Yarra Trams Route 109 – Proposed Infrastructure Remodelling in Collins Street

PLANNING AND ENVIRONMENT Agenda Item 5.5 COMMITTEE REPORT COVER SHEET

1 March 2005 YARRA TRAMS ROUTE 109 – PROPOSED INFRASTRUCTURE REMODELLING IN COLLINS STREET

Division Assets & Services

Presenter Haig Poulson, Principal Engineer Traffic Engineering

Purpose

To inform the Committee on progress of the engineering design aspects of proposed improvements along the Collins Street leg of Tram Route 109 including raised platform tram stops, shelters and associated traffic management works.

Timeframe

Yarra Trams has indicated that it wishes to have 3 new stops constructed by the end of the 2004/05 financial year.

Proposal

Yarra Trams in conjunction with the Department of Infrastructure and VicRoads is proposing to install 6 new raised platform stops in Collin Street between Spring and Spencer Streets. This proposal will require the removal of 4 existing stops.

Finance

The proposed infrastructure remodelling in Collins Street will incur a loss of parking meter revenue of approximately $75,000 per annum. All costs associated with the remodelling will be as budgeted for by the State Government.

Legal

Under Clause 52.03 of the Melbourne Planning Scheme, land identified in the Schedule to the Clause may be used or developed in accordance with the specific controls contained in the incorporated document corresponding to that land. Tram Route 109 Disability Discrimination Act Compliant Platform Trams Stops dated June 2001 (gazetted on 5 July 2001) is identified in the Schedule to clause 52.03.

This effectively means that the location of all the Route 109 tram stops has been approved in accordance with the plan attached to the Incorporated Document. The Council, as the Responsible Authority, has the power to amend the plans to allow a relocation of any of the tram stops. Secondly the Incorporated Document requires plans to be submitted and endorsed by the Responsible Authority (i.e. the Council) showing the specific location, design, materials, colours, size, appearance and illumination of each of the new tram stops, this application was lodged in late January but has not yet been determined.

Sustainability

The adoption of the proposal will create a safer, faster and more accessible tram service to, within and from the city, which in turn should attract more visitors to the city to use public transport.

Recommendation

That the Planning and Environment Committee endorse the State Government’s proposal to improve public transport in and around the City and instruct the Administration to work with Yarra Trams to reduce the impact of the on-street infrastructure, including advertising.

Attachments: 1. Tram Stop Placement and Configuration Design Considerations 2. Melbourne Planning Scheme 2

PLANNING AND ENVIRONMENT Agenda Item 5.5 COMMITTEE REPORT

1 March 2005 YARRA TRAMS ROUTE 109 – PROPOSED INFRASTRUCTURE REMODELLING IN COLLINS STREET

Division Assets & Services

Presenter Haig Poulson, Principal Engineer Traffic Engineering

Purpose

1. To inform the Committee on progress of the engineering design aspects of improvements along the Collins Street leg of Tram Route 109, including rationale for the current proposed tram stop location, the facilities provided at the stops and the impact on traffic and parking.

Background

2. Yarra Trams has developed a proposal for relocation and improvement of tram stops in Collins Street as part of a broader initiative to develop route 109 as an example of “best practice” management of Melbourne’s tram services. Yarra Trams’ overall intention is to provide existing customers with a high service standard and encourage central city area visitors to travel by public transport rather than by private car. In addition, Yarra Trams will also improve levels of access to its service in accordance with the Disability and Discrimination Act 1992 (DDA).

3. Yarra Trams’ obligations under the franchise agreement with the State Government to operate the tram service within the metropolitan area, is to enhance tram stops and, given the high passenger numbers along Route 109 and Collins Street in particular, it is concentrating its efforts on this route.

4. Tram route 109 serves the eastern suburbs extending to Whitehorse Road, Box Hill and travels through the CBD ultimately connecting to Station Pier in Port Melbourne. Within the City of Melbourne it includes Victoria Parade from Hoddle Street to Macarthur Street, Macarthur Street, Collins Street, Spencer Street and Clarendon Street from where it connects to the Normanby Road light rail line which leads to the Port Phillip Bay waterfront at Station Pier.

5. Yarra Trams have already extended Route 109 along Whitehorse Road by approximately 2km between Union Road and Station Street, Box Hill. This extension also includes the installation of 5 new raised platform stops and 2 pairs of kerb access stops. Yarra Trams have installed raised platform stops in Victoria Street Abbotsford adjacent to the Victoria Gardens retail and entertainment development.

6. Closer to the CBD, Yarra Trams has installed a raised platform stop opposite St Vincent’s hospital in Victoria Parade which is known as St Vincent’s Plaza. Yarra Trams is also proposing to install 4 new platform stops along Victoria Parade between St Vincent’s Plaza and Hoddle Street. These plans have already been endorsed by the City of Melbourne.

7. Within the CBD, these new raised stops have also been installed in Collins Street at Spring Street, Swanston Street and mid block between King Street and Spencer Street.

8. These stops have been previously approved by Council in 2001, with in principle support also given to the need to improve tram stops along Route 109, including the remainder of Collins Street

Issues

9. The Director Public Transport has the power to install, remove or relocate stopping places and associated facilities for passenger services on any public road, under Section 9F of the Transport Act 1983 and Section 63 of the Rail Corporation Act 1996.

10. Council has the power to approve the associated traffic management measures necessary to safety to install the new stops in accordance with the Road Safety Act 1986, subject to VicRoads approval of any major traffic control issues not delegated to Council.

11. Yarra Trams’ proposal is in line with the Melbourne Planning Scheme Incorporated Document, with the exception that the new stop near William Street is shown on the approved plans on the west side of William Street whereas the current proposal is for the stop to be located on the east side of William Street (refer Attachment 2). As indicated earlier, the Council is the Responsible Authority and pursuant to Condition 1 and 2 of the Incorporated Document, has the authority to approve that relocation. If the Council refuses to give that approval the applicant, Yarra Trams, has the right of appeal to the Victorian Civil and Administrative Tribunal.

12. In developing the Collins Street tram proposal Yarra Trams had to consider a number of elements, including location and configuration of tram stops, planning scheme requirements, relevant powers under the Transport Act 1983, Road Safety Act 1986 and Rail Corporation Act 1996, DDA requirements and the company’s franchise arrangements with the State Government.

13. In developing the Collins Street tram stop locations, Yarra Trams considered a range of platform configuration and placements which included:

13.1. central islands between tracks;

13.2. approach side stops;

13.3. departure side stops;

13.4. parallel stops either mid block (for example existing King to Spencer), or a combination of a departure side and an approach side stop (for example Collins Street at Spring Street and Collins Street and Swanston Street); and

13.5. kerbside stops.

14. In developing the stop proposals Yarra Trams also had to consider the impact these stops had on:

14.1. road safety;

14.2. motor vehicle circulation and access;

14.3. loss of valuable on-street parking and parking meter revenue;

14.4. Disability and Discrimination Act requirements for example gradient of road pavement;

14.5. passenger walking distances;

14.6. passenger amenity;

14.7. tram travel time improvements;

14.8. access to abutting laneways; and

14.9. impact on bicyclists.

15. Following this analysis Yarra Trams has formulated the current proposal (refer to Appendix A for detailed discussion).

16. Key features of the proposed works in Collins Street include:

16.1. a reduction in the number of tram stops from nine to six in each direction along Collins Street;

16.1.1. removal of tram stops from Collins Street’s intersections with King Street, Queen Street, Russell Street and Exhibition Street; and

16.1.2. installa tion of new raised platform stops at William Street, Elizabeth and mid block between Russell Street and Exhibition Street;

16.2. determination of new stop locations on the basis of the following considerations:

16.2.1. connection to intersecting north-south tram routes (for example William Street and Elizabeth Street);

16.2.2. passenger demand and the origin and destination of pedestrian movements;

16.2.3. physical constraints such as steep gradients or abutting laneways;

16.2.4. limiting impact of on street parking stocks; and

16.2.5. limiting impact on motor vehicle access and circulation (i.e. maintaining capacity at significant intersections with north south streets such as Spencer Street, King Street, Russell Street and Exhibition Street).

17. New tram stops will generally include the following:

17.1. raised platform tram stops to facilitate wheelchair access onto trams, as well as for the elderly and people with prams;

17.2. seating;

17.3. information panels;

17.4. ticketing machine;

17.5. interactive customer touch screen information screens; and

17.6. passenger shelters.

18. The following areas will be impacted by the installation of the new stops:

Passenger Safety

18.1. The new 3.1 metre wide tram stops will provide a much safer environment than the existing 1.1 metre wide stops, and improve physical separation between passenger and moving motor vehicles and trams;

Passenger Shelter/Comfort/Information

18.2. the wider stops allow the installation of shelters, seating and real time information;

Improved Travel Times

18.3. the wider stops will reduce passenger boarding times at stops as tram passengers will not have to push past other waiting passengers, or have to step up onto trams from street level;

18.4. a travel time saving of three minutes over the full length of Collins Street is estimated; and

18.5. the savings in travel times delivers the potential to increase the level of services along Route 109 or redeploy trams to other routes;

Increased Walking Distance to Tram Stops

18.6. analysis of passenger origin and destination data indicates that while the spacing of tram stops will increase from 200 metres to approximately 290 metres, the average additional distance passengers will have to walk is only about 35 metres. This is due to the new stop locations maintaining direct access to the north-south tram routes and the fact that many Collins Street tram users are accessing Collins Street destinations, not side streets;

Parking

18.7. the installation of longer raised platforms and a mid block stop between Russell and Exhibition Streets results in a net loss of 76 metres of kerbside parking space, or approximately 12/13 normal parking spaces;

18.8. the greatest loss of parking space in any one block is experienced between Russell and Exhibition Streets where 135 metres, or 22-23 spaces, or 45% of parking is lost. Other blocks losing parking spaces include Elizabeth to Queen Streets where 86 metres, or 14 spaces, are lost;

18.9. blocks such as King to William Streets and Swanston to Russell Streets experience increases of 60 metres (10 spaces) and 30 metres (5 spaces) of parking respectively; and

18.10. should the overall loss of 12/13 spaces be metered parking spaces then Council will lose approximately $75,000 revenue per annum.

Motor Vehicle Access and Circulation

18.11. the proposed stop locations have been designed to maintain two stand-up traffic lanes at major intersections along Collins Street where safety zones are to be removed. This will ensure that there are no capacity issues arising from the construction of hook turns and left turns delaying east or west bound traffic. These streets include the major north south routes through the central business district namely Spencer Street, King Street, Russell Street and Exhibition Street;

18.12. where the new tram stops are to be located at intersections such as William Street and Elizabeth Street, it is only possible to maintain one traffic lane past the stops, due to their 3.1 metre width. Where this limitation occurs on the approach side of the intersection such as the eastbound approach to Elizabeth Street and the westbound approach to William Street, it is proposed to implement peak hour left turn bans to prevent left turners, which have to give way to pedestrians, blocking either through movements or hook right turn movements; and

18.13. the design of the new platforms has taken into consideration the access requirements of adjoining properties and laneways;

Shelter Design Impact on Aesthetics and Visibility of Abutting Business/Retail Outlets

18.14. the use of advertising on existing tram stop shelter panels has raised concerns about the impact these new stops will have on the ‘line of sight’ to businesses and retail outlets operating within the vicinity of the new stop locations. Reducing or precluding the amount of advertising on the shelter panels as is proposed in the Bourke Street Mall would assist in reducing the visual impact of the stops;

Impact on Bicyclists

18.15. by limiting the stop mid block to 3.1 meters, a 800mm to 1 metre wide informal bicycle lane can be maintained past the new stops. While not meeting formal traffic design standards, the provision of such facilities at existing upgraded stops at Swanston Street and Spring Street have been well used by cyclists; and

Emergency Vehicles

18.16. emergency Service operators will be consulted on the proposals, however given their acceptance of the Spring Street, Swanston Street and Spencer Street stops, it is unlikely that any objection will be forthcoming.

Relation to Council Policy

19. The upgrading of tram stops along Collins Street is in accordance with Strategic Direction 1.5 of City Plan 2010, to ensure a sustainable and highly integrated transport system services the city needs and links key assets, while facilitating accessible transport options for people with a disability.

Consultation

20. Council is coordinating the public consultation effort. A public information meeting has been scheduled for 24 February 2005 in the Town Hall. A letter with a plan of the proposed works has been delivered to all owners and occupiers of Collins Street.

Government Relations

21. The alterations to the operation of intersections via the introduction of left turn bans or reduced traffic lanes requires that Yarra Trams obtain VicRoads approval under the Road Safety (Road Rules) Regulations 1999.

22. The Department of Infrastructure and Vic Roads have been liaising with Councils’ administration on this matter.

Recommendation

23. That the Planning and Environment Committee endorse the State Government’s proposal to improve public transport in and around the City and instruct the Administration to work with Yarra Trams to reduce the impact of the on-street infrastructure, including advertising.

7 Attachment 1 Agenda Item 5.5 Planning and Environment Committee 1 March 2005 Tram Stop Placement and Configuration Design Considerations

1. The development of the existing stops and the proposed tram stop arrangements have evolved after consideration of a number of issues, namely:

1.1. Road Safety;

1.2. Motor vehicle circulation and access;

1.3. Loss of valuable on-street parking and parking meter revenue;

1.4. Disability and Discrimination Act requirements for example gradient of road pavement;

1.5. Passenger walking distances;

1.6. Passenger amenity;

1.7. Tram Travel Time improvements;

1.8. Access to abutting laneways; and

1.9. Impact on bicyclists.

2. A number of models and locations for the raised platform stops were developed and evaluated considering the above criteria.

3. Yarra Trams considered a range of platform configurations and placements which included:

3.1. Central islands between tracks

3.2. Approach side stops

3.3. Departure side stops

3.4. Parallel stops either mid block (e.g. existing King to Spencer), or a combination of a departure side and an approach side stop (e.g. Collins Street at Spring Street and Collins Street and Swanston Street)

3.5. Kerbside stops.

4. Issues associated with each of these options are noted below:

Central Island Stops

4.1. Yarra Trams are only supportive of such treatments at tram termini where tram drivers are less likely to open the doors on the traffic side of the tram. Therefore this type was considered inappropriate for the CBD. A central island tram stop requires less road width than 2 side platforms which would have benefited bicyclists.

Approach Side Stops

4.2. The installation of a 3 metre wide platform in the CBD on the approach side of an intersection eliminates one traffic lane. Given the importance of maintaining capacity at intersections, the retention of two traffic lanes, one catering for left and right (hook) turn movements, and one for through traffic, is usually necessary to avoid congestion and local circulation difficulties. Consequently the introduction of approach side platforms requires either full time right turn (as exists in Spring Street) or left turn bans, or peak hour left turn bans as proposed at William and Elizabeth Streets

4.3. Approach side stops minimise on street parking losses.

4.4. Approach side stops maintain convenient pedestrian access to the platforms via signalised intersections to either Collins Street or the north south intersecting street. Given that VicRoads advise that it is not possible to introduce ‘active’ tram priority traffic signal measures in the CBD (discussed below) trams arriving at an intersection on a green signal are delayed by the need to load and unload passengers. Following loading the tram is often confronted by a red signal at the completion of loading. Conversely trams arriving on the red signal often experience no time delay as they will be facing a green signal at the end of the loading phase.

4.5. Due to limited carriageway width between the platform and kerb approach side stops only provide an opportunity for the provision of an informal bicycle lane past the stop. Approach side stops do not provide opportunities for a formal bicycle lane.

Departure Side Stops

4.6. The installation of 3 metre wide departure side stops retains traffic capacity and circulation, but has a slightly greater impact on loss of kerbside parking.

4.7. A departure side stop provides the same level of access to disabled and able bodied pedestrians via a signalised intersection to both Collins Street and the north south intersecting streets.

4.8. Trams approaching a departure are delayed when they face a red signal at the intersection and then load/unload after travelling through the intersection. However, a departure side stop improves travel time when a tram arrives at the intersection on a green signal and proceeds through the intersection to load/unload without any further traffic signal delay. This is the opposite to the approach side stop.

4.9. A departure side would also only provide an opportunity to install an informal bicycle lane past the stop.

Midblock Stops

4.10. The installation of a midblock stop usually has little impact on traffic capacity as long as the traffic queuing from the downstream intersection does not disrupt vehicle access along the solitary lane past the midblock stop to the extent that the queue denies access to either of the ‘stand up’ lanes at the intersection.

4.11. Midblock stops have a significant impact on parking losses due to the need to provide both approach and departure side no stopping areas to allow vehicles to merge past the platform and adjacent parking.

Kerbside Tram Stops

4.12. The installation of kerbside stops in the CBD was not considered to be a feasible option given concerns about road safety issues with potential conflict points between the trams and motor vehicles/bicycles at the merge locations. Significant loss of parking would also be experienced. There is also the issue of reduced accessibility for pedestrians from the need to raise footpath kerb heights from 125mm to 270mm.

5. Other considerations used to evaluate stop locations included:

5.1. access to large transport interchanges,

5.2. access to north-south tram streets,

5.3. passenger destinations,

5.4. gradient of the road pavement,

5.5. walking distance and

5.6. traffic signal operations.

6. Issues associated with these considerations are noted below:

Transport Interchanges

6.1. Yarra Trams have located two of the new platform stops at Spring Street adjacent to Parliament Railway Station and approximately 50 metes east of Spencer Street near the redeveloped Spencer Street Railway Station.

6.2. The third stop is located adjacent to one of the busiest tram interchanges in the CBD, namely Swanston Street.

6.3. Yarra Trams’ surveys conducted in 2001 indicated that 40% of Collins Street tram passengers at Spring Street will interchange with other public transport services. The percentage of Collins Street tram passengers interchanging with other public transport services at Swanston Street and Spencer Street were 40% and 60% respectively.

North South Tram Routes

6.4. The current Yarra Trams proposal maintains direct Collins Street tram passenger access to tram routes along William Street and Elizabeth Streets, in addition to the existing interchange points at Spring Street, Swanston Street and Spencer Street, all of which have north south tram routes.

Road Pavement Gradient

6.5. The maximum gradient of ramps allowed under the DDA requirements is 1:14. Yarra Trams have advised that it is therefore impossible to construct raised platforms on the steeper sections of Collins Street, west of Russell Street opposite Scots Church, and east of Swanston opposite the Town Hall. Yarra Trams also advised there could also be problems providing a DDA compliant stop east of King Street opposite the Rialto.

Agenda Item 5.5 Planning and Environment Committee 1 March 2005

FINANCE ATTACHMENT

YARRA TRAMS ROUTE 109 – PROPOSED INFRASTRUCTURE REMODELLING IN COLLINS STREET

Joe Groher Manager Finance Service Agenda Item 5.5 Planning and Environment Committee 1 March 2005

LEGAL ATTACHMENT

YARRA TRAMS ROUTE 109 – PROPOSED INFRASTRUCTURE REMODELLING IN COLLINS STREET

Transport Act 1983

Section 9F of the Transport Act 1983 provides that the Director of Public Transport may:

‘…remove or re-locate stopping places and associated facilities for passenger services on any public road within the meaning of the Road Management Act 2004 on or adjacent to which there is tram infrastructure that is operated or maintained by the Director on behalf of the Crown.’

Planning and Environment Act 1987

Under Clause 52.03 of the Melbourne Planning Scheme land identified in the Schedule to the clause may be used or development in accordance with the specific controls contained in the incorporated document corresponding to that land.

The relevant Incorporated Document is entitled ‘Tram Route 109 Disability Discrimination Act Compliant Platform Tram Stops’ (‘Incorporated Document’). This document is incorporated into the Melbourne Planning Scheme pursuant to section 6(2)(j) of the Planning and Environment Act 1987.

The Incorporated Document allows the Yarra Trams to construct Disability Discrimination Act 1992 compliant tram stops and ancillary facilities along road reservations in Collins Street and other streets along the Tram Route 109. Accordingly a specific planning permit application is not required if the relevant plans are submitted and endorsed by the responsible authority. In this instance the plans have been endorsed by Council as the Responsible Authority in accordance with the Incorporated Document.

Instrument of Delegation

On 16 December 2004 the Council resolved to delegate to the Planning and Environment Committee the power, duties and functions directly relating or ancillary to Transport planning, Traffic and Parking.

Alison Lyon Manager Legal & Governance