) Gardens P o i n t

CoLLABORATION between

,.

the PARLIAMENT, the CITY,

and a UNIVERSITY.

Prepared for

AUSTRALIA

AWARD FOR

URBAN

DESIGN

by

Brisbane City Council

Queensland University of Technology University ofTechnology

CONTENTS

THE MASTER PLAN FOR GARDENS POINT 1

GARDENS POINT-AT THE HEART OF 1

THE GARDENS POINT PENINSULA 2 HISTORICAL BACKGROUND 2 VISUAL SIGNIFICANCE 3 SOCIAL SIGNIFICANCE 3

CHANGE IN INTENSITY OF USE 4 THE RESULTS OF DISPARATE PLANNING 4 RESPONSE TO CHANGE 4

THE PROC~SS,. OF CHANGE 5 DETERMINING TERMS OF REFERENCE 5 THE INTERDISCIPLINARY NATURE OF URBAN DESIGN 6 NEGOTIATIONS \NITH STAKEHOLDERS 6

THE JOINT \1\/P STRATEGY 8 THE MAJOR ISSUES TO BE ADDRESSED 8 THE PREFERRED STRATEGY 8 COMMUNICATION \NITH CITIZENS 11

IMPLEMENTATION OF THE MASTER PLAN 12 TRANSPORTATION AND ACCESS 12 VIE\NS, VISTAS AND LANDMARKS 14 CULTURAL AMENITIES 15 FUTURE STRATEGIES 15

TRANSFERABLE PRINCIPLES AND PROCESSES 16

APPENDIX 1: MASTER PLAN 18

APPENDIX II: ORIGINAL DECISION MAKERS 19

I

THE JV\ASTER PLAN FC>R GARDENS POINT

Gardens Point is an area of historical and An excellent example of a cooperative contemporary importance to the City of design team's work to achieve a Brisbane and the State of Queensland. solution for a significant public open The master plan which is the subject of space in central Brisbane. The text was the submission (Appendix I) was relevant and beautifully illustrated released in 1985 and proposed a unified with appropriate graphics. It was approach to the Point's design and use. supported with studies and data which Many concepts of the plan have been dealt effectively with the planning and implemented, directly or in modified design issues inherent in the site form. planning. The master plan proposals were illustrated with a series of The master plan was based on a study drawings which exposed the design undertaken during 1984 Gardens Point intent philosophy and step by step Brisbane: A Strategy for Use, Rehabilitation developed the design options into the and Development, (3 Vols). The study team master plan stage. The presentation of commissioned and drew upon the report achieved a high standard in geophysical, horticultural, physical and both context and graphics. services reports, and nine user requirements and attitude surveys or The implementation of the plan required papers. three independent institutions, Parliament, Brisbane City and QUT, to The report itself, the basis of the plan, take the recommendations into account won the 1986 Australian Institute of when determining future actions, and the Landscape Architects National Projects active support of the Queensland Award of Merit in Category #8, Research Government over a long period. and Studies. The citation read: • • • • • • •

GARDENS POINT-AT THE HEART OF BRISBANE

Three necessary components of a state Gardens Point Peninsula, within the capital are a parliament, central curve of the that contains parklands, and vocational education. The the modem high-rise City (Slide #2: institutions embodying these Context). components, in tum, provide social and The submission examines how a 19th and economic direction to the state, recreation early 20th century response to fulfilling and refreshment for workers, and the core functions has been modified for intellectual capital for business and the late 20th/ early 21st centuries. government. The three core functions are grouped in one area in the heart of Brisbane City, • • • • • • • THE GARDENS POINT PENINSULA

Gardens Point is at the southern end of a the majestic Bunya Walk planted in 1858 majestic sweep of the Brisbane River that in honour of James Bidwill, an important also encloses the commercial heart of colonial botanist, is but one example of Brisbane. It contains about 18 hectares of heritage import. gardens some 150 years old, three hectares Educationally, Gardens Point has been on which stand the houses of parliament, the centre of university and technical and seven hectares, QUT's Gardens Point education provision since the turn of the campus, catering to 15 000 students. century. In 1908 the Brisbane, South Brisbane, and West End Technical • HISTORICAL Colleges were amalgamated into the BACKGROUND Central Technical College. In 1909 the Gardens Point is about one kilometre secretary of the Central Technical College from the GPO, generally taken to be the wrote to Premier Kidston supporting the city centre. The residence for the first recommendation made by a royal Governor of Queensland Sir George commission into the establishment of a Ferguson Bowen was completed on the university, that the the College and the Point in 1862. The Colonial Architect, proposed university should collaborate in Charles Tiffin, designed a new teaching and building use. Parliament House to be built adjacent to The Government of the day determined the Governor's residence in 1863 and the that the site for this collaboration would new house was used for the first time in be Gardens Point, in the Old Government 1868. The grounds were laid out by House Domain Reserve. In 1911, Walter Hill and built with sandstone following the move of the governor to a from a local quarry near W acol (15 km new residence at Fernberg, The west of Brisbane). Old Government commenced House remained the official residence teaching in Old Government House, until1910 when Sir William Macgregor which remained its headquarters until its took up residence at Fernberg. progressive relocatation to its present The Point, therefore, has for long been western city location in St Lucia starting regarded as the setting of government in in 1948. It moved all activity from the Queensland. House only in 1967 and ceased teaching at the Point in 1978. The site for the Gardens was surveyed in 1828, and the Gardens used to grow The provision of technical education was vegetables for the new colony. In 1842 the centralised in the new buildings of Central site was designated for Botanic Gardens Technical College duririg 1913/1914. Nine purposes. Its real development started in buildings were designed, the University 1855 with the appointment of Walter Hill and the College sharing the specialist as first Superintendent and the science and engineering buildings. This appropriation of £500 to purchase rare unified approach to design left the plants. In spite of this meagre allocation, educational site with the "red brick" and as a result of Hill's dedication, the technical college buildings, which Gardens had a strong horticultural remained one of the strong themes which impact on Queensland. For example, later QUT buildings sought to reflect. experimental plantings showed the This close connection between technical viability of sugar cane and ginger as and higher education was broken with crops. As well, many singular trees and the relocation of The University of plants were introduced, and a general Queensland to St Lucia, but reconstituted collection of historical significance with the creation of the Queensland created. The Gardens contain upward of Institute of Technology in 1965. 12 000 species of plants including a rare collection of palms and figs, as well as a The Gardens Point campus is a striking large collection of hibiscus, Camellia, and location for a university, one of the best in azalea variation. An outstanding feature, . The campus cascades downhill from the George Street ridge to the within the design constraints of a major River's edge, a fall of some 10 metres. city make the solution of general The Botanic Gardens provide an applicability, and deserving of the highest unrivalled entrance of luxuriant sub­ recognition. tropical vegetation, epitomised by the many giant fig trees with impressive • SOCIAL SIGNIFICANCE aerial root systems. The historic The three uses of the Point, government, buildings, the Old Government House recreation and education, have major and Parliament, are a reminder to social significance. students and staff alike of the permanence of great achievement. The central location of the Parliament at the focus of transport routes, thus The setting is a tribute to the foresight of accessible to citizens rich or poor, is of our 19th century pioneers. great importance in a democracy.

• VISUAL SIGNIFICANCE Central city gardens are a source of passive recreation to nearby office Captain Cook Bridge is the main workers and to shoppers, and a southern entry to the city of Brisbane, convenient site at the focus of public and provides the first and strongest transport routes for meetings of the close-up view of t}te cityscape. On the left of the bridge lies the South Bank _ extended family on weekends. development of the Expo 1988 site. On From 1940 onwards the use of the Botanic the right lies Gardens Point, a peninsula Gardens as a city park grew in importance. enclosed by the Brisbane River. The For example, by the 1980s, the City's Free background of city high-rise buildings Entertainment in the Parks program naturally attracts the attention of regularly attracted crowds of three to five travellers, both visitors and residents, so thousand, and the W arana spring festival a that the perspective, Gardens Point total attendance of some 40 000. across to the City, presents a frequent and powerful image of Brisbane. One of the research reports commissioned for the Gardens Point study and based on The scenic amenity of Brisbane as a city, a statistical sample of all dwelling units in therefore, is heavily influenced by this the Brisbane Statistical Division, reported first impression. Urban design issues are that the Gardens were judged as making a among the many forces that act on a city major contribution to the overall character and play an important role in modelling of the City centre. "Respondents saw the its character. A city is perceived as much Gardens as more significant in this respect by its physical appearance as by its than the City Mall, Albert Park, and the economic strength. The evolution of views of the Brisbane River." The Gardens Gardens Point to a form befitting its provided citizens with a sense of place gateway positioning and historical and amid the tensions of work or study. social importance, from this point of view, becomes a matter of state import. The provision of education in the downtown is always pivotal to citizens. The Gardens bear a natural relationship Evidence of the social amenity of such with the University and the Parliament, provision lies in the popularity of the three uses having the ability to downtown universities and technical coalesce over time into a harmonious institutes worldwide. As well, such expression of site, culture and visual provision fulfills important equity significance. objectives, making higher education Gardens Point contains a substantial area available to less affluent members of of public space central in its impact on society who must work as they study, and people's lives and upon the image of a opening up the possibility of mid-career capital city of Australia. Its use as a advancement through part-time personal centre of government, education and city development. From a transport point of recreation makes it of international view, it reduces the number of journeys significance and the problem of from home to work location. reconciling the needs of multiple users • • • • • • • CHANGE IN INTENSITY C>F USE

On 6 June 1859 Queen Victoria signed effectively a physical barrier between letters Patent creating the new colony of the Point and the downtown. Queensland, a name that Her Royal Highness herself chose. At this time, the "' The building of the Conservatorium of population of Queensland as a whole was Music on land excised from the 23 500. In 1984, the population of Gardens Reserve in 1978. Brisbane was 1 150 000 and of Queensland 2 530 000. Successive • THE RESULTS OF decisions by governments of the day catering for these population pressures DISPARATE PLANNING led to many changes in usage: Over the years as the summary of changes given above shows, the Point had many T The construction of the Institute of Forensic Pathology, that is, the City landlords in addition to its main tenants: Morgue, on Gardens Point Road in the Commonwealth Government (a naval 1960. training reserve), the State Government garage, the Department of Primary T The location of the National Trust of Queensland in Old Government industries (a Botanic Museum Reserve and House by Cabinet decision in May, a Reserve for Agricultural Experimental 1973. Purposes), the Conservatorium of Music, the National Trust, and the Institute of "' The construction of the Riverside Forensic Pathology. The Point was a Freeway and resumption of pastiche of tenants and tenancies, each waterfront land for this purpose. independent, some fiercely so. T The use of the domain area of the In a 1974 Report to QIT Council, UDPA Gardens, adjacent to the northern end Planners remarked of the QIT site: of Captain Cook Bridge, for parking by QIT students and staff, and Since the first developments on the site, weekend visitors to the Gardens. now occupied by the Queensland Institute of Technology, the various T The holding of large and regular buildings which have been constructed public events focussed on the rotunda to house the Governmental and in the middle of the Gardens - the Educational facilities, have been erected central park concept starts to take with little regard for the site or each over the botanic gardens concept. other. Consequently, apart from the "red T The building of the new Parliament ~rick" Technical College structures, House, as the parliament grew in line there is little cohesion of design and no with population growth in regard for the Landscape Development Queensland from 40 members in 1860 of the spaces between the buildings to its present 89 members. (Report of the Joint QIT, BCC Working Party, Vol3, Ch 5, #1.05). T The growth of QIT from several thousand full-time equivalent Subtle aspects of design and setting were students in 1965 to about 11 000 dominated by built forms; peripheral areas equivalent students on the Gardens were degraded by traffic and service use, Point site in 1995 (QUT enrols over for example, parking; Old Government 27 000 students in total). With the House had been ''built out", surrounded reorientation of responsibility of The by adjacent structures that interrupted all University of Queensland towards the views. west of Brisbane and beyond to the Dividing Range, QIT /QUT fulfilled • RESPONSE TO CHANGE the central city university role. Response to these changes had been T The growth of Brisbane compounded piecemeal; each user, government, by an outdated public transport education, and Brisbane City making system led to heavy traffic flows individually convenient decisions in terms down Alice Street, making it of its own overall system, but with little recognition of the consonance of Gardens involved to form an interinstitutional Point as a precinct. committee to define and solve the problems of the site; or to form a working A dawning recognition of this unity in party of the two major stakeholders, BCC January 1984led the Lord Mayor, Mr R and QIT, which would develop proposals Harvey, to approach QIT to undertake a and consult carefully and continuously study of the Gardens Point area as a with other stakeholders on possible community precinct (Paper #1, V2, solutions. It was decided to follow the Gardens Point Study Report). second course. There were two ways of carrying the matter forward: to approach all parties • • • • • • •

THE PROCESS OF CHANGE

The political and interdisciplinary nature City, the recommendations of the of urban design are well illustrated by Working Party would become the the change process:followed and the data responsibility of the Councils and other accumulated in the study itself. governing bodies. In addition, areas of the City which had a • DETERMINING TERMS major bearing on the use of Gardens OF REFERENCE Point could be considered in terms of Early negotiations between the main their bearing on the use of the Point. For parties involved (the Speaker of the example, the integration of the Gardens House, , QIT and the City required consideration of Council), dealt with the terms of Albert Street, the main thoroughfare from reference of a Working Party. The the city mall to the Gardens. authority of the Speaker for matters dealing with the House was a major Following on these preliminary consideration, together with the discussions, a Joint QIT /BCC Working Party was created consisting of: governance responsibilities of the Councils of Brisbane City, QIT and QCM. T Dr R D Gibson, Director of QIT (later Vice-Chancellor of QUT) The Chair discussed the study with the Speaker of the House, Mr J H Warner, "" Dr C Bull, Senior Lecturer, and it was agreed that the Parliament Department of Planning and House Reserve be considered for its Landscape Architecture, QIT existing character and the use it T Mr C F Sharp, Manager, Department generates, but that no formal proposals of Health and Community Services be made in the report of the working T Mr J R Wood, Director of Property party for work within its boundaries. Management, Department of City It was agreed that the study should Administration. consider the present and future The Working Party commenced configuration and management of the operation in March 1984, and, at its first entirety of Gardens Point south of Alice meeting, appointed Dr Gibson Chair and Street including Old Government House, invited Mr P Heywood, Head, the City Morgue, the land held in trust by Department of Planning and Landscape the Main Roads Department following Architecture, QIT, to join the Working construction of the Freeway, the land Party. It first proceeded on the basis of held by the Coordinator General adjacent briefs approved by the Establishment to the Domain, QIT, and the Queensland and Coordination Committee of Brisbane Conservatorium of Music (QCM). City Council and the Buildings and It was agreed that, upon the presentation Grounds Committee of QIT Council of the Report to QIT Council and the before producing the brief that formed the basis of the study (letter, Chair to (4) Services: Combined services data­ BCC, 5 April 1984). Drawing Nos. GPS.3 and GPS.4 March 84, Students of Bachelor of Applied With the two major stakeholders Science. committed to outcomes, the Working Party started on developing solutions (5) User Requirements and Attitudes: that captured the potential of the site and BCC Brief for the Gardens, Jan 84, which would win the political and BCC Dept of Health and Community economic commitment of governments Services; QIT Educational Brief, Feb and institutions over the many years that 84, Dr R D Gibson; FREEPS Brief, May implementation would take. 1984, Mr J Aitken, BCC; QIT Student Recreation Survey, May 84, Mr K • THE I NTERDISCI PLI NARY Fussell, QIT Union; Position Paper on NATURE OF URBAN Traffic and Public Transport, July 84, DESIGN Mr J Comer, Dept of Civil Engineering, QIT; Emergency and The study was driven by a project team Delivery Vehicle Access/Egress at containing one permanent member Dr C QIT, Nov 84, MrS Gerber and Mr I Bull, Senior Lecturer in Landscape Farrington, Students in Dept Civil Architecture at QIT, and constituted Engineering; Gardens Point various disciplinary consultant Study Recreation Study, Aug 84, Students in Groups as necessay. Dr Bull was assisted Planning and Landscape Architecture; by a research assistant, Mr J Bedford. Dr The Attitudes of Brisbane Citizens to Bull, as a member of the Working Party, the Gardens Point Area, Sept 84, M reported on progress at its monthly Toohey, Student in B Bus, Department meetings. of Management; Gardens Point The Study Groups were drawn from QIT Design Brief, Students in Advanced and BCC staff, and produced the Landscape Design. following papers, included in Vol 2 of the In addition the project team drew on Report of the Working Party: related papers, references and data, (1) Geophysical Surveys: Drawings Nos. included in Vol3 of the Working Party GPS.18 and GPS.29, Bouguer Report. Anomoly May, Dec 84 and Seismic and Drilling Depth Map, Dec 84, Drs • NEGOTIATIONS \NITH L Hamilton and J Williams, STAKEHOLDERS Department of Geology, QIT. Negotiations with stakeholders present (2) Horticultural Survey, Vols 1-4: Mr A an interesting case example of the organic Chenowith and Mr J Bedford, evolution of cities to suit the circumstances of the rune. What was Department of Landscape added, in this instance, was a fuller Architecture, QIT, and Mr H recognition of the urban significance of Caulfield, retired Curator of the the overall conclusions and a greater Botanic Gardens. willingness to involve all stakeholders (3) Physical Survey: Drawing No. GPS.16 and to seek solutions that comprised Enhanced Orthophots Map 1:1000, their aspirations. June 84, Dr E Clerici, Department of An outcome was a greater commitment Surveying, QIT; Drawing No. GPS.17 to action and the engagement of officers Enhanced Orthophoto Map 1:2000, in the different jurisdictions committed to June 84, Mr K Jones, Department of the recommendations of the Working Surveying QIT, and Department of Party. The system of negotiation with Mapping and Surveying, Qld Govt; stakeholders contributed strongly to the Drawing No. GPS.19 Topographic creation of this commitment. Survey Map, Sept 84: Mr B Chapman, Department of Surveying, QUT; The two institutions which had set up the Drawing No. GPS.30: Vegetation Working Party, Brisbane City Council Survey, 1985. and QIT, remained the focus of change and its driving force. As the investigation impinged on the authority of other (2) Quantification of overall proposals stakeholders, the Chair Professor Gibson in terms of individual projects, or nominated members negotiated with priorities, programs and costs. those stakeholders on behalf of the Possily these might form the basis of Working Party. further useful academic exercises, For example, the designer of the original undertaken in consultation with Parliament House, Charles Tiffin, had relevant public authorities. envisaged a ceremonial forecourt, which in reality had been replaced by an These suggestions have both been extension of George Street to the followed up and implemented in later Government House Reserve. The years. recommendation had, however, never Of note also was the change in the been forgotten. The master plan offered concerns of participants as they became an opportunity to realise the forecourt, enmeshed in the broader considerations albeit in modified form. of urban planning. The Chair of the Working Party For example, QIT Council, staff and consulted with Mr R Pavlyshyn, Director students had entered the exercise with a General of Works, about the strong desire to solve two problems that redevelopment of ilie "George Street caused incessant complaint, parking and stub", the section of George Street active recreation. From an educational between the main thoroughfare Alice point of view, inner city sites are Street and the QIT entrance. As a result, convenient to public transport, available arrangements satisfactory to the to workers for part-time study, and can Parliament, the City and the University call on professionals easily as adjunct were made with respect to the faculty. However, they lack space, and development of the stub into a space is necessary for parking and active Parliamentary Forecourt. These sporting facilities. arrangements led to a redirection of traffic into Gardens Point Road as the As the exercise progressed, the QIT main entry to QIT and the restriction of community came to accept that the traffic from George Street into the limitations of the Gardens Point site were forecourt, which became much more a less than its advantages, thus to recognise pedestrian domain. that parking would be restricted and fee-based and that active recreation Mr Pavlyshyn ended his letter of 16 July would be restricted to intense 1984: developments such as a heated short­ course swimming pool. Parking changed With regard to the study of the from a God-given right to a paid-for Gardens and Domain area being privilege, no small movement in undertaken by your School of the University staff consciousness. Built Environment, it is desired to register the department's interest and Furthermore, the professional studies encouragement. It is noted that the undertaken as part of the base data upon QIT study is to be completed early which the conclusions rest were carried next year and your offer to provide out by staff or students of QIT without further information at that time is payment. The University bore the much appreciated. associated expenses, for example, questionnaire preparation and Sir Sidney Schubert, Coordinator General interviewer payment. In this manner, the for Queensland, wrote on 5 July 1985, study engaged a large number of after departmental evaluation of the plan, voluntary workers and succeeded attaching the evaluation which because of widespread enthusiasm for recommended several follow-up studies: the vision of a unified urban design for I would like to see two more studies Gardens Point that the Working Party as emerging from the present project: created. (1) Public transport and car parking Many other groups were involved, for requirements. example, the Lands Administration Commission, the Board of Advanced needs of handicapped persons on Education, the Conservatorium of campus drew attention to a deficiency in Music, the Departments of the plans for access between QIT campus Coordinator General, Main Roads and and the Gardens. As a result of the Harbours and Marine, the Brisbane Port suggestion appropriate changes were Authority, and the National Trust. Each made. was carefully briefed and their The exercise throughout was a careful cooperation constructed through application of communication integrating their goals into the final principles, and based in engaging solution. Additionally, internal commitment to outcomes by solutions consultation within principal comprising stakeholders' fundamental institutions led to valuable suggestions. requirements. For example, the QIT Standing Committee of Council reviewing the • • • • • • •

T:H E JC>I NT VVP STRATEGY

The Report of the Joint Working Party in planned. Not surprisingly, service three volumes was presented to the access, circulation of traffic generally, Council of QIT and the Lord Mayor, The and parking systems were confusing Right Honourable the Lord Mayor, and inadequate. Alderman , on 12 "' The two major historic buildings on June 1985 and publicly launched on 10 Gardens Point, Old Government July. House and Parliament House, had settings unintentionally obscured by • THE MAJOR ISSUES TO the planning of other users. BE ADDRESSED The Working Party concluded that major "' The compelling need for a downtown issues to be addressed were: university was driving up the enrolment at QIT. "' A new Botanic Gardens had been "' The potential of the area, planned as a initiated in the Mt Cootha foothills. unity, for the citizens of Brisbane Major events and heavy traffic generally, and for workers and generally had led to a degeneration in students daily within walking the horticultural condition of the distance, required full consideration. Gardens. The dual purposes of peace, In particular, the historical and tranquility and recreation and venue heritage aspects were awaiting for major events were in conflict. recognition and development. What was to be the function and use of the City Gardens in the 21st "' The compatibility of man-made and century? natural features required study from the full perspective of a unified Point. "' A new City traffic circulation plan had been developed to handle greater "' QIT students had asked over many traffic flows. Alice Street, separating years for better parking and sporting Gardens Point physically from the facilities. Could these requests be City, had become a one-way west responded to within the constraints of major entrance to the Riverside the Gardens Point location? Expressway. Gardens Point and the City were now physically separated • THE PREFERRED by this traffic, and, as well, GP was STRATEGY generating increasing volumes of its The preferred strategy is set out in Slide own traffic. #1: The Master Plan and Slide #2: Design "' Service access to the various users of Themes. The strategy was presented to the Point had been individually the citizens of Brisbane for evaluation in the following form and with appropriate small boat tie-up, restricted vehicular illustration. The presentation assumed a access to Edward Street, laundromat, deal of local knowledge, and text has toilets, change rooms, and a small kiosk been added as necessary below. with viewing area. Edward Street also leads into a ferry site • City Gardens aspect which crosses the river to Kangaroo The master plan shows the Gardens Point, and into two walks, one on the linked to the downtown by a tree-fringed river bank, the other on the higher bank. Albert Street (in the middle of Slide #1 The Preferred Strategy suggested three and Slide #2 User Opportunities), which levels be created on the Point, riverside, was to become a green finger tracing central and upper, each connected through the central City to further park internally by a circuit with between level development on the northern side. The connection by steps and/or ramps Albert Street entrance has traditionally (Slide #2: Circulation). The walk would been the main entrance into the Gardens. be sufficiently wide to accommodate The plan envisaged a refurbishment of bicycles and security and service the Gateway pillars and the gate itself. vehicles, and would link with the Albert Street then extended into the Coronation Drive bikeway through to Gardens Concourse, which could lead to The University of Queensland (Slide #2: the Pavilion, or the,City Gardens Lake or Circulation). the Gardens generally, providing a fitting entrance/arrival sequence. The Riverside Promenade: The riverside is proposed as a major city promenade, City Gardens Lake: The natural extending from the Yacht Facilities depression in the centre of the Gardens Building along the river to the common. accommodated a lake until1937 and it The walk would feature offshoot walks was proposed to re-establish the lake in through mangrove and rainforest areas, an extended form as a focus and theme to with boards explaining their natural the Gardens. history. The Pavilion: A striking landmark Bunya Promenade: A walk featuring adjacent to the lake and visible from the historical Bunya Pines planted in 1858 in city centre, to house facilities such as a honour of colonial botanist, James kiosk, information boards and Bidwill. pamphlets, public amenities, and a small boat hire operation for rowing on the Following the riverside walk around the lake. Point leads to the Amphitheatre, entrance to which would be gained from the On the right of a person entering the Gardens Point Road. Amphitheatre/ concourse would be the The Parliament Sound Shell: Proposed on the site of the House Vista: This expanse would BCC service nursery, where the spur to provide a grassed vista between the east forms a natural sound buffer to Parliament House and the Gardens and a the central Gardens area. The space traditional landscape foreground more would serve as the major FREEPS venue appropriate to the history of the building. and as an informal recreation area for Turning left at the concourse would lead students of the QIT and the to a subsidiary entrance from Edward Conservatorium, allowing the core of the Street (the short green-fringed road Gardens to remain relatively peaceful partially visible on the right, looking into even during major events. Slide #1; Slide #2: Concept). This part of To the west of the sound shell lies the old the river has become popular as a tieing Domain area. It had been a popular up spot for yachts, although there. are few speakers' common before the Second facilities to cater for even the routine World War, a staging area for troops needs of the occupants. during the war, then a parking area for Yacht Facilities Building: A domain to QIT students and staff. The study house facilities for the international yacht proposed returning it to a common use marina located near the Edward/Alice area, with parking relocated to the Street comer of the Gardens, including ground floors of the three buildings shown north of The Common: A purpose. In addition, an extension of the barbecue/picnic area for students and City's ferry service was recommended, FREEPS patrons, adjacent to the linking QIT with the South Bank and its amphitheatre. parking facilities and with South Brisbane railway station. The ferry At the end of George Street extended into station would be located near the bus QIT campus and south-east of the turn-around in Domain Place: A bus Conservatorium lies The Hill: The area loop to the peninsula from the City centre of the existing curator's cottage provides is envisaged, linking with the one of the most dramatic outlooks over Domain ferry. the Gardens, River and City. It is proposed to remove all structures from The study emphasised the unity of the The Hill, in order to establish it as a Point in a number of ways: the removal of public lookout area and link between the the fence along the Gardens perimeter, so Gardens and the Point (Slide #2:Concept). that the Gardens were available for use 24 hours a day; the landscaping of the • Access and transport connection between QIT and the Gardens so that physical barriers would not be The discussion above has touched on offputting to the casual walker; the access through a subsidiary entrance at provision of parking on the west of the the end of Edward Street and through a QIT campus linked to the upper campus main entrance, The City Gardens and the Gardens by level walkways across Entrance: The major entrance to the the George Street ridge; and the Gardens, incorporating a pedestrian development of a community access spine boulevard along Albert Street to Queen through the Point as a whole. Community Street, with bus bays, directive signs, etc. Access Spine: A pedestrian street This boulevard would provide the providing access from carparks and bus Gardens with an imposing entrance and and ferry interchanges to the Gardens, via facilitate pedestrian access from the city the QIT grounds, and through the Library centre to the Gardens. node beside Old Government House The preferred strategy picked up the (Slide #2: Circulation). traditional idea of a ceremonial forecourt With the return of the Domain to to the Parliament, and made Gardens use, QIT was required to solve recommendations about the redesign of its carparking problems within its own George Street between Alice Street and area. the Conservatorium to meet this function. Ceremonial Forecourt, Parliament Academic Buildings with Carparking: House: Located off George Street, with (New structures are shown in red on the reduced access to QIT and restricted master plan.) The portions of land parking provision. between QIT and the Expressway and reserved for various government uses The George Street entrance was QIT's could accommodate three aesthetically main entrance. Therefore the pleasing new QIT buildings with development of a ceremonial forecourt to landscaped settings. These buildings Parliament meant that QIT had to use would be designed in harmony with the Gardens Point Road as its main entrance. overall Point site and would considerably The Major QIT Entrance: Located off improve the appearance both of the Gardens Point Road, with provision for campus and of the land portions as seen an information point, bus bay and from the Riverside Expressway and the turning area to link with the Domain South Bank of the River. Current open ferry, pick-up I drop-off areas and short­ carparking on Gardens land would be term parking for a limited number of accommodated on levels beneath the vehicles (Slide #2: Circulation). buildings. This parking would be available to the public on weekends. In order to make public transport more convenient for QIT students, the study With the availability of carparking under suggested that buses enter Gardens Point QIT buildings to the public over Road to a loop turn-around, requiring weekends, no provision for parking was some use of Domain land for this made in the Gardens which were proposed as a recognisably pedestrian A four-page explanation plus one-page zone. questionnaire was made widely available in the format set out above following the Gardens Point Road could be relocated public launch on 10 July 1985. The period from the current location to the east of for public debate ended 23 August. In the new buildings to a new location next this time there was a public display, and to the Freeway where it could be used by the Daily Sun made a feature of the Main Roads to service the Freeway as preferred strategy on Thursday 11 July. well as for a public road. Only service The feature aroused great controversy vehicles would move through QIT and interest, attracting many letters to campus. the editors of the Sun and The Courier­ Mail. • Objectives of the proposal The proposed development strategy One influential submission came from provided a number of improvements for The Royal Australian Institute of Parks the Gardens Point Area. It served to: and Recreation, who wrote to the Lord Mayor generally endorsing the strategy: T maximise potential use of the entire area by Brisbane people and the (a) the Strategy recognises the strong students and staff of QIT and the sense of visual identity ("sense of Conservatorium ,: place") of the Botanic Gardens and rightly aims to retain that character T recognise, retain and appropriately· treat the historic elements of the (b) the Strategy recognises and retains Gardens and related buildings the key historical apects of the including Parliament House and Old Gardens and their immediate Government House environs, and seeks to reinforce the historical precinct by allowing the T emphasise the natural and man-made various elements to relate to each features and attractions of the other in context peninsula and nearby riverbank (c) the Strategy aims to link the T provide a variety of facilities and venues for activities accessible to all Botanic Gardens to the City Centre age groups and sections of the both functionally and visually, community, including weekend althouth this is is an almost parking, and an increase in the area of impossible task to achieve by Gardens land for public use redesign of the Gardens Point area alone, and some "linking spaces" T retain the traditional function of the would be needed to achieve this peninsula as a green foreground to the goal City centre for views from the south, east and west and present an aesthetic river aspect of QIT, which fronts a The RAIPR went on to reject criticism major city gateway and cultural that QIT had contributed to the study in South Bank its own self interest, motivated by the need for increased carparking, pointing T improve access to Gardens Point by out that an independent consultant public and private transport and working on the project would also have clearly identify separate institutions recognised this need; and rejected the and areas of use, and criticism that the prime horticultural T accommodate QIT growth beyond the value of the "old" Botanic Gardens year 2000 in a way which is would be lost, pointing out that the dual compatible with its setting. passive recreation and horticultural uses were of long standing. • COMMUNICATION The RAIPP made a number of criticisms, WITH CITIZENS inter alia: The Report was accepted in principle and detail by Brisbane City Council for T the size and scale of the Pavilion release as a draft working paper for should not dominate the Gardens, citizen consideration. even at the risk of losing its role as a visual marker and focal point linking The RAIPP went on to add that the the City centre to the Gardens balance between activity and contemplation should be tipped more .., the pedestrian overpass bridge [over toward "quiet contemplation." Alice Street, and to the Pavilion: shown as a suggestion in a plate Each of these criticisms was paid careful labelled "Images"] would break the attention in the implementation phase. vista over the Gardens Concourse In addition there was strong public from Parliament House to the River opposition to the alienation of Gardens (and vice versa) land for uses other than strictly Gardens .., the Institute is not convinced of the purposes. Shared uses with QIT were need for an extensive lake at the seen as the thin edge leading to take­ Gardens Point, where the River over. already provides waterfront on three Thus changes were made in response to sides. Of particular concern would be community advice, but the main the consequent loss of informal open recommendations of the master plan grassed flat areas close to the City, as have been faithfully implemented. these are regarded as a valuable and scarce community resource. • • • • • • • ...

IJV\PLEJV\ENTATIC>N C>F THE JV\ASTER PLAN

The results of the master plan in action The order of events in the road relocation are shown in slides #3 to #15 grouped were: under the headings: Transportation and .., Transfer and rezoning of Portion 505 Access; Views, Vistas and Landmarks; (vacant Crown Land), gazetted on 26 and Cultural Amenities. June 1986

• TRANSPORTATION .., Transfer and rezoning of Portion 645 AND ACCESS (Reserve for Departmental and Official Purposes -Transportation Under transportation and access, the and Development) resume reports changes made as a result of study suggestions and .., Transfer and rezoning of Reserve 1795 recommendations to major entrances (Reserve for Morgile) (Gardens Point Road, Albert Street Concourse, Parliamentary Forecourt in .., Closure of Gardens Point Road in its George Street); and to the visual and old location, and its reopening in its pedestrian melding of component land new location. holdings (QUT /Gardens access, nodal The view in Slide #3 is from the Domain zones on pedestrian routes). under a mature fig relocated from the Slide #3: Gardens Point Road northern end of the view where the Slide #3 shows the relocated Gardens further building stands. It shows two of Point Road. Previously the road had run the three new buildings erected for QUT through QUT campus in the midst of (Law; Business II; Information pedestrians and service traffic. Its Technology) on land previously the location on the perimeter near the responsibility of various government freeway allows Main Roads access to the departments. The scale of buildings on freeway and separates traffic from QUT land has been defined so as to link pedestrians. In addition, it allowed the mass of the George Street ridge and its integration of QUT land into one structures with the surrounding spaces. Reserve. These links come from pedestrian links which use building elevators to carry pedestrians to the upper of the three levels officers of Lands revealed that the main laid down in the study, and from height reserve was subject to disagreements restrictions. The three buildings have been between QIT, QCM and the National Trust, stepped so as to present a varied view from and Lands was unwilling to begin South Bank or the Freeway. amending a Reserve while disagreement prevailed. The decision was made, Portion 505 therefore, to transfer the portion to the The conditions of the award state that Minister for Education without "projects should demonstrate innovation incorporating it in the main Reserve. The in overcoming substantial site or other transfer was effected in March 1986. design restrictions." Just getting a site to build on in this instance, as it turned out, There was one further problem: Portion 505 required substantial innovation. was of an irregular shape - a long narrow The first of the four actions listed above "rectangle" with one irregular side next to was urgent in that QIT had been granted the Freeway, and this "rectangle" Commonwealth capital funds which had surmounted by a shorter rectangle next to an expenditure deadline attached. A the existing Gardens Point Road. It could be submission "QIT 2000: A Landmark in a used to build on, but the building, to be of World Class City" was prepared, setting the required total area, would have to span out the argument for the land transfers: the existing Gardens Point Road. ..- the new buildings envisaged in the· QIT therefore proposed to the Brisbane master plan would allow QIT to expand City Council that equal areas of land be to the year 2000 on its existing site exchanged so as to straighten the boundaries between the Domain and QIT. ..- the changes articulated with the broad The land exchange was gazetted in June, strategy of the Gardens Point study. and the Law Faculty building constructed In obtaining the capital moneys, QIT had on schedule. proposed locating a 12 storey building The other transfers were more straight­ abutting the western face of Old forward, but the whole project required Government House, after demolishing the close monitoring for a number of years. picturesque and original bakehouse, which was being used as a child-care centre. Slide #10 presents another view of the Law Faculty building and also shows the The Chancellor presented QIT 2000 to the bikeway that has been installed. The Minister for Education and the Lord bikeway links The University of Mayor. The Minister for Education the Queensland in St Lucia and Coronation Honourable Lin Powell, after advice from Drive with QUT and the Gardens, and is the Chair of the Board of Advanced one of Brisbane's very popular running Education, took a submission to Cabinet, tracks and walks. which decided: Slide #4: Library Forecourt That as a matter of urgency, Portion 505, as referred to in the Submission, Slide #4 of the Library Forecourt shows a which is vacant Crown land, be node in the pedestrian access route from transferred as a reserve for the the Gardens through QUT grounds and Queensland Institute of Technology down to the river walkway /bikeway under the control of the Corporation of shown in Slide #3. It links with a walk the Minister for Education. beside the Mechanical Engineering Building and into the Law Building core. The relevant departments (Education, The building elevators take pedestrians Treasury, Works, Lands) were sent copies down to riverside level (see Slide #2: and all ministers circulated. Circulation). The node effect has been However, Portion 505 had been the subject produced in QUT grounds in a number of of negotiations since 1976, and although places. QIT and Main Roads had each agreed to the Slide #5: QUT/Gardens Access incorporation of the Portion into the main Slide #5 shows access to the Gardens from QIT Reserve, Lands Department had not in front of the Administration Building on effected the transfer. Investigations with the George Street extended. The stonework is appropriate to historical work on Gardens Slide #9: Old Government House edges (see Slide #11: Alice Street Edge). The Slide #9 presents the view of a pedestrian steps provide a vista across the Gardens entering the QUT grounds from the through majestic trees. entrance shown in Slide #5, on the right. Visitors to QUT can approach the Old Government House comes into view Administration Building across the across the Kidney Lawn with the Bunya Gardens and up these stairs. pines on the left. The Library Forecourt node is on the right. An entrance between Slide #6: George Street Forecourt QUT and the Gardens similar to that in Slide #6 shows a view from George Street Slide #5 can be found on the left. near the Queensland Club into the Parliamentary Forecourt. The School of On the left of the Bunya pines is the Planning, Landscape Architecture and Conservatorium building, which was Surveying is in the background. The transferred to QUT in 1991, subject to QUT Forecourt when not in use for ceremonial leasing the building back to the QCM purposes provides limited parking for pick pending construction of its new building on up and set down in the entrance half of the South Bank (available for occupancy in Forecourt. Cars enter on the left from Alice 1996). Street which is one-way west and exit into Slide #10: Domain the traffic flow on the right near the gates, Slide #10 shows the domain looking a subsidiary entrance to Old Parliament toward the Law Faculty building. On the House. right is the Amphitheatre (Slide #13). At Slide #7: Albert Street Concourse the time of the Gardens Point Study, the Slide #7 shows the Albert Street Concourse Domain was an eyesore of poorly with the Pavilion in the background. The maintained parking (its ownership was Concourse is used for large attendance unresolved, so that no one was willing to events. A visual link with Albert Street is spend money on it). maintained through the paving on The bikeway /walkway is an important Concourse and footpaths. Trees lining transport element for students, aerobic Albert Street develop the boulevarde exercise, and, particularly during the concept and provide a green finger linking weekend, for casual strollers. the Gardens with the downtown, and through the forecourt of the City Hall to The barbecue facilities are nearby for Albert Street Park and the Roma Street people attending FREEPS events in the development. amphitheatre or QUT students. Slide #11: Alice Street Edge • VIEVVS, VISTAS AND Slide #11 shows the edge of the Gardens in LANDMARKS Alice Street. It illustrates the refurbishment The resume reports on outcomes pertaining of the Gardens in keeping with heritage to the development of appropriate entrance values. Original stone footings and vistas to the historic buildings Parliament original iron railings have been restored. House and Old Government House (Slide The level of restoration is indicative of #2: Concept); supplies one of the number of Gardens restoration generally following vistas from the Domain; illustrates one vista the study. from a focal point in the Gardens; and gives a pedestrian-eye view of the Gardens edge The edge between the Gardens and a busy with the city. road provides a peaceful image for travellers generally, but particularly Slide #8: Parliament House Vista people going home after work. The impact The Parliament House Vista from the of such edges on people's feelings for the Gardens. A paved walk extends from the Gardens is shown by the results of the Forecourt to the Concourse and then down survey referred to earlier. to the Edward Street entrance. The walk presents a view of the building compatible Slide #12: Gardens/QUT Vista with its architectural and historical Slide #12 shows a vista through the distinction and makes good use of its Gardens to Business I building, QUT. The dominant ridge position. old iron post, chain wire fence that lined the boundary of the Gardens has largely • FUTURE STRATEGIES disappeared, and the transition between The main changes left for completion of the two properties softened. the master plan lie on QUT campus. The The unity of the Point is emphasised by University commissioned TRACT, a firm the easy transition between the two of urban designers, to develop and Reserves, for Gardens and Educational update the master plan. purposes. Slide #15: Future Development The slide also shows a garden bench, QUT sets their recommendations within illustrative of the outdoor furniture used the framework of the peninsula. on the Point. The heritage green colour is The study seeks to restore the organic used by QUT also, and appears on the order and patterns of the 1985 Preferred rails in Slide #11 above, and on the roof Strategy in a number of ways, of the shelter shed in this Slide. recognising that the variables to be constrained in any program tend to • CULTURALAMENITIES increase (geometrically?) as the program The Gardens traditionally had catered for time-span increases: music and activities that attracted popular T The transport pattern: complete participation and quiet scenes and walks separation of pedestrian and vehicle. that invited reflection and ease. The two This separation takes place by making uses are developed in the Amphitheatre Main Drive fronting the Gardens a and the Riverside Boardwalk. mall, and restricting vehicles to Slide #13: Amphitheatre Gardens Point Road. Maintenance and service distribution would be Slide #13 shows the Amphitheatre near centralised at a point near the main the Captain Cook Bridge, to the east of access to the University. Small electric the Domain (Slide #10). The earth vehicles would radiate from this point required came from excavations required for service provision. for the Myer complex in Queen Street. The Amphitheatre separates heavy and T The landscape pattern: Use hard and noisy use from the Gardens proper, soft landscape elements to provide improving amenity for quiet reflection. visual direction and legibility for pedestrian access routes, nodal To the north of the Amphitheatre, and on squares, and protected links. The QUT land, is an enclosed 25 metre elements would be defined, and the swimming pool/ squash courts complex, patterning come from this definition the cost of which was shared equally and the coordination of users' between QUT and the Student Guild. The individual projects. pool is heavily used by the public both early in the morning, in the lunch hour (it ... Heritage: Reinforce the visibility of is within easy walking distance of Old Government House, using the government offices in George Street) and Main Drive mall and a re-formed after work. In Slide #1 the pool shows as alignment between QUT and the one of the red rectangles next to the open Gardens. Draw on the traditional space at the point itself, which became forms of university architecture in a the Amphitheatre. manner appropriate in the context to form squares and covered links that Slide #14: Riverside Boardwalk recall the cloisters and courts of Slide #10: Domain is next to Captain medieval sites. Cook Bridge. Slide #13: Amphitheatre is east of the Domain. Further east again, on The TRACT study, in addition, the left of Slide #13, there is a grove of recommends that the physical and palms and mangroves. The area provides intellectual centre of the campus, the a transition zone between the Gardens University Library, be made a cultural core and the more active amphitheatre heart as well. This goal would be area. The Boardwalk emphasises achieved through modifications to the reflection and ecological education. It Library Podium and its uses. links with the bicycle track/walkway. • • • • • • • TRANSFERABLE PRINCIPLES AND PROCESSES

The implementation of a long-term today's problem must be adaptable to strategy proceeds through a number of tomorrow, so that continuity is visible phases: although materials, buildings, land use, the components of the urban setting, 1 Preparing for and carrying out of the change. study. Since change is endemic, a plan which 2 Gaining commitment to the patterns will take a generation to implement must and development plans of the study, respond to the dynamics of urbanism. It and implementing the projects that must develop principles of description constitute the development. rather than merely state projects to 3 Assessing the success of the study and undertake. For example, the plan for the requirements of changed Gardens Point rehabilitation and circumstances, redefining the adaptation demonstrates the extent of patterning in terms of changed contextual analysis and wide variety of circumstances, regenerating relationships within the precinct. In commitment: a parallel of Step 1. addition, it draws out and describes relationships to adjacent uses that are 4 Parallel of Step 2. necessary in order to ensure success. The Gardens Point Plan is now at Step 3 Mid 20th century buildings were often a in this process. reflection of the building technologies It can be seen that urban design is a available and popular at the time. They special case of large scale change. D H were designed with little or no reference Burnham, Chief Planner for the city of to buildings and spaces surrounding Chicago, said: "Make no little plans, they them. The buildings completed for QIT have no magic to stir men's blood. Make during 1970 are an "outstanding" big plans, for a noble document once example of this segmented approach. recorded will never die" (quoted in R They evidence fair engineering design, Meakin, Campus Design: A Study of poor architectural design. The new Form, QUT, 1990). Great change can be buildings on Gardens Point Road fuse sustained and revivified only using the the broad context and user requirements motive power of a great idea. In this case, into a coherent solution. the inherent oneness of the uses of the peninsula enlisted governments and a Since urban design as presented in this university community. resume is organic, evolutionary, and long-term, the continued presence of at The Gardens providing an appropriate least one champion during the first two entrance to and vista towards the Old decades of major change is a great Parliament House; students and workers advantage. In this case, the champion has mixing in their enjoyment of a peaceful been Professor R D Gibson of QUT. haven during the week, leaving it Personal foresight and strength of available for families and picnicing character are a necessary adjunct of the groups during weekends; a broad path great urban vision referred to above. for walking, running, steady bicycling, chaining from a perimeter university Urban design is an overall visual art through the central university and the form. People's pervasive image and city to New Farm Park; Old Government behavioural patterns must be rendered House eminent in a setting of aged trees; congruent in recognisable districts such these and other possibilities engaged as Gardens Point. Image forms being many people and continue to draw them used or considered for use include: on as the area evolves. "' height restrictions on QUT buildings For another principle of urban design is to conform with the three designated that the pattern developed in response to landscape levels (riverbank, central and upper) and the context provided than mere comprehensibility of by the Parliament messages: a memorandum announcing a conclusion is comprehensible but may T replication of colour and form of provoke as much opposition as the external furniture, for example, support it enlists. Communication means benches and refuse containers listening to others' aspirations, it means "' legible pedestrian linkages through working on directions that integrate all and around the perimeter of the Point aspirations, not mere compromises that "' a central focus and subsidiary focuses give no one what they want, but share that reinforce a sense of place losses equally. Communication based on integration leads to strong commitment, "' transitions that meld zones into the and strong commitment is needed for the unity of the precinct and the precinct long haul that is urban design in action. into the adjoining district. Finally, communication is of utmost importance. Communication means more • • • • • • • Appendix 1: Master Plan

The master plan was referred to as the Preferred Strategy in the 1985 Report.

- J • 1 ' £ld1~ ill

·~ ' •..- : ~.._ GARDENS P EFlE RED ST TEG POINT 2i /A STUDY Appendix II: Original Decision Makers

Critical decision makers, with their organisational affiliation at the time, were: The Speaker of the House, Mr J H Warner The Right Honorable the Lord Mayor, Mr The Right the Lord Mayor, Ms Sallyanne Atkinson The Right Honorable the Lord Mayor, Mr Jim Soorley Mr Ian Cameron, Chair QIT Council Mr V B Pullar, Chair, QUT Council Mr R Meakin, Institute/University Architect, QUT •. Members of the Joint Working Party: ..- Professor R D Gibson, Chair, at the time Director of QIT, now Vice­ Chancellor of QUT ..- Dr C Bull, Senior Lecturer, Department of Planning and Landscape Architecture, QIT (Dr Bull was also the Project Team leader) ..- Mr P Heywood, Head, Department of Planning and Landscape Architecture ..- Mr C F Sharp, Manager, Department of Health and Community Services ..- Mr J R Wood, Director of Property Management, Department of City Administration. ·'