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TABLE OF CONTENTS

FOREWORD...... 3

1. MELBOURNE TRANSPORT EVOLUTION AND PROJECTIONS ...... 5

1.1 CITY AND METROPOLITAN GROWTH PROJECTIONS...... 5 1.2. CURRENT DEMAND FOR ACCESS...... 6 1.3 COMMUNITY CONSULTATION...... 9 1.4 VOICES FOR ACTION...... 12

2. STRATEGY CONTEXT ...... 16

2.1 FEDERAL STRATEGIES, POLICIES AND COMMITTEES...... 16 2.2 STATE POLICY CONTEXT ...... 21 2.3 NEIGHBOURING MUNICIPALITIES...... 27 2.4 CITY OF MELBOURNE POLICIES...... 32

3. THE CITY WE WANT...... 33

3.1 VISION ...... 33 3.2 AIMS...... 33 3.3 GUIDING PRINCIPALS...... 34 3.4 AREAS FOR ACTION...... 34 3.5 TOOLS...... 35 3.6 STRATEGIES...... 35

4. FREIGHT AND COMMERCIAL TRAVEL ...... 36

4.1 TRENDS IN FREIGHT AND COMMERCIAL TRAVEL ISSUES...... 36 4.2 FREIGHT AND COMMERCIAL TRAVEL ISSUES IN THE CITY OF MELBOURNE ...... 38 4.4 SUMMARY OF ISSUES...... 46

5. GETTING TO THE CITY...... 49

5.1 TRENDS IN GETTING TO THE CITY...... 49 5.2 METROPOLITAN PUBLIC TRANSPORT ISSUES ...... 52 5.3 METROPOLITAN MOTORCYCLE ACCESS ISSUES ...... 61 5.4 METROPOLITAN VEHICLE ACCESS ISSUES...... 62 5.5 INTERSTATE AND REGIONAL ISSUES...... 74 5.6 ACCESSING THE CITY FOR MAJOR EVENTS...... 78

6. GETTING AROUND THE CITY...... 80

6.1 CENTRAL CITY ISSUES ...... 80 6.2 LOCAL AREA ISSUES ...... 87 6.3 ROAD CLASSIFICATIONS/ HIERARCHY...... 92

7. LAND USE AND TRANSPORT...... 95

7.1 ISSUES...... 95

8. TRANSPORT TOOLS AND STRATEGIES ...... 99

URBAN PLANNING AND DESIGN STRATEGIES...... 99 PARKING AND TRAFFIC MANAGEMENT STRATEGIES...... 100

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ACCESS AND ADVOCACY FOR PUBLIC TRANSPORT...... 101

GLOSSARY...... 103 Page 7 of 251 DRAFT CITY OF MELBOURNE TRANSPORT STRATEGY, FEBRUARY 2006

Foreword

As the capital city of Victoria and the primary business and activity destination of the state, the City of Melbourne is heavily dependent on Melbourne’s transport network. This strategy represents a change in focus for Council from its last transport strategy. In seeking to provide for the growth of the City, Council’s Transport Strategy 1997 - Moving Melbourne into the Next Century focused on improving access for all transport modes. Council now recognises that the growth of the Central City and metropolitan Melbourne requires a focus on mass transit, walking, cycling and freight movement. Melbourne’s metropolitan transport network is constrained and congested with heavy peak hour traffic. Trains and trams are overcrowded and there are limited walking and cycling options. Sustainability, including sustainable transport, is at the front of mind in the broad community. In 2005, the City of Melbourne received 640,000 visitors on an average weekday and this is expected to increase to one million by 2014. Council is taking action to address the city’s future transport needs. We are developing an integrated transport strategy to help achieve our vision of a thriving and sustainable City. We have consulted with stakeholders, residents, city businesses and experts to develop this draft transport strategy which is available for public comment. It addresses transport networks that facilitate:

· business attraction and retention;

· sustainable, equitable and convenient personal access; and

· leadership in sustainability. Council is active in many facets of transport, although to-date our activities have usually been on a short to medium term horizon, and directed at a specific project, street or precinct. These can involve quite difficult decisions about how the road space is shared between competing interests. However, such site specific decisions may not always take into account broader network considerations of desirable sustainable travel patterns. This transport strategy looks to the longer term.

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Melbourne has a strong growth agenda, which has been borne out by recent city expansion and is a central feature of the State Government policy, Melbourne 2030: Planning for Sustainable Growth. Nowhere will this intensification of activity and consequent transport demand be greater than the City of Melbourne, so this transport strategy is timely in preparing the City for future demands on the transport networks. People interested in the direction of Melbourne’s future transport are invited to comment on this draft strategy so that the final Melbourne Transport Strategy will be a reflection of community needs and aspirations for a sustainable transport network.

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1. Melbourne Transport Evolution and Projections

1.1 City and Metropolitan Growth Projections

Melbourne 2030, the State Government’s blueprint for metropolitan growth, has projected that there will be a million more people living in metropolitan Melbourne by 2030. The main growth area will be inner Melbourne and the western and northern suburbs.

25%

20%

15%

21% 10% 17%

12% 5% 8% 7% 4%

0% Inner Eastern Southern Northern Western Regional Melb. Melb. Melb. Melb. Melb. Victoria

Figure 1 - Forecast Changes in Population (2005-2015)

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Figure 2 - Projected Metropolitan Growth Areas

1.2. Current demand for Access

The State Government’s Metropolitan Transport Plan (2004) identified that Melbourne’s road network is seriously congested. A long stay parking levy, was introduced on 1 January 2006 targeting city commuters as a way of discouraging people from using cars to get to work. The metropolitan transport network is experiencing capacity constraints. At peak times much of the arterial road network operates under congested conditions and the rail network is at capacity during peak hours, with little room for expansion. Likewise, the tram network is crowded at peak times with its efficient operation hampered by road congestion. On an average weekday, approximately 640,000 people visit Melbourne and this is expected to increase to more than a million by 2014. Most of these visits (currently 480,000) are from metropolitan Melbourne. Only mechanised modes of transport,

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such as cars, trains, trams or buses, can manage the distances travelled by most city users. Road congestion is also an issue for frieght. Freight vehicles constitute approximately 15 per cent of vehicles on the road, and are estimated to contribute around 30 per cent of road congestion, with light vehicles (predominantly cars) contributing around 70 per cent. Roadspace allocation, parking and rail investment are key areas for attention in this strategy which will pave the way forward for freight movement. Initiatives which seek to reduce peak congestion by reducing private vehicle trips assist freight movement. Clearly the city may not be able to achieve its full growth potential unless major mass transit capacity improvements are built that will provide people access to the city. This is particularly important for the longer distance transport networks, from the outer suburbs.

Residents 61,600

Regional Interstate Victoria 24,100 38,000

International Metropolitan Melbourne 40,900 480,000

Figure 3 – Source of daily visitors to the City of Melbourne

Increased mobility is, however, a two-edged sword. Every mode of transport has some measure of impact which needs to considered to ensure that our city spaces aren’t overwhelmed, ultimately detracting from the vitality and liveability that has become a hallmark of Melbourne. Private vehicles are used widely within Melbourne and there is no doubt they provide a degree of individual mobility and access second to none. They have a growing list of broader community impacts which, to some extent, are starting to eclipse the individual benefits and raise serious questions about the long term viability of our

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city. Medium term effects of greenhouse emissions, petrol prices and predicted oil shortages can no longer be ignored, nor can the calls from the health sector to build greater opportunities for physical activity into mobility networks to reduce obesity and other diseases of inactivity. The current services and functionality of Melbourne’s public transport networks vary. The rail network provides access to central Melbourne’s attractions from the suburbs and regional Victoria. The tram network specialises in short to medium trips and provides greater interaction with activities en route, most notably the lively strip shopping centres. The value of these two systems cannot be overstated. The capacity of trains and trams to move many people quickly is repeatedly demonstrated at Melbourne events illustrating the important strategic value of the fixed-rail networks that private car travel can never achieve. Melburnians show a strong preference for fixed rail transport, but buses are underutilised to supplement fixed rail services. Bus services are flexible and can be established quickly so they suit new development areas and demand changes. However, operationally they can suffer from low visibility and traffic delays. Public transport works best when it is well supported by land use decisions that build patronage and provide quality access to attractive destinations. Better integration of land use via the planning scheme and the transport networks is a clear opportunity for local governments to maximise the value of public transport for their communities. If we are to maintain and improve access to central Melbourne, choices must be made within the various transport modes to maximise the efficient movement of people and goods without affecting the value of the unique attractions and experiences the city has to offer. The most appropriate transport forms will be those that best serve but do not detract from the city functions, as well as being consistent with the City’s overarching sustainability commitments. To achieve this, this strategy’s focus is to: § Move most people to the city from the suburbs and regional Victoria by fixed rail, supplemented by bus and cycling. § Move most people within short distances of the Central City by tram, foot and bike. § Focus the current supply of parking spaces to short-term parking and away from long term (daily) parking § Allocate road space for the movement of people and goods

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1.3 Community Consultation

To guide the preparation of a municipal transport strategy, the City of Melbourne established a stakeholder reference group. The Melbourne Transport Committee (MTC) comprises representatives of transport industry organisations (for membership see Appendixi[1]). In 2004 the MTC identified the key transport issues which needed addressing. These transport issues formed the basis of six of thirteen issues papers that were developed by the City of Melbourne to guide the consultation process. The MTC continues to meet regularly to help develop the transport strategy for Melbourne. From 1 July to 30 September 2005 the City of Melbourne carried out extensive consultation on the Melbourne Transport Strategy Issues Papers. During this period, residents, business and visitors to the City of Melbourne were alerted to the consultation process in a number of different ways. There was poster advertising on public transport, advertisements in metropolitan newspapers and local papers, postcards were distributed at various outlets including Metlink stores, and it was promoted on the front page of the City of Melbourne’s website. During the three-month consultation period there was a strong emphasis on engaging with the general community as well as established transport stakeholder groups. The City of Melbourne’s effort to widely consult was appreciated by many members of the general public and the result was a very high level of submissions from this group. In total, 232 submissions were received.

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Figure 4 – Submissions from organisations and individuals

Submitters were invited to read and comment on any of the thirteen Issues Paper (six of which responded to the MTC’s identified themes). Respondents filled in a submission form which closely followed the subject matter contained in the Issues Papers. Issue paper topics were: 1. Cycling 2. Economy and Transport 3. Environment and Transport 4. Freight 5. Health Safety Security and Transport 6. International Experiences 7. Land Use and Transport 8. Melbourne Road Network 9. Parking 10. Public Transport 11. Taxis 12. Travel Demand Management

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13. Walking Overwhelmingly, the most popular submission topic was Cycling, which resulted in 23% of submissions (53 out of 232). The resounding message was concerns surrounding safety. Many cyclists said they feel marginalised by what they see as the current focus on vehicle-based transport as the main users of roads. Safer connections from surrounding municipalities through the City were highlighted as important for creating a city where cycling is popularly used as a means of transport. Closely following Cycling was the issue of Public Transport, which received 20% of submissions (45 out of 232). Submitters identified problems surrounding service provision of public transport, such as poor late night services, infrequency, long travel times, poor connections, and insufficient supply of car parking at train stations in the middle to outer ring suburbs. The third most mentioned submission topic was Walking, which received 9% of submissions (18 out of 232). Many people that made submissions on this topic identified the need for a greater emphasis on walking as a transport mode because of its health and environmental benefits, community contact and the ability for people to interact with the City. Interestingly, it was the individual members of the general public who provided most of the submissions to the three most popular submission topics – Cycling, Public Transport and Walking. Although cycling is a mode gaining significant momentum only recently, the high level of interest in this topic indicates that submitters feel it is a mode that requires particular attention in transport planning for the future.

Figure 5 - Number of Submissions to Submission Topics

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1.3.1 Stakeholder Structured Discussions Various structured discussions were conducted with stakeholders to gather information for the transport strategy. This also provided the opportunity for the City of Melbourne to build stronger relationships with organisations which it needs to work with on transport matters. Focus Groups were held with: Connex (train operator); Wilson Parking; Sustainability Victoria; Victorian Transport Association; Yarra Trams; VicTrack; adjoining local governments: Cities of Yarra, Stonnington, Port Phillip, Hobsons Bay, Maribyrnong, Moonee Valley and Moreland; and Department of Sustainability and Environment. (See Appendix iifor summary of discussions)

1.4 Voices for action

The Committee for Melbourne kick-started unprecedented public debate on transport in June 2005 when it identified that congestion was costing Melbourne $4 billion per year. The Committee initially focused on Melbourne’s road and bus network together with road pricing, finding that congestion is set to increase, affecting travel times and costs, all exaggerated by the limited and lack of public transport in outer suburbs. The Committee for Melbourne attributed the current congestion levels to an underinvestment in transport (including public transport and roads) by the State Government, which would be further exacerbated by the future population projections. The Committee also identified three major projects that need to be completed by 2015 to protect Melbourne’s competitiveness and preserve the city’s lifestyle:

· extending the Eastern Freeway to the Tullamarine Freeway; · joining the Ring Road at Greensborough with the East Link project; and · upgrading the West Gate Corridor (including the option of a West Gate Bridge duplication).

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The Committee recommended that these three road projects should also include dedicated transit/bus corridors. The Committee of Melbourne, incorporating the views of transport operators, subsequently prepared a Public Transport Vision in late 2005 which made the case for short term investment in public transport. The vision provides for priority for train, tram and bus routes across metropolitan Melbourne and an initial injection of $2 billion over 5 years to achieve this. It is understood the Committee will build on this with a longer term plan.

The City of Melbourne contributed to the dialogue about Melbourne’s transport needs in August 2006 with the East West Integrated Transport Proposal (Figure 7). This proposal detailed:

· a passenger rail corridor from Doncaster linking to, Clifton Hill, Melbourne University in Parkville and North Melbourne; · an East West Rail and Road Tunnel from the Eastern Freeway to the Western Ring Road at Western Highway/Deer Park; · a new freight rail tunnel replacing the Bunbury Street rail tunnel; and · travel demand management initiatives to ensure the package works together.

To further the debate and to gain a longer term sustainable view of the metropolitan Melbourne transport needs, the City of Melbourne sought advice and guidance from three groups of prominent transport academics. The brief to these academics called for ‘tangible recommendations on major transport solutions across Metropolitan Melbourne’ (City of Melbourne, Melbourne’s Future Transport Options Consultants Brief, September 2005). The academic reviews were conducted by three ‘groups’:

· Professor Graham Currie, Chair of Public Transport, Institute of Transport Studies, Monash University. Professor Graham Currie recommended construction of an additional underground north/south rail line through the central city connecting the northern group of rail lines to the Caulfield group (south) to address capacity constraints on tram and train in the inner area. See Appendix iii for entire report.

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· Dr Paul Mees: Lecturer in Transport and Land Use Planning, Faculty of Architecture Building and Planning, University of Melbourne Dr Paul Mees discussed the importance of evidenced-based planning rather than conviction-based planning; the latter approach looks at a single project as a means of addressing a problem. The Mees report details the inherent capacity available in the rail system and identifies ways to realise this capacity. See Appendixiv for entire report.

· Professor Peter Newman: Director of the Institute for Sustainability and Technology Policy (ISTP), Murdoch University, Perth; New South Wales Sustainability Commissioner; Chair of the Sustainability Roundtable at the Department of Premier and Cabinet, Western Australia. Dr Jan Scheurer: Research Associate at the Australian Housing and Urban Research Institute (AHURI), RMIT University, Melbourne. Professor Jeff Kenworthy: Professor in Sustainable Cities, at the Institute for Sustainability and Technology Policy at Murdoch University in Western Australia. Like the Committee for Melbourne, Newman, Sheurer and Kenworthy emphasised the importance of improving the public transport network if Melbourne expects to maintain the lifestyle and economic advantages attributable to being a liveable 1 city. The question of the future of transport options was undertaken by unpacking the conventional wisdom of whether Melbourne’s public transport network is congested. The group identified practical measures to improve the current train and tram networks and also suggested a future long term vision for metropolitan Melbourne. See Appendixv for entire report. Commentary on Melbourne’s transport issues and future directions was also provided by the public transport operators and the Public Transport Users’ Association (PTUA) which advocated for better public transport. To back this up, the Metropolitan Transport Forum maintained that Melbourne’s most liveable city status was being eroded by poor investment in public transport services and compared our services with other international cities. The Western Transport Alliance is a group of western metropolitan councils, businesses in the west, transport companies, Transport Workers Union and peak transport bodies highlights two primary congestion issues that impact on regional access to/from the western region. These issues are:

1 The Economic Intelligence Unit produces annual liveability rankings rating 130 cities

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· the inadequate capacity, capability and strategy to provide additional trains through North Melbourne and the City Loop on the Northern Metropolitan Group of railway lines; and · the need for plans to manage the additional travel demand across the Maribyrnong River / Yarra River.

The State government has responded to the recent transport debate by: § appointing the Victorian Competition and Efficiency Commission to undertake an inquiry into Managing Transport Congestion. The Commission has been asked to advise the Victorian Government of a range of policy options to tackle transport congestion in Melbourne and major regional cities. It is expected that the Commission wil report its findings during 2006. § announcing that a “transport and liveability statement” will be launched in April 2006.

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2. Strategy Context

State and federal governments exert considerable influence over transport infrastructure and facilities within any local government area, both through policies and resources allocated to transport infrastructure and services, and through the planning system and land use policies which generate activity on transport networks resulting from the demand for mobility to access services. Local governments can be effective in integrated/sustainable transport through land use planning, parking, access and advocacy for public transport and travel demand management which can complement the more traditional core role of managing and maintaining local road-based infrastructure.

2.1 Federal Strategies, Policies and Committees

Federal policies and strategies of relevance are: · National Strategy for Ecologically Sustainable Development (1992); · National Greenhouse Strategy (1998); · Integrated National Strategy for Lowering Emissions from Urban Traffic (2000); · The National Bicycle Strategy (1999–2004); · The National Road Safety Strategy 2001–2010; · Roads to Recovery, Department of Transport and Regional Services; and · Auslink.

2.1.1 The National Strategy for Ecologically Sustainable Development The National Strategy for Ecologically Sustainable Development (ESD) (December 1992) establishes an over arching national framework to guide development. Ecologically sustainable development is defined as: “Using, conserving and enhancing the community’s resources so that ecological processes, on which life depends, are maintained, and the quality of life, now and in the future, can be increased.” And the goal of the national strategy is: “Development that improves the total quality of life, both now and in the future, in a way that maintains the ecological processes on which life depends.”

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The strategy sets out the broad strategic and policy framework under which governments make decisions to pursue ecologically sustainable development in Australia. With regard to transport and urban development, two key directions emerge.

1. To achieve a more sustainable use of energy and natural resources in urban areas through integrated urban and transport planning and more efficient subdivision and building design: - to promote urban forms which minimise transport requirements, and improve the efficiency of land supply and infrastructure provision; - to encourage the future development of urban transport systems which provide opportunities to limit the use of fossil fuels; - to promote subdivision and road design patterns that provide the greatest potential to utilise energy efficient dwelling design, with provision for and use of public transport modes; and - to improve the amenity of local urban areas. 2. To limit the production of harmful emissions without reducing economic efficiency, improve the availability, efficiency and affordability of alternative energy sources, and improve the technical and economic efficiency of urban and non urban transportation: - to improve the technical and economic efficiency of urban and non urban transportation, encourage switching to alternative transport technologies and modes where this reduces greenhouse gas emissions per passenger or unit of freight and to optimise the modal mix of transport to achieve greater economic, environmental and social benefits.

2.1.2 National Greenhouse Strategy (1998) The directions of the ESD strategy are well supported by the National Greenhouse Strategy (1998) which provides the framework for advancing Australia’s domestic greenhouse response. State governments have identified reducing emissions consistent with the Kyoto Protocol as the most important area of action. This Greenhouse Strategy has been developed by both federal, state and territory governments. It is the primary mechanism through which Australia’s international responsibilities in relation to greenhouse gases are met and includes a comprehensive approach to tackling greenhouse issues. The strategy focuses on improving awareness and understanding of greenhouse issues, limiting growth, enhancing greenhouse sink capacity and developing adaptation responses.

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Module 5 of the National Greenhouse Strategy - Efficient Transport and Sustainable Urban Planning – recognises that Australia has one of the highest per capita greenhouse gas emissions from transport use in the world, due to high car ownership and domestic freight, low population density and the vast size of the country. Directions to reduce emissions are: · integrating land use and planning; · travel demand and traffic management; · greater use of public transport, walking and cycling; and · improving fuel efficiency and technologies.

2.1.3 The Integrated National Strategy for Lowering Emissions from Urban Traffic (2000) A further initiative to reduce greenhouse gases has been undertaken by the Australian Transport Council, which directed the National Transport Secretariat to develop a long term strategy towards achieving lower emissions and diminishing the link between economic growth and transport emissions. The Integrated National Strategy for Lowering Emissions from Urban Traffic was issued in 2000 and sets the following directions: · Outcome 1 – More Choices for Urban Travellers · Outcome 2 - Smarter Decisions about Available Choices · Outcome 3 – Greater Understanding of the Full Impact of Transport Choices · Outcome 4 – Cleaner Performance by Urban Vehicles · Outcome 5 – Greater Access in Urban Areas with less Movement · Outcome 6 – National Funding Arrangements supportive of Integrated Urban Travel Systems. The National Greenhouse Strategy highlights the importance of improving public transport systems, including through demand-driven vehicle mixes and by providing priority lanes on roads for public transport. Integrating cycling into the transport system, and promoting the health and financial benefits of cycling, is coordinated through the National Bicycle Strategy.

2.1.4 The National Bicycle Strategy (1999–2004) The National Bicycle Strategy was adopted by all levels of government and recognises bicycle riding as a legitimate mode of personal passenger transport. It

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represents an acknowledgement by government that cycling should be taken into account when considering transport alternatives. The strategy calls for greater attention to planning for bicycles, recognising the relatively high levels of bicycle ownership and significant advantages of increased cycling, both personal (mobility, health, cost, and reduced car dependence) and societal (efficient, reduced pollution, noise, congestion, and parking need). Objectives of the strategy include integrating cycling into the transport system as a legitimate mode of travel and a focus on safety.

2.1.5 The National Road Safety Strategy (2001–2010) The National Road Safety Strategy was also developed by the Australia Transport Council. It aims to dramatically reduce death and injury on Australian roads, and nominates a target of reducing national fatalities per 100,000 population by 40% from 9.3 in 1999 to no more than 5.6 by 2010. It is a framework document which provides guidance and direction to state plans through a series of Action Plans. One of the strategic directions is to reduce road accidents by the encouragement of alternatives to motor vehicle use. This recognises that reducing the need for motor vehicle use – or car dependency - can reduce exposure to road trauma, as well as achieving environmental and other benefits, as follows: · land use planning that reduces the amount of transport for people and goods; · transport planning that integrates transport systems and improves the quality and effectiveness of transport; · expansion the use of telecommuting and other measures that avoid the need to travel; and · promoting the benefits of public transport, walking and cycling. Despite a number of strategies seeking reduced car use, the federal government has a long term program to provide financial assistance to local governments for road projects. Considerable funding flows directly from Federal Government to local governments under the Local Government (Financial Assistance) Act 1995 which enables both general purpose and local roads grants to local governments annually.

2.1.6 Roads to Recovery The National Road Safety Strategy runs in parallel with the Roads to Recovery program (via the Department of Transport and Regional Services) which has been funding local roads at the municipal level since 2000, and an extension from 2005 has been recently announced.

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2.1.7 Auslink The role of federal government in funding transport infrastructure has been reviewed and is presented in the Auslink Green Paper (2002), in which the Federal Government expresses its intention to deliver more strategic direction of transport funding to road and rail projects of regional or national significance. A national network has been proposed and the upcoming round of Road to Recovery funding after 2005 has targeted $1 billion to projects that qualify under national criteria. This will include regional rail projects, although currently Road to Recovery funding is quarantined from urban public transport projects. Cycling infrastructure is acceptable under the guidelines.

2.1.8 Federal Policy Summary In summary, there are many federal strategies which direct state and local governments to develop alternative and public transport modes and recognise the value of these modes not only for mobility, but also health and environmental advantages and as a potential road safety benefit. They provide a framework for expanded thinking that embraces the wider social, economic and environmental context of transport decision making to support an integrated triple bottom line approach.

2.1.9 Sustainable Cities In September 2005, the House Standing Committee on Environment and Heritage tabled its report on the inquiry into sustainable cities. There are seven transport recommendations amongst a total of 32 relating to the development of sustainable cities to the year 2025 are of particular relevance: Recommendation 5 The committee recommends that the Department of Transport and Regional Services, in consultation with the Department of the Environment and Heritage, investigate options to extend the Roads to Recovery program to include other modes of transport as a step towards including sustainability in the funding criteria. Recommendation 6 The committee recommends that: · transport infrastructure planning decisions be benchmarked against the recommended Australian Sustainability Charter; and · the Australian Government significantly boosts its funding commitment for public transport systems, particularly light and heavy rail, in the major cities.

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Recommendation 7 The committee recommends that Australian Government transport infrastructure funds include provision of funding specifically for sustainable public transport infrastructure for suburbs and developments on the outer fringes of our cities. Recommendation 8 The committee recommends that the Australian Government review the current FBT concessions for car use with a view to removing incentives for greater car use and extending incentives to other modes of transport. Recommendation 9 The committee recommends that the Australian Government review the tariff policy on four wheel drive vehicles with a view to increasing the tariff rate on four wheel drive vehicles, except for primary producers and others who have a legitimate need for four wheel drive capability. Recommendation 10 The committee recommends that the Australian Government provide adequate funding to develop new programmes and support existing programmes, such as TravelSmart and the National Cycling Strategy, that promote and facilitate public and active transport options. Recommendation 11 The committee recommends that the Department of Transport and Regional Services investigate developing emission standards for older vehicles and work with the States and Territories with a view to instituting mandatory testing and reporting at point of sale.

2.2 State Policy Context

The Victorian State Government has developed a number of policies, strategies and funding programs concerning transport. These establish the context in which local governments manage transport and mobility within their municipalities: · Melbourne 2030; · Metropolitan Transport Plan (2004); · Growing Victoria Together (2001); · Department of Infrastructure (DoI) Corporate Plan 2002–2005; · Linking Victoria;

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· Victoria’s Greenhouse Strategy; · ArriveAlive!; · Planning for Bicycles; and · State Planning Policy Framework. State-based strategies impact on transport services and mobility through: · strategies directly concerning transport; · land use planning and management; · greenhouse initiatives; and · health concerns.

2.2.1 Growing Victoria Together (2001) Growing Victoria Together identifies the State Government’s position on the achievement of sustainability goals across all areas of government. It sets out a 10- year policy framework that seeks to balance economic, social and environmental goals and actions. The most relevant strategic directions are: · safe streets, homes and workplaces; · growing and linking all of Victoria; · building cohesive communities and reducing inequalities; and · protecting the environment for future generations. Growing Victoria Together also sets the target to increase travel on public transport in Melbourne from 9% to 20% (of all motorised trips) by the year 2020.

2.2.2 Linking Victoria Linking Victoria is the State Government’s program for transport investment, demonstrating delivery on policy. Linking Victoria began in 1999 and has seen ongoing commitments through new allocations in subsequent state budgets. There is a strong focus on improving connections to regional Victoria and to Melbourne’s outer suburbs. The current program is valued at $5.0 billion.

2.2.3 Melbourne 2030 – Planning for Sustainable Growth

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The Melbourne 2030 strategy (2002) is a blueprint for the future of metropolitan Melbourne. It proposes to integrate land use and transport policies around activity centres to create a balanced and workable city. Expansion of the metropolitan perimeter has been mandated by the legislation of an Urban Growth Boundary. Accommodation of all future growth is to take place within the boundary and urban consolidation and better use of existing transport resources are encouraged. Nine key directions provide a framework across government departments to respond to the diverse needs of those who live, work or play within the metropolitan boundary. Of particular relevance to local governments’ work concerning transport are the following initiatives associated with Key Direction 8 – Better Transport Links: 1. Upgrade and develop the principle public transport network and local public transport services to connect activity centres and link Melbourne to the regional cities. 2. Improve the operation of the existing public transport network with faster, more reliable and efficient on-road and rail public transport. 3. Plan urban development to make jobs and community services more accessible. 4. Coordinate development of all transport modes to provide a comprehensive transport system. 5. Manage the road system to achieve integration, choice and balance by developing an efficient and safe network and making the most of existing infrastructure. 6. Review of transport practices, including design, construction and management, to reduce environmental impacts. 7. Give more priority to cycling and walking in planning urban development and in managing our road system and neighbourhoods. 8. Promote the use of sustainable personal transport options.

2.2.4 Metropolitan Transport Plan The Melbourne Transport Plan (2004) outlines the State Government’s key strategies and priority actions for the next 4-5 years. The plan centres around four issues: safety; rising congestion; the growth of the metropolitan population; and

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promoting ongoing economic growth. The State Government acknowledges increasing transport congestion in inner Melbourne and aims to address this by increasing the efficiency of existing systems – rather than introducing new infrastructure. The greatest constraint on this plan, as with Melbourne 2030, is funding from State Treasury.

2.2.4 Department of Infrastructure Corporate Plan 2002–2005 These strategic directions are further described in the Department of Infrastructure’s (DoI) Corporate Plan 2002–2005: · Outcome 1 Public Safety and Security – including accident reduction and safety management of road and public transport usage. · Outcome 2 Infrastructure Delivery and Management – including freeway and fast rail projects, major projects and public private partnerships. · Outcome 3 Access and Mobility – planning and delivering a sustainable public transport system and road network that improves people’s access and mobility to services while managing the externalities of demand. This includes the 20% by 2020 target. · Outcome 5 Rural and regional development – including transport infrastructure to boost prosperity and enhance communities. · Outcome 6 Seamless freight and logistics system – improve safety and productivity in the freight and logistics sector, reducing environmental and amenity impacts. The DoI is structured to deliver on these and other outcomes through its areas of Planning and Policy, Public Transport and Freight. The Public Transport Safety Division reports directly to the DoI Secretary, as does Major Projects, Infrastructure Project and CityLink. These DoI sections are supported by special purpose statutory bodies. Those relevant to transport are as follows:

· Victorian Rail Track Corporation (VicTrack); · Public Transport Ticketing Body (Transport Ticketing Authority); · Southern and Easter Integrated Transport Authority; and · Victorian Urban Development Corporation (VicUrban). VicRoads is within the DoI but sits independently of the other transport functions and does not report to the department Secretary, but directly to the Minister for Transport.

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2.2.5 Greenhouse Strategy Victoria’s Greenhouse Strategy sets out the State Government’s strategies to reduce greenhouse emissions. The main objective relating to transport is to influence travel choices and behaviour in order to reduce transport-related greenhouse gas emissions. Key action areas include: · reducing the need for motorised travel, through the preparation of Melbourne 2030 and through integrated land use and transport planning; · promoting a modal shift by implementing improvements to the train, tram and bus networks; and · seeking to influence travel choices and driver behaviour through marketing and education programmes, such as the ‘Victorian Travel Behaviour Changes Program’.

2.2.6 Arrive Alive! Arrive Alive! is Victoria’s road safety strategy for 2002–2007 (VicRoads, 2002). This is a plan that aims to reduce annual death and serious injury from road crashes by 20% over a five-year period. The strategy contains a range of initiatives designed to provide Victoria with a safer road system, to change the attitudes and behaviours of road users and deliver improved road safety outcomes for all Victorians. Key state initiatives are drink driving and speed reductions. Local governments are required to develop their own road safety strategy through which local issues relating to road safety can be enacted. Some funding support is provided from VicRoads for local initiatives via the Community Road Safety Councils.

2.2.7 Principle Bicycle Network (PBN) Victoria’s bicycle planning is active through the Principle Bicycle Network (PBN), a network of arterial bicycle routes in metropolitan Melbourne. VicRoads has primary responsibility for managing the development and implementation of bicycle facilities on the PBN which, when completed, will comprise 2,400 kilometres of on and off- road routes. To-date 650 kilometres have been completed.

2.2.8 The Metropolitan Trail Network (MTN) The Metropolitan Trail Network (MTN) is a network of bicycle routes throughout parklands managed by Parks Victoria in metropolitan Melbourne. The primary

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function is to provide for recreational cyclists, commuter cyclists also use certain facilities. In addition to road infrastructure, community mobility is also influenced by the state planning agenda which controls the spatial distribution of facilities which has significant accessibility implications.

2.2.9 The State Planning Policy Framework The State Planning Policy Framework, as included in each local government’s Planning Scheme, identifies a number of key principles relevant to transport and mobility, including: · integration of transport and land use planning; · opportunities to use developer contributions in the funding of infrastructure; · locating high density land use near railway stations, bus terminals, transport interchanges; and · integration of public transport services and other modes of travel in providing access to new development. The State Planning Policy Framework guides the Local Planning Policy Framework which sets local strategic policy context for each local government. Through this mechanism the local planning scheme is developed which in turn influences the trip making patterns of the municipality. The importance of this connection cannot be understated as a significant opportunity for greater land use transport integration and more sustainable travel is through planning schemes that are more sympathetic to the key factors for sustainable transport.

2.2.10 Rescode Likewise Rescode (which is currently under review), a component of the State Planning Policy Framework, provides a guide to planning and development of residential areas. This is a significant opportunity through subdivision guidelines as expressed in Clause 56 to maximise provision for sustainable transport in new subdivisions.

2.2.11 State Policy Summary In summary there are many state policies and strategies which facilitate local governments to develop and promote alternative transport modes and recognise the value of these modes not only for mobility, but also the health and environmental advantages and the potential road safety benefit. They provide a framework for

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expanded thinking that embraces the wider social, economic and environmental context of sustainable transport decision making. As with Melbourne 2030 most of these are strong on intent but suffer from a lack of funding to implement specific policies and strategies.

2.3 Neighbouring municipalities

2.3.1 IMAP (Inner Melbourne Action Plan) To assist the implementation of Melbourne 2030, the councils of Melbourne, Port Phillip, Stonnington and Yarra and VicUrban (which covers the Docklands precinct) have worked together to ensure the continued development and liveability of the Inner Melbourne region in future years. IMAP sets out 11 regional strategies and 57 actions to address one simple objective: to make the Inner Melbourne region more liveable. The 11 IMAP actions are closely linked to transport, land use, and sustainability outcomes:

1. Celebrate the unique and concentrated 19th century heritage of the Inner Melbourne region.

2. Effectively link transport routes so that the region is accessible throughout by walking, cycling and public transport.

3. Minimise the growing impact of traffic congestion.

4. Increase public transport use.

5. Plan to accommodate 90,000 more dwellings by 2030.

6. Support the distinct and diverse character of Activity Centres.

7. Promote Inner Melbourne as an investment location for knowledge rich business sectors.

8. Facilitate the growing importance of Inner Melbourne as south-east Australia’s freight hub.

9. Substantially improve the environmental performance of Inner Melbourne.

10. Complete the regional open space network.

11. Promote Inner Melbourne as a tourism destination.

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2.3.2 City of Port Phillip Faced with widespread inner city pressures of more intense development, high and growing visitations and through traffic, the City of Port Phillip developed an Integrated Transport Strategy in 1998. The strategy objective was: “To enable people to access their destination with minimal impact in a safe, equitable and efficient manner.” This strategy positioned the council to: · better understand its role in transport so that energy is directed to areas of council responsibility, while seeking to influence decisions beyond its domain; · develop a more integrated approach, as distinct from single focus, to the various transport factors in the municipality; · better integrate land use and planning, so that greater attention paid to transport aspects of new developments; and · link transport activity to broad council commitments to more sustainable practices. The City of Port Phillip has since directed transport activity – projects, funding, staffing – to the more sustainable modes. The following initiatives illustrate a reoriented approach. · There is a long history of traffic management works to deter through traffic and protect neighbourhoods from excessive traffic impacts, while maintaining accessibility. · A municipal-wide parking scheme which limits on-street parking to encourage other travel modes, maintaining liveable environments and reduce traffic. · Walking and cycling are promoted and prioritised in traffic management measures (slip lanes removed, pavement height maintained for walkers). · Ongoing work with transport operators and state government on traffic and transport issues, such as the Danks Street tram stops. · Developing links between health, transport infrastructure and travel demand management. · Ushering in controversial high density developments by coinciding physical streetscape improvements and traffic management measures. · Street closures in conjunction with St. Kilda Festival to create car free spaces. · Living Streets program to recognise that street space is a public asset and can be enjoyed as such, not simply a place for vehicle traffic. The City of Port Phillip is now guided in transport matters by its Sustainable Environment Strategy, Theme 4: Moving People and Goods which encompasses the

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Integrated Transport Strategy, and addresses the need for mobility and environmental protection through the goal: “Meet the community’s transport needs while reducing car dependency and minimising the impacts of road transport.”

2.3.3 City of Darebin Going Places: The Darebin Integrated Travel Plan (ITP) was developed in response to progressive build up of travel problems in the municipality that needed a broader approach than single mode solutions to demand pressures. The Darebin ITP objective is to ensure universal safe and easy access to satisfy needs, but recognizes that unmanaged mobility can generate serious and damaging impacts. Hence the ITP seeks to balance high levels of mobility and accessibility against the need to improve and maintain community liveability in Darebin. The key ideas behind the ITP are documented as: · one-third of Darebin's population are too young or old to drive, and 8% have a disability that prevents them from driving; · Darebin is surrounded by urban areas and relatively intensely developed. There is little practical opportunity to increase road capacity; and · considerable environmental and health benefits can be gained from greater use of walking, cycling and public transport . The Darebin ITP recognises the major role of land use in facilitating greater use of low impact transport by compact, mixed use development and greater densities in key locations. The ITP also commits to preferential encouragement of the most sustainable modes of walking, cycling and public transport, to be prioritised through a road user hierarchy except in the case of access to service local business.

2.3.4 City of Maribyrnong Rapid development in western Melbourne coupled with port expansion and industrial, freight-generating growth have put existing transport infrastructure in that Maribyrnong under considerable pressure. Conduct of the Outer West Transport Study, and the ongoing Inner West Transport Strategy is indicative of the extent of arterial capacity shortfall for projected activity in that area. Moving Forward: Maribyrnong Integrated Transport Strategy seeks to protect the municipal environment from the impacts of through traffic, and redirect transport activity towards more sustainable patterns. The core objective is:

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“To plan, facilitate and implement a transport system committed to environmental sustainability, quality urban form and enhanced public amenity. It aims to ensure that the most convenient and therefore most used transport mode is the best for the environment, community and economy. Actions are therefore designed to encourage walking, cycling and public transport and reduce car dependence.” The Strategy recognises that the planning scheme and development permit requirements could be more effectively used to contribute financially and build patronage for sustainable transport infrastructure and service improvements. The value of parking as a demand management tool as well as site enhancement in a competitive economy was also recognised. The council also resolved to take an active involvement in public transport, as well as provide for walking and cycling. The necessity for some arterial upgrades and growth of through traffic was accepted, to be accompanied by vigorous traffic management to protect local areas. A road hierarchy to advise acceptable traffic levels was put forward to inform traffic management for local roads.

2.3.5 City of Moreland

A strong commitment to environmental sustainability, social justice and improved quality of life for the community are evident in the Moreland Integrated Transport Strategy. The main objective of the strategy is to identify key practical actions that Moreland City Council can undertake to maximise accessibility while minimising human, financial and environmental costs.

It is recognised that Moreland is in control of much of the road space within the municipality, yet policies that influence travel behaviour, and hence much of the use of the road space, are formulated at state and federal level. However local governments have a requirement to intervene, given the predicted growth in traffic and relatively poor public transport service levels. Community demographics of an ageing population and lower then average car ownership levels also imply a higher need for adequate transport alternatives to the car.

2.3.6 Other Municipalities Two other adjoining municipalities, Hobsons Bay and Moonee Valley, are currently undertaking integrated transport plans. Yarra City Council has expressed concern about levels of through traffic in the municipality, in particular where expectations for arterial traffic movements conflict

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with lively commercial activity in Swan Street, Bridge Road and Victoria Street and activity centre status. Stonnington also experiences considerable traffic impacts but has no formalised position at present.

2.3.7 Local Government Policy Summary The role of municipalities in transport is complex; there are a number of statutory responsibilities and regulations to observe as well as the broader community well- being and ‘duty of care’ function of local government. These are not necessarily consistent. Federal and state policies require observance, but are unequally enforced or funded which can confuse directions and can be at odds with existing practice. As well as discharging legislated obligations, a municipality, through its elected members, is subject to community pressures and has a legitimate advocacy role which may take it beyond its immediate boundaries. This is particularly the case with the City of Melbourne which is the major destination for Victoria. Faced with the evident shortcomings of local transport systems (ever growing traffic with all the associated problems of congestion, parking, noise, pollution and accidents), local governments in metropolitan Melbourne are developing transport strategies to better understand how transport operates within their communities and how to improve the systems for the future. The Cities of Port Phillip and Moreland initiated the process in 1998 and by 2003 nine metropolitan municipalities had developed such strategies. The adoption of Melbourne 2030 as the metropolitan plan for future growth will mean there is a significant role for local government in transport. Local governments can be effective in integrated/sustainable transport through their role in land use planning, parking and travel demand management which can all complement the more obvious core role of managing and maintaining local road- based infrastructure. Developing a transport strategy is a complex task which, if taken beyond the simple management of locally-based infrastructure, has the potential to better align many of the transport activities with broad council goals, but it may also expose current practices as inappropriate for emerging sustainability issues.

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2.4 City of Melbourne Policies

Broad policy considerations are driven by: · Council Plan 2005-2009; · City Plan 2010; and · Transport Program 2003-2006. Many other City of Melbourne policies interact with transport, and nominate transport outcomes within strategies. For example, the Melbourne Sustainable Energy and Greenhouse Strategy calls for less car parking, additional bicycle parking, and greater ease of public transport and walking. The Melbourne Transport Strategy will embrace other policy requirements and associated actions to fully integrate and align with council goals. In addition, synergies with a number of policies could raise the value of certain actions. Currently there is a broad group of existing transport related strategies, policies principles and plans within the City of Melbourne.

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3. The City we want

The structure of the Melbourne Transport Strategy is illustrated in Figure 9 below.

Figure 6 - Strategy Framework

3.1 Vision

The Vision for transport in the City Melbourne is: A transport network which builds and supports a thriving and sustainable city. This vision is consistent with that detailed in Council’s pre-eminent planning strategy, City Plan 2010. City Plan 2010 articulates a vision for the City of Melbourne’s to be a ‘Thriving and Sustainable City’. Transport is an integral part of a sustainable and thriving city. The Melbourne Transport Strategy offers a way to respond to current and future transport issues and achieve the vision held in City Plan 2010.

3.2 Aims

Responding to the vision, submissions and policy shift identified by Council, the following aims have been identified:

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3.3.1 Foster growth that is dynamic, community focussed and sustainable

· Ensuring patterns of land use recognise transport and visa versa – integrating urban and transport planning. · Recognising the link between the supply and cost of commuter parking spaces and public transport patronage. 3.2.2 Reduce congestion

· Building capacity in Mass Transit and infrastructure that inspires walking and cycling. · Reassigning road space to space efficient modes. · Creating pedestrian priority in the City centre 3.2.3 Promote, advocate and prioritise public transport · Ensure tram and bus priority through reserved corridors and traffic priority systems. · Seek increased investment in public transport.

3.3 Guiding Principals

The Guiding Principles behind the Melbourne Transport Strategy, set out the framework by which the Vision will be measured are:

· Business Attraction and Retention - The efficient operation of businesses is critical for the ongoing economic viability of the city. Personal travel behavior which favors non car-based transport will allow more efficient freight operations on existing road space. Business will benefit from more people walking, cycling and catching public transport as these modes deliver more people to the city.

· Sustainable, equitable and convenient personal access - If individuals are engaged and committed to sustainable public transport then local communities will be strengthened; benefiting people’s health, the environment and business.

· Leadership in sustainability - Sustainable transport choices will be an asset to future generations and Council recognises its leadership role to work towards a sustainable future.

3.4 Areas for Action

The Areas for Action respond to the Guiding Principles and set up for the division of tools and strategies that follow. The areas for action are unique for the City of Melbourne, recognising our reliance on freight and commercial travel, the unique

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complexity of commuter travel and growing residential population (getting into and around the City), and the links between land use and transport.

3.5 Tools

The tools are less specific to the City of Melbourne. The identified tools are generally available to local government which can be used to influence transport. Council is responsible for Planning and Urban Design through the Melbourne Planning Scheme, Structure Plans and various other urban design strategies and studies. Council is also directly responsible for Parking and Traffic Management on local roads. There are often aspects of Planning and Urban Design and Parking and Traffic Management which fall outside Council’s influence. In these instances Council can still be active in promoting dialogue with other agencies that do have mode influence. This is also true for public transport, a mode which is largely controlled by the State Government and public transport operators. Access and Advocacy for Public Transport is a tool which Council can use to create better links to public transport modes and also create dialogue with public transport providers to work towards delivering favourable outcomes for public transport.

3.6 Strategies

The Strategies are grouped directly under the tools. Walking and cycling projects tend to be the domain of Planning and Urban Design strategies. Parking and Traffic Management strategies and Access and Advocacy for Public Transport strategies contain both strategies which Council has direct control over and those which Council can influence through partnerships, agreements and working co-operatively with other agencies.

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4. Freight and Commercial Travel

Freight demand stems from the goods and services we all purchase and use in our daily lives. However, freight activity levels are increasing faster than population growth. This trend is being driven by smaller numbers of much larger production plants (that require more transport for inputs and distribution) and by a proliferation of product lines (all requiring both production and distribution). Melbourne’s form is unique in that it has a major international port on the Western fringe of its CBD that is adjacent to established residential areas (such as North Melbourne and Kensington) and developing sites such as Docklands. In the future, the efficiency of freight and commercial travel will be increased by reducing road congestion, and by resolving conflicts between residential and commercial land uses and freight operations.

4.1 Trends in Freight and Commercial Travel Issues

4.1.1 Metropolitan Metropolitan freight in greater Melbourne is forecast to grow at 3.52 per cent pa from 2000-2020, with virtually all of this growth expected to be road-based. This is probably the most significant issue faced by City of Melbourne, particularly given the existing congestion levels of congestion and difficulty in expanding infrastructure.

4.1.2 Interstate Interstate freight growth forecasts for 2000-2020 include 3.74 per cent pa for the Melbourne–Sydney corridor and 3.14 per cent for Melbourne–Adelaide2. This growth will have a lesser impact, as there is more spare infrastructure capacity and expansion of infrastructure is easier.

4.1.3 International International trade growth at the Port of Melbourne averaged 7.3 per cent pa for the last decade, and was 11 per cent in 20043. This has placed great pressure on landside

2 http://www.ntc.gov.au/

3http://www.doi.vic.gov.au/Doi/Internet/Freight.nsf/AllDocs/05C0BFA5551F553FCA256FFE0014794 1?OpenDocument

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transport links to and from the port. The outcome of the channel deepening project in Port Phillip and the lower Yarra River to Swanson Dock will have long reaching implications for the role of the Port of Melbourne. If channel deepening does not proceed, it is likely that Melbourne port’s share of south eastern Australia’s international containerised trade will gradually decline, in favour of ports at Brisbane, Hastings4 and possibly Adelaide.

4.1.4 Growth Trends There are two major trends in our society which have led to the consistent increase in freight activity per capita over the past two decades:

· The economics of raw materials sourcing, product production and distribution to end user markets favours smaller numbers of much larger production plants. These draw raw material inputs from further afield, and market their production to a geographically larger target market. “World scale” plants have been getting larger and larger for many years, as have the distances from which raw materials and inputs are sourced, and the markets into which production is sold. These trends have led to larger and larger transport requirements. · There has been significant proliferation of different products servicing the same market need. Twenty years ago, most supermarkets had three or four lines of fresh milk, differing from each other only in pack size. Today, full range supermarkets may have 50 milk lines, with pack sizes varying from 250ml – 4 litres. Full range supermarkets now stock 50,000-60,000 lines, four to five times the 10-15,000 lines only a decade ago. This product line proliferation provides more choice for the consumer, provides greater opportunities for producers to differentiate their products, but requires significantly greater resources for warehousing and transport.

4.1.5 Liquid fuel availability There is little doubt that limited availability of liquid fuel will have profound impacts on the way humans live their lives worldwide within this century. National Transport Commission (2005, forthcoming) assessed this issue, and concluded that:

· Reductions in oil derived fuel supply are most likely in the time period 2010– 2025, meaning that a peak in global production is likely within that time range.

4http://www.doi.vic.gov.au/DOI/Internet/Freight.nsf/AllDocs/F3A674CEA960F35BCA257066001B20 62?OpenDocument

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Some commentators suggest peaking may occur later than this, but evidence seems to be growing in favour of an earlier point of maximum extraction. · Fuel price changes would need to be measured in orders of magnitude (i.e. at least ten fold) to stimulate fundamental changes in the way goods are produced, raw materials sourced and finished goods are distributed. · In the period under consideration (2005–2020) increases of this size are unlikely although, in real terms, doubling, tripling or quadrupling seem quite possible. · The success of alternative fuels in powering significant parts of the freight transport task, and reducing demand for hydrocarbon fuels, is likely to be a major factor in the size and rapidity of price increases. · Major changes in goods production and distribution patterns in the next time period (say 2020–2050) mostly caused by rapid and dramatic fuel price increases, seem much more likely, unless alternative fuels become successful in providing most of the energy required on a sustainable basis. Liquid Natural Gas (LNG) seems the most promising at this point, based on supply resource estimates, availability and current use in diesel engines.

4.2 Freight and Commercial Travel Issues in the City of Melbourne

4.2.1 Central City Issues 4.2.1.1 Rail Businesses Freight between Gippsland and Melbourne traverses the Dandenong–Caulfield– Flinders Street–Spencer Street–Dynon terminals corridor, and lack of available train paths during passenger peak hours is a limiting factor. Freight trains are limited to the newer concrete viaduct closest to the Yarra River between Flinders and Spencer Street Stations, requiring crossing over from the Caulfield lines and back between Spencer Street and North Melbourne to access the Dynon railyards. The State Government’s target of 30 per cent of port freight to be carried by rail by 2010 may be limited by the concrete viaduct between Flinders and Spencer Street Stations. Any significant increase in freight rail along this corridor may have amenity issues for the City of Melbourne.

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Opportunity: Shuttle and freight-only lines

Support could be given for port rail shuttle trains and freight only rail lines where these are not in place. Noise from diesel locomotives pulling freight trains at night may also be an issue. Electrified rail corridors are limited to routes and lines used by metropolitan passenger trains. All freight trains in Victoria are diesel-hauled, and are much noisier than passenger trains, due to the loco noise, and their greater weight and length. Containment of noise is difficult, as loco exhausts (where most engine noise emanates from) are on the roof. Most of the wheel-on-track noise is low frequency, which is notoriously hard to stop. Rail freight terminals are almost unavoidably noisy places, and the sound profile tends to be disturbing to nearby residents due to short sharp crashes, and beeping from road vehicles in reverse gear.

Opportunity:

Congestion and amenity could be improved by reviewing land zonings and buffers around freight handling terminals, ports and other major destinations. Council will request VicRoads to implement a declared freight road network on Arterial roads that bans on heavy vehicles on other roads (with exceptions for local access).

4.2.1.2 Large road vehicles Large road vehicles try to avoid the CBD as much as possible, but vehicles delivering construction materials to CBD sites have no alternative. Construction activities can contribute significantly to congestion in localised areas. Drivers seek the easiest physical route and try to avoid congestion from light vehicles by timing first deliveries in the morning before the peak hour, and subsequent deliveries during the middle of the day. Most construction work ceases by 4.30pm or 5.00pm, due to award arrangements and noise concerns.

4.2.1.3 Medium trucks Medium trucks provide most deliveries to retailers. Two major concerns include the difficulty of manoeuvring to and from building loading docks and the lack of on-street loading zones. The majority of customer requirements are for early morning delivery of inwards goods and parcels, and late afternoon collection of outwards goods, so these vehicles

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have little opportunity to avoid peak periods. As they generally operate from depots in Altona – Laverton North, Craigieburn – Somerton or Dandenong, they have difficulty avoiding afternoon peaks, but are often in front of morning peaks. Keeping these vehicles busy throughout the day is difficult, which is why many spend several hours of most days parked around the city.

Opportunity: Building Standards

Medium trucks make most out of hours deliveries and there is evidence that evening ‘key drops’ to retailers and residential collections (garbage, recycling) are increasing. The EPA notes that night-time activities such as these cause issues with residents and that VCAT often views night-time deliveries unfavourably. Building standards approaches (such as double glazing) may help achieve amenity improvements.

Opportunity: Freight handling and loading

A requirement for all new buildings to have adequate freight handling facilities, including loading docks and the capacity to handle vehicle queues off public roads, would improve congestion not only in the CBD. Loading and construction zones arrangements could also be reviewed.

Opportunity: Waste Collection

There may be scope to reduce the number of waste collectors in the City, thereby reducing noise from multiple collections on many nights.

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4.2.1.4 Courier and tradespeople’s vans Vans face difficulty finding available loading zone parking during the day, and are hampered by congestion from light vehicles at peak hours and during the day. These vehicles have the same hour of day issues as medium trucks, and also have little opportunity to avoid peak periods. However, there is more middle of the day work keeping these vehicles busy. Tradespeople have great difficulties with parking for extended periods where required – an issue of importance as their vans often serve as mobile workshops and toolboxes. 4.2.1.5 Light vehicles The majority of light vehicles in the CBD are driven by workers and visitors to the city; congestion and parking are significant issues for both.

Opportunity: Competitive Parking

“Early Bird” discount parking schemes for all day parking, targeted at city workers, currently range from $8.50-$17.00 per day, with fairly significant levels of competition between parking station operators. By contrast, it appears that short term parking is much less competitive, with rates of $4-13 per hour typically applying throughout the city. More competitive short-term parking may help ease congestion, as motorists no longer feel the need to drive around looking for cheaper on-street parking.

Opportunity: Reducing Congestion

Improvement of public transport service provision, particularly filling the Doncaster rail gap and reducing tram travel times, will help reduce congestion. Similarly, road pricing initiatives (such as varying pricing on City Link) will help discourage peak hour commuter travel, encourage the use of arterial roads and discourage through traffic using local roads. In the longer term, a London style congestion levy or ‘City Access’ charge could have a place in moderating demand for central City private vehicle access at times of high demand. However, this would only be considered once capacity issues on public transport have been addressed.

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4.2.1.6 Docks and freight hub (West Melbourne) Rail

There is significant congestion on rail corridors to the Dynon terminals, resulting in delays and lack of rail paths at the times desired. ARTC, VicTrack and Pacific National all have upgrade plans in varying stages of development to address these. All interstate freight trains to Melbourne use the Footscray–Bunbury Street tunnel. VicTrack/DOI is also developing a masterplan for the Dynon rail yards, within the overall structure of Melbourne Port@L5. Another issue is the rail alignment to Swanson Dock, which crosses Footscray Road without boom gates, causing delays as trains must stop prior to crossing. This reduces average speeds and lengthens crossing closure times to road vehicles. This is being addressed by the Port Rail Link developments including grade separating this crossing. Construction of this crossing is likely to cause disruption on Footscray Road and port access roads to Swanson Dock. Rail terminals other than South Dynon interstate and, to a lesser extent, Dynon intrastate terminal, have real capacity limitations, in terms of number and length of trains handled, and storage space for containers.

Other issues of concern include: · road access to these terminals has congestion problems, both in the immediate terminal area, and further afield; · the proximity of Webb Dock Rail linkage over (or under) the Yarra to Docklands residential developments is a possible amenity issue, which will have to be addressed sensibly.; and · noise and neighbour amenity, which are issues of concern but usually only on a reactive basis. The Port of Melbourne Corporation correctly points out that efficiency in rail transport links and terminals to service the port are very important in maintaining a viable port contributing to the regional and broader State economy. Achieving a greater rail mode share of port traffic will require actions to balance road’s competitive advantage over shorter distances. The State Government’s rail target for port freight is unlikely to be met without significant development of rail

5http://www.doi.vic.gov.au/Doi/Internet/Freight.nsf/AllDocs/A7EC27DEA25F9D3FCA256E050004A BC2?OpenDocument

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terminals in outer industrial suburbs linked by port rail shuttle services, following an intermodal view of freight. Large road vehicles

Large road vehicles move most freight to and from the freight terminals in West Melbourne. Road conditions are generally acceptable in the immediate vicinity, except in peak hours, but have very limited capacity to handle growth. The greatest difficulties lie in east-west arterial road linkages, where both Footscray and Dynon Roads lead into areas of congestion at both ends. The construction of the grade separation of the Footscray Rd level crossing is likely to lead to extensive local disruption. Construction is expected to commence in mid 2006, with initial construction of the westbound road overpass carriageway. While there may be some turning restrictions at Appleton Dock/Footscray Roads (left turn in only, left turn out only) other port access intersections would not cope if Appleton Dock Road was closed entirely. This initial construction period is expected to take about 18 months, with eastbound and westbound traffic all on the northern carriageway of Footscray Rd. Construction of the eastbound overpass is scheduled to commence in early 2008, when all Footscray Rd traffic will be directed to the elevated southern carriageway. The rail crossing way will be relocated last once both overpasses are operational, to be completed late 2008 or early 2009.

Opportunity: Roadworks

Establishing a central roadwork coordination centre will keep freight vehicles informed of current and forthcoming road conditions, and help alleviate congestion. There are major congestion issues on nearly all corridors between the Dynon yards and industrial suburbs. There is no adequate route to Altona–Laverton, with moderate to severe congestion on Westgate Bridge and all surface roads to these suburbs. Several routes are height restricted or have curfews on through trucks at night and weekends. There are some concerns about promotion of Westgate Bridge as a primary freight route when it is so close to capacity so much of the time. Signs prohibit light vehicles on Dock Link Road, which are generally effective. However, there are major delays from rail level crossing closures on Footscray Rd (being addressed) and Dock Link Rd (both north and south of Footscray Rd (no plans).

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There is also evidence that more trucks are operating more hours of the day to the port. This is compounded by very significant levels of empty running and partial loading to and from the port. Stevedores’ truck timeslot booking systems are demonstrably not working to achieve two way loadings.

Opportunity: Full Loading and Arterial Road Capacity

Measures to reduce empty running to the Port would decrease the number of trips required, thereby reducing the environmental and amenity impact of freight trips, and enhancing economic productivity. The results of this initiative will be enhanced by Council’s initiation and participation in a review of arterial road capacity and options between the City and western suburbs.

Data shows that drivers seek the easiest physical route and attempt to avoid congestion from light vehicles. However, despite anecdotes to the contrary, heavy vehicle drivers do not use tight local streets unless there are significant time savings by doing so. The Port of Melbourne Corporation correctly points out that efficiency in road transport links to the port and nearby terminals is very important in maintaining a viable port contributing to the regional and broader State economy. The State Government’s target of 30 per cent of port freight to be carried by rail by 2010 is unlikely to be met for containers (although may be overall) unless port rail shuttles to industrial suburbs are established and become successful.

4.2.1.7 Medium trucks, vans and light vehicles Most medium trucks in the port/West Melbourne area are transiting through or making local deliveries. Relatively few are based in the area. Congestion is the main issue. Courier and tradespeople’s vans have relatively few major concerns, except peak period congestion. They are much more likely to use local streets to avoid congestion. Meanwhile, peak hour congestion seems to be the only significant issue for light vehicles.

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4.3 Local Area Issues 4.3.1 Kensington/Ascot Vale/North Melbourne There are no rail businesses based in the area. However, the Dynon rail yards are immediately south of Kensington, and so rail noise is a potential issue for residents and others in Kensington. Large road vehicles try to avoid the narrower streets of this area as much as possible due to the tight manoeuvring required. Access to supermarket complexes, such as Newmarket, can be awkward. Medium trucks provide many deliveries to retailers. They try to avoid the worst congestion times. Meanwhile, vans have difficulty with the availability of loading zone parking, and congestion from light vehicles at peak hours and during the day. Tradespeople have difficulties with parking and accessing sites in some areas. In terms of light vehicles, there are several groups, with separate issues. In particular, residents are concerned with parking, including competition with visitors and workers, congestion, and lack of amenity from traffic noise and fumes. Workers and visitors also have concerns with parking, while visitors also have trouble navigating around unfamiliar blocked off streets.

4.3.2 Carlton and East Melbourne There are relatively few large road vehicles in this area – the main issue is congestion for those traversing, and manoeuvring for local deliveries (eg Lygon Court). Wider main streets reduce problems. Suggestions to ban large vehicles from Royal Parade and through Royal Park are unlikely to have much impact, as there are not many there at present. Reducing light vehicle numbers on the boulevards is likely to have much more impact on amenity. Medium trucks provide many deliveries to retailers. They try to avoid the worst congestion times. Courier vans have difficult with availability of loading zone parking, and congestion from light vehicles at peak hours and during the day. Tradespeople have difficulties with parking and accessing sites in some areas. Light vehicles have several sources and separate issues: Residents have issues with congestion, lack of amenity from traffic fumes and noise, and parking, including competition with visitors and workers. Workers and visitors also have problems with parking, particularly in the vicinity of hospitals and the university and the amount of traffic on Grattan Street restricts the

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ability to provide pedestrian connections between the University and hospital campuses. Blocked off streets also pose problems to those unfamiliar with the area. Congestion is the key problem for commuters passing through. The Carlton Residents’ Association raises concerns about the need for better public transport, and problems about Mitcham Frankston Freeway channelling a likely 30,000 more vehicles along Eastern Freeway–Alexandra Pde–Princes Street route. These are very valid points, as is their comment about little action having come from Northern Central City Corridor Study. 4.3.3 South Yarra Freight trains to and from Gippsland use Flinders Street– Richmond–Caulfield rail corridor so there are no rail businesses in this area. Likewise, most large road vehicles are transiting the area, and typically use the Westgate or Monash Freeway, CityLink, Kings Way, or Queens Dandenong or Warrigal Roads. Company directives and perceived time savings and benefit of any time savings are the main determinant of whether CityLink is used, but the trend seems to be towards CityLink. Saving a few minutes is seen of being little value if there will be a later wait of 30-60 minutes in a truck queue at the wharfs or at a supermarket distribution centre. Suggestions to ban large vehicles from St Kilda Rd are unlikely to have much impact, as there are few now. Reducing light vehicles on the boulevards is likely to have much more impact. Medium trucks provide many deliveries to retailers. They try to avoid the worst congestion times and routes, such as Hoddle Street–Punt Road in peak hour. Meanwhile, courier vans have difficult with the availability of loading zone parking, and congestion from light vehicles at peak hours and during the day. Tradespeople have difficulties with parking and accessing sites in some areas. Light vehicles have several sources with separate issues. For residents, the main issues are, again, congestion, parking (competition with visitors and workers), and lack of amenity from traffic noise and fumes. Workers and visitors have issues with parking, particularly in the vicinity of hospitals), while commuters passing through have issues with congestion.

4.4 Summary of Issues The assessment of freight issues has highlighted the following main issues (presented in apparent priority order) where opportunities for improvement exist.

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4.4.1 Road congestion (particularly at morning and afternoon peaks) Undoubtedly the largest issue in the freight area facing the City of Melbourne is road congestion. There are no viable alternatives to road transport for freight distribution around large cities. Door-to-door services require road, even if some linehaul tasks can be performed by other modes. Initiatives which reduce the number of light commuter vehicles on the road have the greatest potential to improve the efficiency and economic performance of freight vehicles. Such initiatives also have real potential to improve environmental performance, as reduced congestion will reduce stop-start acceleration, and associated noise and exhaust emissions. Freight vehicles constitute approximately 15 per cent of vehicles on the road, and are estimated to contribute around 30 per cent of road congestion, with light vehicles (predominantly cars) contributing around 70 per cent. While the State Government has made efforts to address these issues (through initiatives such as the Metropolitan Transport Plan and Northern Central City Corridor Study) it seems that planning effort has exceeded implementation by a fair margin.

4.4.2 Lack of arterial road infrastructure Improving the arterial road infrastructure to accommodate larger freight vehicles (rest areas, turning areas, freight priority lanes – not new roads) will have a high impact on economic performance, while also delivering medium level benefits in terms of amenity and reduced environmental impact.

4.4.3 Parking Improving residential parking will have a big impact on community amenity, but little environmental or economic benefits. Conversely, improving short-term parking and parking for deliveries and tradespeople, will have a greater economic effect but offer a low level improvement to amenity or the environment.

4.4.4 Rail system congestion and lack of rail paths Initiatives aimed at decreasing congestion on the freight rail system will improve amenity, reduce environmental impact and have a medium to high level impact on both economic performance. Likewise, addressing the lack of freight rail paths will have a medium to high level impact on economic performance and amenity, while also reducing environmental impacts to a lesser extent.

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Opportunity area Improving Reduce Improve amenity environmental economic impact performance

Road congestion H H H Lack of arterial road infrastructure M M H capacity

Encouraging freight operations and H L L – M minimising conflicts with neighbours Parking – residential M L L

Parking – short term L L L – M Parking – while delivering, picking up L L M freight

Lack of freight rail paths M – H L – M M – H Rail system congestion H M M – H

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5. Getting to the City

About 85 per cent of Victorians live within two-hours of the city centre, with most of the City’s daytime population coming from metropolitan Melbourne. Improving transport services to the city from the metropolitan area and beyond is important for the social and economic development of the city and Victoria, and Melbourne’s role as a thriving centre of employment, sport, retail and recreation. The City of Melbourne has been historically well served by Melbourne’s radial road and public transport networks. The importance of the train network increases with distance from the City, while tram services are particularly significant as a means of access from inner Melbourne areas. However, most of the outer metropolitan area, which has been developed since the Second World War (the past 60 years), is serviced predominantly by buses that operate infrequently and for limited hours – if at all on weekends. In the future, metropolitan mass transit will have benefited from investment, development and the expansion of train, tram and bus services. Major new rail infrastructure will have been addressed and funded. In the future, frequent, safe and reliable public transport will have facilitated a shift in the road mix, complementing freight and commercial operations and providing the community with greater transport choices.

5.1 Trends in Getting to the City As a large activity centre, the City attracts visitors from the wider metropolitan area for a variety of purposes. People from outside the City of Melbourne constitute the majority of the visitors (including workers) into the City in the morning peak period. After that time, it is mainly the people already in the City who contribute to transport activities throughout the day (Figure 11).

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Figure 7- Visitations from outside versus total visitations within the City of Melbourne6

Given the radial nature of the transport system, its key function is to transport people from metropolitan Melbourne into the City and back again. The measure of performance of the various components that make up this radial transport system is reflected in the share of journeys to the CBD that are made by each mode7 (Figure 12).

6 J.Morris, F. Wang. Demand for Public Transport in the Future: report to the Infrastructure Planning Council, (2002). Transport Research Centre RMIT University. p.27

7 J.Morris, F. Wang. Demand for Public Transport in the Future: report to the Infrastructure Planning Council, (2002). Transport Research Centre RMIT University. p.26

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Figure 8 – Mode share to Melbourne CBD by time period on an average weekday, 1999.

In the morning period, from 6.30-9.30am, commuters dominate arrivals in the CBD, with the majority coming by train (44 per cent). Private car drivers are the second largest group (27 per cent) to arrive at this time, and tram users are the third largest group (10 per cent). Access to the CBD by walking makes up a further 7 per cent of total arrivals. Overall, slightly more than half (about 56 per cent) of morning peak travel to the CBD is made by public transport – about twice the amount made by private car drivers. Trips made as a car passenger are low at 6 per cent, indicating the single-occupancy nature of most commuting car trips to the CBD. After 9.30am, people arriving in the CBD are more likely to be on foot, highlighting an important function of the CBD in supporting large daytime populations of visitors and workers. This pattern of trip making reaches its peak during the lunch hours (11.30-1.30pm), when walking accounts for almost 80 per cent of trips made during that period (Figure 12). As in other Australian cities, private cars are now used for a considerable number of personal trips in Melbourne. Despite the relatively higher levels of public transport serving the City, private cars accounted for 42 per cent of the trips to and from the City undertaken in 2002, down from 53 per cent in 1994. The number of people using public transport has risen from 36 per cent in 1999 to 45 per cent in 2002.

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Over the last 10 years, major land use developments, such as the Docklands, Southbank and the QV development have reshaped the central area of metropolitan Melbourne. New road and public transport improvements, some of which are described below, will be essential for access to these developments and to the City’s broader activities.

5.2 Metropolitan Public Transport Issues

One of the key directions to emerge from community consultation on the State Government’s metropolitan planning strategy, Melbourne 2030, was the promotion of public transport over private vehicles. A range of metropolitan initiatives aimed at improving public transport was expected and the Metropolitan Transport Plan was produced. However, funding for specific initiatives has been lagging behind policy statements.

5.2.1 Rail, Tram and Bus Development

The rail system is by far the most significant public transport mode for accessing the City. Melbourne can boast 15 routes with approximately 12,000 passenger train services a week, servicing 207 railway stations. However, parts of the network are operating at or near capacity.

Significant investment is required on the network to not only maintain but to expand its capacity. Issues that currently need addressing include:

· City loop capacity;

· Triplication of the Dandenong line;

· Improvements to the Hurstbridge line;

· Upgrade of Northern group of lines (west of North Melbourne Station); and

· Rail extensions and electrification to outer Metropolitan suburbs.

The tram network is an icon of Melbourne and the fastest growing means of CBD access. Melbourne’s tram network is one of the worlds biggest with 31 tram routes in the metropolitan area providing nearly 34,000 services a week. Melbourne’s tram network is also noteworthy as the largest network sharing mixed road- pace. For example, the entire French tram network only shares its track with mixed traffic for a little over 800m.

There is a significant need to protect trams from the impacts of increasing traffic congestion so that they can operate effectively and the current growth in tram travel is not stifled. The

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Think Tram project is an attempt to protect tram lanes through a raft of priority measures to preserve and decrease tram travel times. Issues that need addressing:

· vehicles obstructing tram operations;

· sharing of roadspace and tram only corridors;

· traffic lights priority Bus services in the City of Melbourne are now wholly operated by the private sector, contracted to the Department of Infrastructure. The main metropolitan bus service operators serving the City are: National Bus: services to north eastern suburbs towards Latrobe University, Doncaster and Warrandyte and inner south to Fisherman's Bend and Port Melbourne; and Melbourne Bus Link: a combination of through-City services between southern suburbs (such as Brighton and Gardenvale), services towards the west (to suburbs such as Sunshine) and services that terminate in the City from the west. The Nightrider groups of bus services provide late night weekend connections between the City and the metropolitan area and replace train and tram services that do not operate at these times.

Opportunity

Council can work with bus operators, the Department of Infrastructure and the Bus Association of Victoria on bus improvements, including:

· improving running times by introducing ‘bus priority’ concepts, such as improved bus- only lanes, particularly between freeways and the City;

· improving infrastructure, such as bus shelters;

· improving information and signage;

· introducing new buses that use low emission fuels, or other alternative technologies; and

· developing bus interchanges at key nodes such as Federation Square and Spencer Street Station.

· Park and ride facilities at major transport nodes in the outer metropolitan region.

Compared with other capital cities in Australia, the market share of Melbourne’s bus system is relatively small. For example, the mode share of buses in accessing the City is just 2 per cent, compared with 18 per cent for the City of Sydney. City bus services have the greatest capacity to increase patronage; however, Council does not regard buses as a sustainable long-term solution for the City of Melbourne. The bus network

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must supplement the broader mass transit system – feeding the fixed rail system rather than an alternative to it. Much of the urban development that has occurred in Melbourne over the past 60 years is not served by trams, and is served by only a few train lines. Over the next decade, a key growth area for the public transport system will be expanded bus services to feed into metropolitan rail and tram services and link visits to the City.

5.2.1.1 Taxis Taxis are a form of transport for people who want an equivalent to a private car trip but who aren’t in a position to drive or there ia no other means readily available. Taxis are often described as a particular form of public transport; however taxis provide additional value (at a cost) over traditional public transport. They offer:

· 24 hour service

· origin to destination travel (door to door)

· services for special needs

· responsiveness to demand, and

· flexibility because they can serve multiple destinations. For these reasons, taxis are a valuable part of the transport spectrum, but they can be undervalued – and they can sometimes obstruct other public transport modes (such as taxi queues extending onto tram lines). There are many opportunities to utilise taxis better so they make a greater contribution to providing transport services. Council provides for taxis by allocating sections of kerbside for ranks where passengers can wait for a taxi. These are well distributed throughout the CBD to maximise community access and to reduce the need for taxis to drive around looking for passengers. Council also permits taxis to drive on Swanston Street, which is closed to vehicles between 7 am and 7 pm. As part of its Safe City Program, the City of Melbourne has designated four taxi ranks with additional facilities – communication to the Safe City Camera Room, surveillance cameras and extra information – to provide more secure locations where people can catch taxis. On Friday and Saturday nights, from midnight to 6 am, these ranks are staffed by a security guard who provides support to both patrons and taxi drivers to ensure orderly behaviour. Council, in conjunction with the Victorian Taxi Association, has recently established the Melbourne Taxi Tourism Ambassador Program which resources taxi drivers to welcome and provide useful information to visitors to the city. This was launched in

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August 2004. The Program provides a free seminar and ongoing information and to- date 150 drivers have taken advantage of it. There are efforts to attract more drivers through the Victorian Taxi Directorate. This recognises the multi-faceted nature of taxis in simultaneously enhancing city image and providing tourism information, as well as being a valuable transport service. As the municipality with the most taxi business, Council has a significant opportunity to: · acknowledge and value the role of taxis in Melbourne; · work more closely with the industry to: o identify and develop particular markets; and o improve the knowledge and service levels of operators · collect data and monitor transport indicators.

5.2.2 Public Transport Service Convenience of public transport needs to be competitive with that of private car travel. Services need to align themselves with travellers’ desires, both geographically and in terms of travel times. People need readily available, easy-to-understand information about services: where they leave from and when or how often, where they go to, how much a ticket will cost, reassurance about connections, and minimal wait times for any transfers. Flexibility and reliability is increasingly important if public transport services are to serve a changing and diverse market. As the City is a large employment centre, any transport developments need to respond to the growth in, and changes to, employment. The major growth has been in jobs for property and business services – cafes, restaurants, bars, nightclubs, apartment servicing and conference facilities – all sectors known for part-time and casual employment. Current public transport services have been largely oriented around a traditional workforce of full-time workers using the (day-time) peak-hour services. But there are now an increasing number of workers who require frequent and reliable public transport services during traditional off-peak times and at night. Another trend is for part-time/casual workers to combine work with study or other commitments that place more constraints on their time. Real-time travel information, efficient interchanges, improved punctuality, increased frequencies and enhanced contingency management are all essential elements of a reliable public transport system.

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5.2.3 Promoting public transport Promotion of the use and benefits of public transport is as essential to increasing patronage as are better services and infrastructure. People need to be kept informed of their public transport options. In the past, public transport services seldom marketed their services to customers, beyond making timetables available. People, particularly non-users, had little knowledge of the options available to them. The following discussion considers some dimensions of an effective public transport promotional strategy in which Council has a role.

5.2.4 Personalised marketing (TravelSmart and Green Travel Plans) Personalised marketing involves informing people about their travel options. Local and interstate projects have shown that the key to the success of this kind of marketing is the personal interaction and individualised solutions8. TravelSmart - better ways to work is a program being implemented by the City of Melbourne, which seeks to change the way we get to and from work. TravelSmart aims to reduce people’s reliance on cars for transport and at the same time reduce the damaging effects of vehicle pollution. The program is a partnership between the City of Melbourne and the Department of Infrastructure. Green Travel Plans aim to reduce people’s dependence on cars for travelling to work and on business. A typical plan contains a package of measures to encourage staff (or students) to choose alternatives to single-occupancy car use and, as a result, to reduce the total amount of work-related car travel. Each plan is tailored to the particular site and includes measures for use by employers, such as:

· setting up car pooling, providing bike facilities and offering flexible working practices (for example, work from home on some days).

· restricting and/or charging for car parking or providing a bonus to employees who relinquish their car parking spaces; and

· setting up video conferencing facilities to reduce the need for business travel (that is, to make non-car alternatives more feasible and more attractive to employees). The Travelling Green pilot programs are the foundation for the wider application of this initiative throughout the City of Melbourne business community.

8 http://www.travelsmart.vic.gov.au/

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Opportunity Develop TravelSMART and Green Travel programs and promote them to Council employers; and promote car sharing schemes for residents and businesses in the City of Melbourne.

5.2.5 Taxation and road pricing Council could work with other local governments to influence the State and Federal Governments’ taxation and charging policies. The current arrangements distort the perceived cost of car driving and inhibit the development of attractive pricing for public transport. This is entirely consistent with the Federal Governments Sustainable Cities report (refer 2.1.9). For example, car drivers are often not aware of the total cost of car driving as they (or their employers) have already paid the bulk of the cost of owning a car in lump sum payments (that is, purchase price, registration and insurance). Car drivers tend to be more aware of the costs of parking and fuel (although these account for only 30 per cent of the private cost of car use [RACV 2002]), but when they are compared with public transport fares, car driving appears to be the cheaper option. These misconceptions need to be corrected by representing relative travel costs more realistically.

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Opportunity

Work with Metlink to explore the possibilities of promoting public transport. Initiatives may include:

· offering City residents discounted public transport as an alternative to resident parking permits;

· offering new City employers ‘green travel’ promotional packages (such as TravelSmart) that include information on public transport, free public transport tickets and other items; and · working with City retailers to develop a ‘smart card’ loyalty scheme whereby shoppers are offered credits for discounted public transport in return for money spent in the City.

5.2.6 Subsidised public transport In the City, subsidised transport has a role in promoting the City as a tourist destination. When applied to event ticketing for large events, it attracts people to use public transport, aids access management and provides savings in costs associated with congestion. Subsidised transport makes good sense at times when roads are congested and public transport is underused. The arguments against wider introduction of free public transport include:

· there is a cost to Government of free (to users) public transport, while higher priority areas such as schools and hospitals compete for limited government funds;

· Governments are reluctant to impose extra taxes or charges (for example, fuel tax) to replace lost fare revenues; and

· resources used to lower ticket prices rather than to make service improvements would be counter-productive, as public transport use for those who have a choice is very sensitive to service quality. The City Circle tram service is one example of free public transport. This service has become a popular service and a tourism icon for Melbourne. The suggested emphasis is therefore on targeted free tickets and subsidies, rather than increased general subsidies.

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5.2.7 Planning for long term growth in public transport It is clear from the State Government’s ‘20 by 2020’9 transport strategies that growth in public transport services is anticipated for the future. With rising fuel prices and parking costs in 2005, growth in patronage of public transport has already put parts of Melbourne's existing rail, tram and bus infrastructure under pressure by overcrowding and reduced the performance of the system. With growth in public transport patronage, improved signalling systems and ticketing will become critical factors for system efficiency, as already indicated by several bodies including the Institution of Engineers Australia, the Property Council, the Committee for Melbourne, the Metropolitan Transport Forum and others. New infrastructure is also needed. Overseas cities are investing in rail systems because of rail’s ability to absorb traffic growth. In Toronto (Canada), commuter rail services have removed the need to build six-lane freeways. In Portland (USA), one light rail line has attracted more than $1.3 billion in commercial, retail and residential development around it, which is more than six times the cost of the line itself. It was also estimated that the light rail system has removed the need for eight 42-storey car parks in the city centre and two additional lanes on every highway into the city. Ottawa, Brisbane (South East Freeway route; 15 kilometres at a cost of $500 million) and Sydney (Liverpool to Parramatta bus way) are all building extensive, separate rights of way for bus operation, with some routes passing through heavily urbanised areas. Greater use of buses to support rail and investment in rail itself have to be part of the future for Melbourne.

9 The State Government has identified a target of 20% mode share of public transport by 2020.

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Opportunity

The key to good transport is service quality (frequency of service, speed of travel, ease of interchange and a fair expectation of comfort and safety), integrated timetabling and route planning, responsiveness to customer needs, better vehicles and infrastructure extensions. In particular: Short to Medium Term:

· Pursue tram priority measures to raise operating speeds and service improvements simultaneously.

· duplication of existing single track rail sections, particularly on the Werribee, Epping and Hurstbridge lines;

· improving train operations through the introduction of state of the art train signalling and control systems, allowing minimal headways (higher frequency of servic es) and the provision of new (or better use of existing) train grade separations (flyovers or tunnels) at North Melbourne, Clifton Hill, Caulfield and between Flinders Street and Richmond to avoid different route crossing each other’s path;

· the Doncaster/Donvale area is the most substantial Melbourne catchment a high capacity train service is needed to connect the City to the eastern suburbs. (See the 1969 Melbourne Transportation Study or, more recently, the Draft North Central City Corridor Study). Longer Term: · Options for increasing capacity includes planning for constructing new tunnels. The potential to serve the wider CBD – including Docklands, Southbank and Carlton – by tunnels or new alignments (such as north-south) must also be considered. (For details of the Currie Plan – see Appendix 3);

· Rail Extensions and associated infrastructure in the corridors: from Huntingdale to Rowville, Sunshine to Melton, Sydenham to Sunbury, Broadmeadows to Craigieburn and Melbourne Airport, Upfield to Roxburgh Park, Epping to Auroara and Mernda, Cranbourne to East Cranbourne and Frankston to Mornington. (details see Sheurer, Appendix 5)

· Tram extensions to service Docklands, Fishermans Bend and connect outer suburbs (details see Sheurer, Appendix 5)

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5.3 Metropolitan Motorcycle Access Issues

5.3.1 Parking Motorcycles, particularly the smaller ones, are recognised as a highly efficient mode of individual travel. In Victoria, you may legally park a motorcycle on the footpath (unless otherwise signed) as long as the bike does not obstruct pedestrians, delivery vehicles, public transport users or parked cars (VicRoads, Rider Handbook10). While this is beneficial for motorcycle riders, it does have drawbacks in terms of pedestrian access, safety and amenity in the CBD. Council will continue to work with VicRoads and the Victorian Motorcycle Advisory Council to promote guidelines for motorcycle parking11. At the same time, the number of off-street parking spaces for motorcycles has increased. Motorcycle parking, however, will not be allowed to decrease the pedestrian environment.

Opportunity

Continue to:

· consult with motorcycle user groups where changes to existing motor cycle parking are contemplated;

· follow VicRoads guidelines ‘Provision for On-Road Motorcycle Parking’ Motorcycle Note No. 7 (April 2001) when designing new on-street motorcycle parking facilities; and

· manage the growth of on and off street motorcycle parking whilst permitting motorcycle parking on footpaths, motorcycle parking will to be prohibiting at inappropria te locations (such as where pedestrians would be obstructed).

10 http://www.vicroads.vic.gov.au/vrpdf/randl/Rider%20Handbook%20master.pdf 11 http://www.vicroads.vic.gov.au/vrpdf/trum/tr2001102.pdf

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5.4 Metropolitan Vehicle Access Issues

5.4.1 Road Network Developments and Problem Spots Arterial roads will continue to deliver more traffic into the City even where there are already problems with local access. The Eastern Freeway extension, especially when it connects to East Link, will deliver more traffic to Carlton and North Melbourne exacerbating existing squeeze points such as Alexander Parade and Hoddle Street. Both areas are already heavily trafficked and abutting land uses are sensitive to further increases in traffic, particularly truck movements. This is one of the major concerns addressed in the draft Northern Central City Corridor Study, which was commissioned by the Department of Infrastructure and had active involvement from the Cities of Melbourne and Yarra and a Community Reference Group of 23 members.

Opportunity

The resolution of Eastern Freeway impacts on local communities can only be addressed by:

· coordinated actions by the State Government, Melbourne City Council, and the City of Yarra on the management of the City-end traffic from the Eastern Freeway before Eastlink is completed in 2008;

· no increase to the traffic capacity of Princess Street, Cemetery Road, MacArthur Road, Elliott Avenue and Racecourse Road (to manage traffic for the Eastern Freeway); · ensuring that any transport works in the Northern Corridor improve access to the City and materially improve existing conditions for local traffic on surface roads, as well as having no detrimental effect on residential amenity or the use of parkland and major facilities, such as the Melbourne Zoo; and

· the State and/or Federal Governments funding a fixed rail service to Doncaster

The following major new roads are recently completed, presently being built or have recently been committed to by the State Government:

· the extension of the Eastern Freeway to Ringwood;

· the Eastlink Tollway – commencing in Ringwood and extending south to Frankston;

· the Calder Freeway and Tullamarine (City Link) interchange;

· the Craigieburn Bypass; and

· the Western Freeway to Western Ring Road connection from Caroline Springs to Sunshine West.

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Problem spots for access to the City are:

· Bolte Bridge (City Link) interchange with the West Gate Freeway (westbound from Kings Way to the Bolte Bridge ramp); and

· West Gate Bridge (capacity issues). (i) 5.4.1.1 City Link and the Declared Road Network The final component of City Link was opened on 22 December 2000. City Link is a privately owned toll road that connects the southeastern and northern suburbs to the city, airport and docks and also links the Princes, Calder, Western and Hume Highways and the Western Ring Road. City Link carries a substantial amount of Melbourne’s freight traffic and has played an important role in the expansion of the Port of Melbourne. Since it began operating City Link has diverted traffic from the inner city and considerably reduced truck traffic in Harker Street, Abbotsford Street, Flemington Road and Kings Way. City Link is attractive for freight vehicles, which in turn has reduced the number of freight vehicles passing through arterial and local roads within the City of Melbourne. Each day nearly 12,000 trucks pass east/west through the tunnels, with 10,000 travelling north/south along the western link over the Bolte Bridge.

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Opportunity

The full integration of City Link will be achieved by:

· adjoining councils having consistency in traffic management across municipal boundaries;

· encouraging through-traffic to use City Link rather than City streets, particularly during off–peak times;

· introducing differential tolls on City Link to reduce through-traffic in the City and lower tolls for vehicles coming to the City during off-peak times, at weekends and at night; and · introducing lower tolls (environmental and amenity subsidies) on City Link for commercial vehicles that regularly access the City so that the use of surface road is minimised.

5.4.1.2 Tolling Tolling the pre-existing sections of the Monash Freeway and Tullamarine Freeway has resulted in a considerable increase in off-peak traffic volumes on parallel routes such as Toorak Road and Pascoe Vale Road. City streets may also be carrying unwanted amounts of through-traffic during off-peak times. In contrast, during peak hours, these parallel routes have been relieved of traffic volume as commercial drivers whose companies pay the toll use the less congested City Link. Company cars make up to 40 per cent of peak-hour traffic (Australian Railway Association 1999). Current City Link toll pricing does not vary with the level of congestion on City Link. This limits the potential of City Link to redistribute vehicle movements and reduce congestion on City access roads. Council intends to be active in road pricing policy discussions with State and Federal agencies to improve the economic and environmental performances of road networks and enhance the attractiveness and economic competitiveness of the City.

5.4.2 Access by private car If traffic is left unmanaged, the expected business and residential development throughout the municipality will lead to more people travelling to and from the City by car on already crowded inner City streets. Added to this will be an increase in road traffic to support commercial activities with access needs (deliveries, service and construction vehicles) that are almost totally reliant on the road system. If we were to follow traditional ‘predict and provide’ transport planning process, it would result in the construction of more road capacity that would threaten the long-

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term viability of the City. Indeed, in a confined City area, the more space that is devoted to private vehicles, the less space there is for people. There are two opposing factors to be considered in planning car access to the City. For the City to function as a large business activity centre, it needs to cater for commercial vehicle access and have some short-term and affordable parking for business people, visitors and shoppers who need to come to the City by car (particularly at weekends); However, traffic in the confined City area, has a detrimental effect on the quality of the urban environment (air, noise and amenity) and the safe pedestrian environment that Council is aiming to create (including for the people who have come by car). The biggest challenge will be how to progressively reduce car traffic (and the associated demand for car parking) and give priority to the use of road space for commercial access and sustainable and socially inclusive travel choices, particularly walking, cycling and public transport. A holistic access management framework is proposed. This has a three-pronged approach: first, strategies to minimise the demand for access by car; second, to maximise access by public transport; and third, to manage parking issues as an integrated component of travel choices. These approaches will involve working closely with key stakeholders including local communities, the State Government and public transport providers. Key components of this holistic access management framework are discussed below:

5.4.3 Council’s CBD parking policy Consistent with the vision of a sustainable and liveable City, as articulated in Council’s City Plan 2010, parking and planning policy needs to be considered as an integral component of travel choice, with the aim to:

· plan and manage parking as a part of wide-ranging travel demand management;

· encourage and promote public transport as the primary mode for commuter travel to the CBD;

· manage on-street parking supply to cater effectively and efficiently for short- term commercial and business requirements;

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· manage access within the City to give fullest consideration to walking and cycling; and

· manage parking to minimise its effects on on-street public space, particularly around key activity centres. Approximately 42 per cent of trips in and out of the City are made by car. This percentage tends to increase with new residential developments, gentrification and the rise in car ownership across Melbourne. Carefully designed and implemented parking supply and pricing measures are among the simplest, most direct and feasible travel demand management measures to prevent this trend. Car parking in the CBD has, however, been a contentious issue for many years and for several governments. The Council’s parking limitation policy and the associated planning scheme provisions were developed in late 1970s but were undermined by the de-regulated, free market climate of the 1990s. For the CBD and Southbank, the State Planning Policy Framework requires on-site car parking to be limited in view of the limited road capacity, the good access to public transport and the need to preserve pedestrian amenity. The Council’s planning scheme limits the number of car spaces that can be provided in any new development, based on:

· the (limited) capacity of inner City streets and roads to cater for large volumes of commuter traffic;

· the strategic emphasis on the use of public transport; and

· the need to reduce air and noise pollution from vehicular movements and to improve the quality of living in the inner city. Council has sought to encourage short-term car parking (and to discourage long-term parking, particularly commuter parking) as a means of boosting casual visits to the CBD.

5.4.3.1 State Government Approvals Successive State Governments have, however, granted permit conditions and site- specific planning scheme provisions, with special agreements under Section 173 of the Planning and Environment Act, to allow the construction of parking. The 1980s and early 1990s saw a boom in development that doubled the number of public parking spaces from around 14 000 bays to more than 28 000 bays in less than 15 years. However, in all instances, the conditions of the Section 173 agreements (to encourage short-term parking) were not met. Most parking was and is used by commuters.

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A 1998 Ministerial Advisory Committee report on the future operation of the commercial car park at Flinders Gate led to a radical reduction in the short-term parking requirements at the Flinders Gate facility and made enforcement of other agreements virtually impossible. A proposal to encourage adequate and affordable short stay parking by controlling prices was also dropped on advice that it contravened Federal competition policy. Only a limited amount of short-term parking is now provided.

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5.4.3.2 Long Stay Parking Levy The State Government introduced a Levy in 200612 aimed at reducing peak hour traffic congestion in Melbourne’s CBD. This Levy is intended to have a positive impact on the CBD environment and encourage the use of public transport. The Levy is an annual charge and applies to ‘off-street’ parking spaces used for long- term parking of motor vehicles within the Levy area (CBD, Docklands, Southbank and St Kilda Road). The Levy is applicable on all long-stay car-parking spaces greater than 4 hours, exempting short-stay spaces (with other exemptions applying).

Figure 9: The Levy area. There is now greater sensitivity to planning in the CBD parking issue. This presents an opportunity for a new agreement between the Council and the Minister for Planning to limit CBD parking. A further opportunity also exists to introduce a secondary limitations policy within the Congestion Levy area which would complement the State Governments policy of addressing road congestion.

12http://www.sro.vic.gov.au/SRO/srowebsite.nsf/taxes_duties_CongestionLevy.htm?OpenPage&charse t=iso-8859-1

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5.4.3.3 Parking demand Parking in the central area falls into four broad categories:

· those requiring all-day parking;

· visitors on business or personal trips who generally wish to park for a shorter period of time;

· shoppers, diners and entertainment patrons who typically want to stay for two to six hours; and

· commercial vehicles requiring loading zones to set down or pick up goods. Parking is a key component of private motorised travel. To understand parking demand, it is necessary to appreciate how travel and activities are undertaken in the CBD and surrounding areas. Activities on weekdays in the central activities district (CAD) tend to be ‘chained’, with people undertaking several activities (such as dropping off children, gym, work, lunch, shopping and education) while they are in the CAD13 (Richardson 1997). For example, while an average of more than 44 per cent of all weekday trips within the CAD were for work, only 20 per cent were made directly from home – the rest came from other activities performed either in or out of the CAD. Similarly only a minority of shopping and social activities on weekdays in the CAD were made from home. On weekends, however, more trips were made directly from home and the percentage of car trips also rose significantly to above 45 per cent. These findings on patterns of visitations to the City suggest two things.

· On weekdays, shopping activities depend little on the availability and the pricing of parking as most shopping and recreational activities are undertaken on foot as part of the working day. To support the retail core and the ancillary business activities within the CAD, the priority is therefore to provide and maintain employment and attractive high quality public spaces for people on foot.

· On weekends, demand for car parking rises as a result of increases in car use for travel to the CAD and also in trips directly from home. However existing car parks have not been fully utilised; surveys of CBD car parks show a large number of vacancies at weekends with the take-up rate less than 50 per cent (Murray F. Young and Associates 2000).

13 The CAD includes the CBD, Parliament, RMIT, the Queen Victoria Market, Spencer Street Station, the World Trade Centre, Southbank and the Arts Precinct.

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Developers are understood to consider the availability of car parking as a key factor in business location decisions. An adequate parking supply is therefore considered by some as essential to the ability of the City to remain competitive as an accessible and desirable location for entertainment and retailing. However, research suggests that the City’s attraction for retailing and entertainment does not rely on car access, particularly on weekdays. The City is not another suburban shopping centre: it provides a unique combination of working, eating and socialising experiences that make it stand out from the rest. 5.4.3.4 Central City off-street parking supply The majority (approximately 95 per cent) of central City car spaces are provided off- street in undercover parking, with the remainder provided as on-street spaces. Council and private operators both supply off-street parking spaces, open to the public for fee- paying parking (public parking). (Parking spaces accessible only to private businesses or residents are termed private parking spaces.)

70000

60000

50000

40000 Commercial Private 30000 Total 20000 Number of Spaces 10000

0 1976 1982 1984 1990 1995 1997 2000 2002 2004

Figure 10 – Supply of CBD parking 1976–2004

Over recent years, the number of off-street parking spaces has increased significantly. The expanded CBD, including Southbank, has approximately 63,000 off-street parking spaces, of which approximately 20,000 are private/reserved spaces. Parking

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provision in Melbourne is higher than in some comparable Australian, American, European and Asian cities. For example, per 100 employees14 (1999 figures):

· Houston: 61.2 spaces · Washington: 25.3 · Singapore: 16.4

· Los Angeles: 52.0 · Frankfurt: 24.6 · San Francisco: 13.7

· Portland: 40 · Copenhagen: 22.3 · Zurich: 13.7

· Melbourne: 33.7 · Sydney 22.2 · Chicago: 12.8

· Brisbane: 32.2 · Paris: 20 · New York: 6.0

· Boston: 28.5 · Hamburg: 17.7 · Hong Kong: 3.3 · Munich: 26.6 · Toronto: 17.6 · Tokyo: 4.3

San Francisco has 14.5 spaces, Toronto 20 spaces and Frankfurt 24 spaces. A further increase in parking spaces is expected (Figure 14). The parking policy’s main Recently approved off street spaces: objective is to support Queen Victoria Building 2,000 spaces economic activity in the CBD by ensuring that there is a Southern Cross Site 1,000 spaces good supply of convenient Federation Square + 500 spaces short-stay, off-street parking. Children’s Hospital 2,000 spaces Council’s off-street, short- stay parking policy is directed Casino 1,500 spaces towards providing parking for Melbourne Convention Centre + significant up to four hours for shopping, social, personal business and Total: +7,000 spaces multipurpose trips. However, the parking industry’s current Figure 11 – Recently approved off-street car emphasis on commuter parking spaces parking does not generally support this objective.

The provision of commuter parking was once associated with a City’s accessibility – it is now clearly recognised as a major contributor to road congestion and tools are being employed to combat this (such as the Congestion Levy). The State Government cannot continue to waive Council’s parking limitations policies for large developments – this is contrary to their own long-term strategic vision (Melbourne

14 Kenworthy, J.R., Newman, P.W.G, and Lyons (1999). Indicators of transport efficiency in 37 cities. Report to World Bank, ISTP, Murdoch University, Western Australia.

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2030). On the basis of worldwide experience, it is clearly unsustainable and only adds to road congestion.

5.4.3.5 Central City on-street parking supply During weekdays, street parking provides premium spaces to service short visits of up to two hours, with time limits starting from 15 minutes. On-street parking in the CBD is also regulated at weekends with the objective of increasing the turnover of parking spaces to improve the attractiveness of the CBD for visitors. Approximately two- thirds of on-street car spaces are for loading zones and most of these are free on Saturday afternoons and Sundays, as the loading zones in the CBD are only applicable Monday to Friday. The majority of metered parking spaces in the retail area remain metered on a Saturday. However, on-street parking is free on Sundays, subject to area-specific time limits (fines are issued for overstaying).

5.4.3.6 The price of parking There are significant imbalances in the cost to users of parking spaces in the City. Some private non-residential car parking spaces are offered to employees as part of salary packages and are used by commuters at no cost. Recognition of the cost of parking spaces is to be encouraged and could actively be pursued as part of Green Travel Plans. At the other extreme, the cost of parking for two hours in many private CBD car parks can be much higher than parking all day in the same facility — reflecting the parking industry’s focus on reserved and commuter parking. This practice, while tolerated by business users, detracts from the attractiveness of short-stay parking for many City visitors. Off-street, short-term parking is also typically more expensive than on-street parking, hence some motorists drive around to seek out an on-street meter — contributing to traffic congestion and air pollution. To achieve parity between on-street and off-street prices, some on-street prices would need to be slightly increased while off-street (non- commuter) prices would need to be significantly reduced.

Opportunity

Review the Central City Parking Limitation Policy with a view to engaging with the State Government to align Council parking limitation objectives with their approval processes. A further opportunity exists to introduce a secondary limitations policy within the Congestion Levy area which would complement the State Governments policy of addressing road congestion.

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5.4.4 Greenhouse gas reduction Council is committed to achieving greenhouse gas reduction targets. Council’s 2001– 2003 Greenhouse Action Plan aims to reduce greenhouse gas emissions for the municipality by 20 per cent on 1996 levels by 2010. Council also has a plan to reduce net greenhouse gas emissions in the municipality to zero by 2020. For its own environmental performance, Council has also adopted a target to reduce greenhouse gases generated within the organisation by 30 per cent on 1996 levels by 2010. Council promotes the use of transport modes that produce less greenhouse gas. Melbourne’s train and tram services already keep 190 million potential car journeys off the roads each year — saving over one million tonnes of greenhouse gas emissions (Australian Railway Association 1999). Council will also continue to support environmentally responsible modes, such as walking, cycling and public transport. Council strategies and policies aim to gradually reduce reliance on cars by making better use of existing infrastructure. Council’s Postcode 3000 program has actively promoted residential development in central Melbourne as one way of reducing the need for car travel. Council also promotes urban design principles that minimise the need to travel, such as mixed-use development and in-fill development, which reduce car dependence by encouraging higher density uses close to modal interchanges (see Land Use and Transport for more details).

5.4.4.1 Vehicle emissions Poorly maintained vehicles and older cars tend to have higher levels of emissions. As older cars are scrapped and improved engine and fuel technologies are introduced, emissions per vehicle are expected to reduce. A parallel issue to the commercial development of alternative fuels and cleaner engines is the reduction in vehicle weight and body designs to reduce wind drag. In the future, cars will use significantly less fuel per vehicle kilometre and are likely to rely less and less on fossil fuels. Reductions in total emissions could however be offset in part by growth in car use. Other countries and cities are experimenting with a range of measures to combat pollution and smog, such as annual vehicle emissions tests, car free days, electric share vehicles and traffic calming measures.

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5.4.4.2 Alternative fuels and environmentally friendly vehicles Council can influence (Leadership in Sustainability) the purchase of vehicles that have lower emission levels and/or that are powered by alternative cleaner fuels to improve air quality. Council currently has several hybrid vehicles in its fleet. Council’s service provider, CityWide, already uses compressed natural gas (CNG) in its new (dual fuel) waste collection trucks, replacing diesel trucks. The new trucks produce around 50 per cent less greenhouse gas and cut other harmful emissions by 50 per cent. CNG is now also a common fuel for passenger buses. Several Council cars are now run on a combination of LPG and petrol, and reduce greenhouse gases by around 13 per cent when LPG is used for 80 per cent of the vehicle kilometres travelled.

Opportunity

Monitor the technological advances in fuel efficiency and alternative fuels and will explore ways to be involved with interested groups in trials and programs. Encourage the introduction of environmentally friendly vehicles through incentives like differential parking rates. Environmentally friendly vehicles would need to be identified to qualify (for example, by a sticker on the numberplate, similar to LPG stickers). Influence the wider adoption of cleaner vehicles by encouraging the State and Federal Governments to introduce differential taxes and charges as part of a coherent structure of positive incentives.

Many years of industrial research and development have lowered the cost of vehicles powered by alternative fuels. In 2001, hybrid powered vehicles entered the new car market with models by Ford, Mazda and Toyota. Hybrids are powered by a combination of small petrol-powered motors and (electric) batteries. The production cost of compressed hydrogen (a sustainable fuel) is falling and it is expected that hydrogen fuel cells will soon be commercially viable, meaning that cars powered by them would have virtually no emissions.

5.5 Interstate and Regional Issues

This section looks at the role of the airport and long distance rail, bus and coach services in linking Melbourne with regional centres, other Australian cities and the rest of the world.

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5.5.1 Melbourne Airport transit Issues Melbourne Airport is the main international passenger gateway to Melbourne and Victoria. It is vital to the economic prosperity of the City. Airport development is continuing to ensure that the facility maintains its ranking in the top ten passenger airports of the world. Increasing the number of direct services from Asia, North America and other places is an important expansion issue facing the airport and Victoria. During 2000/01, Melbourne Airport handled 17.24 million people, about 77 per cent of which were domestic travellers (Melbourne Airport website). Competitive public transport options for passenger access to Melbourne Airport will be central to its future development. At present, traveller access to Melbourne Airport is dominated by private vehicles, taxis and hire cars. Public transport options are limited and the only direct public transport service to the CBD is the airport shuttle service operated by Skybus on a fully commercial basis. Similar services by different operators also exist between the Airport and some regional cities, such as Bendigo, Ballarat and Geelong. Other transport options include charter buses for tour groups and, theoretically, suburban bus routes 477 and 478 serving the northern suburbs. With the opening of City Link, road access to Melbourne Airport was greatly improved. The Skybus shuttle service has reduced its trip time from 40 minutes to 20 minutes at a headway of 10 to 15 minutes. Council’s City Plan 2010 states that improving public transport access between the CBD and Melbourne Airport is a key long-term strategy. City Plan actively supports further enhancement to airport bus services (such as Skybus) and the provision of better information services to travellers going to and from Melbourne Airport.

Opportunity

Better provision of information services for passengers as an important future improvement for the airport. Arriving travellers, particularly those from overseas, require high quality information about getting to the central City. Real-time information systems have recently been introduced in European and American airports. Melbourne Airport’s traveller information systems need to be similarly upgraded.

5.5.2 Regional and Interstate Rail Issues In addition to Victoria's metropolitan and inter-town passenger rail services, several interstate rail services are also available. The CountryLink XPT train provides the

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main Melbourne-Sydney rail service. A Melbourne-Adelaide rail link is provided by The Overland train while The Ghan also serves Melbourne as part of a journey that takes in Sydney, Adelaide and Alice Springs. VLine Passenger provides the bulk of the services from Spencer Street Station. It has two types of markets:

· commuters: daily workers to Melbourne from centres such as Sunbury, Craigieburn and Melton; and

· intercity: longer distance travellers from regional centres such as Bendigo, Ballarat and Traralgon. Significant improvements to rail services to interstate cities and regional centres are expected under a number of State initiatives, discussed below.

5.5.2.1 Regional fast trains project The State Government has committed to complete the regional fast trains project to Ballarat, Bendigo, Geelong and the La Trobe Valley, with new trains running to new timetables by mid 2006. The main objective is to improve Central Victoria’s access to markets and services.

5.5.2.2 Re-opening of rural rail lines The State Government has re-introduced train services to Ararat (mid 2004) and Bairnsdale (mid 2004) and announced that it will re-introduce services to Mildura and South Gippsland once planning works are complete. These projects have involved capital works for upgrading the track and purchasing rolling stock. These country passenger services are expected to deliver faster and more comfortable travel for rural Victorians and significantly boost tourism and regional development.

5.5.2.3 Southern Cross Station redevelopment project Southern Cross Station was opened in December 2005. The redevelopment included:

· a rail terminal to meet the various needs of metropolitan, regional and national passengers;

· new infrastructure for passenger transfers to bus, tram and taxi services;

· a possible future airport check-in; and

· services and amenities for tourists and business travellers. The station includes a commercial component and has the potential to strengthen the links between the western parts of the CBD and the Docklands area. This was a project auspiced by the State Government’s private–public partnership scheme.

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5.5.3 Regional and Interstate Coach Issues A range of scheduled interstate and regional coach lines service Melbourne, with most regular services operating from Spencer Street (Southern Cross) Station. Tour and charter coach services also operate in the City of Melbourne. These generally transport passengers to major events and entertainment venues and provide services to and from City hotels. Coach parking is an ongoing problem within the central area, particularly in Swanston Street in the CBD. Inadequate coach parking discourages bus operators from servicing City locations and increases congestion when tourist coaches that cannot find parking circulate in traffic. The opportunity has passed to provide a facility with the Southern Cross Station and the next possibility will be the top deck of the expanded Federation Square car park. The Victorian bus industry has long considered the lack of an integrated coach terminal in the CBD to be an issue that lowers the City’s competitiveness when compared with Sydney, Brisbane and overseas cities that provide quality facilities. As the City improves its connections with the hinterland, it will be necessary to improve pedestrian and local public transport links to the City’s major transport terminals.

Opportunity Explore options for a new coach terminal within or adjacent to the CBD

5.5.4 Interstate and Regional Road Network Issues Road links of freeway standard are being completed from Geelong, Bendigo, Ballarat and the Latrobe Valley to central Melbourne. National Highway bypass projects are committed on the Goulburn Valley Highway (Murchison East) and the Hume Highway (Albury–Wodonga). These projects will improve what is already generally excellent road access between the City and major country centres.

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5.6 Accessing the City for Major Events

Melbourne City Council and the State Government promote Melbourne as a city of international significance. Council is involved in an annual calendar of more than 1000 civic, cultural, community and sporting events. Council’s promotional material about the City and its events contain information about travel choices. Council also plans and manages the public logistics of major events, including managing traffic and parking. Currently, some parking for major events uses parklands such as the Yarra and Princes Parks. However, parked vehicles damage tree roots and accessing vehicles cause problems in surrounding residential areas. These issues could be addressed by improving public transport services for major events and pedestrian paths to venues and public transport drop-off points. Council has signalled its desire to reduce the impact of car parking on parkland and will endeavour to look at alternative solutions for event parking. A number of marketing campaigns focusing on City access are being developed, including:

· City Access campaign – Council has devised a collaborative campaign (involving operators of car parks, public transport and park-and-ride facilities) which will highlight how easy it is to get to the City by a range of transport modes. The campaign will consist of press, radio and outdoor advertising; and

· a Tourist Shuttle Bus to CBD retail outlets – Council has consulted with City retailers and tourist operators to promote a tourist shuttle bus running on a north -south axis taking in Carlton, Southbank and the CBD. A tourist tram may in the longer term supersede this service.

Opportunity

· work with public transport operators to ensure that extended services are provided and publicised for major events;

· encourage combined tickets (event entry and public transport) to promote the use of public transport during major events; and

· work with event facility managers to better provide for and promote cycling to major events.

· Work with stakeholders to find a solution to parking issues within Yarra Park.

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Opportunity: City Sights Tourist Tram Service

Regional, interstate and international tourism plays an important role in the economic prosperity and the vibrancy of the City. There are improvements to be made in the legibility of public transport for tourists and also in developing public transport that better caters for their needs. A high quality commercial tourist tram service, building on the City Circle tram and Council’s Tourist Shuttle Bus, is being considered to serve tourist sites, including the Melbourne Zoo, Chapel Street, the Victorian Arts Centre, Crown Casino and the Shrine of Remembrance.

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6. Getting around the City

The City of Melbourne is fortunate to be a compact urban form with a high density of uses and activities. For this reason, access within the City is dominated largely by walking, cycling and trams. However, the viability of sustainable and public transport modes is being jeopardised by vehicle congestion that slows trams and erodes the safety and the desirability of walking and cycling. There is also work to be done to further support cycling, pedestrian, bus and tram networks through development of infrastructure.

In the future, pedestrians will enjoy a high quality walking environment that will make the City more attractive as a place to work, visit or live. On all streets and public space within the central City – the paths, malls, and open spaces – people would have priority over road traffic. In the future, cyclists will benefit from safer cycling networks through the Central City and connecting with adjoining municipalities. These networks will be complemented by appropriate trip-end facilities to create a package that will make cycling a desirable mode choice for commuters and visitors to the City so that Melbourne becomes a genuine City for Bikes. In the future, the City’s public transport system will be more efficient and more attractive, having benefited from tram and bus priority routes and intersections that give priority to public transport ahead of cars. Tram and bus stops will be safer, have better information and be more easily accessible – making public transport the first choice for longer trips within the City. In the future, water-based transport will service the ever-growing tourist and leisure markets. Water-based transport will be an ideal choice for those enjoying the City’s sports and entertainment precinct, the Arts precinct and the entertainment and dining precincts of Southbank and Docklands.

6.1 Central City Issues

6.1.1 Walking in the Central City The number of pedestrians in the Central City is constantly growing: a survey along ten important pedestrian streets in the Central City revealed an increase in pedestrian

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traffic of nearly 40 per cent during weekday daytimes between 1993 and 2004, and almost 100 per cent on weekday evenings15[1]. Seven out of eight trips within central Melbourne are done on foot; likewise, every trip begins and ends with a walk. A good walking environment is a fundamental indicator of a city’s liveability. Virtually every resident, worker or visitor spends some of their time walking within the City's public domain. A safe, pleasant walk to a tram or bus stop or a train station is crucial to the operation of Melbourne's transport system and has significant health benefits for those who walk and use public transport. Most of the main adult diseases can be prevented by activity and walking is the easiest activity. While people are on foot, they also truly engage with and experience their surroundings. A good city street is a destination … an experience as well as a thoroughfare. The central City is endowed with many pedestrian-friendly assets – tree-lined streets, a successful Safe City program, public art, active retail frontages and the arcades and pedestrianised laneways of the CBD grid. On weekdays, sections of a number of smaller streets, such as Hardware Lane and Little Collins Street, are closed to cars during lunchtime to give complete priority to walkers and shoppers. These street closures recognise the important role played by pedestrians in bringing social and economic vitality to the central City. Between 1993 and 2004 the total area of pedestrian-priority spaces across Melbourne’s CBD has increased by more than 70 per cent, and a near tripling of the number of outdoor café seats has occurred in the same period [2]. There is more work to be done to improve the walking environment to further realise the contribution pedestrians make to the City.

6.1.1.1 A More People-Friendly Environment The central City needs to offer reasonable physical comfort, relative to that offered by the climate-controlled shopping centres. In particular, a comfortable microclimate is needed at street level. Pedestrians need to be able to enjoy natural light, yet still have protection from the wind, rain and summer sun. Additional verandas or awnings may be appropriate where no cover exists, subject to heritage issues and potential effects on street trees.

15[1] City of Melbourne, Gehl Architects (2005) Places for People. Melbourne 2004. Melbourne (p72- 73).

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Appropriate standards are required for sunlight levels and acceptable wind effects. Restrictions on building heights have maintained reasonable access to sunshine in the Retail Core over the last few decades. Built infrastructure that contributes to a comfortable walking environment (including adequate public toilets, street furniture and places where children can play) is also necessary. Signage must also be thought about from a pedestrian’s viewpoint and speed of passage, rather than from that of those passing through at 50 kilometres an hour.

Opportunity

Continue to support pedestrian laneways and will look for further opportunities to open up more laneways to promote convenient and safe personal access.

6.1.1.2 Road safety for pedestrians Pedestrian safety is the most important road safety issue within the central area. A fifth of all casualty crashes in the municipality between 1997 and 2002 involved a pedestrian, rising to over a quarter in the CBD. Significant progress has been made over the past five years. The high level of vehicular and pedestrian activity that occurs in the city is a major factor for road safety. Mixing over half a million daily visitors to the city with vehicle numbers of between 30,000 and 40,000 in CBD streets (up to 60,000 in King Street) creates a heavily congested situation with high exposure rates for pedestrians. Between 1997 – 2002 approximately 1200 pedestrians were involved in accidents in the City of Melbourne. The introduction in 2000 of a blanket (default) 50 kilometres an hour speed limit in urban areas[3] has renewed interest in speed management for streets with sensitive functions. However, 50 kilometres an hour is still unsafe for many locations in the City, including the ‘little streets’ in the CBD. A blanket 40 kilometres an hour speed limit in the CBD (Hoddle Grid) will reduce personal injury rates and provide a safer overall environment for pedestrians and cyclists. This will also require increased enforcement by Victoria Police.

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Opportunity

Pedestrian injuries remain an issue – a common incident is where a right-turning vehicle leaving an intersection strikes a pedestrian (although this is less of a problem at intersections with ‘hook’ turns). A blanket 40 kilometre per hour CBD speed limit will help reduce pedestrian injuries and improve the walking and cycling environment.

6.1.1.3 Active Frontages To provide incidental supervision of public spaces, the planning provisions require active people-oriented uses at street level, such as retail and entertainment in new CBD developments. Highly visible pedestrian activity at street level is the key to safety and urban vitality. Solutions for improving traffic include traffic calming measures, reducing vehicle speeds, pedestrian priority signals and enlarged pedestrian refuges that allow people to cross roads safely at ground level.

Opportunity

A walking strategy is being developed as part of the City’s urban design strategy. This strategy aims to provide an effective, safe, interesting, and engaging environment to support and encourage people to enjoy the City on foot. Key objectives of the walking strategy are to:

· provide effective links between areas of major activity;

· ensure an agreeable microclimate (protection from extremes of temperature and wind, and ensuring the experience of sunlight);

· allow for a diversity of experiences in an attractive and interesting environment;

· provide for different types of walkers (people ‘in transit’, pushing strollers, in motorised chairs, window browsers and people watchers); and

· maximise personal safety and road safety.

6.1.1.4 Pedestrian Infrastructure Well-designed and well-placed signs and information are indispensable for an attractive walking environment. Signs that are designed for pedestrians rather than motorists help those less familiar with the City to make their way around successfully and can be used to promote walking to new destinations amongst the existing walking

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public. Many areas in the City of Melbourne are already developing precinct management and improvement plans with better signs, lighting, design and safety.

6.1.2 Cycling in the Central City 6.1.2.1 Road Safety for Cyclists Cycling in the central City is not an easy activity nor is there a simple way to make it so. Although there are informal bike routes in the CBD, there are only two designated bike only lanes – one running north to south along William Street and one east to west in LaTrobe Street. Road space in the cental City is used by pedestrians (footpaths), parked cars, moving traffic and cyclists, however cyclists are usually required to make their own space rather than having space designated. Safety and comfort is a serious concern and inhibits many potential cyclists from cycling to the central City. The City of Melbourne has the highest number of bicycle crashes of all Victorian municipalities. Improved safety is, therefore, a vital consideration in the development of cycling. Road safety for cyclists depends on the level of activity by cyclists, the intensity of other traffic, road conditions, engineering works, traffic management and user behaviour and interactions. Typically, the road environment is a factor in about a third of all accidents involving cyclists, so we must improve road design and maintenance.

6.1.2.2 End-of-trip Facilities The City currently provides bicycle rails for bicycle parking throughout the City. Council is continuing to install on-street bicycle parking facilities in high-use areas throughout the municipality. Bike facilities are also needed in commercial and residential developments. Under Victoria Planning Provisions, all new developments must include bicycle parking spaces, showers and change rooms for residents, employees and visitors.

Opportunity

Encourage the provision of secure, undercover bike storage, lockers and showers that are essential for commuting cyclists and are a key part of many Green Travel Plans. The feasibility of new end of trip facilities that will encourage a modes shift to cycling will also be investigated.

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6.1.3 Central City Tram Issues 6.1.3.1 Tram Speed, Priority and Superstops Melbourne’s tram network needs to compete with the speed and convenience of cars. The blending of car and tram traffic on Melbourne’s roads is a remnant of an era in which Melbourne’s car ownership was so low that the mixing of these two transport modes neither inconvenienced tram passengers nor posed a safety issue. In 2006 the sharing of road space by these two modes is having dire consequences for the speed of trams and their ability to compete with the trip speed of the private car. Metropolitan road-based public transport (buses and trams) struggles to achieve even half the speed of cars (Scheurer et al, Most Liveable and Best Connected, 2005). The effectiveness our metropolitan public transport system affects the central City. Without viable public transport choices, visitors to the central City will have to travel by car, or else use other centres. Tram stop rationalisation does not translate easily from a suburban context to a central city one. Trams in the central city typically have a stop on each major street corner. The case for removing some of these stops is made on the basis of improving the speed of trams through the city (made on the assumption that the stops were closer together when compared with suburban areas and similar systems internationally) and to rationalise the expensive Superstop infrastructure. The regularity of tram stops at each intersection is a benefit to users and makes interchange between routes easy.

Opportunity: Tram Speed, Priority and Superstops Speeding up the overall trip time of trams in the central City will improve the attractiveness of this mode. Rather than increasing the actual speed of trams and potentially jeopardising safety in the crowded City environment, there is scope to improve trip times through better tram routes, including tram-only lanes and tram priority intersections. In the CBD, the removal of tram stops in association with Superstops should not be continued in the future.

6.1.4 Docklands tram and public transport extensions Yarra Trams and the State Government have extended:

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· Route 86 tram services from its original tram terminus on the corner of Spencer and Bourke Streets to Latrobe Street, Colonial Stadium; · Route 30 (La Trobe Street-St Vincent’s Plaza); and, · Route 48 (North Balwyn to Docklands via Flinders Street) from La Trobe Street along Harbour Esplanade and down Docklands Drive. City Plan 2010 aims to:

· physically and functionally integrate Docklands, Port Melbourne and with the central City; · develop a coordinated, accessible and integrated water transport system; · improve links between key City attractions; · improve the links between recreational attractions located on the Yarra River and Docklands. Key strategies could include to:

· make sure that safe and effective pedestrian links are provided to major City stations and between major tram and bus stops; · Further extend and upgrade public transport services to Docklands and Fishermans Bend · ensure the redevelopment of Spencer Street (Southern Cross) Station meets the City’s needs and is integrated with the western end of the CBD; · strengthen pedestrian and public transport links between Docklands and the city.

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6.1.4 Vehicle Access and Parking 6.1.4.1 Parking Limitation Policy Melbourne City Council has operated a parking limitation policy since the mid 1980s. The parking limitation policy operates in the Capital City Zone in recognition of the vehicle congestion that would result from a free market approach to parking provision and also recognising the transport alternatives available to those who chose not to drive. As the Melbourne City Council is not the responsible authority for approving developments greater than 25,000sqm in the Capital City Zone, the challenge now is to engage the State Government to align with the Council position on limiting the provision of parking in the CBD.

Opportunity: Expansion of Parking Limitation Policy

In recognition of the impact of car parking on local areas and the State Parking Levy area, there is an opportunity to expand the limitations policy to reflect the area covered by the State Levy. This review could also address areas that are rich in public transport services, and cycling and walking infrastructure.

6.1.5 River Transport Issues Water transport adds an exciting dimension to the City, especially for tourism and leisure. Many major function centres and key attractions are located along the Yarra and Maribyrnong Rivers, making water transport a useful transport mode, especially for tourism and events. The speeds required for a viable commuter service are not able to be achieved given the ‘wash’ created by boats operating at faster speeds and structural issues with riverbanks and bridges. There are also potential conflicts amongst recreational river users (rowers, kayakers and canoeists) and traffic accessing the Port of Melbourne.

6.2 Local Area Issues

Demand for mobility and parking in neighbourhoods close to the central City is continually increasing with the expansion of commercial, residential and institutional development. To support a growing residential population and business activities in the neighbourhoods, access needs to be improved for all road users: pedestrians, cyclists, private motorists, public transport and commercial vehicles.

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6.2.1 Walking in Local Areas Pedestrian issues are important in local areas of the City, as people need to access both local strip shopping centres and the many major institutions and business located in these areas. It is important that good links are maintained and developed both within and between these areas and other destinations, such as schools, parks, gardens and other community facilities. Likewise, connecting local areas with the central City is also important. The ease with which pedestrians can get to the central City can be inhibited by the City’s wide boulevards, which are difficult to cross as a pedestrian due to long pedestrian ‘wait times’ and short pedestrian ‘green times’. The City’s boulevards are managed by VicRoads.

Opportunity

The City's walking environment can still be improved, particularly outside the CBD. More attention must be paid to the creation of direct and safe routes to schools, shops, stations and other activity areas. Traffic speeds are generally too high. Pedestrian waiting times are too great across most arterial roads and at some central City pedestrian crossings.

6.2.2 Cycling in Local Areas An increase in cycling will provide many benefits for the City of Melbourne. Cycling makes a valuable contribution to the City of Melbourne’s access, health and recreation profile. Cycling is a low-cost form of transport generally suitable for shorter trips (one to 10 kilometres). Where cycling replaces motorised travel, it also assists in reducing congestion and greenhouse gas emissions. The City of Melbourne is well suited to cycling as a mode of travel, being relatively flat with good quality local roads and a network of bicycle paths. Currently, cycling makes up 1.5 per cent of all trips made within the City of Melbourne and contributes to 2.5 per cent of all distance travelled (Transport Research Centre 2001). Much more work is needed to promote cycling as a safe, viable and feasible travel option.

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Opportunity: Communicating with the cycling public

Continue to involve cyclists in the planning of the network and seek new avenues for gathering information. One innovation could be an interactive Internet site for community suggestions on network and facility improvements

Considerable improvements have been made to the bicycle network over the past decade. In the City of Melbourne, 28 kilometres of on-road facilities and 34 kilometres of off-road facilities are available to the City’s cyclists. To further build upon the cycling network and to continue to enhance cycling as a mode choice, work needs to be done to identify gaps in the network and improve its safety and comfort.

Opportunity

Ask the State Government and Victoria Police to actively enforce Road Rules – targeting the behaviour of both cyclists and motorists. Mutual respect and sharing of the road space will only be achieved by an even-handed approach to enforcement issues. Motorists will have clear visual and where possible tactile prompts to stay out of bike lanes (just as cyclists are expected to obey all relevant road rules.) Council will build appropriate infrastructure to facilitate this (the carrot) – the stick resides with the State Government.

Opportunity

There is much work to be done in increasing community awareness of cycling’s suitability for many short trips, its health benefits and the availability of facilities. Council produces and regularly updates its TravelSmart map, which incorporates Cycling, Walking and Public Transport information. This shows network information on on-road and off-road bicycle routes and end-of-trip facilities. This is widely distributed and will be regularly updated so that cyclists and potential cyclists are aware of what is available in the City.

6.2.2.1 Connectivity and Maintenance of the Network A comprehensive bicycle network with good trip-end facilities will also encourage cycling. Connectivity of the network within the City of Melbourne and between surrounding municipalities is an important factor, as is the need to maintain the networks’ surfaces and clearances to vegetation. The main issues for the City’s cycling network include cycling safety and access in the CBD, including Princes Bridge, sections of the Capital City Trail and alongside parks. Local laws prevent cycling in the City’s gardens to protect pedestrians and

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maintain the peaceful ambience of the parks, however, this causes discontinuity in cycling routes, such as where the popular Canning Street route from North Carlton meets the North Carlton Gardens.

Opportunity: Connectivity of Cycling Network/ Cycling legibility

Before future links are created, detailed investigation will be necessary to identify practical and feasible cycling routes – a complex task given the intensity of competing demands in the CBD. Future bicycle network and facility improvements will need to cater for: - new local demands arising from developments such as Docklands, Southbank, Kensington Banks, Federation Square, Birrarung Marr and Docklands; - increasing activities in the Sports and Entertainment Precincts; - demands from commuters from outside the City of Melbourne to link and define bicycle routes beyond the City boundaries.

6.2.3 Car Parking in Local Areas 6.2.3.1 Parking and Access Strategies Given the competing demand for road space and development, it is increasingly important that parking issues be considered in the broader context of access management. Although more apartments are being built in Melbourne’s neighbourhood areas, there is a finite supply of on-street parking and it has become apparent that resident parking permit numbers cannot increase. Council has developed and implemented the Carlton Parking and Access Strategy. This strategy adopted a cooperative approach with key neighbourhood stakeholders and was developed as a pilot local area transport strategy; its underlying principles may be used in other local areas in the City of Melbourne. The Carlton Parking and Access Strategy was developed to ensure the most effective and equitable use of scarce parking resources. It aims to support residential amenity and business viability, and address broader planning issues, such as protecting parkland and residential areas, making the best use of road reserves and improving access. Each of the City’s local areas has a different transport profile. In reviewing parking permit requirements in the City’s local areas, factors such as the types of land uses present, number of on-street parking spaces available, type of dwellings and whether there is access to other transport modes all need to be considered. Parking in the City of Melbourne’s neighbourhood areas is currently managed according to planning scheme requirements and local knowledge of community needs.

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Simply increasing the number of off street parking spaces as development intensity increases is not a long-term solution as this has ramifications for vehicle road congestion. Parking precinct plans need to be developed that reflect realistic expectations for private vehicle mobility in new developments. The effectiveness of parking precinct plans is being hindered by inadequate support from the State Government. Council needs to be assured that parking precinct plans will be given high priority by the Victorian Civil and Administration Tribunal (VCAT) in dealing with developers.

Opportunities: Parking and Access Strategies

Implementation of the Carlton Parking and Access Strategy has been completed. Council is now in a position to reflect on the process used with this strategy with a mind to implementing similar parking and access ‘tools’ in other local areas. Priority attention is required for the development of parking strategies for areas such as Southbank and North West Melbourne, where parking and access is perceived as a major problem.

6.2.3.2 Major Developments and Events Parking problems associated with major institutions, events and the operation of major tourist attractions and sporting facilities are an unwelcome feature of many inner neighbourhoods. Council’s policy in relation to major events (such as the Grand Prix and the Melbourne Flower Show) is to encourage the use of public transport and to discourage parking in the surrounding streets. To this end, protective measures are implemented in surrounding residential streets to limit available parking to local residents and deter people from driving to the event.

Opportunity

The use of public transport to major events is already encouraged as a means of limiting externalities in neighbouring residential areas. There is still work to be done to promote other forms of transport such as cycling and walking as a mode choice to major events. Promotion of walking and cycling can be done through built infrastructure project and TravelSmart initiatives.

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6.2.3.3 Car Sharing Council introduced car sharing to Carlton as an outcome of the Carlton Parking and Access Strategy. The premise of car sharing is simple. Individuals potentially gain the benefits of private car use without the costs and responsibilities of ownership, while society benefits from reduced traffic congestion, increased mobility and greenhouse offset. Car sharing is akin to an organised short-term car rental. Typically, participants pay a fee each time they use a shared vehicle. Car sharing is an ideal solution to the parking issues faced by the City of Melbourne and could makes sense in an urban environment where a car is only needed occasionally for mobility, rather than required as a rule. Council intends that car sharing will be expanded to other areas within the City of Melbourne, including the CBD. Cars may be provided by car share operators either through the City of Melbourne providing reserved on street spaces, special permits or access to off street spaces.

Opportunity

Promote and accommodate car sharing in local areas. Interest developers in providing car sharing and bike sharing to City dwellers. This would:

· give residents improved transport choices; · contain or even reduce levels of vehicle ownership and associated demand for parking in the inner City; and

· reduce traffic congestion in the inner City.

6.3 Road Classifications/ hierarchy An initiative of the City of Melbourne Transport Program 2003-2006 was to classify roads according to their priority use and transport function. The CBD covers approximately 1.75 square kilometres and has 25.2km of roadway, exclusive of laneways. Three-quarters of the CBD roadway is shared between public transport vehicles and general traffic, and under a quarter is one–way vehicle traffic. Council’s intent to increase the priority for public transport, walking and cycling is an opportunity to revisit the existing road and street hierarchy.

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Central City pedestrian Priority area Access traffic Through traffic Public Transport access

Figure 12 – CBD Street Classification in the 2003-2006 Transport Program

In implementing this strategy, the existing Street Classification will need to be updated to acknowledge Council’s policy shift towards public transport, cycling and walking. In updating this classification the following issues will need to be noted:

· the role of the laneways as pedestrian areas as well as servicing car parks, encouraging a range of activities to ensure vitality.

· legible cycling routes that connect to adjoining municipalities and promote safe access into the CBD for cyclists, following agreement with stakeholders

· rationa lisation of bus routes and priority lanes on Queen Street and Lonsdale Street, following feasibility and agreement of stakeholders (refer to figure 13)

· connection of public transport to the Docklands, reflecting agreed extensions

· a north-south tram loop following feasibility studies with operators Increasing the priority of public transport, cycling and walking will have impacts on roadspace allocation, particularly space available for cars. However the allocation of space for space efficient modes is seen as the only sustainable way forward to provide for the future growth of the central City. The Bus Association of Victoria provided the following diagram which would need to be considered in the revised street classification.

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250/1/3 340,350 30x,319 216/9 220 20x

232 546

New bus Lonsdale St turnaround 313/5/6 605> facility Queen St

235/7/8 Southern Cross Bus interchange <605 B light turnaround for peak 232 services

216/9

220 250/1/3 • Simplified Network Proposed Bus lanes • Bus services focussed on streets with bus lanes – increasing efficiency • Fewer bus services on congested streets (eg Flinders, Russell, Exhibition) • Review infrequent routes 684 & 479 with view to reallocating resources to outer route sections. • Time saved in bus operations can be re-invested to boost services • Extend route 546 from Heidelberg Road and Melbourne University to Southern Cross Station Figure 13 – Bus Association of Victoria proposal

Opportunity

Upgrade the street classification system, prioritising the CBD street network for public transport, cycling and walking. Council will need to work with various stakeholders to reach agreement on the hierarchy.

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7. Land Use and Transport

How land is used in an urban environment – where people live, work, socialise and shop – has a direct effect on travel and transport demand. To go about their daily lives, people need to travel from their homes to other places. Commercial activities also need transport facilities. The location of businesses, homes and other land uses is closely linked to the transport choices used to access them. Good urban planning aims to minimise the need and impact of travel – creating accessible neighbourhoods and reducing the need for mobility. Local government transport strategies can influence underlying land use patterns through mechanisms such as the planning scheme and local provisions. In the future, land use patterns will minimise the separation between people and the businesses and services they wish to visit. This will create better connections between people and their communities – increasing local accessibility, and decreasing the need for mobility. In the future, land use patterns will support business and industry by promoting land use that is close to transport infrastructure (both public transport and freight). This, in turn, increases employment accessibility and access to markets – fostering growth that is dynamic, community focused and sustainable.

7.1 Issues

Concepts like new urbanism, smart growth and transit-oriented development promote greater integration of land use with transport facilities. The intention is that key community facilities and higher density housing should be positioned around quality public transport. Some of the cornerstones of such concepts are shown below:

7.1.1 Structure Planning for Mixed Use Activity Centres By ensuring that public transport is available in the early stages of new urban development or redevelopment, potential residents can make decisions about living in this location and the modes of transport and travel that they will use. Initial incorporation of public transport, walking and cycling infrastructure can influence long-term travel patterns. Subdivision design, site layout and planning permits can be issued on the basis that if no other form of transport is available, a certain amount of car parking will be required. Conversely, if other transport options are available, car parking requirements can be waived and greater development intensity allowed.

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Opportunity

The Melbourne 2030 planning strategy requires Local Governments to review and adjust planning schemes to absorb additional population growth and to direct development that establishes more sustainable settlement patterns. This is an opportunity to identify and target preferred travel behaviour at designated activity centres and plan infrastructure accordingly.

7.1.2 Integrated Travel Plans for Major Developments Often there is a disconnection between development opportunities and the transport infrastructure that connects them. Frequently there is no obligation for property developers to locate their developments so that they can be accessed by sustainable or public transport. Various public policies and investments, ranging from generous parking to major highways have supported these trends. This has resulted in the existence of major developments that are only accessible by car or infrequent road- based public transport. There are a number of facilities such as hospitals and universities within the City of Melbourne that generate many travel trips. With better site planning, these institutions could be encouraged to identify the number of travel trips people will make to their site and the expected travel modes and volume. Major redevelopments of these public institutions must take into consideration their transport impact. Smart Growth principles must be considered for any land use which is a major regional trip generator. Smart Growth 16 emphasises accesibility; that is, people’s ability to reach desired goods, services and activities. As well as integrating transportation and land use decisions, Smart Growth can help create more accessible land use patterns, improve transport options, create more livable communities and reduce public service costs. Smart Growth reduces distances between common activities (home, work, schools, services) and supports sustainable and public transport. It is the alternative to a dispersed city that is dependent on use of the private vehicle.

16 http://www.vtpi.org/tdm/tdm38.htm

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Opportunity

Through requirements on development permits, Local Governments can require integrated travel plans for major developments considering (as appropriate):

· public transport services;

· cycling infrastructure;

· walking infrastructure;

· trip-end facilities for cyclists and walkers;

· car parking limits; and · TravelSmart programs.

7.1.3 Car parking to promote sustainable mobility Melbourne 2030 recognises that changes are needed to manage parking to reduce car dependence and restore a balance to the choice of travel mode. Off-street car parking is currently mandated through the planning scheme/Rescode to require sites to be responsible for the amount of parking needed for the site and to minimise impacts on the local community. By maximising rather than minimising car parking per site (Melbourne 2030 Initiative 8.3.1) and providing facilities for cycling (Melbourne 2030 Initiative 8.7.3), a more ‘level playing field’ for travel choice can be created. A maximum parking requirement could be determined by factors such as:

· intended land use (residential, commercial, mixed);

· existing neighbourhood form and density; and

· accessibility and proximity to public transport. There is often opposition within local communities to residential permits being issued for new developments as this decreases access to on-street spaces for existing residents. Thus off-street car parking is often viewed favourably. The recently introduced Carlton Parking Strategy limits the use of on-street parking with new developments, and provides alternatives such as Car Sharing. Because new occupants cannot get an on-street parking permit, they consider their mobility needs more in the context of accessibility, or must use parking provided on-site.

Opportunity Improve the urban environment around public transport nodes to:

· make public transport more attractive

· reflect desire-lines

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7.1.4 Transit-oriented development Transit- oriented urban environments are those that maximise the use of public transport, walking and cycling options and minimise the need for and generation of car trips. This can be achieved by orienting the urban environment to favour the use of public transport, walking and cycling over the use of private vehicles. This is consistent with activity centre planning which aims to maximise accessibility rather than mobility by promoting use of non-car modes. This is achieved by concentrating activities that generate significant numbers of person trips in highly accessible locations. For example, higher residential densities in the vicinity of public transport stops and stations can generate more public transport trips and sustain better service levels. Urban design can influence user perception by designing an attractive interface between the urban environment and public transport access points. Providing appropriate levels, materials, signs, lighting, visibility and information can all help encourage public transport use. To gain maximum value, utility and function should be combined with liveable features and streetscape value.

Opportunity The Central City Parking Limitation Policy reflects the high level of public transport, walking and cycling in the Central City. The Parking Limitation Policy has been in place for since the 1980s. It is time to consider expanding a parking limitation to the City of Melbourne’s local areas in light of:

· the car parking levy area; and

· transport ‘rich’ areas.

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8. Transport Tools and Strategies

Urban Planning and Design Strategies

Improve pedestrian environment and linkages 1. Support and promote walking as a significant mode of transport 2. Achieve a mode shift toward walking by encouraging walking to become the mode of choice for residents, workers and visitors to the inner region 3. Ensure walking environments are connected, safe, comfortable and pleasing 4. Increase pedestrian priority in the CBD, including reduction of waiting times at traffic signals. 5. Increase road space allocation for pedestrians, particularly in the retail core, central city and inner city activity centres 6. Encourage mixed land use with active street frontages and a walkable scale 7. Design to accommodate all abilities 8. Reduce CBD traffic speeds and ensure enforcement. 9. Manage pavement space to balance pedestrian activities

Integrate transport and land use planning 10. Increase road space allocation for pedestrians, particularly in the retail core, central city and inner city activity centres 11. Encourage mixed land use with active street frontages and a walkable scale 12. Design to accommodate all abilities 13. Reduce CBD traffic speeds and ensure enforcement. 14. Manage pavement space to balance pedestrian activities 15. Explore opportunities for Transit-Oriented Development around all railway stations 16. Work with State agencies to develop a Jolimont Master Plan 17. Review the CBD off-street parking policy in association with the State Government, including off-street loading for commercial uses 18. Establish a secondary parking limitation policy which includes the State’s Congestion Levy area and public transport rich areas 19. Require integrated travel plans with planning applications for all new developments.

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Parking and Traffic Management Strategies

Review provision of on-street parking and access 20. Undertake on-street parking and access reviews in local areas (akin to the Carlton Parking and Access Strategy) addressing residential parking permit provisions, commercial provisions and sustainable mode choice 21. Determine the real vs. perceived links between retail productivity and on-street parking 22. Identify opportunities to reclaim on-street parking to provide more public space and/or supplement walking and cycling routes where amenity can be improved and businesses not compromised. 23. Manage parking of motorcycles to balance the needs of pedestrians with motorcycles, encouraging the growth of both space efficient transport modes

Improve cycling opportunity 24. Develop a new bike plan in collaboration with neighbouring councils, VicRoads and other stakeholders to build safe and connected cycling networks to and within the CBD using best practice models. 25. Achieve a mode shift toward cycling by encouraging cycling to become a mode of choice for residents, workers and visitors to the inner region. 26. Provide or support education programs that promote mutual respect amongst all road users. 27. Provide end-of-trip facilities and other support services in the CBD and inner city activity centres. 28. Promote and celebrate cycling as a sustainable and healthy travel choice.

Address road congestion 29. Achieve an overall decline in commuter vehicle trips to the CBD by prioritising public and sustainable transport modes. 30. Provide real transport choices to commuters so that non-essential road travel can be reduced to increase the performance of freight carriage. 31. Implement Travel Demand Management tools including TravelSmart programs and spreading of peak activity services. 32. Consider further congestion charging options only once capacity issues on public transport have been addressed. 33. Contain the supply of new off-street commuter car parking spaces in the CBD.

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34. Review arterial road capacity and freight route options between the Port of Melbourne and the western suburbs with a view to developing a declared freight network and alleviating pressure on local roads.

Access and Advocacy for Public Transport

Invest in public transport 35. Resolve existing rail capacity constraints throughout the metropolitan passenger system. 36. Support the provision of improved bus service as an temporary measure to connect the city and outer suburbs till rail services are built 37. Investigate long-term options for new services in inner Melbourne that will alleviate capacity constraints on existing infrastructure and service growing activity precincts including Docklands and Fishermans Bend. 38. Build capacity within Council to advise and advocate on public transport issues. 39. Expand rail services to the inner eastern corridor / Doncaster. 40. Provide a CBD Tourist Bus service with a view to upgrading it to a Tourist Tram service.

Prioritise public transport within road space 41. Advocate for tram priority and efficiency on all routes, especially highest usage routes 42. Support construction of tram superstops with a strong preference for intersection stops where possible and no further loss of tram stops in the CBD 43. Assess the feasibility of reorganising bus routes in the CBD and providing dedicated road space and superstops on key routes

Manage travel demand 44. Sponsor and manage behavioural change programs (eg. TravelSmart) with workplaces, schools and communities. 45. Engage with businesses, educational institutions and the community to investigate spreading peak hour travel demand. 46. Investigate road and public transport pricing to spread peak demand. 47. Facilitate and support car sharing as a viable alternative to car ownership in the City of Melbourne.

Improve connections to public transport 48. Partner with transport providers and State Agencies to improve amenity, safety and access around transport stops and stations.

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49. Advocate for improved intermodal facilities and services at train stations. 50. Advocate for, and where possible provide, secure bicycle storage at transport stops and stations. 51. Encourage transport providers and State Agencies to develop Park and Ride facilities at major transport nodes in the outer metropolitan region.

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Glossary

Metropolitan Melbourne Refers to metropolitan Melbourne as a whole. Inner Region

The Inner Region of metropolitan Melbourne comprises the municipalities of Melbourne, Port Phillip, Yarra and Stonnington (west of Kooyong Road).

City of Melbourne/the City The municipal area.

Council The Melbourne City Council.

CBD/Hoddle Grid The CBD or the Hoddle Grid is the city grid originally surveyed by Robert Hoddle, and is bounded by Spencer, Flinders, Latrobe and Spring Streets.

Central City The central area of the City of Melbourne is defined as covering the Hoddle Grid/Central Business District (CBD), the northern edge of Southbank, and the area up to Victoria Street and containing the Queen Victoria Market (bounded by LaTrobe, William and Peel Streets).

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Local Areas

City of Melbourne Local Areas (City of Melbourne, City Plan 2010)

Retail Core Central retail area comprising the area generally bounded by Elizabeth, Flinders, Russel and Latrobe Streets (see figure.. for specific area).

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Boulevards

· St Kilda Road

· Wellington Parade

· Victoria Parade

· Royal Parade

· Flemington Road

· Footscray Road

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Capital City Zone

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Appendix i[1] Melbourne Transport Committee members:

· Bicycle Victoria · Bus Association of Victoria · City of Melbourne - City Assets and Services - City Strategy and Development

· Committee for Melbourne · Department of Infrastructure · Vic Urban · Coalition of Residents Associations · Officer representatives of the Cities of Port Phillip, Yarra and Maribyrnong · Melbourne Ports Corporation · MetLink · Connex · Yarra Trrams · Property Council of Australia · Public Transport Users Association · RACV · VicRoads · Victorian Taxi Association · VTA (Victorian Transport Association)

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Appendix ii [2]

External stakeholder meetings for Melbourne Transport Strategy

Connex Connex is the suburban rail network operator. Connex raised the alert with the City of Melbourne as to the critical nature of the current capacity situation and funding shortfall. Connex request advocacy support for rail investment in forthcoming state budgets and election platforms.

Wilson Parking Wilson Parking is Australia’s largest car parking operator, specialising in a range of services to operate and manage a stock of car parking facilities. Wilson Parking acquires management rights to existing off-street car parking stock; it does not own any car parking property. Wilson Parking currently operates 49 car parks in City of Melbourne. Wilson Parking has invested in state-of-the-art software which presents opportunities to change the way parking is currently managed, and would be happy to enter into discussions with City of Melbourne as to how this could best be utilised to mutual advantage.

Sustainability Victoria (formally Sustainable Energy Authority of Victoria) SV has management programs for water, materials and energy. SV’s 2004/05 business plan entailed a number of sustainable transport initiatives, largely directed at planners and as such, developers, to underpin more sustainable development and settlement patterns from the very start to avoid costly retrofit and behaviour change programs. However the organisation is in a transitional stage. A new CEO starts in January 2006, to be followed by a revised business plan. SV has expressed potential partnering opportunities on specific projects. It was agreed to maintain informal contact until the new organisation takes shape.

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Victorian Transport Association The Victorian Transport Association (VTA) represents the goods-moving sector of the transport task and actively works with all elements of the supply chain to facilitate the efficient operations of the sector. The VTA appreciates that both the growth in the economy, and activity growth for City of Melbourne will heighten tensions between:

– Retailers’ need for deliveries and goods handling – Trucking industry for efficient and timely deliveries – Residential expectations of a quiet and relatively undisturbed environment – General city liveability critical to overall viability The VTA has offered to work with City of Melbourne to explore how goods can be moved efficiently around the municipality with least disturbance to other activities.

Adjoining local governments City of Melbourne shares boundaries with seven other local governments – Cities of Yarra, Stonnington, Port Phillip, Hobsons Bay, Maribyrnong, Moonee Valley and Moreland. As the largest trip attractor in the state of Victoria, City of Melbourne exerts considerable influence on the travel patterns throughout the metropolitan area which particularly impact on the nearby municipalities. The City of Melbourne’s adjoining municipalities acknowledged the unique position of the City of Melbourne as the largest trip destination in the state and at the hub of the road and rail-based public transport networks. There is an expectation that the City of Melbourne include a regional as well as municipal responsibility in its transport activities. Nearby local governments look to the City of Melbourne to: – Provide leadership on sustainable transport issues – Position local governments as a strategic voice in state transport planning decisions – Broker issues and establish partnerships with key agencies – Think and act regionally with regard to transport networks and impacts The issues which were seen as most critical for the City of Melbourne to take action on are: – Central city parking

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– Road user and mode hierarchy – Cycle network connectivity – Public transport investment advocacy – Planning scheme alignment with transport

Yarra Trams Yarra Trams reported considerable difficulty moving trams through the congested road network, and pointed out that other ‘tram’ cities provide dedicated right-of-ways to free trams from traffic delays. Efforts to improve tram services – such as DDA compliant superstops – are meeting with community resistance, and it was suggested that such upgrades could be better undertaken as part of a broader urban renewal project. The effort to obtain some dedicated road space to support tram reliability has highlighted the fierce competition for road space between various road users. The choices between modes, Yarra Trams felt, is really a choice about what sort of city we want to live in and in planning and allocating road space, moving people rather than vehicles should be the prime consideration.

VicTrack VicTrack owns all land and infrastructure in Victoria used for the purposes of public train and tram based transport; these assets are then leased to private transport operators through the Director of Public Transport. Apart from meeting its responsibilities as owner and landlord, VicTrack pursues opportunities to create and add value to these assets in areas other than transport such as telecommunications, advertising and property development. Land owned by VicTrack near railway stations has potential for transit oriented development, whereby the style of development takes maximum advantage of the nearby public transport for a greater share of trip making. City of Melbourne highlighted an interest to work with VicTrack where possible to facilitate developments of this nature and build public transport patronage. A site south of Wellington Parade and others close to North Melbourne and South Kensington railway station may have potential. Another collaboration opportunity may be park and ride sites at outer railway stations.

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Department of Sustainability and Environment The discussion with DSE sought guidance for key features of Melbourne 2030 which relate to transport, in particular:

– Air quality, energy usage and greenhouse gas emissions (Direction 7) – Guidance is referred to the DSE Sustainability framework, and the Victorian Greenhouse Strategy – Implementation plan for the 20% by 2020 goal (Policy 8.1.1) – A transport and liveability statement is under preparation and due for release in March/April 2006. – Integrated transport plans for all new major developments (Policy 8.3.1) – Guidelines are currently under development by DoI for site travel demand analysis and should be available in 2006. – Urban growth to be aligned with high quality public transport (Direction 2) – A plan for Melbourne’s growth areas has been released – Defining parking requirements including setting maximum rather than minimum provisions (Policy 8.3.1) DSE has no current plans to review parking, however parking may emerge as a critical element for congestion in the ongoing Inquiry into Managing Transport Congestion by the Victorian Competition and Efficiency Commission. DSE appreciated the opportunity for a strategic discussion with City of Melbourne to ensure consistency with Melbourne 2030, and a future meeting may be worthwhile.

Citylink Citylink is a privately-owned toll facility connecting the south-eastern and northern suburbs to the city, airport and docks and also links the Princes, Calder, Western and Hume Highways and Western Ringroad. Citilink has provided substantial congestion relief from inner city streets by providing a City Bypass and removing freight traffic from inner city activity. Citylink carries substantial amounts of freight traffic and has played an important role facilitating the expansion of the Port of Melbourne. As a corporation with a business in traffic, Citylink has a natural interest to build patronage and improve connections to its market. There are opportunities to further develop the relationship and consider where Citylink and City of Melbourne interests may overlap.

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Appendix iii [3]

Insert Currie Report here

Appendix iv [4]

Insert Mees Report Here

Appendix v [5]

Insert Sheurer, Newman and Kenworthy Report Here

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