1947
VJCTOHl.\
SECOND ANNUAL REPOitT
OF THE
FOR THE PERIOD
hrr JULY, HMG, TO :30Tn JUNE, 1~}47
PRE:-iENTED TO BOTH HOUSES OF PARLIAME~"T PURSUANT TO SECTION 4 (3) OF THE TOWN AND COU~"TRY PLANNL"'\G ACT 1944
f Approximate Oo"t of I/epmt.-Preparatlon-uot given. Printing (700 copies) £65.].
~~1 J\ut!UJtit.J1 . J. J. GOURLEY, GOVERNMENT PRINTER, MELBOURNE. No: 13 (Is. 6d.].-l0489/47.
l N D EX.
PAGJI Amendments to the Act 5
Regulations under the Act 7
Planning Schemes 7
Greater :Melbourne Planning Scheme 8
Zoning-Residential By-Laws 9
Decentralization of Industry 10
Central Planning Authority 10
Housing Commission of Victoria 11
Eastern Highway through Heidelberg, Northcote, and Preston 11
Queen's-parade, Clifton Hill .. 11
Alignment of Riverside-avenue, South Melbourne 12
Studies in the Costs of Pu hlic Utilitie;; 13
Education of Town and Country Planners 14
Professional Charges 14
Vehicular Traffic Census 14
Town and Country Planning Conference in Sydney 17
Land Valuations 18
Re-alignment of Streets 18
Town and Country Planning Abroad 19
Staff 19
Town and Country Planning Board.
SECOND ANNUAL REPORT.
The Honorable P . .J. Kennelly, M.L.C., 30th Sept., 1947 . .Minister of Public "'Works, Public Offices, Treasury Gardens, Melbourne, C.2.
1. In accordance with the requirements of Section 4 (3) of the Town and Country [)lanninq Act 1944 (No. 50£1:~), the Board has plec1surc in submitting to you, for presentation to Parliament, the report on its activities dming the twelve months ended 30th June, 1947. During the twelve months. the Boanl has met formally on forty-five (45) occasions anJ held other meetings at which specific items were dealt with in consultation with representatives of mnnic:ipal councils and pnblic authorities.
THE ACT. 2. From the inception of its activities the BoarJ has continued to exper1enee rldieiencies in the legislation comprised in the main Act and has, on several occasions, proposed that the Act be amended in certain respects.
i3. On the 22nd November, lU46, and after due consultation, the Board proposed that Sedion 12 (:~) (b) of the Aet be amended so that the existing wording··- " 12. (2) The responsible authority shall - (a) (b) serve upon every owner lessee and occupier of any land proposed to to be affected a copy of such order." be amended to read- " Serve by letter post a eopy of such order upon every owner of any land which may he required in whole or in part for the purpose of earrying out the provisions of an approved planning scheme." This amendment would have necessitated a clea.r definition of the word ,"owner" being inserted in the Act, and the Board recommended the following definition :-- ·' Owner" in respect of any property means the person whose name is for the time being inscribed in the Municipal Rate Book as the owner of such property." This amendment is necessitated by reason of the virtual impossibility of a Responsible Authority satisfaetorily complying with the existing provisions of the Act. It can be seen from the wording of Seetion 12 (2) (b) that even in a very limited planning area a Responsible Authority would be charged with a most difficult task in locating every owner, lessee, and ocpupier of each individual property, especially a~ numer?us properties change hands under Contracts of Sale, and are, therefore, not recorded m the T1tles Oflice. Many leases are not registered and there is no ready way of establishing an up-to-date record of occupiers. Whilst certain Councils have attempted to proceed with planning schemes under the Act as it now stands, other Councils have f~lt co~1pelle~ to a:vait af!lendments before eommencing planning schemes because of a fear of the d1flieulties With whwh they would he confronted. 6
4. At the same time as the abovementioned amendment was proposed to you, the Board also proposed that an additional sub-section to Section 23 of the Act should be incorporated in the legislation. It was suggested that the wording of the additional sub-section be along the following lines :- · '' Notwithstanding the provisionR of sub-section (1) of this section a Responsible Authority may with the consent of the Minister borrow monies in excess of the limitations imposed by Part XV. of the Local Government Act 1928 for the purpose of carrying into effect any of the provisions of an approved planning scheme." The Board considered that, generally speaking, the cost of development in conformity with a planning scheme would be less than without a plan, since the whole principle of town and country planning is based on economical development within the channels of municipal administration. However, certain types of planning Rchemes were envisaged by municipalities which required large amounts of money being temporarily available for the compulsory purchase of areas of land for the purpose of re-subdivision prior to re-sale. For this reason the Board felt that some extension to the existing borrowing powers given to municipalities was warranted, but that each individual proposal should be the subject of a recommendation tD the Governor in Council. With regard to this aspect of planning schemes, it is interesting to note the text of a resolution which was passed at the Municipal Conference in October, 1946 :- " That the Local Government Act and the Town and Country Planning Act be amended to provide authority for a }funicipal Council to plan and develop such areas as it considers necessary or desirable, and that separate borrowing powers be given for the financing of such schemes for the purchase of the land, construction of roads and services, and erection of houses andjor industrial buildings thereon." 5. On the 3rd April, 1947, the Board proposed to you additional amendments. First of these amendments could read as follows :~ "Public Authorities.-If, during the preparation of a planning scheme and after consultation with any public authority, the Responsible Authority fails to reach agreement with the public authority on matters considered vital to the planning scheme, then the Responsible Authority may apply to the Governor in Council for an order restraining the semi-public or State Government authority from proceeding with any portion of its plan which may affect the planning scheme." The reason for this amendment was related to the apparent inability of a Responsible Authority to control development by public authorities which might be detrimental to the success or implementation of an over-all planning scheme. The Board considered that an amendment along the lines suggested was desirable but that each order should be the subject of approval by the Governor in Council after full investigation of the considerations involved. 6. In the same minute of 3rd April, 1947, the Board recommended that the word "other" be substituted for the word "like" in sub-section (c) of Section 22. The reason for this amendment was to bring the wording of the sub-section into line with the wording of Item 3 in the Schedule to the Act. The amendment would enable a Responsible Authority to zone areas of land for purposes other than housing, shopping, and industrial ; this power is apparently envisaged by the item in the schedule. A Responsible Authority could thereby zone areas on the fringe of urban development as agricultural zones without the necessity of paying compensation. Power so to do is considered vital to the carrying out of the provisions of a planning scheme so that premature, ill-considered, and "ribbon" development could be controlled. 7. It is the opinion of the Board that all amendments which have been proposed to you are vital to the administration of the Act, and that without them town planning is unlikely to make satisfactory progress in Victoria. 8. The Board had hoped that the most important amendment, namely that to Section 12 (2) (b) would have been brought forward at the same time as the amendment proposed in December last by the Honorable the Premier, which is now law and is contained in Act No. 5198 which is entitled " An Act to make provision, in connexion with Town and Country Planning Schemes outside the metropolitan area, for the acquisition of Land for the Establishment or Extension of Industries." 7
'l'he Board is now perturbed that the amendments were not brought before Parliament during the session "Which ended on the 26th June, 1!)47, and cannot help but feel that adequate progress in town and country planning is being seriously impeded by reason of the failure to effect these desirable amendments. 9. rrhe opinion of the Board that those sections of the Act which are difficult of interpretation and administration should be clarified by amending legislation has been :mpported by the Crown Solicitor. In giving his opinion on a number of questions put to him in September, H)46, the Crown Solicitor qualified such remarks as he felt able to make in the following manner " It seems highly desirable that these doubtful matters should be the subject of amending legislation bringing the loeal legislation into conformity with recent English legislation on the same subjeet matter."
lU~GULATIONS. 10. Town and Country Planning Regulations (No. 1 "Preparation and Submission of Planning Schemes" were approved by the Governor in Council on the 25th June, 1946, a fact which was noted in the first Annual Report of the Board. During August, 1946, copies of the Hegulations, together vvith a covering explanatory letter, were sent to members of Parliament, as required hy the Aet, to each of the 197 municipalities throughout the StatP, to professional institutes, and to kindred bodies in other States. Great interest in these regulations was manifested and the Board received many enquiries for copies from all parts of the Commonwealth. As a result of their circulation and the letter that accompanied them, many municipalities immediately took steps to commence the preparation of planning schemes under the Act. 11. The Board has since given attention to the necessity for promulgating further Regulations and on 19th ~ovember, l!H6, the Governor in Qouncil approved of Town and Country Planning Regulations (No. 2) " Joint Committees ". These Regulations set out the steps to be taken by two or more municipalities desirous of combining for the purpose of preparing a planning scheme in respect of areas situated in two or more municipalities. These ,Regulations became a matter of importance because of the encouraging activities of the newly constituted Geelong and District Town Planning Committee which embraces the whole of the Cities of Geelong and Geelong vYest, the Town of Newtown and Chilwell, and parts of the Shires of Bannockburn, Barrabool, Bellarine, Corio, and South Barwon, and which Committee is setting out to prepare a comprehensivt> scheme for an area of nearly 100 square miles. 12. Other joint comrr.ittees are likely to be formed in the near future as a result of these Regulations, which should pr(we to he a valuable guide to the municipalities concerned. PLANNING SCHEMES. 13. As at the 30th .Jnnf>, 1!117, planning schemes haYe been commenced in accordance with the Aet in the following a,reas Location of Hchetnf', Mt!llicipality. Uit£es··- Chelsea Township City of Chelsea 1-Iildura Citv of }fildura Nunawa!ling (1 square rnile) Citv of Nunawa(b11:r " 0 Sandringham (l square mile) City of Sandringham 1'0l()'n8- Ararat Town of Ararat Hamilton Town of Hamilton Horsham Town of Horsham Shires- .\Ioorpanyal Riding Shire of Corio l )oncastt>r and rl'emplestowe Ridings Shire of Doneaster and 'l'emplestowe Euroa .. Shire of Euroa ~loe and District Shire of Narracan Heywood Shire of Portland Sevmour Shire of Sevmour R~binvale Shire of s,;an HilI Traralgon Shire of Traralgon Cobmm Shire of Tungamah Warragul Shire of Warragu l Wenibee and District Shire of Werribee Joint Committee~ Geelcng and District Eight municipalities. 8
In addition to these schemes, othErs, which "ill ultimately be brm:ght under the Act, are known to be in course of preparation. These include schemes being prepared by the City of Ballarat, the Boroughs of Shepparton and Swan Hill, and the Shire of Numurkah. 14. It will be noted that not one of the inner municipalities of the metropolitan area has as Jet taken action to prepare a planniLg scheme for any part of its municipal district, and further comments in this regard are made hereunder. 15. In addition to conferences at weekly Board Meetings, the Chairman and Secretary have had consultation with representatives of many municipalities at the offices of the Board, and the members of the Board and the Secretary have visited many centres for the purpose of consulting with and addressing the members and officers of the Councils that are considering, or ar'=' engaged in, the preparation of planning schemes.
GREATER MELBOURNE PLANNING SCHEME. 16. Following on remarks made by the Lord Mayor at the ceremony of driving the first pile for the foundations of the Swan-street Bridge, the Board placed before you some comments it felt should be presented concerning the urgent necessity for a master plan for the development of the metropolitan area. The following is an extract from the minute forwarded to you :~- " The metropolitan area is divided up into approximately 30 municipalities, each with a council administering local affairs. Melbourne is a great city, and in many respects municipal boundaries are artificial. Many functions of the city must operate without regard to local government divisions, and this has been recognized by the setting up of a number of organizations with specific duties. The Melbourne and .Metropolitan Board of \Vorks, a nominee body of councillors representing all municipal districts in Greater Melbourne, is responsible for water supply, sewerage, rivers, streams, and main drains. Among other bodies can be mentioned the State Electricity Commission, the Fire Brigades Board, the Infectious Diseases Hospital, and the Tramways Board. The provision of an adequate street system to enable a satisfactory circulation of traffic, zoning for housing, business, industry, and recreation, foreshore protection and improvement are among the importal!t matters requiring urgent attention. It is considered that these among other matters can be solved only in their relation to the metropolis as a whole, after which the proposals should be recorded on a plan for future development, given the force of law, and the finance necessary to enable their systematic and gradual realization. TLe 'Metropolitan Town Planning Commission produced_ such a plan in 1929 and made recommendations as to the carrying out of the proposals, but, although the plan and recommendations were ~:ery favorably received, no legislative action was taken to implement them. The Town and Cottntry Planning Act 1944 makes provision for adjoining Councils to form a Joint Planning Committee and prepare a plan for the future development of their areas, in whole or in part, but the practical difficulties of reaching agreement if all the municipal councils included in the metropolitan area endeavoured to form a Joint Committee would be so great, in the opinion of the Board, that any action would he long delayed. Such questions as representation of each local government body on a Joint Committee, the cost of preparing schemeR and the apportionment of cost between constituent authorities, the order in which works were to be carried out, may be mentioned as matters, among others, that would be very difficult to solve. SYDNEY.-The Local Government (Toum and Cmtntry Planning) Arnendrnent Act 1945 (Act No. 21, 1945, of New South \Vales) included provision for the Cumherland County Council to be set up and this has been done. This Council is now preparing a master plan for Greater Sydney, and has already taken out an Interim Development Order over the whole of the County area. This will enable it to control development aml refuse applieations to subdivide or otherwise alter existing conditions if likely to interfere with the planning scheme. Sydney is likely to benefit from a considered master plan to an incalculable extent, and, in this action, has left Melbourne far behind. 9
The action that has been taken in Sydney is, however, long overdue, for the city is now facing sonw acute problems. Among Sydney's troubles may be mentioned street traffic problems much worse than in Melbourne, the complete banning of car parking in streets, an acute shortage of parks and playgrounds in all industrial st~ hurhs, the "outer sprawl " of speculative land subdivision that is quickly destroying good food-producing land, the intrusion of factories into hitherto good residential areas, and the inadequate condition of all public utilities. REcorvnmNDATTON.---\1y Board recommends that a Committee be set up on similar lmes to the Metropolitan Town Planning Commission. The terms of the Act of Parliament under which the Commission was established provided Otat nine (D) members should be elected on the following basis (a) One member to be a Councillor of the City of Melbourne and nominated by that Council; (b) Fonr (4) members, one of whom was to be nominated by each of the four groups of the remaining municipalities and to be Councillors of one of the Councils within the groups they were to rcpre,scnt ; (c) Four (4,) members appointed by reason of their respective qualifications in the business, technical, and professional matters to be investigated. Sncb a eommitt.Pc could examine the Metropolitan Town Planning Commission's Final J{eport, in the light of present day development, and make recommendations as to how the report might best be brought up to date." 17. About the same time as the Board's proposals were placed before you, a move \Yas initiated by the }lunicipal Association of Victoria to call a conference of all metropolitan eouncils with a Yiew to reaehing agruenwnt as to how the planning problems facing them could best he solved. The :\Iptropolitan Sectional Council referred the matter to a select committee which 11ltimately n'eomilll'JHlcd that the best means of meeting the situation would 1w to eom;titutc the Jldbounw and Metropolitan Board of vVori,:s the autho:-ity to draw up the necessary plan of development, and it was urged that that Board's powers be extended aeeordingly.
ZONINU --HE:--lfDKNTIAL BY-LAWS. 18. During tlw past tweln~ months the Board has reported to you on by-laws, submitted for approval by Municipal Councils under Seetion 197 of the Local Government Act, which aim to zone partienlar areas of municipalities for residential, shopping, and industrial pnrposes. Among these Councils are the Cities of Box Hill, Brunswick, Coburg, Essendon, Footscray, Hawtborn. Heidelberg, Malvern, .:\Toorahhin, Nnnawading, Oakleigii, Preston, Sandringham, and the Shires of Braybrook, Doncaster and Templestowe, Ferntree Gully, Lilydale, and IHarong. Examination of the existing zoning provisions in many of these municipalities has shown the Board that such provisions are far from satisfactory. The provision of exce8sive ar<•as for the location of shops and businesses is, perhaps, the mo~t outstanding fault rcnaled b.\· an examination of the by-laws under review and of those that have prect>ded them. The Board ifi pleased to record, however, that some municipal councils have adoptcfi recommendations made to them and are endeavouring to remedy certain defects \Vhich have brought to their notice. The Board has been pleased at all times t,o diseuss with munieipal ctmneils or their representatives any aspects of zoninrr, since eomprehcnsive and logical zoning forms a fundamental basis for town planning. 0 H). CndeT Part V. of the 8lnm Reclamation a'nd Housing Act 1U:38. tho Housintr Commission was empowered to call on n mnn1.cipal council to prepare a zonit;g plan for th~ \\Thole or any portion of its municipal di8trict where such a plan was considered necessary. Although under the Town and Oount!'Y. Plr:1~ning Act 1B44 zoning becomes a part of planni~g sch?mes, the Bo~rd feels that. mumcip:JhtiCs should l!c encouraged or directed to prepare zonmg schemes m advance of a plamung schen.e winch latter would take a much lon(l'er period. Under the pn•sent legislation the }1ini.ster can only call on a municipal cou;cil to prepare a planning scheme afh~r the council has failed to do so. In so doina; the }linister must give the conncil not than twelve months in which to prepare a scl1eme. It is only after the Council has neglected or refused to carry out his instructions that the Minister is empowered to instruct the Board to prepare a planning scheme for the particular area or areas involved, and this may not bo so necessary if the municipality was regulating its development in aecordanee with an approved zoning scheme. 10
20. It will, therefore, be seen that there an~ numerous difficulties and delaYs to be overcome before action can be taken to require a nnmicipalit:v to bring itR zoning. bv-la ws into conformity with present and future requirements, and t.he Board will be r{utking specific recommendations to you in the matter in the cour:-:•.: of the next year.
DECENTRALIZATION OF INDUSTRY. 21. The Government policy of decentralization of industry, whieh has fnrthcr shown the need for action in regard to town and country pl~mning, has alr<'ady achieved consid('rable success. A large number of new industries has been commenced in country towns since the end of the war, practically all centres of population in Victoria having one or more ne\v secondary industries established.
22. Owing to shortage of labour and materials in the building industry, new factory buildings have not been erected to the extent desired and new industries are using temporar.\' buildings wherever any suitable accornmodation can be found. Sueh buildings as disused shops, old halls, and Mechanics' Institutes are being pressed into use. Whilst this cannot be helped at present, the Board directs the attention of municipal authorities to the danger,; of permitting the use of such buildings as fnctories any longer thiLn absolutely necessary.
23. In addition to the decentralization of industry to country towns, a movement of industries to the outer suburban areas of the metropolis is nO\\' going on. This movement is partly due to the modern single-storey factory requiring large allotments of land and partly to the tendency of the factory owner to locate his business adjacent to wherr labour can be obtained. ']'his spread of indnstriaJ buildings both to country towns ani! outer suburban areas has accentuated the need for intelligent zoning. Xot only is .r.oning neceRsary to prevent the intrusion of factories into residential areas, hut to prevent a mixture of factories and residential shops.
24. The Board, thert>fore, directs attention to the need for modern zoning by-laws in both country and city municipalities. A careful study of all public utilities must be made before a zoning by-law is drafted. Shopping centres must be of suitabll' size and not too far distant from where the people live. Industrial areas must be located where water, sewerage, and electric energy can be supplied most economically. Some cases have recently been brought to the notice of the Board where insufficient consideration has been given to these matters.
CENTRAL PLANNING AUTHOBJ.TY. 25. The report of the State Hegional Boundaries Committee, HJ44, was adopted by the present Government as a basis for the regional planning and development of the State. The report reconm1erHlf'd that the 107 nnmicipalitins :-should lw ).!TOllped into thirteen (J:~) recrions. The Central Planning Authority. under the ChairmanRhip of the Honorahle C. P. St~neham, NI.L.A., :Jli1~istor of State Dt>velopment and Decentralization, has eompletnd, as at 30th June, 1947, the setting-up of regional committees to pursue the development of eight of the regions, namely, Central Highland::;, Corangamite. Glenelg, Goulhurn, Loddon, 1\iallee, Upper Goulburn, and Upper 1Iurray.
26. This Board appreeiates the appointment of its Chairman as a member of tl1e Authority. He has attended either the convention for the establishment of each regional committee or the first nwcting of tlw eonnnittee and in many eases has attended both meetino·s. On each oecasion he has given a Rhort address dealing with town and country planni;g, the benefits to. be derived from plafolni~1g, ar.ld the. (_lesira?ili~y of individual municipal councils proeeeclmg to plan the areas w1thm the1r mumc1pal dJstrrcts. One result of these addresses has been the receipt of many invitations for a representative of the Board to visit individual councils. 27. The Board conRidcrs tlmt every eneouragement needs to he given these Regional PlanninO" Committees whose work should be of very great value to the ordered development of the State as W(lll as to individual municipalities and other puhlic authoritins in each region when they are involved in the more dctail<~d planning required under the Town aud CoUI1try Planning Act. PLAN "o''
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,_ SHOPPING AREA SHIR.E. OF MU.LORAVE. -. -· -· r PROPOSED RE -ALIGNMENT WARRIGAL ROAD I r.f) >- AND HIGH STREET [CITY OF CAMBERWELL AND 5H I R..E OF MULGRAVE.]· 5CALE 80 FE.ET TO I INCH :r !2 :c !OWN AND COUNTRY PLANNING f!OAR.D OF VICTO!<..IA · 1·8· 4-7 11 HOUSING COM:VIISSION OF VICTORIA. 28. The Board has established a liaison with the Commission and, as a result thereof, it is felt that benefit has accrued to both bodies. The Board appreciates the action of the Commission in agreeing to make available tentative plans of subdivision of estates as they become available. ConfPrences have been held regarding general and specific matters of concern to both the Commission and the Board, and the Board has been assisted in its work relating to zoning by the receipt of the Commission's plans for the development of estates under itR control.
29. One of the matters discussed was the re-alignment of High-street, Ashburton, at the junction with Warrigal-road and High-street in the Shire of Mulgra.vf). A conference was ealled hy this Board at which were present representatives of the Housing Commission. the Country Hoads Board, and the councils of the City of Camberwell and the Shire of Mulgrave. AR a result of the excellent co-operation extended by the Housing Commission, it was agreed that the Commission'" tentative plan of subdivision he altered so as to enable High-street, in the City of CamberwclL to be deviated to meet Warrigal-road at the same point. as does High-street in the Sl1ire of Mulgrave. The great advantage to be derived from the replanning of this intersection may be best seen from the plan reproduced.
30. 'l'he Board has no\v been called upon to advise you in the matter of the proposed re-loeation of the Prince's Highway through the town of }foe, a matter on which the Country Roads Board and the Housing Commission of Victoria are at variance. As yet the Board is not in possession of all the representations it desires and the result of its investigations is not available for incorporation in this report.
:11. Another matter discussed in conference with the Housing Commission concerned the provision of an Eastern Highway through the municipalities of Heidelherg, Northcote, and Preston. This item i!'l th0 subject of an individual report.
EASTERN HIGHWAY. HEIDEI.BERG, NoRTHCOTE, A~D PRESTON. 32. Following on the reference by you to this Board of representations made by the Cities of Heidclherg, Northcotc, anrl Preston at a deputation to you on 5th March, the Board fully considered the proposal of those Councils to locate a new north-south road through the area being treated by the Housing Commission.
33. The general proposal was that the route (known locally as Eastern Highway) should be constructed running north from Heidelbe:rg-road (Fairfield) via Station-street to Tyler-street (Preston), thence in a north-westerly direction, using existing roads as far as possible, to Nlahoney's-road and thence to Sydney-road, in the vicinity of Campbellfield.
34. The Board invited to a conference on 4th June representatives of the three municipalities concerned, the Country Hoads Board, Melbourne and l\Ietropolitan Board of Works, Melbourne and Metropolitan Tramways Board, Victorian Railways Commissioners, Victorian Railways Construction Branch, and the Housing Commission of Victoria.
35. As at the close of this year's report, the position is that general agreement has been reached that one or other of the alternative routes considered should be deYeloped as a through route~as wide as practicahle~to serve the new areas of development as well as to provide an important by-pa:-;s from the 11orthern suburbs to link with the Chandler Highway. The Housing Commission, however, whilst anxious to co-operate in reaching full agreement, was desirous of avoiding a main route going through its housing areas. It was, therefore, agreed that this Board and the Housing Commission should continue to negotiate with a vie\Y to reaching mutual agreEment.
QUEEN'S-PAHADE, CLIFTON HILL. 36. The impending provision of an electric tramway service to Northcote, involving the location of portion of the route in Qlleen's-para.de, afforded an opportunity to re-plan this wide thoroughfare. 'J'he Tramways Board had secured authority to construct tracks over open ballast through a central reserve to he simultaneously construetecl. As requested by you, this Board convened a uonference of the interested parties, namely, the Councils of 12 the Cities of Collingwood and Fitzroy, and the Melbourne and Metropolitan Tramways Board. As a result of the conference, it was agreed that Queen's-parade be developed along the following lines :- (1) Commencing at the junction of Queen's-p?"ade with Alexandra-parade and Brunswick-street, and extending easterl to the junction of Smith and Grant streets, the central roadway to b( abolished and a central parkway lOO ft. wide to be constructed. a 30 ft. roadway to be formed on each side of the parkway, and the footpath and nature strip on each side of the Parade to be 19 ft. wide. (The Parade is three chains in width.) (2) From this point to the junction of Heidelberg-road, a similar treatment to be constructed, except that the tramway, with open ballast tracks, would be placed centrally. (3) The "Raine Reserve" at the junction of the Parade and Heidelberg-road to be formed into a traffic roundabout with the tram tracks passing through it. (4) A small roundabout to be constructed where Hoddle-street North junctionR with Queen's-paradc. (5) The construction of a reserve in the centre of Heidelberg-road between Queen's-parade and the railway gates. A plan showing the BoaJ'(l'.-; reeommendationR ai-i adopted at the conference is reproduced. 37. It is felt that the propoKed development is very deHirahle and will permit a far more efficient circulation of traffic. The junction of Qnecn's-paradc and Heidelbcrg-roafl is, at present, difficult to negotiate and it would be further complicated by the preKencc of trams if some such treatrnent, at-i is being recommended, \Vere not made.
CITY OF SOUTH .JlELBOURNE-RlVERSIDE-AVENUE ALIGNJTENT. 38. A large area, of valuable Crown land lying between Riverside-avenue, Brown street, and Bright-street, has been leased for many years by Australian Paper Manufacturers Limited. The present leaHe expires on 1st :February, 194~). The Company opened neaotiations during 1946 for the granting of a new lease covering a period of 50 years, as it de~ired to replace the existing huil(lings with a modern, seven-storied building nosting not less than £100,000. 39. Before considering the drawing up of the lease, the Lands Department enquired as to whether some of the land might b0 required for road widening purposes as had been advocated by many authorities for many years. Accordingly you requested the Board to tender its advice to you in this matter, especially in view of the fact that Riverside avenue might attract additional traffic re1mltiug from the construction of the Swan-street Bridge. 40. After obtaining tl1e opinious of the Country Hoads Boanl, the Publie Works Department, and the Councils of the Cities of .Melbourne and South i\lelhourne, the Boarcl recommended to you that no objection be raised to the granting of a new lease for a term of 50 years providing the following alterations to the present lease were effected :-~ (1) That the new ali~nment of Hiverside-avenue he located south of the present building line to permit of a 60-ft. wide ;;;treet in front of the leasehold that would be the same as the prPscnt width at the north-east corner of the adjacent substantial building owned hy Kra.ft-\Valker Cheese Company Pty. Ltd. (2) 'l'hat the area of the lcaHchold fi1cing Brown-Rtreet, approxirnately :)0 ft. wide, be leased on tlw eondition that the Crovvn could excise it from tbo lease without compensation in the event of Brown-street being required to be widened for the purpose of providing additional facilities for the cireulabon of traffic in the area, as well as enabling ped1;strians to approach a footbridge acro8s the River Yarra which the Board hopes might, in the future, give direct access to the wcHtern subway of the Flinders-street Station. (3) That a small area fronting Bright-street be retained in the lease on the condition that the Crown could excise it from the lease without compensation in the event of B}Tne-street being extended in an easterly direction. A lease drawn up in accordance with these reconnnendations ha:,.; now been granted and it is felt that a substantial advantage has been gained without cost of land acquisition. f- MAYOR-'s PAR.K ~ :! I~ :;; ·r .., ... a 0 0 r
NOilTH TE-lUt.ACE.
i;:; "' N!WRY ST. ~L"' ______
QUEEN6 PAR-AD[., z CLIFTON HILL 0 f CITIES OF COLLINGWOOO AND FITZROY <.'J L ______j Z PROPOSED· TRE.t.TMENT· IN ·CONN1!.CI'10N·WtTH ·THf.: APPLICATIOI'f- BY· THE- MEL,FlOUR.NJt_·~H\"T'ROPOLJTAN TRAMWAY· BOARD· FOR.· POR-TION· 01"· THE· PAP..tt.DE. IT0·8E•5ET· ASIOE ·A:5·A -TRAMWAY· RISIR.VE.. SKETCrl Prepared by +he TGWN & COUNTR.,Y n 41. Howt>ver, the Board urges that considt>ration be given by the municipalities of Melbourne and South :\l~:•lhourne to the provision of altenmtivc routes to cope with the trafllc 11sing the new Swan-stre~>t Bridge and requiring access to the extensive docks and the industrial areas in Port :llelbonrne. The Board is of the opinion that every endeavour should be made to prt>vcnt the major portion of traffic from the Swan-street Bridge being compelled to use Hiversidc-avenue. Its use as a major traffic route would mean that traffic would cross the concentrated north-south traffic from Queen's Bridge, and any future bridges between Princes Bridge and Spencer-stn~et Rridg(~, at the bridge heads. This would impede the flow of traffic nnneeeB:'larily and could not be recommended. It is infinitely preferable that the traffic which becomes coneentrated on, and in the vicinity of, import.ant bridgt'S should be given every orportnnity to dear thol'f' bridges effectively before being intercepted hy major streams of cross traffic. STUDIES lX THE COSTS O:F PUBLIC UTILITIES. 42. Even in the short period of the Board's existence, many examples have been observed where the wasteful use of housing lands is co;:;ting more money than necessary to provide the ordinary public utilitieR. The public util needed by residents are water, electricity, sewerage, and telepl10nes, and access to roadR and public transport. 4:3. In the metropolis, for example, adeqmLte mains are in existence to supply the needs of a mueh greater population. ~Many thousands of houses are not sewered, however, because they are built beyond the reach of the existing system, whilst the mains pass thousands of vacant or partially-developerl allotments. ln addition to this uneconomical development, most residential and busint~ss areas are so defectively planned that there is much waste land that cannot be effectively used. These nnsatisfaetory conditions, which are applicable to all public services, have forced home-seekers out. beyond the reticulated areas, thus inereaBing their cost of living and causing them inconvenience in many ways. 44. Similar uneeonomic conditionli also exist in many eountry towns of which Portland and Hamilton are notable examples. In each plaee, considerable waste land in the heart of the town. In Portland, the blocks are 10-chains square and the centres of most of these blocks are not being profitably used, whilst land is being subdivided on the outskirtB, thus necessitating costly extensions of all public services. In Hamilton, bad planning has produced a somewhat similar situation. 45. The Cumberland County Council, as part of its survey of Greater Sydney, has had more opportunity to study the question in some detail. The following figures are worth quoting:- In the two well-developed suburbs of Manly and Vaucluse, having a population density of 10 and 11·4 people per acre respeetively, the cost of providing roads, water and electric mains is £106 and t105 per tenement. In Sutherland and \Varringah, two outer suburbs, lun ing a po ulation density of 2 · 4 and 2 · D re:'lpectively, the cost of the same services is 2 and £368 per tenement respectively. 46. This Board has commenced to obtain information regarding Melbourne which '"rill help in the compilation of relative costs figures, and iB grateful to the Melbourne and ::Vletropolitan Board of Works in this regard. 47. Owing to pressure of other work and shortage of staff, the Board has so far only made preliminary studies of small areas in Hawthorn and Prahran. Some figures ascertained regarding a small area in Hawthorn of approximately 480,000 sq. feet. show that it now eontains :37 housel:l plus some~ flat buildings, giving 54 dwelling units (houses and fiats). If this area of land wen; cleared and subdivided in accordance with the appropriate Uniform Building Hegulations, about 80 blocks of land for individual cottageB would result. In vi<•w of the proximity of the land to Hawthorn Railway Station. it is an area that could be reeonmwnd<~d for modern bloekB of fiats. Jf developed for fiats, three-storeys high, designed in accordance with the prineiples of solar planning, no les~S than 300 dwelling units would result. Alternatively, if all the existing houses were allowed to remain, and merely the "dead" land in a section of the area was re-subdivided, 23 new home sites would be available with other additional amenities. ' 48. The Board hopes to procure the necessary staff to permit of more extensive studies of this kind so as to provide the evidence necessary to demonstrate to public authorities and municipalities the wisdom of replanning inner areas. 14 49. The subdivision of land on the outer fringes of the metropolis and the larger• country towns is now going on rapidly. Land once used for food production and other uses is going out of production except for a sprinkling of cottages scattered loosely. No public utilities are provided to many of the new houses, whilst some have water and electric reticulation with little hope of sewers, gas, telephones, or even roads. 50. The Board is not yet ready to make specific recommendations on this matter, but it would appear that the time is already overdue for some legislation which will restrict the subdivision of residential land until it becomes ready for housing development and necessary streets and services can be provided in adjacent, existing developed areas. Alternatively, the provision of streets and services should be insisted upon before persons were permitted to subdivide land which is not close to existing services. EDUCATION OF TOWN AND COUNTRY PLANNERS. 51. Until quite recently the education of Town and Country Planners has been regarded as unimportant, not only in Australia but in other countries. Architects, engineers and surveyors have studied town planning as a portion of their professional course or as a post-graduate subject. 52. Several whole-time courses, however, have now been established in England and in the United States of America, leading to degrees in town and city planning. It is considered that the new concept of planning has made the subject too important to be dealt with as a part-time study only. In addition to full-time students, provision is made for professional men to study planning as a post-graduate course. 53. The present position in Victoria is, briefly, that the University of Melbourne includes a short course of lectures and a minimum of practical work in the courses for Bachelor of Civil Engineering and Bachelor of Architecture. The Melbourne Technical College and the Gordon Institute of Technology, Geclong, include some town planning work in their courses for the Diploma of Architecture. The Surveyors' Institute includes some planning work in the course for students. 54. The Government of New South Wales has recently announced that it will finance a degree course at the Sydney University, and the Board hopes that the Victorian Government will encourage the University of Melbourne and the Melbourne Technical College to further increase the instruction in town and country planning, since, without trained personnel, it will be impossible for real advances to be made in this direction. PROFESSIONAL CHARGES. 55. The relationship between responsible authorities and town planning consultants has been brought to the attention of the Board by a number of municipa.l couneils about to embark on planning schemes. The fees to be paid ancJ conditions of appointment are questions raised about which no dear decisions have yet heen made. 56. The Town Planning Institute of England has a code of ethics for professional conduct and a scale of professional charges clearly laid down, hut it is not possible to adopt the English standards in Victoria because conditions vary so greatly. 57. The Board considers that the preparation of a code of ethics for professional conduct and a scale of fees are matters to be largely determined by the professional institutes. The Institutes of architects, engineers, and surveyors, and the Planning Institute of Australia were, therefore, approached, and invited some months ago to submit their views to the Board but, so far, no advice has been receive(!. 5R. ']'he Board considers that all muni0ipal councils preparing planning schemes should have a clear understanding as to the reRpective dntie::; to be carried out by their own officers and by the consultant. Since much or all of the information to be shown on the existing conditions map would be compiled from information already held, this map may be more economically compiled by the council's own officers. 59. The Board compliments the Gcelong and District Town Planning Committee on the manner in which it advertised and arranged for the appointment of a town planning consultant. VEHICULAR TRAFFIC CENSUS. 60. During the year, the Board was asked to express its opuuon on various metropolitan improvements, especially those relative to traffic. In the light of changes during the last twenty years, the Board was reluctant to give an opinion since the traffic 15 TOWN AND COUNTRY PLANNING BOARD Sr.m No ____.._ TRAFFIC CENSUS Period of Count indicated by half-hour of commencement~ MARCH, 1947 6.30 a.m. to 6.30 p.m. TO'l'AL VEBICUI 'l'ow.l • I lliroctioo' of Tnallic------ TRAFFIC CENSUS Pnmt No. TYPf 0~ 'l'l'i,ll.FFIC ~ I Cars an(! iax1s IJ Mfa S Motor Cycles CoUec:tor. Plt:a~e nnke vu: Heavy T rud<.s .11, Buses an(! Coache~ TYPE OF VEHICLE Driver, Whilst it' City please fol: in the :nforrnation reque~tec' her~under Tnank You I (Q;~~ To City. Suburb wt.ere ;ourney commenced- 2. Light Truck< cd i'PZI f/1!' '· 71 G~::J 3. H ..vy Trucks~-~ 7. !)r;wn ~~ ~.. uu Traffic not proceed111q beyo.,ct C•ty bounoanef 0111 y ~. a~~:c~:~ jJ I I I J~W Into City, Mark appr;:n(!ma~t> Oenmatlon. P.T.O. 16 system of a large city is of such magnitndt• 63. The suburban census was conducted on Thnrsday7 6th March, between the hours of 6.30 a.m. and 6.30 p.m. and fresh counts were taken at half-hourly intervals. In all, some 500 men, including 60 members of the Victoria Police, were engaged in conducting the census at some 110 different intersections throughout the suburban area. At all but six (6) of these intersections the census was conducted by means of visual counts by checkers stationed nt seleeted points where the direction of traffic could hest be observed. The information was recorded on specially designed sheets, a sample of which is reproduced. The count of eacl1 of the six different Junctions, namelv, St. Kilda, Camberwell, Havmarket, Moonee Ponds, Elsternwick, and South Melbourne. w~s achieved by means of a system of coloured caids. A coloured card was used for each of the five or six streets comprising the intersection. As a vehicle approached the intersection, the driver was handed a card on which the type of vehicle and the half hour of the day were marked; the card was collected in the street by which the vehiele left the intersection. The necessity for this type of check will be realized when it is pointed out that, at the junction of six streets (e.g., St. Kilda Junction), there are 30 different directions of traffic to record. Even at an ordinary intersection of two cross streets, there are twelve (12) directions of trafiic to record. A sample of the type of card used is also reproduce Railways transferred this information on to punched cards. The analvsis of the information was then obtained by mechanical sorting and tabulation. The Board appreciates the ready assistance given by the staff of the Victorian Railways, particularly as it involved work at night. 67. Trams and buses operated by the Melbourne and Metropolitan Trmmvays Board were not recorded during the census as the information desired was obtainable from the official timetables. The Board wishes to record its appreciation of the manner in which the Melbourne and Metropolitan Tramways Board co-operated in compiling the lengthy and detailed statement asked of it. The Board also wishes to record its appreciation of the assistance rendered by the Councils of the municipalities concerned in the proYiE\ion of at least half of the number of men required, and of the assistnnce, in the form of manpower, given by the various Government departments, semi-government authoritie.s, such as Country Roads Board, Melbourne and :Metropolitan Board of Works, .:Vlelbourne Harbour Trust, members of the architectural profession and public spirited bodies such a.s the Vacuum Oil Company Pty. Ltd. Valuable assistance was rendered by the State Electricity Commission in placing at the disposal of the Board two fully staffed mobile canteens which toured the checking points and served refreshments to the men on duty. 68. As at the :30th June, the analysis of the data is still in course of preparation. A supplementary document will be furnished aE an appendix to this report. in which an analysis of the results made bv the Committee will he set out. TO\VN iL~D COUNTRY PLAXKIXG CO~F~JHENCE. SYDNEY-APRIL, 1947. 69. A conference on Town and Country Planning was called in April, ID47, by the Hon. J. J. Cahill, JI.L.A., Minister for Local Government in New South \ra.les. the Chairman, Mr. Kemsley and the Secretary attending. as did J'lr. R. A. 11clnnes. Town and Country Planning Commissioner of Tasmania. 70. The first portion of the conference dealt with planning in New South Wales and representatives from all the Local Government Authorities in New South Wales were invited and a considerable number attended. The progress of planning in NEw South Wales, particularly the progress of planning by the Cumberlaml County CounciL was explained hy a number of speakers and reports were given of progreRs in country districts. 71. The representatives from Victoria and Tasmania set out conditions regarding planning in their respective States. The last day in Sydney was spent by the delegates from the two other States in discussing with the Government representatives of New South Wales and of the Cumherland County Council, the future of planning in Australia and the need for uniform pmctice being followed in all States. Among the subjects discussed were :--- (1) Commonw<:alth undertakings in regard to local authorities preparing planning schemes. (2) The preparation of plans for small communities not financially able to pay a pofessional Consultant. (:3) Intt>rchange of information on planning. (4) Nt~ed for national policies on immigration, location of secondary industries, and decentralization for defence. (5) Town planning :'ltandards on such matters as density. open spnces, recreation meas, population in relation to primary schools. (6) Qualifications for Town and Country Planners. (7) Uniform valuations of property. (8) The urgent need for propaganda on planning by means of documentmy films, leaflets, and public addresses. (9) Uniform notations on maps and for planning schemes. 72. Various decisions were reached and aiTangements left in the hands of the New South Wales authorities for· fosterin;:; and implementation, and for advice to other Governments. The Board considers the conference was valuable in the interchange of experience, as well as in establishing contacts cvvith planners in other States. The Victorian delegates proposed that periodical conferences be held with repesentatives hom all States. Delegates were particularly impressed with the work of the Cumberland County Council which is preparing a master plan for the Greatei Sydney area. It is hored similar action wi!l soo'l be taken regarding Greater 2\ielbourne. l048H/47.-2 18 LAND VALUATIONS. 73. During the twelve months undu review the Board gave consideration to the question of land values in the State folhv,ing on a statement prepared for it which was based on information ohtained from publications written by Mr. H. C. Valentine, A.S.:\LB., the Chief Valuer for the State Rivers and "\Vater Supply Commission. 74. The following extract from Mr. Valentine's remarks cmph 75. Mr. Valentine also mentions tlw practice of tlOme municipalities in purpcst'ly undervaluing holdings. By keeping values depressed and eharging a high rate, a municipal council is in a position to seek Government aid although its case may not be as deserving as a municipality whose valuations of property are more soundly based. 76. The Melbourne and }fetropolitan Board of Works must base its rates on the municipal valuations. Since there is no uniformity in the valuation of property or the system of levying rates among the thirty-eight (38) municipalities in the Board's area, the cost of water, sewerage, and main drains is not equitably distributed. 77. :Jlany other examples could be quoted to show that the present methods of valuing property in Victoria need changing. A central valuing authority would establish land values on a common and truer basis, thus helping in the settlement of claims and resulting in uniform rating and taxation values for all purposes. 78. In both New South Wales and Queensland, Valuer-General's Departments have been set up and are now in operation, and similar legislation has been advocated for this State for many years. 7H. The Board points out the absurdity of the present position in Victoria and urges that action be taken to establish a central valuing authority along the lines adopted in New South Wales and Queensland. In making this recommendation, the Board is preparing for the time when planning schemes are submitted for approval to the Governor in Council and when land valuations will be an important factor in determining compensation claims. In the case of joint planning schemes, uniform valuations are essential to assess properly the responsibility of each municipality concerned for its share of the cost of the preparation of the scheme. 80. The Board appreciates the receipt of advice that the Government has approved of legislation for a uniform system of Yaluation and hopes that an enabling Bill will be introduced at an early date. RE-ALIGN);lENT OF STREETS. 81. It is understood that legislation has been considered by means of whieh a municipal council might be empowered to :fix a new building line in respect of any street or road. Whilst such a power is given to a council when part of an approved planning scheme under the Act, no such power exists independently of a planning scheme. 82. Although this type of treatment could not be recommended in all cases where street widening becomes necessary, legislation of this nature is very desirable. 19 TOWN AND COUNTRY PLANNING ABROAD. 83. DuEng the year the Board obtained useful information from the Agent-General in London who also arranged the pmchase of many publications desired for inclusion in the Board's reference library. The Board is impressed with the progress being made in town and country planning legislation in England which will enable more progress to be made in the restoration of the devastated areas. 84. The Attache at the Australian Embassy in Washington has also kept the Board informed of town and regional planning developments in Canada and the United States of America. S'rAFF. 85. During the twelve months under revie\v, only one appointment to the staff has been made·-a junior stenographer and typist. 86. The Board has, however, proposed to you that it is desirable to appoint a Public Relations Officer with technical qualifications who could form Yours faithfully, J. S. GA WLER, Chairman. F. C. COOK, }!ember. A. ~- KE.\ISLEY, ~!ember. J. D . .\IcNAMARA, Secretary. l'l,l c\uthority: .r .•r. GOl'RLEY. Gm't'l'llll!Cllt Printer. ~lellx.:i!'lle.