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Ordinary Meeting of Council 17 November 2021 5.5 PROPOSED CLOSURE OF A PEDESTRIAN ACCESS WAY (PAW) BETWEEN JACANA PARADE AND LARKSPUR LANE, BALLAJURA Ward: (Whiteman Ward) (Asset Management) Disclosure of Interest: Nil Authorised Officer: (Executive Manager Operations) KEY ISSUES An application requesting the permanent closure of a Pedestrian Access Way (PAW) located between Jacana Parade and Larkspur Lane, Ballajura, comprising Lot 155 Jacana Parade, has been received from the four adjoining landowners. The landowners have proposed that the PAW be closed and the land amalgamated into three of the four adjoining properties. The application states the main reason for requesting closure is anti-social behaviour; including burglaries, vandalism, littering, noise nuisance, and property damage to adjoining dwellings and/or fences. The City is responsible for the care, control and management of PAWs, however, PAWs are owned by the State of WA and administered by the Department of Planning, Lands and Heritage which determines the ultimate closure and sale of the land. Closure of a PAW cannot proceed without Council's support. The proposed PAW closure has been advertised in accordance with the Western Australian Planning Commission Guidelines for PAW closures. At the end of the submission period 28 submissions were received; 8 objections, 12 in support, and 8 neutral to the proposal. Most submitters in support of the closure advised that the PAW contributes to anti-social behaviour. Submissions objecting to the PAW closure were primarily concerned with increased walking distances to nearby parks, schools and community infrastructure that would result from the closure of the PAW. All costs associated with a PAW closure are to be borne by the purchasing applicants. It is recommended that Council does not support the closure of the PAW between Jacana Parade and Larkspur Lane, Ballajura, being Lot 155 Jacana Parade. BACKGROUND An application requesting the permanent closure of a Pedestrian Access Way (PAW) located between Jacana Parade and Larkspur Lane, Ballajura, comprising Lot 155 Jacana Parade, has been received from the four adjoining landowners. The attached location plan identifies the PAW location and the four adjoining properties.
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Proposed Closure of a Pedestrian Access Way (PAW) between ...

Feb 06, 2022

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Page 1: Proposed Closure of a Pedestrian Access Way (PAW) between ...

Ordinary Meeting of Council 17 November 2021

5.5 PROPOSED CLOSURE OF A PEDESTRIAN ACCESS WAY (PAW) BETWEEN JACANA PARADE AND LARKSPUR LANE, BALLAJURA

Ward: (Whiteman Ward) (Asset Management)

Disclosure of Interest: Nil

Authorised Officer: (Executive Manager Operations)

KEY ISSUES

• An application requesting the permanent closure of a Pedestrian Access Way (PAW) located between Jacana Parade and Larkspur Lane, Ballajura, comprising Lot 155 Jacana Parade, has been received from the four adjoining landowners. The landowners have proposed that the PAW be closed and the land amalgamated into three of the four adjoining properties.

• The application states the main reason for requesting closure is anti-social behaviour; including burglaries, vandalism, littering, noise nuisance, and property damage to adjoining dwellings and/or fences.

• The City is responsible for the care, control and management of PAWs, however, PAWs are owned by the State of WA and administered by the Department of Planning, Lands and Heritage which determines the ultimate closure and sale of the land. Closure of a PAW cannot proceed without Council's support.

• The proposed PAW closure has been advertised in accordance with the Western Australian Planning Commission Guidelines for PAW closures. At the end of the submission period 28 submissions were received; 8 objections, 12 in support, and 8 neutral to the proposal.

• Most submitters in support of the closure advised that the PAW contributes to anti-social behaviour. Submissions objecting to the PAW closure were primarily concerned with increased walking distances to nearby parks, schools and community infrastructure that would result from the closure of the PAW.

• All costs associated with a PAW closure are to be borne by the purchasing applicants.

It is recommended that Council does not support the closure of the PAW between Jacana Parade and Larkspur Lane, Ballajura, being Lot 155 Jacana Parade.

BACKGROUND

An application requesting the permanent closure of a Pedestrian Access Way (PAW) located between Jacana Parade and Larkspur Lane, Ballajura, comprising Lot 155 Jacana Parade, has been received from the four adjoining landowners. The attached location plan identifies the PAW location and the four adjoining properties.

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Ordinary Meeting of Council 17 November 2021

The application states the main reason for requesting closure of the PAW is anti-social behaviour; including burglaries, graffiti, noise nuisance, altercations, damage to adjoining dwellings/fences and littering.

The City is responsible for the care, control and management of PAWs located in its jurisdiction. However, PAWs are owned by the State of WA and administered by the Department of Planning, Lands and Heritage (DPLH) which determines the ultimate closure and sale of the PAW land. Closure of the PAW cannot proceed without Council's support.

The Western Australian Planning Commission's (WAPC) Procedures for the Closure of The Pedestrian Access Ways Planning Guideline (October 2009) provides a process for the assessment of PAW's considered for closure.

Should closure be supported by Council, the matter will be referred to DPLH for its consideration. Should DPLH approve the closure, it will arrange disposal of the PAW into the purchasing adjoining owners' land, ensuring all conditions are met.

The four adjoining landowners have proposed the land comprising the PAW be divided and amalgamated into three of the four adjoining properties, if approved. The landowners acquiring the PAW land have confirmed that they will meet all of the costs associated with the closure. The exact division of land between the properties will be subject to advice from the service providers with assets located in the PAW.

Service providers with assets located within the subject PAW have advised the City of the costs required to modify, relocate or otherwise make provision for the affected service infrastructure as part of the PAW closure. The adjoining landowners have been made aware of these costs.

DETAILS

The proposed PAW closure has been advertised in accordance with the Western Australian Planning Commission Guidelines for PAW closures.

At the end of the submission period 28 submissions were received consisting of:

• 8 objections - residents

• 12 in support - residents (includes submissions from three of the applicant landowners)

• 8 neutral - six utility companies and two government organisations.

A summary of the submissions is attached to this report. The following information outlines the feedback received during consultation:

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Ordinary Meeting of Council 17 November 2021

Anti-Social Behaviour and Safety

Nine submissions in support of the closure outlined issues with anti-social behaviour and crime occurring in and around the PAW including:

• Burglary of an adjacent property

• Illegal motorbike access

• Vandalism including graffiti, littering, abandoned shopping trolleys and damage to fences

• Fighting

Residents have noted that the implications of the anti-social behaviour in the PAW has impacted their health, safety and perception of security.

The City has a record of one graffiti removal request in 2020. The City has not received any rubbish / litter removal requests or reports of anti-social behaviour in the last five years. Maintenance inspections are undertaken by City staff on City managed PAW's every four to six weeks. High levels of vandalism or associated anti-social behaviour have not been reported at this location.

Ballajura Local Police Station have advised of a number of recent call outs in the vicinity, however these have not been specifically related to the PAW.

The PAW is approximately 70m long, with street lighting within 5m of the Larkspur Lane entrance, and 25m of the Jacana Parade entrance. The City has assessed the subject PAW against the WAPC risk criteria for designing out crime in PAWs. The subject PAW scored 10 out of 14, indicating that from a design perspective the PAW rated highly in the 'designing out crime in PAWs' category. This identifies that the City has limited further design and planning options available in which to undertake any other works to reduce the effect of crime in the PAW.

Proposed Alternative Measures for the PAW

Several residents objecting to the closure requested that alternative measures be employed to mitigate the anti-social behaviour rather than closing the PAW; including CCTV, signage, higher fences or police involvement. As City records report only 1 recorded incident for the PAW in the last 5 years, CCTV is unlikely to be deployed at this location. Signage is unlikely to have any impact. Higher fences would be a matter for the adjoining landowners to consider and fund. Planning approval is required for the installation of fences higher than 1.8 metres, for fencing that borders a street boundary (PAWs are classed as a street boundary).

Noise nuisance

One resident described the noise nuisance from both PAW users and the dogs in adjoining properties barking at users of the PAW. One adjoining landowner similarly described how their dogs bark in response to activity in the PAW, which had generated complaints from their neighbours.

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Ordinary Meeting of Council 17 November 2021

Reduction in Access to Facilities

Eight objections to the proposal were received. The main reasons for the objections were restricted access to local amenities and the increase in walking distances that would result if the PAW were closed. In particular, increased walking distances to access Jacana Park, Kingfisher Oval, Ballajura Shopping Centre, Ballajura Public Library, Ballajura Primary School, Ballajura Community College and bus stops along Pelican Parade. The attached 'Walkable Catchments Analysis Map' identifies the properties that would be impacted by the closure of the PAW and their relationship to the facilities outlined above.

City officers have reviewed the accessibility to the above mentioned locations. Generally the maximum increased walking distance to most key locations is approximately 120m. However, some residents along Larkspur Lane would have an additional 445m walking distance to access Jacana Park, if the PAW were to be closed.

Neighbourhood walkability and convenience is often compromised when PAWs are closed. However, for the subject PAW most locations have alternative access routes which do not represent a significant increase in the distance walked to a specific location. The only location that is adversely affected by an increase in walking distance is Jacana Park, which is the only public open space in the vicinity. Jacana Park has a children's playground and is used by local residents for dog walking and other recreational activities.

Location of Services

The neutral submissions received advised of service infrastructure located in the PAW. The Water Corporation noted that a DN100 reticulated water pipe is located within the PAW. They have confirmed that the pipe can be removed (at a cost) without affecting water supply in the area. Western Power have advised that an underground power cable is located within the PAW, which requires an easement for ongoing protection and access.

Additional infrastructure costs associated with the closure of the PAW are to be borne by the purchasing adjoining landowners.

Whilst the supporting submissions outlined anti-social behaviour occurring in the PAW, there is little supporting evidence for this in terms of City records or Police reports. In the absence of this data it is difficult to justify closing the PAW. In addition, the PAW provides ease of neighbourhood access for local residents, in particular to Jacana Park.

Options:

City staff consider the following options available for the proposal:

Option 1: Support the closure of the Pedestrian Access Way, being Lot 155 Jacana Parade, Ballajura, and request the Department of Planning, Lands and Heritage to consider closing the PAW.

This is not the recommended option.

Option 2: Not support the closure of the Pedestrian Access Way, being Lot 155 Jacana Parade, Ballajura, and advise the applicants accordingly.

This is the recommended option given the importance of the PAW for access to nearby parks and facilities, and the lack of supporting evidence regarding the occurrence of anti-social behaviour in the PAW.

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Ordinary Meeting of Council 17 November 2021

CONSULTATION

Advertising has been undertaken in accordance with the relevant legislation. Government agencies, emergency services, utility service providers and 85 residents received a letter outlining the proposal, a plan identifying the proposed closure area and a comments form. In addition to the letters, a notice of the proposed closure was published in a local newspaper, placed at all libraries and at the City's Administration Centre and uploaded onto the City's website.

The City received a total of 28 submissions at the close of the submission period.

ATTACHMENTS

• Location Plan

• Summary of Submissions

• Walkable Catchment Analysis Map

STRATEGIC IMPLICATIONS

An objective of the City's Strategic Community Plan is to facilitate improvement of community safety.

STATUTORY IMPLICATIONS

PAW closures are governed by the Western Australian Planning Commission's 'Procedure for the Closure of Pedestrian Access Ways Planning Guidelines (October 2009)'.

PAW closures are administered by the Department of Planning, Lands and Heritage, pursuant to section 87 of the Land Administration Act 1997, following resolution by Council to support the closure.

FINANCIAL IMPLICATIONS

All costs associated with the proposed closure will be borne by 3 of the 4 adjoining landowners.

VOTING REQUIREMENTS

Simple majority

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Ordinary Meeting of Council 17 November 2021

RECOMMENDATION

That the Council resolve to:

1) Not support the closure of the Pedestrian Access Way, being Lot 155 Jacana Parade, Ballajura.

2) Advise the applicants and submitters accordingly.

CARRIED EN BLOC

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