OBJECTION TO DA-475/2017 FROM BONDI BEACH AND BONDI PRECINCTS 6 DECEMBER 2017
Partial demolition of heritage listed building (Australia Post Office) and construction of a four storey mixed use development containing 2 basement levels of carparking, ground level retail with residential units above.
This objection is lodged on behalf of the residents in Bondi and Bondi Beach Precincts.
The built environment provides a footnote to our histories, helping to identify our places as Australian, rather than generically 'modern' or 'contemporary'. Historic buildings give us a glimpse of our past and lend character to our communities as well as serving practical purposes now. http://www.environment.gov.au/heritage/publications/adaptive-reuse
This is not the adaptive re-use of an almost 100 year old heritage listed building retaining its almost 100 year old heritage function, but the demolition of an architecturally, historically, aesthetically and socially significant heritage building located in a space which has been a focal point for the Bondi community for almost 100 years, along with the loss of their essential postal service.
There is no adaptive re-use as this term is usually understood – what will remain is a a brass plaque that will detail the history and significance of the former Bondi Post Office. (Urbis Heritage Impact Statement p37)
This is privatisation of a community space at its worst, removing shade trees and seating from the focal meeting place for the community, removing the essential services associated with a Post Office, and replacing all this with outdoor seating for the select few who attend the proposed restaurant.
The primary reasons for this Objection are as follows:
1. HERITAGE STATUS
2. SOCIALLY SIGNIFICANT & HISTORICAL IMPACTS INCLUDING MAINTAINING THE CONTINUING OPERATION OF BONDI BEACH POST OFFICE
3. GEOTECHNICAL AND HYDROGEOLOGICAL CONCERNS
1. HERITAGE STATUS
Bondi Beach Post Office is listed as heritage item 113 ‘Inter-war Stripped Classical style public building - 20 Hall Street, Bondi Beach’ in Schedule 5 of the Waverley LEP 2012. It is situated in Heritage Conservation Area C2 ‘Bondi Beach Conservation Area’.
It is described as follows on the NSW Government Office of Environment & Heritage website:
Statement of significance: Fine local example of an Inter-War Stripped Classical style public building. Associated with the development of Bondi as a popular surfing beach, and the suburbanisation of the area. Intact period buildings are now rare for this locality. Important streetscape contribution on its corner site. Local significance.
Description
Construction Years: 1915 – 1945
Physical description: Simple, 1920's, Classical Revival style public building. Single storey. Brick construction, with smooth and moulded render used for decoration. Hipped, tiled roof with small parapet on corner. Classical columns to corner entry portico. Decorative brick, pilastered columns and rendered horizontal bands. Double hung windows. No significant alterations.
Current and former use: Post Office
History
Historical notes: The area's first post office opened in 1914 when it was known as the North Bondi Post Office. Became the Bondi Beach Post Office when this building was erected in 1922. (Dowd, p. 242).
Assessment of significance
SHR Criteria a) This item is of historical significance
SHR Criteria c) This item is of architectural, aesthetic and streetscape significance
SHR Criteria d) This item is of social significance
Integrity/Intactness: Substantially intact
According to the Waverley Local Environment Plan (LEP) 2012 Heritage Conservation 5.10 (4) Effect of proposed development on heritage significance
The consent authority must, before granting consent under this clause in respect of a heritage item or heritage conservation area, consider the effect of the proposed development on the heritage significance of the item or area concerned. This subclause applies regardless of whether a heritage management document is prepared under subclause (5) or a heritage conservation management plan is submitted under subclause (6).
As this building is listed as a Heritage Item in the Waverley LEP 2012and is located in a Heritage Conservation Area, those two reasons alone should be enough to guarantee its protection. Local Environment Plans form part of NSW Government Legislation and need to be treated with commensurate significance.
The applicant through the Heritage Impact Statement (HIS) prepared by Urbis disagrees with the Heritage listing after their inspection of the site as follows:
Upon inspection of the site, Urbis did not identify heritage significant fabric that warranted retention.
Urbis also contends, in complete opposition to the NSW Government Office of Environment & Heritage’s Statement of significance, that the Integrity/Intactness (of the building is) Substantially intact, that:
Despite retaining some heritage fabric externally, alterations and additions over the years has diminished the technical integrity and scenic qualities of the building. Urbis HIS p23
This is a completely spurious claim.
The listed BA-5/1996 14 Feb 1996 for approved alterations and additions to the existing Post Office was for permission to upgrade the existing duct air conditioning system.
In 2002, the existing post office facilities were upgraded.
An upgrade to the existing duct air conditioning system and an upgrade of facilities did not diminish the technical integrity and scenic qualities of the building.
A reliance on Urbis, a paid consultant, claiming superior authority with regards to classification of heritage is unacceptable.
Adaptive re-use
Adaptive re-use according to the Australian Government Department of the Environment and Energy is:
The built environment provides a footnote to our histories, helping to identify our places as Australian, rather than generically 'modern' or 'contemporary'. Historic buildings give us a glimpse of our past and lend character to our communities as well as serving practical purposes now.
In the pursuit of sustainable development, communities have much to gain from adaptively reusing historic buildings. Bypassing the wasteful process of demolition and reconstruction alone sells the environmental benefits of adaptive reuse. Environmental benefits, combined with energy savings and the social advantage of recycling a valued heritage place make adaptive reuse of historic buildings an essential component of sustainable development.
http://www.environment.gov.au/heritage/publications/adaptive-reuse
DA-4758/2017 presents conflicting statements. Whether they are designed to mislead or are merely the result of incompetence is immaterial.
The proposal in the SEE (p1) seeks consent for part demolition as follows:
the part demolition of the existing building, retention of the significant elements and construction of:
• Two levels of basement car parking accommodating 24 car spaces, 13 bicycle spaces and 4 motorbike spaces;
• A Ground Floor comprising retail fronting Hall Street and a residential lobby and vehicle entry/exit from Jaques Avenue;
• Three storey addition comprising 5 x 2 bedroom units and 5 x 3 bedroom units; and
• Associated landscaping and public domain works including the removal of two on-site trees and one street tree and the retention of five street trees; and
• Signage on the façade.
In complete contradiction, the Report on Geotechnical Investigation for proposed mixed use development at 20 Hall Street, Bondi, NSW 3 November 2017 Ref: 30768Zrpt by JK Geotechnics, states that complete demolition of existing buildings and structures (including their footings) and of the pavements is required:
Construction of the proposed new building will require demolition of existing buildings and structures (including their footings) and of the pavements. Following this, any topsoil or root affected soils and any deleterious or contaminated existing fill should be stripped from the subgrade
The HIS at p37 states the likely end result of this demolition to be the installation of a brass plaque that will detail the history and significance of the former Bondi Post Office.
Perhaps the most telling of the complete disregard of the architectural, historical, aesthetic and social heritage values for the actual building itself is shown in the following Recommendations (see below), and begs the question as to whether any of the existing building fabric will actually be retained when phrases such as
Consideration should be given to reuse of any historic building fabric in reasonably good condition
are used. Complete demolition could arguably negate any historic building fabric being kept in reasonably good condition.
7.1. RECOMMENDATIONS
The following recommendations have been identified to mitigate any impacts and to ensure that the heritage significance of the site is protected:
Further detail on the design of the proposed enlargement to the existing windows at ground level are to be provided to the satisfaction of Council’s Heritage Advisor.
Prior to the issue of a Construction Certificate, an archival photographic recording of the Bondi Beach Post Office is to be prepared by a suitably qualified and experienced heritage consultant. One copy of the record is to be submitted to Council to be lodged with Council’s Archives.
Consideration should be given to reuse of any historic building fabric in reasonably good condition. The appointed heritage consultant must be consulted. Salvaged building materials surplus to the project must be transferred to an established second hand building material dealer for recycling.
Urbis recommends the preparation of a concise Heritage Interpretation Plan that may utilise the heritage fabric salvaged during construction. One of the recommendations of the plan should be the installation of a brass plaque that will detail the history and significance of the former Bondi Post Office. The plan is to be prepared by a suitably qualified and experienced heritage consultant. Approval is to be sought from Council’s Heritage Advisor. HIS p37
With demolition comes the inability of the Post Office to continue operating, backed up by advice from the Australia Post spokeswoman to the Wentworth Courier 22 November 2017 that the post office would not be moved from the 756 sqm mixed use site
‘While the site is under the process of being sold under an option agreement, we have no plans to move the post office,’ she said. ‘There is a five-year lease with a further five-year option in place.’
This means that while the DA is being considered the Post Office will operate. As soon as approval is given to the DA, and the option to purchase taken up, the Post Office will cease to exist.
See more about this under Item 2 SOCIALLY SIGNIFICANT & HISTORICAL IMPACTS INCLUDING MAINTAINING CONTINUING OPERATION OF BONDI BEACH POST OFFICE
Socially significant street trees and planters
The redevelopment of the site will also entail destroying mature street trees and the significant planter boxes they are housed in. Planter boxes which the community sit on regularly while waiting for friends and/or resting etc.
Heritage conservation management plan
The Waverley LEP at 6.2.1 Clause 5.10 (6) states that:
The consent authority may require, after considering the heritage significance of a heritage item and the extent of change proposed to it, the submission of a heritage conservation management plan before granting consent under this clause.
Urbis have pre-empted the necessity for the submission of a heritage conservation management plan by stating:
A conservation management plan is not considered necessary in this instance
2. SOCIALLY SIGNIFICANT & HISTORICAL IMPACTS INCLUDING MAINTAINING CONTINUING OPERATION OF BONDI BEACH POST OFFICE
A focal point for the community for almost 100 years
Bondi Beach Post Office has been a focal point of the Bondi community for almost 100 years.
It is the place where news of, or moments of significant occurrences in people’s lives have played out. It is the most easily identifiable place for people to meet. Its shady and inviting surrounds are a favourite resting place for the community.
With the loss of many ‘local’ shops in Hall St and their replacement with cafés and restaurants, it is comforting to the community that the Post Office is still there. Generations of Bondi residents have stories connected with the Post Office, making its importance to the Bondi community’s sense of place immeasurable.
Along with the Bondi Pavilion (also built in the 1920’s), the Bondi Beach Post Office is one of the last community focal points left at Bondi Beach.
These facts are contrary to Urbis’s outlandish claims that:
The proposal seeks to enhance the existing underutilised and iconic corner within Hall Street by the provision of a modest sized four storey mixed use development.
The subject property is known for its role in the Bondi Beach community as the local post office. However, it is only valued for its amenity and does not hold any important associations with an identifiable group or important to a community’s sense of place. It therefore does not meet the threshold for being an item of social significance. Urbis HIS p23
Closure of the Bondi Beach Post Office a blow to the community and commercially unsound
By describing DA-475/2017 in the following terms:
Partial demolition of heritage listed building (Australia Post Office) and construction of a four storey mixed use development containing 2 basement levels of carparking, ground level retail with residential units above.
a sleight of hand is apparent.
Partial demolition of the Post Office suggests that, as it is partial, the Post Office itself will remain. Couple this with advice from the Australia Post spokeswoman to the Wentworth Courier 22 November 2017 that the Post Office would not be moved from the 756 sqm mixed use site.
‘While the site is under the process of being sold under an option agreement, we have no plans to move the post office,’ she said. ‘There is a five-year lease with a further five-year option in place.’
and an illusion exists that this will not be as bad as people thought.
However it is clear that the Post Office would cease operations, not least because of the statements below but also due to the fact that the site is under the process of being sold under an option agreement. (Wentworth Courier 22 November 2017).
Statements from the applicant supporting closure of the Post Office
Although the role of the subject property within the community will change, its offerings will be improved as it will now provide a commercial space and residential premises for the local community. HIS p32
Do we need more commercial spaces when there are always unoccupied retail premises in Bondi?
The heritage item is currently in operation as the Bondi Beach Post Office. The proposal seeks to change the use of the site to a mixed use development where the ground level is to be subdivided as a commercial space with a separate entry to provide access to the residential premises on the upper levels of the building.
At this stage, the details of the proposed commercial space is to be resolved. This will be subject to a separate development application to be lodged by the lessee. Provided that the space maintains to be accessible to the public domain and contributes to the character of the precinct, the proposed change in use of a section of the ground level to a commercial nature is supportable from a heritage perspective. HIS p35
The character of the precinct is that of a Town Centre. A Post Office is an essential part of a Town Centre.
GROUND FLOOR RETAIL It is proposed to provide a total of 253sqm of retail space at ground level fronting Hall Street and Jaques Avenue. The plan indicates one tenancy replacing the existing post office. This retail space can accommodate a variety of uses and has been designed to be adaptable and able to support up to two tenancies. This space will enhance retail activation along Hall Street and positively contribute to the Bondi Beach streetscape and encourages pedestrian activity. The use and fit out of the retail will be the subject of a future DA. Statement of Environmental Effects (SEE) Urbis 6 Nov 2017
The last thing Hall St needs is another café, restaurant, clothing shop replacing a fully functioning and essential public service.
There is no need to encourage pedestrian activity. This is a very busy area, particularly due to the fact that so many people use the Post Office.
Social impacts
This DA will not enhance Hall St but will detract from its community atmosphere.
In the Statement of Environmental Effects (SEE) Urbis states:
Public Domain
The proposal will enhance the public domain through the removal of obstructions and intrusive elements, including the removal of the existing signs, mailboxes, payphones and raised planters. Collectively their removal will improve pedestrian circulation and sightlines in and around the site and allow for the provision of outdoor dining fronting Hall Street. p12
The obstructions and intrusive elements proposed for removal are essential public use items. Naming existing signs, mailboxes, payphones and raised planters as obstructions and intrusive elements is shameful. The mailboxes and payphones are heavily used, as are the planters for people sitting and resting in the shade or meeting up with friends. These planters are a significant size and house significant trees, many slated under this proposal for destruction.
It should also be noted here that Bondi attracts a large transient population. Many of these people are travellers or persons seeking to become residents. Because of this and because of their international connections they contribute to the busyness of the Post Office in its extremely convenient location.
The SEE wrongly states that street activation to the corner site is needed as it has been neglected for many years. SEE p30.
This corner is probably the most active corner site in Bondi Beach due to the Post Office, the planters, the trees, and the post boxes being there, and overwhelmingly because historically this is the Hall St focal point.
The SEE p30 also supports privatising the public space now containing extensive planters where people sit under significant shade trees by allowing the provision of an outdoor dining area. The need for another outdoor dining area in Bondi pales into insignificance in relation to the need for open public space.
3. GEOTECHNICAL AND HYDROGEOLOGICAL CONCERNS
It is well known that a series of lagoons ran between Bondi Beach and Rose Bay. One of the lagoons was documented as being situated between Lamrock Avenue and Hall Street. http://www.waverley.nsw.gov.au/__data/assets/pdf_file/0020/24194/Bondi_Beachs_Lagoons.pdf
Bondi itself is built on sandhills.
The Report on geotechnical investigation for proposed mixed use development at 20 Hall Street, Bondi, 3 November 2017 Ref: 30768Zrpt prepared by JK Geotechnics for the applicant confirms this:
The site is located among near flat topography within a marine basin approximately 200m northwest of Bondi Beach…
The 1:100,000 geological map of Sydney indicates that the site is underlain by medium to fine grained ‘marine’ sand of Quaternary Age. The investigation revealed a generalised subsurface profile below the concrete pavement comprising sandy soils over silty clay/sandy clay and sand at depth. Groundwater was encountered at moderate depth.
Groundwater seepage was encountered at a depth of 5.4m (RL9.6m) whilst auger drilling the borehole. As the borehole was advanced using wash boring techniques below 6m, further meaningful groundwater measurements were not feasible.
A monitoring well has been installed into BH1 and groundwater measurements are possible, if required.
Due to this topography, issues relating to the site have been listed in the report as follows:
4.1 Geotechnical Issues
The principal geotechnical issues associated with the proposed development at the subject site are as follows:
Any interference with the flow of groundwater needs to be closely examined as re-distribution of the flow will potentially lead to problems elsewhere.
4.8 Additional Geotechnical and Hydrogeological Investigations
Geotechnical, hydrogeological and contamination investigations are required in order to obtain information on the groundwater levels, groundwater quality and the permeability of the sands.
Initially the groundwater level and possible fluctuations below the site must be confirmed using the installed monitoring well
While Additional Geotechnical and Hydrogeological Investigations are intimated to be required after the DA is approved, it is considered circumspect, in view of the fact that the site is located within a marine basin, that such reports be required prior to any DA approval. Forced change in groundwater flow will induce the flow to go elsewhere. This can lead to significant problems for other parts of the area.
CONCLUSION
For over 100 years Australia Post has been an integral part of our Australian community
In his Submission - Australia Post Licensed Post Office Model on November 25, 2013 to Committee Secretary Senate Standing Committees on Environment and Communications PO Box 6100 Parliament House Canberra ACT 2600 and by email to: [email protected], Stephen Giles summarised the importance of our Post Offices:
Australia Post is an iconic and trusted brand with an unrivalled business network. For more than 100 years Australia Post has been an integral part of our Australian community, facilitating communication and ensuring that important services are provided to all. The efficiency and accuracy of delivery that the Australia Post network achieves is globally acknowledged, and rendered even more remarkable given Australia’s geographic and logistical challenges and our relatively small population base. The LPO network is vitally important to the Australian postal system, providing the customer interface and community involvement that has made Australia Post part of the fabric of the Australian community.
https://www.aph.gov.au/DocumentStore
With the above in mind, and as the functioning Bondi Beach Post Office is listed as a Heritage Item in the Waverley LEP 2012 and is located in a Heritage Conservation Area, these reasons alone should be enough to guarantee its protection.
The opinions of Urbis acting for the proponent are not a solid basis for dismissing the architectural, aesthetic, and socially significant heritage qualities of the Bondi Beach Post Office. They are not a reason to allow the demolition and demise of the Bondi Beach Post Office.
Additional geotechnical and hydrogeological investigation required
The Geotechnical Report states that additional geotechnical and hydrogeological investigation is required. While this is intimated to be required after the DA is approved, it is considered circumspect, in view of the fact that the site is located within a marine basin, that such reports be required prior to any DA approval. Forced change in groundwater flow will induce the flow to go elsewhere. This can lead to significant problems for other parts of the area.
DA-4758/2017 is not a clear statement of the intentions of the applicant.
It is based on opinions rather than facts.
It will rob the residents of an important historically relevant focal space and resource.
It will not enhance Hall St but will detract from its community atmosphere and function as a Town Centre.
We submit that DA-4758/2017 be disallowed.
Lenore Kulakauskas
Convenor Bondi Beach Precinct (on behalf of Bondi and Bondi Beach Precincts)
7 December 2017