Ocklandsstrategy

OCKLANDSSTRATEGY

711.5 099451 DOC strategy

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• Existing road and rail network • Proposed road and rail network • Docklands 1 Spencer Street Station 2 Former Railways Administration Building 3 World Congress Centre 4 World Trade Centre 5 Museum of Victoria 6 Charles Grimes Bridge 7 Flagstaff Gardens 8 Flagstaff Station 9 North Melbourne Station 250 500 750 1000

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Melbourne Docklands: Strategy for Redevelopment

A guide to redevelopment of Docklands, providing a broad framework within which further detailed planning and design and, ultimately, development can be undertaken.

Docklands Task Force

June 1992

Infrastructure Library

711.5 8489276 099451 Melbourne docklands : DOC strategy strategy for redevelopment CONTENTS

1 INTRODUCTION 3 4.3.3.2 The internal road network 52 1.1 THE SITE 5 4.3.3.3 Traffic impacts 56 1.2 BRIEF HISTORY 5 4.3.4 Webb Dock rail line 57 1.3 STATE GOVERNMENT 4.3.5 Cars and parking 58 OBJECTIVES 6 4.3.6 Water transport 58 1.4 DOCKLANDSTASKFORCE 6 4.4 ECONOMIC 1~5 PUBLIC CONSULTATION 7 DEVELOPMENT 59· 1.6 DOCKLANDS AUTHORITY 7 4.4.1 Entertainment, leisure and 2 THE VISION 9 tourism 60 3 EXISTING 4.4.2 Transport 60 CHARACTERISTICS 17 4.4.3 Telecommunications 60 3.1 PORT AND RAIL LAND 18 4.4.4 Education and research 61 3.2 HERITAGE 19 4.4.5 Conclusion 62 3.3 PHYSICAL CONDITIONS 21 5 IMPLEMENTATION 63 3.3.1 Soil conditions 21 5.1 COMMUNITY 3.3.2 Contamination 21 AWARENESS 64 3.3.3 Hazardous materials 21 5.1.1 Pedestrian and bicycle 3.3.4 Physical and human paths 64 services infrastructure 22 5.2 POSSIBILITIES IN THE 4 THE STRATEGY 23 NEXT DECADE 65 4.1 URBAN DESIGN 26 5.2.1 Transport Interchange 65 4.1.1 Transport heritage 27 5.2.2 Entertainment area 67 INDEX OF MAPS 4.1.2 19th century city heritage 2'/ b.2.3 Gasworks Park 68 Reference map Front flap 4.1.3 Human scale 27 5.2.4 Housing at Victoria Dock 70 Location in Metropolitan Area 4 4.1.4 Building heights 27 5.2.5 Conclusion 72 Land release areas 18 4.1.5 Built form 28 5.3 LAND RELEASE Sites for possible heritage 4.1.6 Water 28 STRATEGY 73 registration 20 4.1.7 Environmental standards 29 5.4 FINANCE View corridors and landmark sites 26 4.1.8 Access for people with AND INVESTMENT 74 Land use 30 limited mobility 29 5.4.1 Financial feasibility 74 Housing and community services 32 4.1.9 Conclusion 29 5.4.2 Investment 75 Open space 36 4.2 LAND USE 30 5.4.3 Financial mechanisms for Access and movement 44 4.2.1 Housing 32 housing development 75 Tram and rail services 47 4.2.2 Open space 36 5.4.3.1 Land 76 Pedestrian links and bicycle paths 48 4.2.3 Entertainment, leisure and 5.4.3.2 Levies 76 Footscray Road tunnel 50 tourism 40 5.4.3.3 'Property rates ''b 76 Western Bypass bridge 51 4.2.4 Marinas and moorings 40 5.4.3.4 Other considerations 76 Western Bypass tunnel 51 4.2.5 Education and research 40 6 PRINCIPLES TO GUIDE Possibilities in the next decade 66 4.2.6 General industry/port DEVELOPMENT 77 industry 41 6.1 CONTEXT 80 4.2.7 Port activity ·41 6.2 DESIGN 81 4.2.8 Office 42 6.3 HERITAGE 81 " 4.2.9 Retail 43 6.4 SOCIAL JUSTICE 81 4.3 . ACCESS 6.5 ACCESS 82 AND MOVEMENT 44 6.6 INNOVATION 82 4.3.1 Public transport "46 6.7 DIVERSITY 82 4.3.2 Pedestrians and bicycle 6.8 PUBLIC PROCESSES 82 transport' 48 7 FURTHER 4.3.3 Roads 49 INFORMATION 83 2 4.3.3.1 Western Bypass extension 49 Note: all dollars are expressed as 1992 dollars.

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• Location in Metropolitan Area

25 10 20 30 40

scale of kilometres

Westernport Bay 4 • ------

INTRODUCTION

1.1 THE SITE 300 hectares of land The area described as Docklands in this report consists of about 300 hectares of land and water at the edge and water at the western edge of the Central Activities District (CAD). It is bounded by of the CAD. Spencer Street to the east, Footscray Road to the north and Lorimer Street to the south. The entire area, with the exception of the former Railways Administration Building in Spencer Street, is publicly owned

1.2 BRIEF HISTORY Historically, much of Docklands was low-lying swamp bisected by the meandering lower reaches of the Yarra River. The site of the original settlement of Melbourne was the point where a natural weir separated tidal salt water from fresh river water. A mooring basin in front of the former Customs House in Flinders Street was Melbourne's first port. Because of the changes made since European settlement few, if any, remnants of Koorie presence in the area can be identified.

As trade and shipping grew, wharves developed on both sides of the Yarra River downstream of the groWilllJ Luwn. Although new settlements sprang up at Williamstown and Footscray, the intervening unattractive land remained undeveloped. Today, the poor soil conditions and the pattern of early development are reflected in the low intensity of use of the land and the predominant activities of port, rail

and associated businesses. DockIands is characterised by its very flat topography, Port and rail land a legacy of its swampy estuarine nature. will become redundant over time. It has become apparent over the past decade that port and rail land at Docklands will become increasingly redundant over time Various proposals emerged for new and different uses. Early, consideration was given to an International Garden Expo as a means of generating investment in infrastructure Melbourne's bid for the 1996 Olympics included an Olympic Village at North Wharf. Similarly, Docklands was proposed as the location for the Multifunction Polis.

5 The Strategy has 1.3 STATE GOVERNMENT OBJECTIVES emerged from public The objectives which the State Government laid down for Docklands are consultation and comprehensive in economic, social and environmental terms. They are as follows: research and analysis. To use the opportunity provided by the waterfront location to increase the efficiency of existing land uses and encourage new land uses and other activities that: > strengthen Melbourne's role as a prime commercial. financial and research centre by facilitating major new developments in an attractive waterfront environment, with strong links to institutions and activities in other parts of the city, throughout Victoria and beyond;

.> Jevelu1J Llansport and other mtrastructure which improves the competitive position of Melbourne and Victoria as a whole; > house a large, new population in central Melbourne; and > attract people to central Melbourne for business, residence and leisure.

To ensure that any development: > is the outcome of an intensive and flexible public consultation program; > is of the highest possible urban and environmental quality; > allows for growth in the CAD in a way which preserves and enhances the unique character of the existing city; > maximises benefits available through release of under-utilised Government land to finance basic infrastructure; and > is properly integrated into existing neighbourhoods.

1.4 DOCKLANDS TASK FORCE The Victorian Government established the Docklands Task Force early in 1990 Its role was to co-ordinate the work of other agencies and to develop a strategic plan for Docklands. The first report of the Task Force was Melbourne Docklands: Strategic Options, which was released in December 1990. The second report, Melbourne Dockland5:Draft Strategy for Redevelopment, was published in November last year

This report, Melbourne Docklands: Strategy for Redevelopment, is the final report of the Task Force. It has emerged from a range of input relating to land use, access and movement, built form and implementation issues which has been drawn from the consultation process and research and analysis undertaken hy the Task Force and other government agencies. These inputs are covered in more detail in a separate report, Docklands Strategy: Background Report, in detailed working papers and in consultants' studies. The Strategy is intended to guide the redevelopment of Docklands, providing a broad framework within which further detailed planning and design and, ultimately, development should be undertaken.

6 1.5 PUBLIC CONSULTATION In view of the significance of Docklands in its size and location, the Victorian Government took the view that extensive public consultation should take place around this major urban redevelopment. Since the Task Force's first report, public discussion has been encouraged as a priority. An independent body, the Docklands Consultation Steering Group, was established by the responsible Minister, the Honorable David White MLC, to advise him and the Task Force on the consultation process and to ensure that issues arising were appropriately addressed in the work of the Task Force. The Docklands Consultation Steering Group. The Draft Strategy emerged from the first phase of consultation and this final report has been influenced further by a second round of public debate and comment. A more precise account of how this has occurred is contained in the Background Report to the Docklands Strategy. It is important tonote here, however, that this Strategy has evolved considerably from its predecessor, the Strategic Options report, and to acknowledge the vital contribution provided by the public in this process.

It is clear from the public consultation process that while theH~ remain diverging views around some of the issues, there is strong community support for developing Docklands.

1.6 DOCKLANDS AUTHORITY The development of Docklands is the responsibility of the Docklands Authority which was established in July 1991 under the Docklands Authority Act (1991). The objective of the Authority is to promote, encourage and facilitate development of the Docklands area, while providing fulLrecognition to Government objectives, policies and plans for the operation of the Port of Melbourne.

A Docklands Authority Board has been e~tablishedunder the chairmanship of Mr Eric Mayer, former chief executive of National Mutual Life Association of Australia. The Docklands Authority The Board's eight other members have been drawn from the finance, construction was established in July 1991 and development, tertiary education and trade union sectors. The Chairman of and is responsible for the Port of Melbourne Authority is also a member. Mr Bob Annells, formerly head development of Docklands. of the Tasmanian Department of Tourism, Sport and Recreation, was appointed chief executive recently.

7 A major initial task is the management of planning for the Collins Street extension, announced in January 1992 by the Deputy Premier. This is to be accompanied by a program of advanced tree planting as an initial beautification exercise. The Authority is also actively pursuing a casino for Docklands.

The Docklands Authority is a public authority within the terms of the Planning and Environment Act of 1987. The Minister for Planning and Housing may therefore specify the Authority as the responsible authority for any planning scheme for Docklands. The Authority may thus be the principal planning agency for the area as well as the principal development agency.

Planning controls for Docklands should be prepared as a priority. The introduction of a suitably structured planning instrument, supported where appropriate by guidelines and policies, can ensure that those aspects of, for example, built form, siting and design of buildings, heritage protection and streetscape, which are important details of the Strategy, are implemented. As preparation of a comprehen sive planning instrument to control development and land use is a time-consuming exercise, a blanket planning instrument which requires any proposal to obtain permission should be prepared for use in the interim. This will assist the planning authority in achieving the environment and character foreshadowed by this Strategy, which should be incorporated in the planning scheme and in any interim document. Development of a planning scheme would require further public consultation.

THE VISION I THE VISION I

Docklands will be Melbourne's waterfront precinct, distinct in form and complementary in use to the existing CAD. It will contrib:ute to the vigour of our city by providing a mix of activities that attract people .to the centre of Melbourne to live, ,. to work, for recreation and . , for leisure.

Visually; it will be of a different .1' ..i .scale from the CAD, with I buildings stepping down to the waterfront and including· significant areas of open space. The maritime past and present of Docklands will be reflected in its structures and activities.

13 Docklands should In general terms, Docklands should complement the CAD rather than be an complement the CAD rather extension of it. The Strategy would see the city linked to the water along three of its than be an extension of it. east-west streets. The waterfront is no further from Spencer Street than is Queen Street. Although direct and convenient links are proposed between the CAD and the waterfront, the character of the two areas should be distinct.

The design of Docklands should be based on precedents set by inner Melbourne itself, its nineteenth century planning and particular character.

Within Docklands, near to Collins Street and the rail tracks, a formal urban character should prevail. The elegance of Marvellous Melbourne should be apparent in the quality of the buildings and restrained streetscapes. Individual buildings, however, should demonstrate a new awareness of and responsiveness to the urban environment.

Those streets which would carry the most traffic should be broad and tree-lined in the manner of Melbourne's great boulevards. Building heights should be limited and street frontages planned to ensure a human and comfortable scale to the street environment and maximum sunlight penetration to the areas where people will gather. Although not in sight of the water, these places should carry the mood of the Docklands and its maritime heritage. The essentially rectangular street pattern should be complemented by a finer grain of arcades, lanes, plazas and courtyards, creating a place of interest, well detailed, and a delight to the eye

Urban design standards should reflect environmentally advanced practice, particularly in terms of energy and water conservation and waste management.

The plan form of Docklands should encourage the creation of landmark structures at the ends of vistas and buildings of character and presence on key corners.

The existing waterways, the wharves and sheds, make a strong statement about the history, traditions and character of this formerly busy port area. Recognition and retention of this aspect of Melbourne's past should be the cornerstone of the urban flavour of Docklands and can be built upon to create a unique place The waterfronts could develop as a series of different yet complementary precincts, with a variety of uses and attracting people for a range of reasons. Public access to the waterfront would be guaranteed throughout Docklands.

The north bank of the Yarra River would be a promenade; sometimes broad parkland, sometimes river wharves, sometimes a carnival atmosphere, sometimes a quiet sitting place. From the western end of North Wharf, a close-up view of the container berths of the port would contrast with a return view of the city skyline across a broad stretch of water.

14 Victoria Dock $hould evolve as a focus for Docklands; its refurbished sheds and new buildings providing accommodation for cafes, pubs, tourist shops, galleries, museums, restaurants, artisan studios and the like, while the water should carry yachts, water buses, tourist boats and possibly commuter services, delivering people only a few minutes walk from the Spencer Street Transport Interchange or a tram stop. Maritime activity should be a feature, including activities such as chandlers, sailmakers and other light maritime industry.

Behind the water-edge activities, new developments will provide apartments, town houses, offices and retail uses, generally in low-rise buildings which overlook and take advantage of the waterfront environment but do not dominate or overshadow it. Up to 8,000 people could live at Docklands.

Central Melbourne is already partially ringed by many fine parks and Docklands provides the opportunity to extend this network. A major wetlands could be created on the eastern bank of the Moonee Ponds Creek and another major park, possibly of a more traditional nature, could be developed at the old gasworks site on the suuth side of Victoria Dock.

Walking and bicycle paths should provide continuous access to the waterfront and link areas of parkland. Smaller parks, plazas and squares should be scattered throughout the area.

Broad footpaths and well-positioned weather protection canopies and verandahs, street trees and other landscaping, and close attention to the detailing of street furniture, can create a welcoming and attractive thoroughfare. Close attention will be paid to providing street environments and paths of travel that are usable to people with disabilities. Docklands can provide People should move about mainly on foot or on bicycle for short trips and by public new parkland transport for journeys to the city or other nearby areas. The private car should be a relatively inconvenient mode of travel within Docklands: the short distances, juxta position of different land uses and activities, and the high quality of the pedestrian environment should encourage people to walk, cycle or use public transport.

The proximity of the Spencer Street Station, a new gateway to Melbourne, redeveloped and enlarged as the primary transport interchange of the city, is vital in ensuring a direct and convenient connection between Docklands and the rest of the city. It would also be a catalyst for development nearby.

15 People should move about Through-traffic would avoid the CAD and Docklands and travel on a new freeway mainly on foot. bicycle or by link between the Thllamarine and West Gate freeways. public transport.

Transport and freight industries aLe already active at Docklands and some form of commercial shipping and associated industry will remain. High tech industrial development could occur also, in conjunction with the developmfmt of educational and research facilities.

A key location for commercial development is the area adjacent to the proposed Transport Interchange. Commercial development could also provide a buffer on major arterial roads Commercial and industrial development would benefit from provision of advanced telecommunications infrastructure. Up to 28,000 people could work at Docklands

Even during the lengthy interim stages, Docklands should retain a sense of "place". Although inevitably vacant land and construction activity would be present, the progressive transformation of Docklands must ensure that, at any point, there is a sense of cohesion and completeness within the new area and that the land uses and activities do not clash with those remaining and those adjacent. The area, and particularly the roads, must continue to function.

The PMA is planning to It is important to gain an appreciation of the site and its existing characteristics consolidate the port in order to comprehend the opportunities and constraints which will be encountered downstream in the long term. in the development of Docklands.

3.1 PORT AND RAIL LAND Much of the port land, and the rail land between the city and the port, will gradually become redundant. The area can therefore be progressively redeveloped to give the city a waterfront focus, as it had historically.

A number of rail-related businesses - i.e. APM's paper warehouse and the Public Transport Corporation's (PTC) Fast Track and parcels facilities - require relocation. Thc PTC is actively dcveloping stratcgics for thc carly clearancc of freight facilities Track removal from the affected parts of the Melbourne Yards has already commenced

land release areas

N 1 Central Pier 11993) 2 North Wharf 11993) 3 Footscray Road Dudley Street 11993) 4 Railway yards 11994) 5 Sudholz Street 11997) 6 South Wharf 12001) 7 Sudholz Street Dudley Street (2005) 8 Victoria Dock south 2 to 4 (2006) 500 500 1000 9 Victoria Dock south 5 and 6 12011) scale or meLres 10 Victoria Dock north 11992 to 2021) 18 As at March 1992. Subject to variation with renewal of leases The Port of Melbourne Authority (PMA) is advanced in its plans to consolidate the port downstream in the long term. The aim of the Victorian Ports Land Use Plan Draft Final Report released in December, 1991 is to ensure that appropriate port land is available to meet Victoria's long-term trade needs.

The plan advocates the concentration of international container trade at Swanson Dock and Appleton Dock and coastal trade at Webb Dock Victoria Dock, North Wharf and the upstream section of South Wharf will therefore become available for redevelopment. The Land Use Plan recommends the construction of a new 3-berth container terminal at Appleton Dock which will involve dredging in the mouth of the Moonee Ponds Creek

Land will become available over a long period of time, as shown in the land release map. In the short term, significant parcels can be redeveloped. Central Pier, North Wharf, Footscray Road/Dudley Street and the railyards can all be available for development within two years. Other areas of Docklands could become available as leases expire (Sudholz. Street and Sudholz/Dudley Street) or when facilities are no longer commercially viable (South Wharf, Victoria Dock south and north). A detailed description of each area is provided in the Background Report.

3.2 HERITAGE Many of the facilities at North Wharf and Victoria Dock provide a near-complete record of cargo-handling from the nineteenth century to today.

There are also culturally valuable remnants of rail history in the various goods sheds and platforms, signal boxes, concourse and offices.

Several buildings in the area are listed already on either the Register o~ Historic Buildings, the Register of the National Estate or the Register of Government Buildings. These include the Queen's Warehouse in Blyth Street, the Mission to Seamen in the Flinders Street Extension and former "Pi' goods shed (now No.2) in the Melbourne Goods Yard. Some heritage buildings, structures and places at As the result of a heritage study commissioned by the Docklands Task Force and Docklands will require protection and possible re-use. the Historic Buildings Council, a range of heritage buildings, structures 9-nd places was identified as significant, possibly requiring protection and possiple re-use. This included the shape and form of Victoria Dock, its linear wharfage and Central Pier, cargo sheds, crane and rail tracks, timber piling and roadway. Victoria Dock, which was opened exactly a century ago, was the largest'single dock in the world and the largest artificial dock basin in Australia. It has recently received classification by the National Trust as a 'structure requiring preservation. Recommendations contained in the heritage study are under consideration by the Historic Buildings Council.

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Should the Historic Buildings Council and the Minister for Planning and Housing decide that the current land profile of Victoria Dock requires preservation, this will restrict design for the water's edge at Docklands. Notably, ideas which have been put forward by the professional architecture and planning bodies about bringing the waterfront to the CAD, truncating the finger pier at North Wharf or demolishing Central Pier could not be realised.

While the Task Force sees advantages in retaining the current land profile, it must be acknowledged that the cost of general reconstruction and maintenance of the wharves carries some penalty. Also, responsibility for maintenance must be determined.

N Sites for possible heritage registration 1 Victoria Dock berths 19 to 21 2 Victoria Dock profile 3 Central Pier berths 8, 9, 14 and 15 4 Queens Warehouse Blyth Street 5 Railways goods shed NO.2 "A" 6 "Exhibition" goods shed 7 North Wharf berth 5 8 Mission to Seamen 9 Flinders Street extension wall 10 Former Railways Administration Building 11 Outward parcels office: approach and concourse 1000 500 500 12 Station platforms 11 to 14 scale of metres 13 NO.1 Signal Box 14 Wagon repair shops 15 North Melbourne Station 20 3.3 PHYSICAL CONDITIONS 3.3.1 Soil conditions Throughout Docklands, Silurian mudstone forms a rock base some 20 to 50m below the surface. The geology overlying this is predominantly Coode Island Silt to the north of the Yarra, shallow deposits of sand over Coode Island Silt to the south of the Yarra, and basalt with a covering of firmer clays around the boundaries along Spencer Street to the east and beyond Docklands to the west. The Coode Island Silt is generally 10 to 20m thick, masked by a shallow layer of fill imported as the area was developed.

The main features of the ground conditions are the low strength and high settlement characteristics of the Coode Island Silt. Deep piling is required for buildings higher than a few storeys, which means that buildings between two and ten storeys may bear some construction cost penalty compared with other locations.

3.3.2 Contamination A preliminaiy investigation of ground contamination has been conducted.over most of Docklands. With the exception of two sites, contamination in the area is generally of a low level. The sites of two former gasworks have been found to be highly contaminated and are listed on the Environment Protection Authority (EPA) register. Clean-up would have to occur before certain types of redevelopment, such as housing, could proceed. These former gasworks are situated on an area of land approximately between Footscray Road and North Wharf and in the north-east corner of therailyards. Clean-up technology appropriate to the contaminants and to the future land use, although very costly, is available.

3.3.3 Hazardous materials The EPA prescribes buffer (separation) distances between industrial land uses and sensitive nearby uses such as housing, schools, hospitals and other community facilities. These buffer distances have been incorporated in the Docklands Strategy.

Bulk liquids, including vegetable oils and other flammable materials, are stored at Coode Island, an area of land adjacent to West Swanson Doc~ and serviced from a berth at the mouth of the Maribyrnong River. The Government has recently announced that storage of bulk hazardous chemicals will be relocated to west Point Wilson. Non-hazardous materials such as tallow and vegetable oils will remain at Coode Island. At its nearest point, Docklands is two kilometres away.

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EXISTING CHARACTERISTICS

I •. l ' •

Physical and human 3.3.4 Physical and human services infrastructure services can be provided Physical services include the provision of sewerage, gas, electricity, drainage, without significant water and telecommunications. At present, these services exist to varying degrees investment. Some existing infrastructure will need to be relocated, other services expanded In general, however, the physical and financial impact is relatively insignificant and can be spread out over many years.

Availability of human services including education, health and local government services has also been analysed. Overall, major service providers confirm that there is sufficient capacity in existing services to cater for a Docklands population without significant investment. It should also be noted that the inner city offers a superior range and quality of service to that often available in fringe areas and that Docklands may improve the viability of some services, for example, schools. Nevertheless, availability of appropriate services should be monitored over time.

) THE STRATEGY ,,' ~

24 THE STRATEGY

25 The Strategy takes a flexible While some land at Docklands is available now, some of it will not be available for ten, approach to land use. twenty or even thirty years The approach taken in the Strategy is therefore a flexible one which will allow future priorities to influence decisions about the best land uses.

Appropriate land uses for different parcels of land are identified, while recognising that more than one land use may be suitable for anyone particular area; indeed, Docklands may develop a more "mixed" character than is typical of most parts of Melbourne.

The Strategy is most prescriptive about land use in those areas which are likely to be developed within the next ten years.

Clear direction about issues related to transport infrastructure is also provided The long lead times needed for construction, the expense, the implications in terms of land use and the overall importance of the transport system to this part of Melbourne support this detailed analysis of transport needs.

4.1 URBAN DESIGN Urban design embraces the layout of roads, thoroughfares, open spaces and land parcels as well as the three-dimensional form of buildings and other structures on those land parcels. Good urban design will also address the detail of land use, particularly at street level, the role of landscaping and tree planting and the character of the environment.

View corridors and landmark sites

500 500 1000

scale of metres 26 )

I I, Infrastructure Library

The ambience, the sense of place and the personal response to being in a particular The physical remains urban setting are influenced by the quality of the urban environment. The quality of the railway and the port is therefore affected by decisions at all stages of the planning process and by various should be integrated into new development. parties to that process, each of which has different objectives.

4.1.1 Transport heritage It is important that the physical remains of the railways and the port are treated appropriately as part of the redevelopment process. They should be integrated and adapted for new uses in an environment that reflects the site's previous functions, rather than retained as isolated monuments, preserved in an alien context.

4.1.2 19th century city heritage Another important element is the precedent set by the nineteenth century d~sign of "Marvellous Melbourne". Key features include the tradition of major buildings or monuments at landmark sites and provision of significant view corridors.

Other features include the formal town planning and restrained built form of inner Melbourne which is evident in the city grid, the broad tree-lined boulevards and network of lanes and smaller streets. The previous 40-metre height limit still exerts a strong influence and the existence of parks and gardens, particularly around the boundaries of the CAD, is an important precedent.

4.1.3 Human scale The height of buildings and their relationship to the street combine to create an important aspect of the character of an area. Throughout Docklands, built form should provide interest and variety to people at street level.

4.1.4 Building heights New development in Docklands should not compete with the clusters of office towers in the CAD. Rather, Docklands is seen as a low-rise environment, with relatively few buildings above 12 storeys. The proposed Transport Interchange, along Spencer Street, and at landmark sites, are areas where higher buildings would be appropriate.

Building heights

"ill Victoria Dock CAD ~

27 ..

Water will give Docklands Lower building heights are generally proposed near the waterfront to encourage a unique identity public access and to avoid overshadowing of the water. Two or three-storey structures should predominate in places where a pedestrian character is sought. Existing heritage structures are all low-rise and, in part, these should influence the form of new buildings nearby Design should accentuate the oppulLunity w l11axilJji~l.; vlI'ater views and sunlight penetration. Soil conditions may also influence building heights and encourage buildings of IIp t.o two or three storeys or over ten storeys.

Built form The relationship of one building to another, and to the street, is the basis for t.he development of a distinctive built form for Docklands. The collective appearance which a group of individual buildings creates, with elements of street furniture and landscaping, is the essence of streetscape. Docklands has a number of parts where differing streetscape characters will be appropriate.

The built form around the Transport Interchange, and of adjacent land parcels, should reflect the hard-edged formality of the CAD, with buildings generally forming continuous facades along property boundaries. Nearer to the water at Victoria Dock and along North Wharf, bUildings may be more individual, reflecting the more relaxed atmosphere of the mixed land uses and range of activities in these areas. North of Victoria Dock, separate structures in a park-like setting may be appropriate.

4.1.6 Water Water is a major element of the physical setting as it exists today, and should be capitalised upon in ways which would give Docklands a unique identity.

The broad expanses of the Yarra River and Victoria Dock allow dramatic vistas of the city skyline, reflected in water carrying boats, ferries and ships Docklands redevelopment could introduce new uses along the edges of increasingly active stretches of water.

Elsewhere, a more intimate scale should be evident: the lower reaches of Moonee Ponds Creek would cross informal parklands with a wetlands theme; within the built up areas, parks and plazas would use water in a more formal sense.

Water, in various forms, should be a dominant feature of Docklands.

28 4.1.7 Environmental standards Energy efficiency, All new buildings, and where feasible, refurbishments of existing buildings, should be water conservation and waste management of high environmental and energy standards. Energy efficiency, water conservation should be considered early and waste management need to be considered early in the design process and not as in the design process. afterthoughts. New technologies and innovative design need to be melded to provide forward-thinking solutions to environmental problems that are both local and global.

4.1.8 Access for people with limited mobility The urban design of Docklands should incorporate, from the planning stage, consideration of the needs of people with disabilities, including the elderly, people with prams and luggage as well as people who are ill or have some physical disability. Some of the key areas include the planning o~ streets, footpaths imd traffic signals, access to and within buildings and the layout of open space and recreation areas. To facilitate appropriate design, extensive consultation should take place.

4.1.9 Conclusion As more detailed planning work proceeds, and particular laud uses and intensities of development become more definite, guidelines should be formulated which address these issues and can be incorporated in a planning scheme.

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, THE STRATEGY - ,

Land use N •. Residential • Open space Entertainment, leisure and tourism • Education and research • Office • Retail • Industry, port-related industry Commercial shipping • Marinas. mooring, maritime light industry II Transport

250 250 500 750 1000

scale of metres

Victoria Street

FootscraYROad

Coode Road

V'Jest

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4.2 LAND USE Appropriate land uses have been determined in the light of several factors including the physical constraints of the area, the existing land uses and the possible rate of land availability. Others include the land uses in adjacent areas, both existing and proposed. The CAD, the Museum of Victoria and the World Congress Centre, the predominantly residential areas of North and West Melbourne, the Knowledge Precinct of Carlton and Parkville, influence the future uses of Docklands.

Neighbouring communities have a range of facilities and services which can cater for a residential and working population at Docklands with minimal additional investment Land use is thus likely to be determined by access to these facilities.

Certain land uses require frontage to major roads; others should be accessible only by lower-order streets. The effects of high traffic volumes are incompatible with uses such as housing and tourism/entertainment. Conversely, offices, industry and large-scale reLailiuy can tolerate busy roads without adverse effects. The disposition of land uses is, therefore, partly a consequence of the road pattern and hierarchy.

Finally and most importantly, State and local government policies and objectives for Melbourne provide a significant impact on land use. Urban consolidation objectives are of considerable significance in this regard; so is the Open Space 2000 program which flowed from the State's Conservation Strategy. The long-term planning by the PMA is critical to land availability and disposition of uses.

What follows, then, is a series of proposals for land uses which aim to provide a viable and acceptable long term scenario for Docklands. In Section 5, more attention is paid to specific development which could occur over the next decade or so.

New land uses have been determined in the light of existing uses, physical constraints and land availability.

31 . ,

Housing and community services • Housing locations proposed for Docklands Existing facilities: • Open space • Educational facilities 05 05 1 0 1 5 20 • Retail scale of kilometres Other community services + Hospitals Neighbouring residential areas

32 4.2.1 Housing Between 5.0.00 and The provision of significant quantities of residential accommodation is an objective of 8.000 people could live Docklands development. Densities similar to or higher than those of other parts of at Docklands. inner Melbourne should be encouraged, with an average density of at least sixty seven dwellings per hectare (net) being achieved.

Potential sites for residential development at Docklands have been identified, which display the following characteristics: > a high degree of existing amenity, or the ability to readily create such amenity; > sufficient land area to create a critical mass of housing in order to sustain essential retail and community facilities; to enable an appropriate mix of dwelling types and tenures to be provided; and a sense of community to develop; > ready access to shopping facilities, public transport, community services and usable public open space; > access to a variety of employment opportunities; > free of significant soil contamination; > readily providp.d with physical infrastructure; and > capable of being developed for housing in accordance with heritage recommendations. The primary locations are shown on the map.

Additional residential accommodation could be provided as part of the proposed educational and research area at north Victoria Dock and in hotels near or within the Transport Interchange. In total, between 5,000 and 8,000 people could be accommodated at Docklands, depending on how much of the above land is devoted to housing and the density of development and current housing preferences.

Given the poor soil conditions, buildings must be generally low-rise (two storeys) or high-rise (ten storeys or more) or substantial construction cost penalties (up to 11 % compared with development sites with better soil conditions) will be incurred. Cost factors therefore militate against development of three to ten storeys and this accords with consumer preferences which overwhelmingly favour housing of one or two storeys.

An option to increase residential densities beyond those which exist in central Melbourne, in order to maximise the potential population at Docklands, could be to allow some high rise residential buildings. At each of the potential housing locations, the development of one high rise apartment could increase dwelling densities by up to 50%.

33 _------.!~.~. I

34 THE STRATEGY l

(" \

~ Housing at Docklands ~, ./ .--~-- ·.

05 05 10 1 5 20

scale of kilometres Open space

36 ·.

4.2.2 Open space Open spaces of different Several significant areas of open space, as well as a number of smaller incidental sizes, functions and spaces, are included in the Strategy. As detailed planning proceeds numerous plazas, characters are provided for. courtyards and squares could be introduced at suitable locations.

The Strategy provides for spaces of different sizes, functions and characters which respond to the existing attributes of the area and ensure that all parts of Docklands either overlook or are close to an area of open space. Movement between these areas is encouraged.

The existing expanses of water, at Victoria Dock and the Yarra River itself, are important open spaces and, combined with proposed formal and informal parks, some 37% of Docklands could be opeu ~~dce.

These new parklands and open waterways would add to the existing inner-city open areas to provide a variety of opportunities for recreation. Importantly, these open space areas could be linked together by a series of off-road, predominantly waterfront routes suitable for pedestrian and cycle use. They would have a crucial function within the movement system of Docklands.

The largest open space of Docklands would be at the estuary of Moonee Ponds Creek. It would be linked to linear parks extending northwards along the Creek and south-east into the heart of Docklands.

Moonee Ponds Creek originally ended in a swamp near Footscray Road, its southern reaches being man-made and appropriately named Railway Canal. The estuary has been a neglected area for many years Two recent studies have identified its potential as a unique inner-city wetland and bird habitat (Moonee Ponds Creek Recreation Study - Scenic Spectrums Pty Ltd, 1990, for City of Melbourne, and Moonee Ponds Creek Concept Plan - Melbourne Water/Moonee Ponds Creek Association, 1991)

The Strategy supports the use of the estuary and its adjacent land as passive open space with areas set aside for swamplands and bird-life refuges. Different configurations for the mouth of the Creek are possible. Further detail on possibilities is provided in the Background Report.

This area of parkland would provide a valuable buffer between the urban area of Docklands and the heavily-trafficked Western Bypass and the industrial port area beyond.

Another important element in the open space network would be a park on the site of the former West Melbourne Gas Works. The location of this park offers the potential for the creation of open space where the city meets water, in a manner seen nowhere else in Melbourne. Such a park would be as large as Treasury Gardens, offering scope for a range of sheltered smaller places, and the potential for variations in topography.

37 ·. ·. THE STRATEGY

4.2.3 Entertainment, leisure and tourism Entertainment, leisure and tourism, a wide-ranging and varied land use, could occur at several locations, related to the waterfront. The areas identified are generally convenient to the CAD, are concentrated to allow different yet related activities and are accessible by public and private transport. Appropriate activities could include a casino. cafes, restaurants, tourist shops and attractions. markets, theatres, cinemas, a visitor centre, a museum, displays, art galleries, studios and craft workshops and marinas.

North Wharf, Central Pier and several of the existing port and rail buildings could make suitable locations for these uses.

Marinas and moorings Docklands is an ideal site for new marina and boat-servicing facilities for inner Melbourne. Marina facilities could be provided at South Wharf or within Victoria Dock, enabling yachts, sailing ships and other large private craft to tie up. Adequate waterfront land can be provided for slipways and moorings. and on-shore support facilities for storage, repairs and maintenance. Other people-attractors such as cafes, kiosks and shops would complement a marina.

4.2.5 Education and research The term "education and research" is intended here to encompass activities such as tertiary education, research establishments, related business and light industry and associated residential and other support facilities. Such activities would benefit from provision of advanced telecommunications infrastructure. An area of some 24 hectares has been identified on the north side of Victoria Dock and extending north to the estuary of Moonee Ponds Creek. It enjoys good access to the CAD. provides ample opportunity for future expansion and development within reach of open space. and could be well-serviced by public transport.

The area is in close proximity to similar establishments in the central city and the suburbs of Carlton and Parkville.

This site would be suitable for housing if it is not required for education. research and related uses.

40 THE STRATEGY

4.2.6 General industry/port industry Much of the industry traditionally attracted to this part of inner Melbourne is related to the port and the rail system. The necessary physical infrastructure exists for industrial development with close proximity and access to the arterial road and freeway network. The favoured areas are generally adjacent to Footscray Road and Appleton Dock Road and; to the south, of the West Gate Freeway. In general, they are already used for such purposes, although new low-rise office development is replacing industry in some areas south of the Yarra River.

Other types of industry associated in particular with education and research activities may also emerge.

4.2.7 Port activity Some form of port activity will continue to be a feature of Docklands and will be an intrinsic part of its attraction as a place to visit and in which to invest.

During the early phases of development, port activities will continue. If a bridge is constructed as part of the Western Bypass, major shipping will not be able to enter Victoria Dock. A tunnel would allow limited ship~ing,. Some cruise ships, for example, could be able to enter Victoria Dock. However, regardless of the" form of the Western Bypass extension river crossing, other forms of commercial shipping, such as fishing fleets and cruise ships, would be able to use faciliti.es at Docklands.

41 · .

4.2.8 Office Should the demand rise at some point in the future, various parts of Docklands have been identified as suitable for offices.

Office uses should be concentrated within easy walking distance of public transport, in particular the Transport Interchange and abutting major roads. Spencer Street would be best suited to medium or high-rise office development, while elsewhere in Docklands offices of two to three storeys such as are in South Carlton or Port and South Melbourne are proposed. \ , Other potential areas. for office development include land to the south df Victoria Dock ,and t11e~dlying between Footscra~ Road and the prop~sed Docklands ", Road. Some areas sui~a e for offices could be used ~(WallY for retail or jmtertainment tivities.,possibly in mixe use configurations with 0 fi e use. Opportunities for ~

-----.: # .. -rr--ffi-§l~~--+-_-home,!office.cQmbinationsmay also be possible.

\ \ "\ ~\------\ -r --- \ \ r\ " .... /. ~

, I ! :\ I ""-, ;r.' . I \ ...... I i

42 ·.

4.2.9 Retail Retailing should occur in conjunction with office and entertainment/recreation as well as to support housing. It should be concentrated to take advantage of passing traffic, good public transport and road access. This could occur in a corridor parallel to the proposed Collins Street extension between Spencer Street and Victoria Dock, in areas of high pedestrian activity, and in the north-west of Docklands, facing Footscray Road to attract passing trade. This area lends itself to large-scale showroom type of retailing, including peripheral sales, and could serve the wider inner metropolitan market. Entertainment, leisure and tourism areas also offer significant retail opportunities.

___/__4I ' / / / I ,/

43 Access and movement

• Ferry stops

~ Major vehicular access points

Rail stations

250 500 750 ---.... Major pedestrian links 1000 ...... Tram routes ...... Boulevard treatment IIIII Rail corridor - _. Western Bypass extension: alignment for bridge or tunnel

Webb Dock rail line alternative routes: +++ Webb Dock rail line with Western Bypass as bridge -+- -+- Webb Dock rail line with Western Bypass as tunnel

Victoria Street

CoodeRoad

Webb Dock rail 1" I I lne t=----...:

44 ·.

4.3 ACCESS AND MOVEMENT Docklands lies at the centre of Melbourne's public transport, road and freight systems. This means that the potential for public transport in Docklands is significant. Huwever, the centrality of Docklands with respect to the freight and road systems creates problems related to movement of through-traffic by road. This also means that infrastructure proposals should, where possible, enhance the efficiency of the freight distribution system.

Docklands should be a place The principal transport policy directions for Docklands are that the predominant mode where the intrusion of the car of access to and movement within Docklands should be public transport and that is minimised. where most through-traffic should be accommodated to the west by an extension of the Western trips are made by public Bypass which links directly to the West Gate Freeway This link will also expedite transport. bike or on foot and the movement of freight traffic by improving road links between the port, the container where pedestrian precincts exclude motor vehicles. terminal and the rest of the metropolitan area.

The transport objectives for Docklands are that: > the bulk of trips within Docklands should be provided by public transport and walking. > public transport should provide access as directly as possible to Docklands, both from the CAD and surrounding areas; > heavy freight traffic to or from the port and rail terminals should bypass the Docklands development; > there should be adequate road access to Docklands which complements public transport access; > through-traffic should travel around rather than through Docklands; > a parking limitation policy should encourage public transport usage, but recognise the needs of development within Docklands; > pedestrian precincts and linkages should encourage public transport usage and facilitate ease of movement in high density areas; > bicycle paths should provide access and links into existing networks.

The implementation of the policies and infrastructure proposals outlined below should see the creation of an environment in Docklands in which the intrusion of the car is minimised, where internal circulation is primarily by tram, bike or foot and where pedestrian precincts exclude motor vehicles.

45 THE STRATEGY

Public transport would be 4.3.1 Public transport road-based. primarily by tram. Currently only 45 of every 100 journeys to Melbourne's CAD are by public transport. A target of 70:30 in favour of public transport has been set for the area of Docklands around Spencer Street Station. A 50:50 objective has been set for the remainder of Docklands. Care should be taken with urban design and the development of transport systems to ensure high levels of accessibility to public transport. Key elements should be introduced early or as development occurs to ensure its availability from the outset. This will need to be accompanied by an appropriate car parking policy. Increased public transport usage will also increase the community's return on investment in existing public transport infrastructure.

The importance of Spencer Street Station as a public transport facility will increase with its redevelopment as a multi-modal Transport Interchange. The concentration of high density land uses such as retailing and office developments in the vicinity of the Transport Interchange, along with the creation of quality pedestrian links, should encourage increased use of public transport.

Development areas at North Wharf/south Victoria Dock should be linked to the Transport Interchange by tram services. Similarly, development areas at north Victoria Dock should be linked to Flagstaff Station by tram. and access may be gained to North Melbourne Station by walking. However, the distance involved in this fairly indirect journey may be longer than most people are prepared to walk. The need for an overpass or some form of people-moving technology should be examined as north Victoria Dock is opened for development.

Public transport would be road-based, primarily by tram. It is proposed that the Collins Street and Flinders Street tram lines should be extended into DockIands and form a loop at North Wharf. The La Trobe Street tram line should be extended to Footscray Road and a new tram line should run northwards along Footscray Road and then westwards along Dudley Street into the education and research area at north Victoria Dock. This configuration would facilitate through-running of trams and minimise the need for shunting operations at termini. Where possible, trams should operate on a dedicated right-of-way in order to avoid conflict with other road vehicles and to minimise travel times.

Planning for the extension of Flinders Street and Collins Street tfam lines has already commenced as part of the feasibility assessment of the Collins Street extension currently being conducted by the Docklands Authority.

46 · .

The possibility of using part of the Webb Dock rail line for a tram service should be further examined by the PTC. This would link residential development at South Wharf, as well as industry along Lorimer Street Port Melbourne, to the Docklands development.

Bus services to Fishermens Bend or Garden City could be re-routed through Docklands, as could the existing Footscray Road bus service. Consideration should also be given to the establishment of feeder transport services to service residential neighbourhoods within Docklands.

These public transport proposals would provide direct links between Docklands, the CAD and metropolitAn ATAA, AS WAll AS intATstfltA flnrl internationally via the Transport Interchange and the proposed Rapid Transit Link to the Melbourne Airport. The provision of high quality, frequent and reliable services could be expected to attract high levels of patronage and should ensure that the predominant mode of travel is public transport.

Tram and rail services

.-!i~ ~k--rai11iJle

500 500 1000

scale of metres

47 Bike paths and walkways are 4.3.2 Pedestrians and bicycle transport proposed along all water The emphasis on public transport means greater opportunities to encourage walking frontages and should be linked and cycling. Environments need to be created which are safe and from which cars are to existing systems. excluded, or the potential for conflict with cars is minimised.

Bike paths and pedestrian walkways are proposed along all river and water frontages and should be linked to the existinq Yarra River trail and the metropolitan bicycle path system. Pedestrian and bicycle networks should be created which facilitate movement to public transport, to commercial, tourist or other activities, but which also provide attractive environments for passive recreation.

Adequate provision should be made for off-road bicycle paths for tourist/recreation trips, on-road bicycle routes, including the possibility of bike-only lanes, and adequate storage facilities for short-term and commuter trips.

Pedestrian links and bicycle paths

---+ Major pedestrian links

Major bicycle paths

Local links - pedestrian and cycle • Ferry stops • Major open space

500 500 1000

scale of metres 48 4.3.3 Roads Through-traffic should be The internal road network should be designed to minimise the intrusion of motor removed from Docklands. vehicles into the area while providing access for business, residents, service vehicles and links to the CAD The Western Bypass extension, consistent with the principles of the Central Area Transport Strategy, would direct through-traffic around Docklands and improve access to the port, thereby increasing the efficiency of the freight distribution system.

4.3.3.1 Western Bypass extension In 1987, the Metropolitan Arterial Roads Strategy (Metras) proposed that the Western Bypass be constructed to provide a more efficient and direct route between the CAD and Melbourne Airport and to divert through-traffic from the CAD. Importantly, it would also alleviate traffic in North and West Melbourne and Kensington. The Bypass was to terminate at Footscray Road which would function as the link between the Bypass and the West Gate Freeway. This proposal preceded the identification of the development potential of Docklands.

In March 1992 the Premier announced that expressions of interest would be called for the construction of the Western Bypass to Footscray Road and for the Southern Bypass, including a tunnel under the Domain.

A prime objective of the Central Area Transport Study (CATS) is to divert through traffic from the CAD. The application of this philosophy to Docklands implies that through-traffic should also be removed from Docklands. An extension of the Bypass southwards to connect with the West Gate Freeway and the Southern Bypass on the alignment of Graham Street Port Melbourne is the best means of achieving this.

Traffic volume on Footscray Road is currently approximately 48,000 vehicles per day, around 20% of which are trucks. With the construction of the Western Bypass to the West Gate Freeway and the development of Docklands, traffic on Footscray Road is estimated to reach 70,000 vehicles per day, a figure which is incompatible with the waterfront environment envisaged for Docklands. A road with traffic of such volume will entrench and exacerbate the physical and psychological barrier currently presented by Footscray Road.

One solution considered was to place the through-traffic underground by constructing a cut and cover tunnel in the vicinity of Footscray Road. While hiding the "barrier", this approach would require at least four new river crossings to the west of the Charles Grimes Bridge in order to provide access ramps for a full freeway-to-freeway interchange with the West Gate Freeway. The ramps to the portals of the tunnel would be some 250 metres long and may create significant barriers in their own right. Poor soil conditions would make construction costly The cost of this option is estimated at $330M. This is in addition to the cost of constructing the Western Bypass from the Tullamarine Freeway to Footscray Road, estimated at $245M.

It has been suggested that a Footscray Road tunnel could continue under the Yarra River and link with a tunnel under the Domain. However, this would not provide for the range of desired traffic movements. For example, cars travelling east along the West Gate Freeway could not journey north through the Footscray Road tunnel.

49 · ,

The construction of the Western The proposed solution, the construction of the Western Bypass extension from Bypass extension from Footscray Road Footscray Road to the West Gate Freeway on the Graham Street alignment. to the West Gate Freeway on the is considered superior in that it allows a full freeway-to-freeway interchange with Graham Street alignment. is considered a superior solution. the West Gate Freeway, completely removes through-traffic and thereby allows the city to embrace its waterfront location. Graham Street, south of the West Gate Freeway, would be truncated to prohibit a direct connection between the Western Bypass and the bayside suburbs.

The recommended alignment of the Western Bypass extension lies to the west of the Moonee Ponds Creek and will allow the PMA to redevelop Appleton Dock as foreshadowed in the Victorian Ports Land Use Plan Draft Final Report.

Structurally, the Bypass extension could cross the Yarra River by either a bridge or a tunnel. As a bridge, the Bypass could be elevated for its entire length or could be lowered to ground level for a short distance between Footscray Road and the Moonee Ponds Creek. A river bridge would provide vertical clearance of approximately 11 metres to water level which would allow most pleasure craft to journey upstream. However, most port activity would cease. A bridge would have some visual impact, but any impact should be tempered by good design. This alternative is estimated to cost some $145M (from Footscray Road to the West Gate Freeway).

500 500 1000

scale of metres

Footscray Road tunnel

50 ·.

Western Bypass bridge

Western Bypass tunnel

Structurally the Bypass Extension could cross the Yarra River by either a bridge or a tunnel.

51 THE STRATEGY

A Western Bypass extension tunnel would follow the same alignment with portals immediately north and south of the river and ramps of 100 metres length. The deepest point of the tunnel would be at the mouth to Victoria Dock so that limited commercial shipping and cruise liners with shallow to medium draught could have access into Victoria Dock.

South of the mouth of Victoria Dock the tunnel would surface immediately south of the RivEH to c:onnec::t to the West Gate Freeway in a full freeway-to-freeway interchange to replace the current Graham Street interchange. The cost of this option is estimated at $245M (Footscray Road to West Gate Freeway).

Construction of a tunnel avoids the need for additional river bridges and poses fewer limitations on boating activity upstream. However, there could be restrictions on the goods which could be carried through the tunnel, for example some hazardous materials. Such restrictions do not always occur overseas. A tunnel would not have the visual impact'of a bridge, however both a bridge and a tunnel would require a multi-level interchange with the West Gate Freeway. A tunnel would allow a marina to be constructed in Victoria Dock. Construction of a bridge would mean that such activity would need to be located downstream of the bridge. A tunnel would preclude the construction of access ramps at Thrner Street in Port Melbourne.

A choice between a bridge and a tunnel should not be based solely on cost estimates but should also consider environmental issue.s such as visual impact, sound, effect on river activity and the maritime heritage of Docklands, as well as impact on land values.

4.3.3.2 The internal road network The major components of the internal road network are the extension of key CAD streets, the conversion of Footscray Road to a boulevard and the proposed The major components of the internal road network are Docklands Road. the extension of key CAD streets.. the conversion of Footscray Through-traffic will be directed away from Footscray Road following the Road to a boulevard and construction of the Western Bypass extension. Footscray Road should be truncated the proposed Docklands Road. at Collins Street extension, severing its link with the Charles Grimes Bridge and ensuring thRt traffic:: on the waterfront is minimised. It should fulfil a local traffic function and be redeveloped as a boulevard, with the possibility of trams within a landscaped and separated reserve as in Victoria Parade, but to the side of the road.

Dudley Street would provide access between Docklands and North Melbourne. Truck traffic would be of reduced significance after the Western Bypass is built and buses could use Dudley Street.

52 THE STRATEGY

La Trobe, Flinders and Collins Streets should be extended into Docklands, with. the hierarchy in traffic terms being La Trobe, then Flinders and then Collins Street. The function of each would be defined by adjacent land uses within the CAD and their current road vehicle, parking and public transport capacity. The extension of La Trobe Street would provide direct links between the CAD and Footscray Road. It would carry significant traffic volumes and provide a tram link between Docklands and Flagstaff Station and beyond. Ramps would connect La Trobe Street with the proposed Docklands Road.

Flinders Street would provide a route into Docklandsfor trams, but road capacity for cars would be limited due to the physical constraints imposed by the Spencer Street intersection which is already congested and has little capacity for improvement due to the railway viaduct.

Collins Street should also provide a route for trams as well as cars and its capacity would be limited by this dual purpose. Its alignment should curve slightly to the north, parallel to the line of North Wharf. it should connect with the Flinders Street Extension via a section of road which runs parallel to south Victoria Dock Collins Street's role as a major corporate avenue would continue along its extension which would be flanked by the Transport Interchange and lead, past the Gasworks Park, to the waterfront.

A new road would be required to carry residual north-south traffic. Referred to as Docklands Road, it is proposed as a link between Footscray Road and Charles Grimes Bridge and to provide a route for through-traffic between these points. Docklands Road should be constructed to the east of Footscray Road adjacent to the rail corridor. It would provide access to local development and links to the CAD via La Trobe, Collins and Flinders Streets.

Docklands Road would pass over Dudley Street and under La Trobe Street with northerly and southerly ramps at La Trobe Street. Intersections would be provided at Collins and Flinders Streets. Docklands Road would be developed similarly to St Kilda Road, that is, as a boulevard with direct vehicular access being avoided from buildings in order to improve traffic safet¥ and flow.

Other minor roads would be required for local access and circulation. Planning for these roads would need to take account of topography, subdivision of land, the need for access to particular sites, intended land use and the likely intensity of development.

53 179 /

--_:..-...... ----

.p /

\ Tree-lined boulevard

( '- THE STRATEGY

Development of Docklands could 4.3.3.3 Traffic impacts generate as much as 140,000 vehicle The full development of Docklands could generate as much as 140,000 vehicle trips trips a day, based on the target ratio of per day, based on the Strategy's target of a ratio of 70:30 in favour of public transport. 70:30 in favour of public transport. The road network outlined above would cope adequately with this volume of traffic.

Traffic analysis conducted by VicRoads indicated an 8-10% increase in traffic on key routes to the north, south and west and 50% on east-west CAD streets. However, if the construction of the Western Bypass from Tullamarine Freeway to the West Gate Freeway is included in the analysis, the traffic impact in the north, south and east is lessened. Indeed, for key routes to the north and the south (Charles Grimes Bridge to Princes Bridge) traffic volumes are expected to be considerably lower than current volumes due to the removal of through-traffic from streets at the west end of the CAD (refer Docklands Task Force Transport Working Group A Transport Strategy for more details).

More detailed analysis shows that the development of Docklands could produce a 15% increase in traffic volumes on key north-south routes in Port Melbourne and 4% in Middle Park. Its impact on key routes in St Kilda would be negligible. The construction of the Western Bypass and its extension would see traffic volumes increase by a further 4% in Port Melbourne. However, the impact on Middle Park and other areas south would be negligible. This demonstrates that most additional traffic on the north-south streets in Port and South Melbourne would be due to travel between Docklands and these areas, and not to or from other areas further away.

The termination of the Bypass Extension at the West Gate Freeway in a "T" interchange, and the truncation of Graham Street, should minimise the seepage of Western Bypass traffic into Port Melbourne. Further consideration should be given to traffic management measures designed to lessen the impact of Docklands traffic on the southern suburbs, particularly Port Melbourne. The Docklands Authority in conjunction with VicRoads should consult with Port Melbourne and South Melbourne Councils in order to devise programs of traffic management measures.

56 THE STRATEGY

4.3.4 Webb Dock rail line Freight activitity would The Webb Dock rail line is a broad-gauge link from Webb Dock to the railyards create a considerable barrier. adjacent to the South Dynon container terminal. The current route runs parallel to Lorimer Street, crosses the river on its own bridge downstream of the Charles Grimes Bridge and crosses at-grade from the western side of Footscray Road to the Spencer Street railyards and then runs north to South Dynon Container Terminal.

In 1989/90 only 19% of all containerised freight through the Port of Melbourne was carried by rail. The Victorian Ports Land Use Plan Draft Final Report estimates that this will increase to 25% by 2009/10 The recent establishment of the National Rail Corporation (NRC) and funding commitments by the Federal Government to the establishment of a national rail freight network point to the increased significance of rail transport in the freight transport task.

It is State Government policy to convert the Webb Dock line to dual gauge so that interstate freight can be transported directly by rail into the South Dynon Container Terminal. However, the 1Jlscussion }Japer of a House ofRepresentatives Standing Committee Inquiry Into Land Transport Interfaces With Sea Ports suggested that a dedicated freight road might be a more cost-effective option.

Traffic on the line is light at present (around one train a day) and is likely to decline in the short term as a result of the possible consolidation of international container operations at Swanson Dock.

While doubt must exist about the short-term viability of the line, in the long term, with expansion of port facilities at Webb Dock, the PMA estimates that traffic on the line could increase to around six trains per day carrying 90 containers each, possibly dispatched directly from a Webb Dock terminal to the main network.

This level of freight activity would create a considerable barrier, running as it does through potential residential, commercial, retailing and open space areas. Ideally, the Webb Dock rail line should be removed from Docklands.

If the Western Bypass extension is constructed as a bridge, then the Webb Dock rail line could be relocated to the western side of the bridge on a separate structure, at a cost of $66M.

If the Western Bypass extension is placed in a tunnel then an alternative alignment is required as the grade would be too steep for freight trains. In this instance, the line could continue to cross the river in its current alignment and then cross to the eastern side of Docklands Road at-grade where it would be located in the rail corridor. It is estimated that this alternative would cost $8.5M. It would maintain an unsightly barrier and may cause considerable traffic disruption several times a day.

However, before a commitment to any solution is made, a full assessment of the options, including road, should be carried out. This should include consideration of freight transport cargo predictions, cost of alternative solutions, traffic forecasts, as well as broader environmental issues.

57 THE STRATEGY

Car' parking limitation policies 4.3.5 Cars and parking should apply at Docklands. Parking would need to be provided for residents, for commercial, leisure and entertainment uses, and for delivery and service vehicles. However, the provision of parking should be more restrictive than generally applies throughout the metropolitan area and should be similar to the policy which app~ies at Southbank, where a car parking limitation policy is in force.

Such a policy would need to be supported by the provision of high quality, extensive and frequent public transport. Without this, road traffic congestion could occur.

As in the CAD, free-standing parking stations, that is, parking stations which are not part of a development but are solely constructed for the purposes of commuter parking, should not be permitted. The capacity for developments to "share" car parking should also be explored. For example, a large car park c"ould be constructed as part of a casino yet demand for parking spaces during normal business hours would be negligible: neighbouring developments may be able to utilise the same car park.

The development of a detailed car parking policy should occur as part of the preparation of planning controls for Docklands. Issues for consideration are detailed in the Background Report.

4.3.6 Water transport As new residential, commercial and tourist facilities are established at Docklands, Water-based transport could water-based transport becomes an attractive possibility. become a possibility. . . Speed restrictions, which have been imposed to limit damage to the river bank due to wash, mean that the usefulness of water transport for commuters is limited to short trips in and around the immediate city and Docklands area.

However, water transport would be attractive to tourists. Trips could be provided to destinations including the Royal Botanic Gardens, Olympic Park, the Sports and Entertainment Centre, the National Tennis Centre, the Victorian Arts Centre,· the Museum of Victoria, Scienceworks at Spotswood, the World Trade Centre and Victoria Dock from oriqins such as "Centra Melbourne", Docklands and Flinders Street station. There could also be a demand for river trips as an activity in itself.

As a predominantly tourist service it is appropriate that water transport should be provided at no cost to the public purse. Public sector involvement should therefore be limited,to regulation.

58 ------

THE STRATEGY

4.4 ECONOMIC DEVELOPMENT Docklands has specific In nominating areas suitable for entertainment and tourism, retail, office and industry, locational benefits for economic the Strategy has identified in very general terms the type of economic activity that development. will occur. It is estimated that up to 28,000 people could eventually work at Docklands. However, it is important to identify some of the specific economic development opportunities which could arise.

The Victorian Government has targetted particular industries in the manufacturing and services sector for their export and longer-term growth potential. In considering opportunities for economic development, it is relevant to focus on these industries in relation to the advantages which Docklands is seen to offer.

Docklands has specific locational benefits. It is close to the CAD and to the waterfront and provides excellent transport infrastructure. Port and rail freight facilities are soon to experience a surge in investment with the pressure for micro-economic reform. Docklands is also close to internationally-recognised medical and education and research establishments in Carlton and Palkville.

What follows is an indication of the economic development opportunities which are being, or could be, pursued. Some already are firmly on the agenda of the Docklands Authority Others are linked with the Government's industry and economic policies and are at a conceptual stage. There are short-term and longer-term possibilities, for the private sector and for partnerships between the private and public sectors.

59 4.4.1 Entertainment, leisure and tourism Opportunities for waterfront activities have been canvassed already in relation to land use. The heritage of the port provides specific opportunities to engage tourist and local interest. The Wurundjeri tribe among others has expressed interest in participating in developments which celebrate Koorie history and culture.

The Docklands Authority is actively pursuing a large casino for Docklands which would, in itself, generate significant tourist interest. The Authority has also indicated a wish to gain a part of the lucrative cruise shipping market for Docklands. The proposed Rapid Transit Link from Melbourne International Airport would add to the market potential for tourist activities at Docklands. Both the casino and the Transport Interchange could incorporate a hotel as part of a complex of activities.

Overall, Docklands could be a rich tourist asset, providing Melbourne with different opportunities and venues to attract visitors from local, interstate and international sources.

4.4.2 Transport Transport will remain important to the character and to the economy of Docklands. Shipping, freight handling by rail and road, passenger trains, trams and buses Commercial shipping may all generate back-up and service businesses which may find advantage in locating also remain a feature of Docklands. in Docklands, given its importance as a national transport hub. The development of the Transport Interchange would be an important catalyst to further development.

Commercial shipping may also remain a feature of Docklands. Cruise ships and fishing boats are examples of possible new uses. At Victoria Dock north port activity may also continue well into the next century.

4.4.3 Telecommunications Dramatic changes in technology and in the requlatory framework for telecommunications, not just in Australia but globally, mean that there are considerable opportunities for Docklands.

Telecommunications companies need to establish state-of-the-art demonstration locations, where new telecommunications applications can be presented. Docklands, with the large range of activities which are proposed to occur there, plus its central location, provides an ideal showcase for telecommunications advancements.

60 Victoria's dominant position in telecommunications research and development in Docklands provides an Australia provides an excellent platform for such a development. ideal location as a showcase for telecommunications advancements. One of the earliest initiatives for the second carrier, Optus Communications, will be to provide its own fibre optic capacity for the Melbourne business district. Telecom already has an extensive network.

Docklands therefore provides an excellent location for presenting new telecommunications applications, linked to the carriers' fibre optic networks

4.4.4 Education and research A significant land parcel of 24 hectares to the north of Docklands has been identified as an area suitable for education, research and housing purposes. Land release of the whole area may take longer than any other part of Docklands and the proposals outlined here may take some time to come to fruition. Nevertheless, this particular area has certain characteristics which are relevant for education purposes. Nowhere else in Melbourne is there such a large area, so close to the CAD and to other educational institutions. It is close to the waterfront and to public transport as well as to housing and community facilities.

The State Government's plans for tertiary education do not include funding for an undergraduate campus at Docklands However, the form of educational facility which could emerge at Docklands may not resemble traditional education provision. A number of options have been canvassed which focus on post-graduate education, possibly in a form not currently evident in Melbourne.

One of these options suggests a campus supported by a range of existing education providers, possibly concentrating on certain core technologies or other areas of education and training in which Victoria can build a competitive advantage. There is a possibility that private sector interest could be engaged.

61 Some research activities Overseas universities have already commenced off-shore operations in Australia, may benefit from a Docklands particularly-in the management education field. That one or more overseas location.. universities could establish a Docklands campus is an idea which is being pursued.

There is an opportunity also for an educational facility at Docklands to co-locate with research and development establishments, either privately or publicly-funded. The telecommunications infrastructure could be of benefit here, linking activities at Docklands with related interests in other parts of Melbourne, Victoria or internationally. Some research activities may benefit from a Docklands location. Advanced transport research, for example, could add value to the.transport hub concept. Information and communications technology could feed off the telecommunications network as well as related institutes nearby. The cluster of biomedical research institutes and facilities in Parkville and Carlton may provide the impetus for biotechnology research.

4.4.5 . Conclusion The direction which the Victorian Government is taking in relation to economic development is towards the enhancement of the State's global economic competitiveness. Docklands should contribute to this objective by building on its current advantages and capitalising on opportunities as they arise.

IMPLEMENTATION

~ .... , :

Docklands has unique 5.1 COMMUNITY AWARENESS potential to provide leisure and Docklands has unique potential to provide leisure and recreational opportunities recreational opportunities. for Victorians and visitors, at an early stage of its development, and at relatively little cost, by taking advantage of existing facilities.

Heightened community awareness would assist in making the potential of Docklands more apparent for major investment. It would start the process of turning much of the redundant facilities and vacant land into assets on which the later phases of the Docklands project would be built. Importantly, the public would begin to enjoy access to the waterfront, with its city and port views, at an early stage.

5.1.1 Pedestrian and bicycle paths The feasibility of opening up North Wharf, from Batman Park to Victoria Dock, for pedestrian and cycle use, and for various leisure-oriented activities has been explored. A similar route along Footscray Road, from the Yarra River to Moonee Ponds Creek has also been investigated. These two paths are accessible at present but due to a fragmented waterfront, a mixture of uses, a lack of signage and an industrial atmosphere, the area is little-known and its potential is not exploited.

There is considerable potential to upgrade and develop these routes with a series of attractions centred around the maritime character of the area.

These two paths could form vital parts of a wider regional cycle and pedestrian network currently under development. Additional cycle and pedestrian routes should be created from Docklands through South and Port Melbourne to the bay frontage and to West Gate Park.

Opportunities for a range of attractions for visitors would emerge along these paths. Potential uses and attractions include food outlets, markets, shops, galleries, educational displays, boat tours and bicycle hire facilities. Over the longer term these opportunities could be expected to expand considerably.

The possibility of early beautification of the east bank of the Moonee Ponds Creek could serve also to improve public access to the area, providing a valuable link within the metropolitan open space network.

These initial actions could be vital in creating community awareness and appreciation of the site and of its potential to develop as a key element of inner Melbourne. They would enable Docklands to be linked to the CAD and the Yarra River corridor from the earliest stages, so that no early development, wherever it occurs, would be isolated in the midst of incompatible activity.

64 5.2 POSSIBILITIES IN THE NEXT DECADE If development of the Transport A starting point for development is clearly needed. A Transport Interchange and Interchange proceeds it will a casino are both projects of a dimension which would see regeneration of large areas. become the main transport hub of Melbourne. What follows is an indication of the way in which development could occur over the next ten years or so. This is not a prescription, but a guide to a possible pattern of development.

For the land use changes in the next decade or so, the existing road network could be used as far as possible and supplemented by the construction of a minimum of new access roads.

5.2.1 Transport Interchange If development of the Transport Interchange proceeds it would become the main transport hub of Melbourne. It would provide easy transfers between metropolitan rail, tram and bus services, country and interstate rail services, coaches, the proposed Rapid Transit Link to Melbourne Airport and the Very Fast Train (should that project be revived). This has implications in terms of the scale of any tourist/recreation opportunities that might occur in the area and, in particular, for tourist accommo dation. Even more importantly, development would offer major commercial benefits to the entire Docklands area.

A brief study (Transport Interchange - Collins Street Site) has been undertaken of a design for a comprehensive Transport Interchange on a site immediately west of Spencer Street and bounded by the westward alignments of Collins and Bourke Streets. The study also proposes the extension of Collins Street along the southern boundary of the Interchange, concurrent with the major phase of the redevelopment.

From a land use point of view, the extension of Collins Street would open up several key sites in the Melbourne Rail Yard for redevelopment, as well as bring Victoria Dock to within 500 metres of the CAD.

Docklands Road Transport Interchange

Trains

Taxis, feeder buses Coaches Taxis, Trams Car park

Office

Spencer Street

Office

65 Possibilities in the next decade N • Wetlands • Residential. retail. office, mixed use etc • Gasworks Park • Housing • Leisure/tourism, possible casino ...... Pedestrian links --- New roads 250 250 500 750 1000

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Victoria Dock

66 •

5.2.2 Entertainment area Suggested developments include The land parcel between Flinders Street Extension and Collins Street extension a casino. an exhibition centre. and extending westwards to the proposed Docklands Road, is an area of about and a major car park serving the Transport Interchange. nine hectares. Because of its proximity to the World Trade Centre and Spencer Street Station, and to good road access, several developments have been suggested for the area, including a casino; an exhibition centre; a major car park serving the Transport Interchange as well as other adjacent developments; entertainment and leisure facilities.

This land parcel contains several structures of heritage significance so any new land use would need to take account of these important links with the past. In particular, retention has been proposed of the NO.2 Shed, its brick southern section and covered platform to the north; the retaining wall, on the north side of Flinders Street Extension; and components of what remains of NO.1 Shed, which comprise a building relocated from the site of the Melbourne Exhibition of 1880-81.

A major open casino could be located in Docklands, attracting up to 65 million visitors per year. With up to 200 tables and 2,500 machines, the casino would be the largest in Australia. A parkland environment would provide the setting for the casino and would see the implementation of significant improvements to the Docklands environment at an early stage.

Registration of interest in developing and operating a casino closed in February 1992 and it is expected that this process will identify ancillary activities such as a hotel and convention facilities A proposal of this scale would be a significant catalyst for development at Docklands and would provide a boost to other tourism and recreation opportunities.

This entertainment area is regarded as a vital element in a sequence of north-south land uses extending from the Transport Interchange to the Museum of Victoria on Southbank. A pedestrian spine could be created to link a variety of related and complementary uses and activities. This spine would provide grade-separated, traffic-free walkways from the concourse of the Transport Interchange to the Museum forecourt.

Of the land uses feasible for this site, a major car park (serving the Transport Interchange and other nearby facilities) could be located between the pedestrian spine and the rail lines, linked into the pedestrian spine and hence to the Transport Interchange and casino. A low-rise but high-capacity structure is envisaged, with vehicular access primarily from Flinders Street Extension.

The remainder of the site could be used for an exhibition centre or other entertainment and leisure facilities of the kind suggested above.

67 IMPLEMENTATION

68 •

/ / ,,,/

/ /

I \

Gasworks Park

69 •

The Gasworks Park could be 5.2.3 Gasworks Park developed early. The site which lies between Victoria Dock and the Yarra River, immediately west of Footscray Road, was formerly the location of the West Melbourne Gas Works. It has the potential to accommodate a major park early on at relatively little cost. The land is currently used for a variety of purposes, some of which are viable operational arms of the PMA

Public access to North Wharf is currently available and the berths are used by private boat operators. This use should continue while the area is upgraded for a wider range of leisure access and recreational activities to attract the public.

5.2.4 Housing at Victoria Dock Housing is considered to be a desirable element of any early development of Docklands. It would bring people and vitality on a 24-hour basis to Docklands. This is important in an area where public access has not been encouraged previously. Housing is also land extensive and can transform large areas relatively quickly, which is an advantage in an area which is so vast and where there is a need to begin changing the public's image of the site. Housing also takes advantage of Government investment in infrastructure, and in particular the extensive transport, community and cultural facilities in proximity to Docklands.

In a Working Paper, Early Development ofHousing (March 1992), two sites were identified as potential candidates for early housing development, though both depend on early vacation of facilities by the PMA They are at the eastern end of South Wharf and the eastern end of Victoria Dock.

Of these sites, Victoria Dock would be the best candidate for residential development in the short run. Housing at Victoria Dock would: > consolidate other Docklands development initiatives such as the proposed casino, Gasworks Park, and Collins Street extension; > complement and consolidate proposed development initiatives on the Southbank including the Museum of Victoria and the residential proposals in the Maritime and Yarrabank Precincts. Housing is considered to be > have unique locational advantages in being so close to the CAD whilst enjoying a desirable element of any early watp.r frontilgp.s on two sirlp.s ilnrl thp. proposP.rl Gilsworks 'PilTk on ilnothm. WiltP.T ilnrl development of Docklands. CAD views would be available from all parts of the site. IMPLEMENTATION

South Wharf is also a good candidate for early housing development. It enjoys an uninterrupted north-facing water outlook and therefore is able to capture maximum sunlight and daylight. Infrastructure costs would be relatively low and road access is already available together with all major trunk services. However, the direction of development in Docklands and Southbank in the short-term would favour the redevelopment of Victoria Dock prior to South Wharf.

Both sites are encumbered by existing leases granted by the PMA but most of these leases expire in 1996 or earlier. However, both also have facilities with economic lives of up to twenty years. As is discussed in Section 5.3 on land release, if the PMA were to consider early withdrawal from Victoria Dock the issue of compensation wOllld TAqniTA TeSOIII ti on.

Both sites are free of any known soil contamination although the former gasworks, adjacent to Victoria Dock, is highly contaminated. Further detailed investigation would be required to confirm that contamination is not an issue. No major heritage constraints exist.

Physical services would need to be upgraded with the major requirement being a new main drain to service areas north of the Yarra River.

It would be desirable for any housing at Victoria Dock to cater to as broad a market as possible with a well-differentiated product. This would lead to higher overall sales It would be desirable for housing to cater for as broad rates being achieved, which, in turn, would enable the residential "precinct" to emerge a market as possible. more quickly. In this regard, the provision of affordable housing and public housing is important. At least 10% of the housing'should be public housing in line with Government policy.

It would also be important to price the housing product at a level that is competitive with other potential central Melbourne locations. At least half of the housing product should be priced below $250,000.

It is envisaged that this housing would be predominantly low-rise (two storeys) row houses or town houses. The possibility of including one or two well-designed, high-rise apartment towers of 15 to 20 storeys should be considered as it would increase housing density and population substantially. One high-rise apartment tower at Victoria Dock, for example, would increase the dwelling density by about 50%. Up to 750 dwellings could be accommodated at Victoria Dock with a similar number at South Wharf. Together, these locations could house around 3,500 people.

71 IMPLEMENTATION

5.2.5 Conclusion Of the various possibilities canvassed above, it is evident that a number are at sufficiently advanced stages of feasibility or concept planning to create an image of how Docklands could look after its first decade.

The extension of Collins Street will be of immediate psychological bel1efit as it will provide a direct link into the area west of Spencer Street Station which is available for redevelopment. Should the casino be constructed on land betweel1 Collins Street extension and the Yarra River, a powerful magnet will exist, not only in terms of patrons, but as a catalyst for other developments nearby.

The development of the Transport Interchange would benefit immensely from having Collins Street as a southern frontage and a new local street to its west, and would bring public transport users onto the threshold of Docklands.

The Gasworks Park could be developed immediately so that, by the end of an 8-10 year period, an established waterfront park could exist at the junction of major pedestrian and cycle routes through Docklands.

Ancillary projects, such as a centrally-located car park off Flinders Street Extension associated with the Transport Interchange or casino; the provision of tram services along Collins and Flinders Streets and retail; office and hotel developments adjacent to the Transport Interchange, would all combine to create a comprehensive package of new uses for Docklands.

72 •

5.3 LAND RELEASE STRATEGY The timing of development The timing of development at Docklands is dependent on the release of land is dependent on release of land by the PTe and the PMA. by the PTC and the PMA In the case of the PTC, vacation can be accomplished relatively quickly

The Victorian Ports Land Use Plan Draft Final Report advocated the withdrawal of the Port from Victoria Dock, North Wharf and the eastern section of South Wharf over the long term.

However, the release of port land for development as the economic lives of facilities expire could produce piecemeal and haphazard development which is isolated from other developments, possibly in low amenity environments. It could also result in inefficiencies to service providers and could be detrimental to both port operations and Docklands development. Further, this situation could be unattractive to the investor and may have difficulty attracting a market.

A lClIHlleleCl~e ~LlClLe\dY which allowed [or development areas near to existing built-up areas would facilitate integrated development with access to ancillary services and facilities and would allow the efficient provision of infrastructure.

It is recommended therefore that the development of Docklands commence in the south-east where an agglomeration of activities, for example, a casino, the Collins Street extension, the Transport Interchange, the extension of the Flinders Street tram line, pedestrian and bike paths, landscaping and the creation of parkland and housing would provide considerable amenity and give impetus to further development.

Development would spread slowly outward to other parts of Docklands. This may mean that pressure builds up for development at south Victoria Dock while the berths are still economically viable (2006-2011). The PMA may seek compensation in these circumstances. Consideration will need to be given to factors such as lease tenure, the accelerated cost of relocation and broader operational benefits which might accrue to the PMA in relocating to modern facilities.

Commencement of construction of the Western Bypass extension within a decade may also require the PMA to vacate commercial port facilities ahead of schedule. While the construction of a tunnel rather than a bridge may allow limited commercial port operations to continue, there would be significant disruption to activity as a tunnel is constructed. It is estimated that access to Victoria Dock could be closed for 8 to 12 months.

The PMA would need to find replacement facilities and would no doubt seek compensation. A formula would need to be negotiated between the PMA, the Docklands Authority and the Victorian Government when the form and timing of the construction of the Western Bypass extension is clearer.

73 IMPLEMENTATION

5.4 FINANCE AND INVESTMENT 5.4.1 Financial Feasibility Financial feasibility analysis indicates that, over the long term, the redevelopment of Docklands is viable. It is clear, however, that significant costs are associated with the developrrient of infrastructure. Balanced against these costs are not only the returns expected from the sale of land, but also wider benefits which, t~ough difficult to quantify, would provide real value to the community. For example: > the Western Bypass extension clearly will have an important metropolitan traffic function and will benefit road users in general and freight movement in particular; > the Collins Street and La Trobe Street extensions and Docklands Road will improve access into the CAD; > relocated port and rail operations will be able to achieve increased efficiencies through the use of new facilities; > housing at Docklands will enable capital cost savings to be achieved through the use of existing physical and human services infrastructure and recurrent cost savings to local government.

These benefits raise the question of the extent to which costs should be attributed solely to development of Docklands.

Some of the major costs include: > Western Bypass extension - bridge $145M - or tunnel $245M > Collins and La Trobe Streets extensions $66M > Docklands Road $54M > Rail infrastructure changes $63M > Physical services and wharf upgrading $96M > Webb Dock rail line - relocation $8.5M - or bridge $66M

Total estimated costs are about $490 million over 30 years. An objective of Government is "to maximise benefits available through release of Government land to finance basic infrastructure". To evaluate the performance of the Strategy against this objective, a detailed financial assessment has been undertaken. (Working Papers Financial Evaluation October 1990, October 1991 and April 1992). This assessment indicated that the redevelopment of Docklands is a financially viable proposition over the long term.

74 5.4.2 Investment Docklands is a large and The development of Docklands is a large and ambitious project which will require ambitious project which will , significant investment from the private sector in in'frastructure and land uses. require significant investment from the private sector in The Victorian Government, from the outset, has indicated that public sector funding infrastructure and land uses. would playa comparatively minor role, Indeed, the Infrastructure Investment Guidelines for Victoria released by the Treasurer in May 1991 are intended to facilitate a private/public sector partnership in new or replacement infrastructure such as is envisaged at Docklands.

The Investment Guidelines provide potential for non-public sector funding of some major infrastructure projects, particularly for roads such as the Collins Street extension, the Western Bypass and extension. Discussions are already occurring between Government and the private sector in relation to these projects.

The Prime Minister's recent economic statement, One Nation (February 1992), provided further opportunity for private investment through a new form of investment allowance. This new 10% Development Allowance will apply to projects with a capital cost of $50 million minimum and will be restricted to projects regarded as world competitive. It will be available only for a limited period.

Another potential incentive announced in the statement provides for non-assessable, non-deductible bonds to be issued by private companies for financing certain transport and electricity projects.

5.4.3 Financial mechanisms for housing development Financial mechanisms which could be used to facilitate housing at Docklands, particularly a,ffordable and public housing, are also available. One example is that of public equity participation along the lines of the recent $146M investment by the AMP Society in NSW public housing. Since most of the land is currently in public ownership there is a view that any residential development should make provision for a broad market. Mechanisms for achieving this include the following: Financial mechanisms could be used to facilitate affordable and public housing.

75 I IMPLEMENTATION

5.4.3.1 Land The Government has considerable land assets in Docklands which could be used to provide affordable and public housing.

Reductions in land costs, particularly in early stages of development and marketing, . can make affordable housing projects viable. In the U.S.A. and U.K. affordable housing projects are often undertaken where land is provided by Government at discounted, deferred or even'nil cost.

It is preferable in such situations however that some means of preserving affordability applies, for example the sharing of capital gains on re-sale are shared between the government and the developer. This has been the case in London's Docklands where agreement was reached on:-

> the number and type of affordable dwellings; > design; > sharing of capital gain, where the Development Corporation received 70% of profit achieved over and above the developer's declared profit target.

5.4.3.2 Levies Higher value development can be levied to provide funds for residential development, including affordable and public housing. For example, contributions to local government for open space in new subdivisions vary from 5% to 10% of land value. A similar levy could be applied to subdivision for commercial development for the purposes of providing or subsidising residential development.

5.4.3.3 Property rates Differential rating provisions in the Local Government Act allow adjustments of rating levels according to use. For example, it is possible to substantially reduce or waive rates on residential development whilst increasing rating levels on commercial development.

5.4.3.4 Other considerations It is strongly recommended that availability of affordable housing is maintained in ' the long term. In other words, the opportunity should not exist for the first owner occupiers to capture windfall gains on re-sale, much of which willlJe a result of the substantial front-end government subsidies that Will be required. For example re-sale could be confined to purchasers eligible for affordable housing, or some fo.rm of capital gains sharing a,pplied. Control over these arrangements would be facilitated where land is leased (say for 99 years) rather than sold, or where public rental housing is developed.

76 PRINCIPLES TO GUIDE DEVELOPMENT 6.1 CONTEXT 80 6.2 DESIGN 81 6.3 HERITAGE 81 6.4 SOCIAL JUSTICE 81 6.5 ACCESS 82 6.6 INNOVATION 82 6.7 DIVERSITY 82 6.8 PUBLIC PROCESSES 82 -- -

PRINCIPLES TO GUIDE DEVELOPMENT

78 PRINCIPLES TO GUIDE DEVELOPMENT

79 PRINCIPLES TO GUIDE DEVELOPMENT

The principles set out below are intended to support the vision of Docklands as it is described in this Strategy. While they are listed separately, it is important to appreciate the interrelationship between principles. The principles have been devised to guide decision making as development progresses. They have emerged ,partly from public consultation which yielded a wealth of insight and, on many issues, a high degree of _ consensus. In particular, these principles reflect priorities expressed by the community in terms of the character that should emerge at Docklands and the way development should be managed. 6.1 CONTEXT The development of Docklands must recognise both its Victorian and Australian economic context and, _/ in particular, the importance of the role of the nearby port and rail facilities in the national freight network. Docklands should be an integral part of broader urban ,planning processes operating at local, metropolitan ',and Stat~ levels. Development should link with th'8'CAD and surrounding communities and contribute to them beneficially.

80 PRINCIPLES TO GUIDE DEVELOPMENT

6.2 DESIGN In designing Docklands to inspire and delight future generations, qualities which will create a memorable urban envir~nmentmust be paramount. Docklands should aim to become a model for urban development. It should build also on its natural and historic character

and develop as a unique part of Melbourne I not a replica of somewhere else. 6.3 HERITAGE The essential character of Docklands is derived from :its economic and social history as the maritime and freight . . \ centre of Victoria and from its w?ters-edge location.' The identified remnants of major heritage significance (as recognised by the Historic Buildings Council and other appropriate agencies) which sustain its historic character and quality must be retained and given appropriate statutory protection. 6.4 SOCIAL JUSTICE The development of Docklands should be driven by a vision of making Melbourne a more equitable city. It must offer an enriched residential, recreational and working environment for future generations of all Victorians. It should offer the potential for mixed financing and ownership of.the residential, recreational and working environments.

81 PRINCIPLES TO GUIDE DEVELOPMENT

. 6.5 ACCESS TO THE WATERFRONT Improved public access to the waterside areas is central to the development of Docklands. Development should enhance access to the Yarra River and offer 24-hour access to all waterfront areas, excluding those used for port activities. 6.6 INNOVATION The development of Docklands should incorporate '. advanc~d technologies, practices and ideas in built form, transport and in energy, water and waste conservation, in the knowledge that Docklands will take shape for a future which will be conscious of scarce resources and realise a need for new solutions to urban problems. 6.7 DIVERSITY Its central location, proximity to. the waterfront and excellent transport infrastructure make Docklands an ideal location for a mixture of activity - economic, social and cultural - which should be carefully managed. 6.8 PUBLIC PROCESSES The development of Docklands should continue to engage the ideas, interests, values, perspectives and concerns of the wider public realm and processes which accurately and consciously elicit those views should be sustained.

," , ' FURTHER INFORMATION. ;

For further information about the development of Docklands contact:

Docklands Authority 1St Floor, 120 King Street,Melbourne Victoria 3000 Telephone 61 3 616 6808, Facsimile 61 3 616 6810

DOCK LANDS TASK FORCE