. They are resolved to concept design level

and are intended to guide future detail design and business case development. The master plan

anticipates that the proposals are implemented over a long term period and proposes a staging plan.

The town centre proposals are outlined below:

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1. Cronulla Square

An iconic, welcoming square is proposed at the northern end of the Cronulla plaza. The

proposal is for a complete renewal of the existing plaza and involves the removal of the existing

stage and clock tower. Providing for both large events and water play, the square is designed

as a flexible space that will celebrate Cronulla’s unique character.

2. Community hub on the mall

This proposal is for a substantial redevelopment of Council's Cronulla Central building to

provide a new community building with ground floor library on the plaza. The new building will

actively engage the plaza, bringing a new civic heart and social dimension to the town centre.

3. Renewed and revitalised mall

The complete renewal of Cronulla plaza is proposed from Kingsway to Purley Place. This

includes the removal of existing Council owned kiosks and shade structures. A shady,

comfortable and inviting space is envisaged where people can shop, stroll, gather and meet.

4. Palm Grove for Ocean Grove Avenue

This renewal has an informal character. It provides new and enhanced opportunity for outdoor

dining and allows for the installation of playful street furniture or public art. Detailed design of

this area, consistent with the draft master plan, is currently being prepared as a consequence of

the redevelopment of the former bank building, which is under construction.

The existing pirate ship play facility located in the Ocean Grove street closure will be

permanently removed as part of redevelopment of the former Commonwealth Bank building. A

new awning will extend three metres from the original building wall towards and intrude into the

play area and the northern roof line of the extension will be located 760mm from the outer edge

of the play equipment and 1.2 metres inside the perimeter of the play fall surface border. The

effect of this is to make the existing playground installation non-compliant with Australian

Standard AS 4685 sections 1 to 6 for play area and equipment and this, coupled with the

proposed redevelopment of Ocean Grove, leaves insufficient area for an installation of similar

scale. In addition the "pirate ship", while highly valued by the community, is 27 years old and

showing significant wear. A condition assessment of the playground has indicated that the play

equipment is beyond its useful life and (if it were possible to retain it in its current position)

would need to be replaced in its entirety. The proposed removal of the play equipment is

scheduled towards the end of July 2017.

It is important that based on previous playground alterations council communicates its intentions

on the pirate ship playground to the community well before the removal date. Provision has

been made to create new play experiences throughout the CBD. The public domain design

proposes to incorporate artful/playful spaces and elements for children and adults. A planned

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process has commenced on the incorporation of these works into each stage of development. It

will be important to communicate Council's intentions for the replacement of the playground with

play experiences through the CBD through the development of a comprehensive

communication plan for the redevelopment of Ocean Grove.

5. Two new lanes – Library Lane and Post Office Lane

These two new pedestrian lanes are associated with the existing Post Office and the proposed

new community hub. The lanes are seen as new and inviting destinations that will also improve

the town centre's east-west connectivity.

6. Artful Lanes: Surf Lane, Beach Park Avenue and Croydon Street Lane

It is proposed to redesign these existing lanes to make it easier, safer and more enjoyable to

walk through the town centre.

7. Kingsway green gateway and Peryman Square

A green gateway and revitalised waterfront space is proposed for Kingsway and Peryman

Square.

8. Improvements to town centre south

Upgraded pedestrian routes and new facilities are proposed in the town centre south.

9. “Playful” spaces for all ages

Reflecting Cronulla's beach culture, the master plan views play as something for people of all

age groups and introduces new playful spaces and features to the town centre.

Town Centre Elements and Features - further urban design guidance and detail

The draft CPDMP provides design guidance and detail to support its main town centre proposals and

to demonstrate its design theme and design structure. The draft CPDMP's town centre elements and

features are summarised in the following table:

Planting · four main types of trees: ridge; ridge landmark; gully street; and secondary

street

· tree selection criteria identified

Landmarks · iconic tidal clock in the new Cronulla square - a new talking and gathering

point

· existing historic clock displayed in the new community hub

Furniture · furniture design follows the design theme and structure

· a distinctive suite of elements coordinated to strengthen local character

· includes 'playful' furniture elements

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Lighting · lighting follows the design theme and structure

· key spaces feature unique 'halo' lighting

· innovative, low energy installations incorporating multi-function poles

Play · civic play elements of varying scales and types

· multiple opportunities for play suited to varying spaces

· Cronulla square water feature synchronises with the tide and the tidal clock

Ground plane · intended to reinforce primary town centre structure and reflect beachside

character

· pedestrian paving in a single material with variation in paver size and

texture to indicate passive and active zones

· light sand/earth colour reflects beachside character and minimises heat

absorption

Wayfinding and

interpretation

· ridge/gully design structure establishes a wayfinding strategy

Town Centre Management - operational considerations of service access, outdoor dining and events

Under this heading the draft CPDMP addresses the considerations of service access, outdoor dining,

private furniture and events. It is anticipated that the master plans recommendations will inform the

future preparation of an operational plan of management for the town centre's public domain. The draft

CPDMP recommendations for town centre management are noted in the table below:

Servicing and

Access

existing service vehicle access arrangements are generally retained

Outdoor dining

and private

furniture

· new guidelines are proposed to balance public and private interests

· three types of setting: ridge; gully; streets

Events · Cronulla Square has capacity for a range of events including outdoor

markets, plays, music concerts, and outdoor movies

· power outlets for markets are incorporated in the design of multi-function

light poles

Draft CPDMP - Indicative Concepts for Places and Spaces

Section 5 of the draft CPDMP presents concept design sketches to illustrate its proposals for the

following places and spaces:

• Cronulla Square

• The Mall

• Cronulla Street: Mid

• Cronulla Street: South

• Kingsway

• Peryman Square

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• Ocean Grove Avenue

• Surf Road

• BeachPark Avenue

• Laycock Avenue

• Surf Lane

• Pedestrian Connections: town centre south

CONSULTATION

Extensive community consultation has been undertaken prior to and during the preparation of the draft

CPDMP. Further consultation is now proposed on the completed draft document. Details on the extent

of the consultation is detailed below:

Consultation Prior to Preparation of the Draft CPDMP Prior to the draft CPDMP being prepared, Council conducted a series of key consultations with the

community:

• CBD and beach user surveys in 2013-2014;

• Cronulla Design Ideas Competition in 2014;

• Cronulla public domain strategy in 2015-2016.

Feedback from these consultations have helped form the draft CPDMP. They have highlighted

community concerns and provided ideas and aspirational goals for improving the Cronulla town

centre.

Consultation During the Preparation of the Draft CPDMP

Extensive community consultation was undertaken during the preparation of the draft CPDMP. A

report which summarises the outcomes of this consultation is provided in Appendix B to this report

(the Cronulla Public Domain Master Plan Community Engagement Outcomes Report, prepared by

Cred Consulting).

Over 600 stakeholders (residents, visitors, business people including the Cronulla Chamber of

Commerce, high school students and Council staff) participated in consultation activities between

September and November 2016. The engagement of the community focused on:

• issues and opportunities to improve the town centre's public domain;

• Seven Guiding Principles for the master plan; and

• Seven Key Design Ideas.

The community's response indicated:

• town centre traffic and parking is a predominant concern of the community, followed by issues

and ideas related to the amenity of the public domain;

• overall, the Guiding Principles are well supported; and

• overall, there is a high level of support for each of the Design Ideas.

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Proposed Consultation

It is proposed that the draft Cronulla Town Centre Public Domain Master Plan be placed on exhibition

for a period of 28 days. During this period, residents and key stakeholders will be encouraged to make

submissions on the draft plan for Council's consideration prior to endorsement.

Advertisement of the public exhibition will be undertaken through both traditional and social media.

Feedback on the plan will be encouraged through Council's "Join the Conversation" website.

BUDGET AND RESOURCES The draft CPDMP proposes a program of capital works to improve the Cronulla town centre public

domain. It is intended that this program be delivered in stages and over a long (5-10 year) term. The

total capital cost of this program has been estimated in the order of some $28.5 million. While the cost

of this investment is substantial, so is its value to the Shire given the estimated million or so people

(both local and visitor) which Cronulla attracts each year.

The proposed program of capital works is unfunded. Council will need to consider the priority, timing

and funding of the program against its Long Term Financial Plan. Various funding sources are

available including:

• general revenue;

• Suez revenue;

• Cronulla special rate levy;

• government grants eg Smart City Program;

• external and internal borrowings;

• developer contributions via section 94 contributions or planning agreements; and

• new income streams.

POLICY Community Strategic Plan

The draft CPDMP is consistent with the draft Sutherland Shire Community Strategic Plan 2017 (CSP),

directly supporting the achievement of draft CSP Strategic Objective 6.3: Provide welcoming, safe and

accessible places and spaces that encourage active lifestyles.

Delivery Program The draft CPDMP is included in Council's draft Delivery Program 2017 - 2021 under Action 6E.1:

Finalise the Cronulla Master Plan.

CONCLUSION The draft CPDMP is intended to guide Council's future development through the Cronulla town centre

public domain.

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The document contains a coordinated suite of proposals for public domain improvement. These are

aimed at enhancing the town centre's, amenity and accessibility and recognise its importance as a

local centre and as a tourism destination hub.

The community has shown strong support for the guiding principles and design ideas which are

embedded in the draft document. Exhibition of the draft CPDMP will allow further input from the

community prior to it being finalised.

The draft CPDMP is presented to Council for approval to be placed on Public Exhibition for a period of

28 days.

RESPONSIBLE OFFICER

The officer responsible for the preparation of this Report is the Strategic Development Coordinator,

Mark Naylor, who can be contacted on 9710 0107.

File Number: 2016/238707

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INF002-18 SUBMISSION TO NSW PARLIAMENT INQUIRY - ENERGY FROM WASTE TECHNOLOGY

Attachments: Appendix A and Appendix B

EXECUTIVE SUMMARY

• On 6 April 2017 the NSW Government established an inquiry titled "Energy from Waste"

Technology.

• Energy from waste has the potential to play a significant role in helping local councils meet the

70% waste diversion rates for municipal solid waste.

• The implementation of Energy from Waste infrastructure in NSW has the potential to provide

much needed competition in the waste management and resource recovery sector.

• Council endorsement is required for the submission to the inquiry, broadly supporting the

implementation of Energy from Waste infrastructure in NSW.


That the submission, in response to the Parliamentary Inquiry into 'Energy from Waste' Technology,

attached as Appendix B, be endorsed.

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PURPOSE

This report is seeking approval for a draft submission prepared by Waste Services in response to a

Parliamentary Inquiry into 'Energy from Waste' technology. Due to the short exhibition period, the

submission was submitted in draft to the Inquiry on Friday 26 May 2017, pending formal approval from

Council.

Energy from Waste (EfW) is of relevance to Council as it has the potential to provide much needed

competition in the waste management and resource recovery industry. EfW also has the potential to

provide a cost effective waste management solution(s) to allow Council meet its obligations under the

State Government Waste Avoidance and Resource Recovery Strategy.

BACKGROUND

On 6 April 2017 the NSW Parliament established a parliamentary inquiry to inquire into and report on

matters relating to the waste disposal industry in NSW, with particular reference to 'energy from waste'

technology. The terms of reference for this inquiry are attached as Appendix A. The inquiry was

triggered by a recent private sector proposal for a very large scale EfW facility at Eastern Creek. This

facility has regional significance for Council as it will be the first large scale EfW facility built in NSW. It

is likely that if constructed it will pave the way for other smaller facilities to be constructed.

EfW technologies typically consist of a waste receivable facility that receives un-recyclable waste of

high calorific value, such as the plastic, paper and organic components of household waste, and then

incinerates these waste products in a specialised plant to produce electricity. The resultant ash is then

re-used in engineered civil products or disposed in landfill. The plants rely on a number of

technologies to ensure any emissions are compliant with the relevant regulation. Europe and Japan

already operate a large number of EfW facilities, typically in very close proximity or embedded within

highly urbanised locations.

EfW in NSW and Australia in general is currently a niche industry with only small scale pilot facilities

operating around the country. Australia lags significantly behind the rest of the world in the adoption of

this technology.

DISCUSSION The draft submission contained in Appendix B makes the following points:

• EfW technology makes an important contribution to the Waste Management in NSW;

• EfW has the opportunity to introduce much needed competition into the Waste Management

industry;

• EfW should be regulated to the same very high standards as currently used in Europe for EfW

facilities located close to urban areas;

• EfW should be regulated by the State Government as ongoing compliance monitoring requires

significant expertise and sophisticated equipment; and

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• The large scale EfW proposed at Eastern Creek is unlikely to monopolise the market in the long

term due to traffic congestion making smaller scale EfW facilities viable.

BUDGET AND RESOURCES

This submission has no direct impacts on Council's operations, budget or resources. In the long term

the recommendations in this submission if adopted by the State Government will lead to greater

competition in the market place allowing Council to continue to provide cost effective services to the

community.

POLICY

Supporting EfW technology is consistent in the Councils strategic outcomes set out in the Environment

and Sustainability Strategy, and the objectives set out in the Local Waste Management Plan. Adopting

EfW as a waste management option will also allow Council to meet its obligations under the State

Government waste avoidance objectives of 70% diversion of household waste from landfill.

CONCLUSION

EfW has the opportunity to play an important role in Waste Management and achieving the State

Government waste diversion targets. It is important that Council engage in the discussion around EfW

to ensure that any EfW facilities are appropriately located, designed and regulated. Council’s

participation in the inquiry provides this opportunity.

RESPONSIBLE OFFICER

The officer responsible for the preparation of this Report is the Acting Manager Waste Services, Justin

Sauvage, who can be contacted on 9710 5313.


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* The Hon Penny Sharpe MLC is substituting for the Hon Daniel Mookhey MLC from the 11 April 2017 forthe duration of the inquiry.

‘Energy from waste’ technology

TERMS OF REFERENCE

That Portfolio Committee No. 6 inquire into and report on matters relating to the waste disposal industry in New South Wales, with particular reference to ‘energy from waste’ technology, and in particular:

a) the current provision of waste disposal and recycling, the impact of waste levies and the capacity(considering issues of location, scale, technology and environmental health) to address the ongoingdisposal needs for commercial, industrial, household and hazardous waste

b) the role of ‘energy from waste’ technology in addressing waste disposal needs and the resultingimpact on the future of the recycling industry

c) current regulatory standards, guidelines and policy statements oversighting ‘energy from waste’technology, including reference to regulations covering:

i. the European Unionii. United States of Americaiii. international best practice

d) additional factors which need to be taken into account within regulatory and other processes forapproval and operation of ‘energy from waste’ plants

e) the responsibility given to state and local government authorities in the environmental monitoringof ‘energy from waste’ facilities

f) opportunities to incorporate future advances in technology into any operating ‘energy from waste’facility

g) the risks of future monopolisation in markets for waste disposal and the potential to enable a‘circular economy’ model for the waste disposal industry, and

h) any other related matter.

Committee membership

The Hon Paul Green MLC Christian Democratic Party Chair

The Hon Lou Amato MLC Liberal Party Deputy Chair

Mr Jeremy Buckingham MLC The Greens

The Hon Shayne Mallard MLC Liberal Party

The Hon Matthew Mason-Cox MLC Liberal Party

The Hon Penny Sharpe MLC* Australian Labor Party

The Hon Ernest Wong MLC Australian Labor Party

LEGISLATIVE COUNCIL

PORTFOLIO COMMITTEE NO. 6 – PLANNING AND ENVIRONMENT


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Responseto:ParliamentaryInquiryinto‘EnergyFromWaste’technologyPlease note that due to time constraints there has not been time for this submission to be formally endorsed by Councillors prior to the inquiry submission deadline. As such this submission must be considered a draft submission until it has been formally endorsed by Council. It is anticipated that Council will consider and endorse this submission in late June and we will formally advise the committee if this submission has been formally endorsed.

Thank you for the opportunity to provide a submission to the Parliamentary Inquiry into Energy from Waste (EfW) technology. In addition to this submission Sutherland Shire Council supports the submission made through SSROC.

Sutherland Shire Council is one of the largest local government areas by population in NSW with some 226,000 residents. Each year council collects and disposes over 50,000 tonnes of residential waste and 24,000 tonnes of recycling. This waste is disposed of at the Lucas Heights Waste Management facility and the Visy materials recovery facility in Taren Point by way of direct haulage. There are no domestic waste transfer stations in the Sutherland Shire.

In broad terms Sutherland Shire Council is supportive of EfW technology and we feel it has a crucial role to play in the Waste Management hierarchy for NSW.

Current Provision of waste disposal and recycling facilities: Waste management in the Sutherland Shire has been shaped by successive State Government decisions relating to the operation of the Lucas Heights landfill facility. Historically the primary landfill facility in the Sutherland Shire was a government owned and operated landfill facility and as such Council did not invest in alternative waste management facilities, or invest in land suitable for transfer stations.

The Lucas Heights waste management facility is now privately owned and operated by SUEZ and is the only viable landfill option for municipal waste disposal in the Sutherland Shire. This was not an issue while the tip was in public ownership, but now the tip is privately operated Council is captive to a virtual monopoly for residual and organic waste management services.

We note that SUEZ, the operator of the tip has recently gained approval to extend the operating life of the landfill facility. The recent closure of Eastern Creek Landfill has resulted in a large proportion of the landfill waste that is generated in much of metropolitan Sydney being disposed at the Lucas Heights facility, significantly increasing the movement of heavy vehicle waste trucks across the Sutherland Shire.


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While SUEZ has access to significant landfill capacity at Lucas Heights the approval to extend the life of the facility included the future construction of an Advanced Waste Technology (AWT) plant. The plant is anticipated to produce approximately 40,000 tonnes per annum of Processed Engineered Fuel (PEF), from high calorific value non-recyclable residuals. Advanced resource recovery and Energy from waste is one of the core requirements for the new facility and should be encouraged.

Recycling services in the Sutherland Shire are provided by Visy operating a Materials Recovery Facility (MRF) at Taren Point. There are no alternative MRF’s in or near the Sutherland Shire. The lack of a transfer station or alternative materials recovery facilities in close proximity to the shire means that Sutherland Shire Council is reliant on Visy for co-mingled recycling services.

The inability to access Waste Levy funds for the purchase of land to establish waste recycling and other waste recovery facilities has further inhibited a regional cooperative approach in developing shared facilities.

The implementation of Energy from Waste (EfW) in NSW will help stimulate competition in the market place by providing alterative waste disposal and treatment options. If the implementation of EfW follows a similar model to that observed in Europe and Japan, it is likely that in the medium term smaller scale EfW facilities will be viable at a local scale and be able to provide direct competition to the landfills whilst also simplifying the logistics of transporting waste through our congested road networks.

Role of Energy from Waste technology. EfW technology has a crucial part to play in the waste management hierarchy. It is an accepted and trusted technology around the world, and in particularly Europe and Japan.

It is noted that EfW may have an impact on recycling. However, currently a very large amount of potentially recoverable material is being buried in landfills. Any EfW facility that captures some or all of this material that is currently being landfilled is preferable to the current situation. Furthermore through the landfill levy the State Government already has in place suitable mechanisms to influence the market should EfW technologies unduly distort recycling markets.

Current regulatory standards, guidelines and policy statements. The current regulatory standards adopted in Europe are appropriate to apply to EfW facilities in NSW. It is noted that under the current planning regime it is currently a simpler process to gain regulatory approval for a landfill than it is for an advanced waste technology. This represents a significant impediment to the implementation of alternative waste management systems in NSW. In part this situation could be improved by adopting the approach used in Victoria where waste management facilities are recognised as essential infrastructure and providing streamlined approval processes for these facilities.


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Responsibility given to state and local government authorities for monitoring The monitoring of EfW facilities is a highly technical activity that requires trained staff and specialist equipment. Environmental impacts from EfW facilities also impact on multiple council areas. It is appropriate that the licencing, regulation and monitoring of EfW facilities remain with the State Government, consistent with the State Government’s Waste to Energy Policy. Monitoring should be performance based with new unproven and problematic facilities subject to a higher level of monitoring than proven facilities. It may be appropriate to use funds from the Waste Levy to fund monitoring and compliance activities.

Opportunities to incorporate future advances in technology Approval to build and operate EfW facilities should be based on merit, with appropriate incentives to promote EfW technologies that maximise resource recovery outcomes. Where it is apparent that a particular EfW technology with perhaps lower resource recovery outcomes than is desirable is causing an unwanted distortion of the market it may be appropriate to use market levers such as a partial or full waste levy on specific waste streams to rebalance the market. However it should also be noted that use of such mechanisms must be used with care in order to maintain sufficient market certainty to encourage long term investors in EfW infrastructure.

Risks of future Monopolisation in markets With reference to large scale facilities it is unlikely they will monopolise the market in the medium to long term. Rather in the short term they will add much needed competition and diversity to the waste management market in Sydney. Internationally smaller scale EfW plants have been proven to be viable. Due to the large geographic spread of metropolitan Sydney and high levels of traffic congestion it is likely that smaller scale EfW plants will also become viable in NSW and able to compete directly with large scale facilities. This is on the proviso that the land use planning and environmental approval regime support the construction of smaller scale EfW facilities at a sub-regional scale.


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INF003-18 SUTHERLAND TO CRONULLA ACTIVE TRANSPORT LINK (SCATL)

Attachments: Nil

EXECUTIVE SUMMARY

• This report is provided to update Council on the status of the Sutherland Cronulla Active

Transport Link and to seek Council's ‘in principle’ support for the project.

• Council's ‘in principle’ support will assist and compliment Transport for NSWs (TfNSW) business

case which will be presented to the NSW Government for funding consideration.

• The project is expected to be co-funded by TfNSW and Council, subject to Council agreement.

• It is recommended that consideration of support by Council, beyond in principle support, be

subject to the provision of a Business Case which includes the examination of the utilisation of

Section 94 Open Space Contributions to accommodate funding of the project.


THAT:

1. ‘In principle’ support for the construction of the Sutherland Cronulla Active Transport Link

(SCATL) be communicated to Transport for New South Wales.

2. Council’s potential contribution to the project be limited to the recommendation contained in

INF001A-18.

3. Further consideration of Council’s commitment to the project be subject to the provision of a

Business Case for the Sutherland Cronulla Active Transport Link which examines the

opportunity of revising the Section 94 Open Space Contributions Plan to fund Council's

contribution of the Sutherland Cronulla Active Transport Link outside the rail corridor.

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PURPOSE

The purpose of this report is to update Council on the status of the Sutherland Cronulla Active

Transport Link (SCATL) and to seek Council's ‘in principal’ support for the project, which will assist

and compliment Transport for NSW’s (TfNSW) business case being prepared for the consideration of

the NSW Government.

BACKGROUND

Support for the SCATL by Council and the community extends well over a decade when during the

Sutherland Cronulla rail duplication in 2006, 3,000 shire residents petitioned the NSW Government to

develop a shared off-road cycling-pedestrian path along the rail corridor. Subsequent to a number of

studies undertaken by the Transport Infrastructure and Development Corporation (TIDC), Council and

the Roads and Maritime Services (RMS), the NSW Transport Minister in October 2013 committed

funding of $2M for the detailed planning and design of the SCATL.

The construction of the SCATL is consistent with the NSW Government's commitment to improving

Sydney's active transport network. For the Sutherland Shire the provision of an active transport link

(pedestrian and cyclists) will provide a safer and more direct alternative for short trip movements (2km

for walking and 5km for cycling).

With around 50% of trips that are less than 2km and 90% of trips between 2km and 5km in the

Sutherland Shire being undertaken by car, SCATL has the potential to be a major transport mode

changer. For many short trips the use of rail and bus services are not a preferred mode of transport

due to factors that include the interchange between transport modes, route directness and travel time

experienced. By providing improved connections for pedestrians and cyclists to key activity generators

and accessibility to public transport interchanges the attractiveness of SCATL is heightened.

Several reports have been provided to Council between 2006 and 2016 regarding the SCATL

proposal being; ENV043-07, SAF027-14 and IPR037-16.

This is a Shire wide transport capacity increase proposal. A potential funding source for Council is to

revisit the new s94 open space contributions plan. At the same time some construction costs could be

offset from planned road works undertaken by the RMS along President Avenue and / or incorporated

into scheduled town centre upgrade works undertaken by Council.

It is considered that the construction of the SCATL is a unique opportunity for Council and the State

Government to develop a major piece of transport infrastructure for the Shire and region that has

significant long term benefits for the community, economy and environment. Without investment in this

type of infrastructure the following risks are likely to continue:

• A disjointed active transport network;

• Continued high levels of car dependency;

• Increased pressure on the road network;

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• Constrained future rail patronage (due to limited parking opportunity); and

• Reduced opportunities for physical activity.

DISCUSSION Transport Planning Context

The NSW Government's commitment to improve Sydney's active transport network is highlighted

through its active transport strategies "Sydney's Walking Future"; "Sydney's Cycling Future" and "Long

Term Transport Master Plan". These plans have established a target of doubling the number of cycling

trips within Sydney's Metropolitan area by 2031. To achieve this, a range of infrastructure initiatives

are identified. These include:

• Prioritise walking investments within 2km of transport interchanges;

• Prioritise cycling investments within 5km of major centres, extending to 10km in the longer term;

• Build cycling infrastructure outward from key destinations and fix missing links in local bicycle

networks;

• Identify a hierarchy of safe bicycle routes to major centres and prioritise projects for action; and

• Improve pedestrian access to and amenity around interchanges, particularly through the

Transport Access Program.

What makes SCATL so important?

TfNSW analysis of active transport activity in the Sutherland Shire indicates that although the

Sutherland Shire has a lower active transport mode share than Greater Sydney, when the data is

analysed it is comparable to other areas at a similar distance from the Sydney CBD.

Based on Journey to Work data the following observations were made:

• Active transport mode shares along the rail corridor are generally higher than the Sutherland

Shire average;

• Active transport mode shares are higher for trips that start and end within the Sutherland Shire,

than those that start or end outside the Sutherland Shire;

• Active transport mode shares are highest within the middle of the corridor near Miranda and

Caringbah; and

• Active transport mode shares are higher at the Cronulla end of the corridor relative to the

Sutherland end of the corridor.

When the data is further analysed, active transport mode share is generally higher along the rail

corridor relative to areas located away from the rail corridor and of particular note higher active

transport mode shares occur in travel zones near Miranda and Caringbah.

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The provision of an active transport link between Sutherland and Cronulla will provide a vital regional

east-west link that strategically will greatly improve links to Bankstown and the utilisation of existing

cycleway infrastructure between Padstow, Menai and Sutherland. In addition to this link, the SCATL

could serve as a catalyst to improve cycling and pedestrian links to a number of major centres that

include:

• Sydney CBD

• Sydney Airport

• Botany Bay

• Sydney Olympic Park

• Kurnell

In addition to the above data, the case for the construction of the active transport link is supported by:

Alignment with walking and cycling policy: The Long Term Transport Master Plan (LTTMP) identifies a target of doubling the number of bicycle

trips in Metropolitan Sydney by 2031. In addition, Sydney's Walking Future and Sydney’s Cycling

Future aim to prioritise investments within 2km of transport interchanges for walking, and 5km of major

centres for cycling.

Ability to better meet the expectations of existing and potential active travellers:

A key barrier to walking and cycling for individuals is the perceived safety risk of on-road or shared

pathways. These barriers can be addressed through the provision of dedicated walking and cycling

infrastructure to improve safety perceptions and increase active travel.

Ability to cater for future population growth: Population growth along the SCATL corridor is expected to be higher relative to the rest of Sutherland

Shire. Between 2011 and 2031, an additional 23,000 residents will be located along the corridor. The

SCATL provides an alternative option for travel for these additional residents.

Improving connections to the wider active transport network:

Over the past decade investments have been made in developing dedicated off-road walking and

cycling paths to the west of Sutherland town centre. The SCATL will provide a connection to the wider

cycling network for those residents of the Sutherland Shire.

Helping to reduce congestion by providing an alternative to motorised travel:

The Sutherland Shire is highly dependent on car travel with approximately 78% of residents travelling

by car to work. In addition, 40% of employed residents of the Sutherland Shire work in the same

council area. An active transport link would provide improved connections for pedestrians and cyclists

along the corridor to key activity generators in the Sutherland Shire as well as improved accessibility

to public transport interchanges.

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Meeting prevailing cycling and walking infrastructure standards:

Austroads Guidance (2014) recommends that where motor vehicle, cycling or walking demand is high

and/or travel speeds are high, dedicated active transport infrastructure should be provided. The high

levels of motor vehicle traffic, travel speeds and impediments to alternative east-west routes within the

Sutherland Shire indicate there is a need to provide a dedicated off-road facility for bike riders and

pedestrians.

Complimenting investments in the public transport (rail) network:

Past and future investments in the rail network that seek to improve public transport accessibility will

be complemented by the introduction of the SCATL through the improvement of whole-of-journey

experience for customers. The Project’s primary drivers will serve to improve active transport

participation for TfNSW's customers in the Sutherland Shire region. It will provide alternative travel

solutions by ensuring the shared path is accessible and safe. Additionally, the Project will have

associated environmental and social benefits through facilitating a mode shift towards increased

walking and cycling over shorter trips within the local area.

CONSULTATION The outcome of the planning and design work undertaken was presented in a Review of

Environmental Factors (REF) prepared for TfNSW and community consultation during November

2015. As part of the community consultation phase, Councillors were briefed on the REF by TfNSW on

23 November 2015. In response, the General Manager wrote to TfNSW on 14 December 2015

highlighting a number of concerns. These concerns centred on:

• The low proportion of the SCATL (29%) proposed to be constructed in the rail corridor;

• The proposed route along Karimbla Road between Sylvania Road and Kareena Road, Miranda;

and

• The proposed route along Kingsway between Gannons Road and Connels Road, Cronulla.

Following the REF community consultation phase, TfNSW have been actively examining the various

issues raised. Subject to the final outcome of their review, further community consultation may be

required.

BUDGET AND RESOURCES There is no general revenue capacity in the Long Term Financial Plan to fund this project based on

the proposed level of contribution disclosed in the attachment provided under separate cover. An

indicative cost for the project and potential funding contribution from TfNSW and Council is also

provided in the same accompanying attachment provided under separate cover to Councillors.

TfNSW have requested that the cost estimate provided remain confidential at this point in time until

the route options and business case are further developed and finalised.

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A potential funding source for Council is through revising the new Section 94 Open Space

Contributions Plan. Some construction costs could be offset from planned road works undertaken by

the RMS along President Avenue and / or incorporated into scheduled town centre upgrade works

undertaken by Council.

In general the active transport link will be designed to optimise whole of life costs and be designed and

constructed to last at least 30 years (TfNSW REF 2016).

No final commitment should be made by Council until a business case has been approved.

The business case for the project will need to include whole of life asset costs. Although the concrete

pavement is expected to be a long lived asset there can be expected to be planned maintenance to

ensure full useful life as indicated below:

Year 5 - joint resealing 1 per 50 m

Year 10 - slab replacement 2%, joint grinding 1 in 36 m, resealing 1 per 50 m



(Source User guide to bicycle and shared path selection – using whole of life costing – Australian Bicycle council 2006)

It is not expected that lighting will be a significant cost as lighting will already exist in the majority of

areas where the SCATL is built outside the rail corridor.

These whole of life costs will be given a monetary value as part of the business case.

POLICY

The development of the SCATL is consistent with the Environment and Sustainability Strategy -

'provide a safe cycle link between Sutherland and Cronulla' within Strategy 3 - Deliver Integrated

Transport Options, and:

Council's Community Strategic Plan:

• Delivering integrated transport options.

• Healthy and well people.

CONCLUSION

It is considered that the construction of the SCATL is a unique opportunity for Council and the State

Government to develop a major piece of transport infrastructure for the Shire that has significant long

term benefits for the community, economy and environment.

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A business case, that incorporates a review of the Section 94 Open Space Contributions Plan, will be

developed to test the value of the proposal and the outcomes will be presented to Council. However,

at this stage, no final commitment should be made until the business case has been approved.

RESPONSIBLE OFFICER

The officer responsible for the preparation of this Report is the Traffic & Transport Manager, Bruce

Powe, who can be contacted on 9710 0498.


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CONFIDENTIAL REPORTS FROM OFFICERS

In accordance with Section 10A(1) of Local Government Act 1993, the following matters will be

considered in the Closed Session:

INF001A-18 SUTHERLAND TO CRONULLA ACTIVE TRANSPORT LINK (SCATL) – ROUTE AND PROJECT COST ESTIMATES

Section 10A(2)(d)(i) Commercial Information of a Confidential Nature:

This matter is being considered in Closed session as it relates to commercial information the

disclosure of which would be likely to prejudice the commercial position of the person, company or

tenderer who supplied it. On balance, the public interest in preserving the confidentiality of information

provided by persons, companies or tenderers outweighs the public interest in maintaining openness

and transparency in council decision-making because the disclosure of this information could reveal

information that is commercial in confidence and the release of which could damage the commercial

position of the person, company or tenderer who supplied it.

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