Tn '1 He Western Suburbs

PLA:-J'Nl~G & E;\fVIRON~1EK'l' ISSlTES

TN '1 HE WESTERN SUBURBS

~dB w P~P·i'~l!fG %4h!,H,

( J: '\ H t' ~~~. r·"l ~ C 1 ns 711 . 4099 ' ·. 451 WES:P b ~lARCH 19XJ 111. "t-3:<. c~"'-5') · P. I I 1- S <($ _~?~~--;- _""!_ ~-~ f>~ I MPE LIBRARY G,Pz:!Q [-~~~~~~~~~~~~

PLANNING & ENVIRONMEN-T ISSUES

IN THE WESTERN. SUBURBS OF MELBOURNE

A REPORT ON MATTERS RAISED IN RESPONSE TO A PROGRAM OF PUBLIC PARTICIPATION IN THE FIRST STAGE OF

THE WESTERN SUBURBS PLANNING AND ENVIRONMENT ACTION PROGRAM

A Consultant's report on Group Discussions with residents, and three detailed Task Group reports on industrial, residential and recreation· issues are

available to those who made submissions :~nd others who request them. See the back of this report for details. Unfortunately it has not been possible within our limited budget· to translate this report into other languages. However, translations· of the major recommendations will be available from the Migrant Resource Centre in Footscray. .-. 711.4099 2908337 . ~-~; E·,._,.,~"·~.~lt~.. :-1' ...-./--~ 451 WES:P b Planning and environment issues in ~' ~ the western suburbs of Melbourne REPORT BY: INTERAGENCY STUDY TEAM FEBRUARY 1983

MINIMFtY FO" PLANNfNQ ANB lfNVffitONMcN'f li8AARY FOREWORD

In July 1982 I announced that the Government would investigate living conditions and community concerns about environmental and land-use planning matters in the municipalities of Sunshine, Footscray, Williamstown, Altona and Werribee. The Western Suburbs Planning and Environment Action Program was launched in October with the publication of a multi-language broadsheet in local newspapers and the distribution of a facts booklet.

The first stage of the study has now been completed. This was intended to identify issues of concern. and ideas for future improvements affecting the study area.

This document reports on the submissions received in the first stage, and will form the basis for further work by the Study Team in completing its investigations and recommending appropriate actions.

I invite you to read the .report carefully and to t,ake advantage of the opportunity to make further submissions to the Study Team.

You may wish to raise additional issues that have not been covered to date. In particular, however, I invite you to make suggestions as to how some of the difficult questions that are raised might be efficiently and fairly resolved.

EVAN WALKER MINISTER FOR CONSERVATION AND PLANNING 2. The Working Group

Roger Holloway (Study Manager) Department of Planning

Terry Keenan D~partment of Planning

Rosemary Cousin Department of Planning

Neville Wale Melbourne and Metropolitan Board of Works

Meredith Withers Melbourne and Metropolitan Board of Works

Alan Wareham Environment Protection Authority

NOTE: The Working Group has a flexible membership depending on the matters being considered.

3. Consultants

Maxine Cooper Maxine Cooper and Associates

Irving Saulwick Saulwick Weller and Associates WESTERN SUBURBS PLANNING AND ENVIRONMENT ACTION PROGRAM

1. The Steering Committee

David Yencken (Chairman) Department of Planning

Jenny Love Minister's Representative

Geoff Harris Melbourne and Metropolitan Board of Works

Alan Wareham Environment Protection Authority

Cr Eddie Smith Western Region Commission

Wally Eacott Western Region Commission

Cr Graeme Hosken City of Alton a

Cr Bruce Mildenhall City of Footscray

Cr Ian Mill City of Sunshine

Cr Stuart Southwick Shire of Werribee

Cr Geraldine Schutt City of Williamstown

Roger Holloway Department of Planning CONTENTS

PART 1: REPORT SUMMARY 1

PART 2: OVERVIEW OF THE WESTERN SUBURBS ACTION PROGRAM 10

1. INTRODUCTION 10

2. PURPOSE OF STAGE 1 11

3. PUBLIC PARTICIPATION 12

4. SUBMISSIONS 17

5. RESIDENT GROUP DISCUSSIONS 23

6. INDUSTRIAL AND RELATED ISSUES 26

7. RESIDENTIAL AND RELATED IS3UES 30

B. RECREATION AND CULTURAL ISSUES 35

9. INTER-RELATED ISSUES 38

10. LOCALITY ISSUES 41

11. LOOKING AHEAD 44

Appendix 1: Organisation of the Study 55

Appendix 2: Consultant and Task Group Reports 57 PART 1: REPORT SUMMARY

1. INTRODUCTION

The history of government involvement with the people of the west has been patchy and somewhat u:1satisfactory.

There is an essential pride, loyalty and commitment within the resident community, but little expectation exists that 'governments' (Federal, State or Local) can or will do anything to help improve its living conditions. In some cases there is considerable /cynicism about the role and performance of government and its agencies, including those responsible for land use planning, environment protection and enhancement.

This report concludes

that the past performance of government and its agencies in matters of land use planning and decision making, environment protection controls, the programs of environmental improvement in the western suburbs · of Melbourne has, from the point of view of those who live and work there, been less than satisfactory.

This study, which is seeking to include community views before any actions are taken, is seen by many submitters to be a step in the righ~ direction. The lo~ level of response ( 18.2 submissions) is due partly to the novelty of this approach and partly to other factors such as lack of knowledge of the study, scP-pticism, and inability or lack of confidence in communicating. 2. KEY COMMENTS FROM THE COMMUNITY

Those making submissions consider that:

* The relationship between some existing indust ries and nearby residents is unsatisfactory because of smell, noise, hazards, visual appearance and other aspects.

* There is an inadequate level of environment protection being provided by the Environ ment Protection Authority in the western suburbs. Submissions from residents suggest the strengthening, broadening and restructur ing of the Authority.

* By contrast submissions from representatives of industry state that many controls imposed by the Environment Protection Authority are too restrictive. These submissions suggest that there should be closer and more effective consultation between the Authority and industry.

* Future industrial development needs special attention in the study area, to protect and promote future opportunities.

* The needs and concerns of residents must be accommodated in planning for future development.

2 1. Housing and industry are sometimes located too close to each other

3 2. Lack of housing diversity

3. Recreation facilities in need of improvement

4 * There is a range of problems within some residential areas which are in need of particular attention, for example, quantity eand diversity of housing opportunities, lack of services.

* More trees should be planted as buffers around industries and to improve landscaping in residential areas.

* Recreation and cultural facilities need selective improvement.

* Some localities are in need of particular attention, for example the Laverton North Offensive Industrial Zone, Maribyrnong River frontages, vacant land at Derri.mut zoned for Stock Saleyards, etc.

3. WHERE THE STUDY IS HEADED

The Study Team's assessment of the submissions received to date leads to the following suggested directions for the Action Program.

* There is a need to adopt a collaborative approach to solving planning and environmental problems; to plan with the community rather than for it.

* There is a need to involve other state agencies in the Action Program for improving living conditions in the west.

5 .* There is a need to focus on employment creation opportunities as a principle objective of the Action Program.

* T~ere is a need to improve the image of the west.

* There is a need for a review of planning and environmental controls, policies and programs.

* There is a need to plan sensitively and positively for ·future industrial and other economic development in the west.

* There is a need to address specific problems in residential areas including environmental amenity and ways of improving community facilities and services.

* There is a need to achieve environmental and social improvements through the planting of trees, enhancement of stream frontage park lands, construction of recreation facilities etc., using local initiatives and locally based employment programs.

* The Maribyrnong River and adjacent land is identified as a key resource for environmental improvements in the west including flood mitigation, parklands, recreation, natural habitats, water supply and development of special sites or features of historic significance.

6 4. INVESTIGATIONS

In line with these conclusions the Study Team has commenced several investigations and actions. The following are of particular importance:

* Analys.if'l of pollution complaints received by the Environment Protection Authority from residents of the west.

* Submissions for funding of spe·:::ific environ mental and recreation projects in the west under current Federal and State employment creation schemes.

* Background work for an information and promotion booklet 'Industry in the West Existing Development and Opportunities for the Future'.

For the next stage of the Action Program it is intended to continue with the above actions, and in addition:

* Analyse key issues identified in Stage 1.

* Identify further specific investigations needed on environmental, industrial, residential and recreation issues.

* Arrange for these further investigations and conseque"ntial action plans to be carried out

7 using a consultative approach with community groups, companies, informed persons and existing local, regional and state agencies.

* Invite further responses from the community on key issues, other matters of concern and ideas for improvement.

Investigations will be focused around three main topic areas, and will be carried out under the guidance of groups made up of government and non-government persons. The 'Investigation Groups' are:

* Land Use Planning and Environment Controls Review Group.

This group will seek improvements in living conditions for residents and seek accept ability and certainty for industries through the combined operation of planning and environment controls and policies. Specific localities and problems of industries and residents will be examined, including statutory and procedural issues of planning and environment controls.

* Industrial Commercial and Residential Develop ment Group.

This group will explore opportunities and recommend actions for encouraging viable industrial, commercial and residential development in the west.

8 * Urban Conservation, Recreation and Development of Community Activities Group.

This group will explore opportunities and recommend actions for encouraging improvements in the landscaping of industrial and residential areas, the protection and enhancement of open space and natural features, the provision of recreation facilities and programs, and the development of community activities and interests in the west.

In addition the Study Team will contribute to, or maintain close liaison with the following investigations that are being carried out mainly by other agencies:

* Lynch's Bridge Project (Planning and other agencies)

* Lower Maribyrnong River Project (MMBW)

* Sunshine District Centre (MMBW and other agencies)

* Old Subdivisions Redevelopment (MMBW and Councils)

* Trnnsport '83 (Transport and other agencies)

* Western Metropolitan Region Economic Development Strategy (Economic Development and other agencies).

9 PART 2: OVERVIEW OF THE WESTERN SUBURBS ACTION PROGRAM

1. INTRODUCTION

The Minister for Conservation and Planning, the Hon Evan Walker, MLC, announced a Planning and Environment Action Program for Melbourne's western suburbs on 26 October, 1982. '!'he study covers the municipalities of Altona, Williamstown, Footscray, Sunshine and Werribee, and was extended over portion of the municipalities of Keilor and Essendon to accommodate the suburb of St Albans and the frontages of the Maribyrnong River.

The Program is being undertaken by the Department of Planning, the Melbourne and Metropolitan Board of Works, the Environment Protection Authority, the municipalities involved, and the Western Region Commission.

The purpose is to identify planning and environmental issues and opportunities from the community's point of view, and to find practical ways of improving living conditions and the environment.

The program is to be undertaken in three stages namely:

(1 I identification of issues and opportunities from the community's viewpoint;

(2 I investigation and evaluation of these issues in the light of available information;

< 3 I development of appropriate government policies and actions.

10 Public participation will be sought ~1roughout the Program.

An extensive public participation program was undertaken during Stage 1 to encourage the community to make known its views.

Three Task Groups were set up to report on submissions and identify issues relating to industry, recreation and residential activities.

In addition a consultant report on group discussions with residents has been prepared.

While the consultant's report supports the views put forward in submissions it is acknowled9ed that the opinions expressed from these two sources do not necessarily reflect a cross-section of public views. The Stage 2 public participation program will seek to verify, or otherwise, the issues identified in this ·report as a basis for issue evaluation.

2. PURPOSE OF STAGE 1

The first stage of the study (October to December, 1982)

was to seek community comments ~n aspects of living in

the west; to ask people about their ~oncerns and suggestions for improving the planning and environment of residential areas, industry, shopping and business areas, recreation and vacant land.

11 The viewpoints and needs of local industries and other businesses were also sought. Written or oral submissions were invited. Notes taken at meetings, group discussions and similar gatherings have been converted into submissions. The purpose of this document is to report the views and comments expressed by those who participated in the study.

3. PUBLIC PARTICIPATION

ln order to encourage public responses several methods were used.

3.1 Broadsheet a newspaper broadsheet was used in an attempt to introduce the program to the people in the study area, to explain the purpose of the study and to elicit submissions. In recognition of the high ethnic mix which exists in the area the broadsheet was printed in thirteen languages. It was included as an insert in the local papers which, between them, have a circulation of 200,000. Copies of the broadsheet were also deposited at the offices of the local councils and at all libraries and schools throughout the study area.

Local Members of Parliament, municipal councillors, community and special interest groups were included in a very wide distribution list. A Facts Booklet containing additional background information was prepared as a companion to the broadsheet and to aid more informative submissions. It was distributed with the broadsheet although not included in the local newspaper.

12 3.2 Special Interest Groups a large numbe= of special

interest groups ~ere identified throughout the study area. These groups range across the whole community spectrum and include pensioner and elderly citizen associations, historical and environmental groups, Jaycees, Lions, Rotary, Apex and other similar service clubs, progress associations, branches of the main political parties, trade unions, a wide range of social welfare groups, industry associations, women's groups and regional organisations such as the Western Region Commission. All of these groups were specifically invited to make a submission to the program, and although it was not possible for the study team to talk directly to all of these groups, the offer of a meeting was extended.

3.3 Meetings Members of the study team held discussions with a wide range of organisations, individuals and special interest groups for the purpose of explaining the program and obtaining a submission, either formally or by way of meeting notes. Discussions were held with the principal officers of the five councils in the study area, with six Members of Parliament and those special interest groups which responded to the invitation.

The groups included:

(a) Western Region Commission.

(b) Western Region Council for Social Development

(5 groups ~epresented).

13 (d) Altona Petro-chemical Complex Environmental Steering Committee (6 companies represented).

(e) Werribee Industrial Liaison and Development Committee.

(f) Altona Meadows Progress Association.

(g) Western Region Resources Centre. (11 residents' groups represented).

(h) Footscray Institute of Technology.

(i) Footscray Migrant Resource Centre.

Four other Members of Parliament whose electorates include small parts of the study area were contacted by letter about the program and have been k·ept informed of its progress by way of periodic progress reports. One of these, Mr George Seitz, the Member for Keilor, organised a public meeting in St Albans, which was attended by some 40 residents and five members of the study team.

3.4 Press Statements The program received initial publicity through press reports of statements made by the Minister and the Premier in the local and daily press.

In addition the local press reported the launching of the program by the Minister at the Sunshine Municipal Offices on 26 October, 1982. Progress reports are distributed to the local press in the expectation that the general public will be kept informed through follow up articles.

14 3. 5 Progress Reports These are produced periodically and circulated to all special interest groups, councils, local MPs, and people or organisations who have made submissions.

3 ..6 Group Discussions A consultant, Maxine Cooper and Associates, was engaged to undertake discussions with groups of residents from the study area. This was seen as a modest attempt within the limits of the program budget to provide an opportunity to sample the views of the large majority of non-vocal residents. The group discussions were carried out and analysed independently of the study team's reporting on submissions. This enables a comparison to be made of the views arising from both sources. Six groups each with 8 to 11 participants were formed. Although rec.rui ted from schools, kindergartens and community groups, office holders and other likely opinion leaders were avoided. Each group included both sexes and contained a number of first and second generation migrants. In addition the groups were designed to reflect various stages of the . . 1ifecycle, the group participants being drawn from the local government area whose predominant age structure and social conditions most closely reflecte~ the chosen Iifecycle stage. In this way each of the five local government areas were represented. Young unemployed people were drawn from Sunshine, young adults and school leavers from Altona and Sunshine, young to middle age married people from Werribee, mature age people from Williamstown and pensioners and other elderly people from Footscray.

15 The full report of the group discussions is available (see Appendix 2).

3.7 Migrant Population the Study Team was conscious of the need to reach as many overseas-born residents as possible and sought the advice of a Director of the Ministry for Immigration and Ethnic Affairs and officials of the Footscray Migrant Resource Centre. The discussions helped clarify thoughts about making the broadsheet multi-lingual and it w"':s eventually printed in twelve languages other than English. As a result several submissions written in various foreign languages have been received. The ethnic radio station 3EA agreed to broadcast the information in the broadsheet in the various languages and to invite people to participate. A meeting was held with some migrant leaders at the Migrant Resource Centre, and the Centre offered its services as a focal point for the receipt of submissions. Migrant leaders throughout the study area were also contacted and advised that members of the Study Team would be available to attend meetings in the local migrant clubs if desired.

3.8 In summary, the public participation program has provided two sources of material, namely the submissions and the consultants group discussions. These are examined in greater detail below.

16 4. SUBMISSIONS

4.1 Sources

At the time of writing (end December, 1982) a total of 182 submissions have been received. The following table shows the source of these submissions:-

Source Number

Political (M.P.'s, Party Branches) 14 Government agencies (State and Municipal) 12 Community Interest Groups 73 Individuals ~ TOTI\L 182

4.2 Response to the Study

A number of people have commented on the low level of public response to the study. The following c6mments are illustrative:

"It wasn't publicised widely enough"

"The approach you're taking is a complete about face from the one we're accustomed to. We are usually put in a position of reacting to development proposals; fighting rear guard actions after decisions have been taken. This new approach is good, but \~i 11 take time to be understood."

"The poor response is not surprising because most people are sceptical. They don't have confidence in 'government' (Federal, State or Local I to improve their. living conditions."

"We'd have done better in the past if we'd been a swinging seat." 17 NOTE: One of the concerns at the start of the Program was that we should avoid raising unrealistic expectations. It appears now that this fear was groundless.

A large number of submissions specifically expressed appreciation of the chance to have a say in what should happen to improve planning and environmental conditions.

These expressions of support were accompanied by a range of comments such as:

"We're so far behind you really can't achieve much, but its worth a try";

"About time, we've been forgotten in the past"; and

"Let's take our time and do it (the study I properly. This is our best opportunity anG we don't want to waste it".

A number of those making submissions were cynical about the value of a study and several pointed out that land use planning and physical environment were less important issues than jobs and social problems. Considerable concern was also expressed that there should be positive action arising from the study.

4.3 Main Messages

Analysis of the submissions provides five main messages:

18 4. 3. 1 Main Message 1

Review land use planning and decision making, environment protection controls and programs of environmental improvements to help improve living conditions and development opportunities in the west.

This statement is at once the key focus of the study and the key message arising from Stage 1.

Criticism has been directed at all three levels .of

government (Federal 1 State and Local) 1 although state agencies and municipal councils receive the greatest attention.

Three main areas of criticism are identified:

• Industrial and physical environment;

• Residential area development and services; and

• Recreation and cultural facilities and opportunities.

These are summarised in Sections 6 1 7 and 8 and examined in detail in the Task Group Reports (see Appendix 2).

19 4.3.2 Main Message 2

Unemployment is an issue of over-riding significance

Although unemployment does not fall strictly within the terms of the study, a number of submissions stressed the overriding importance of jobs for maintaining a basically stable social environment. The Study Team concurs with this view and acknowledges that, where possible, priority should be given to employment creation opportunities in the development of the Action Program.

4. :J. 3 Main Message 3

Adopt a collaborative approach to solving planning and environmental problems; plan with the community rather than for it.

Most residents have a deep commitment to the west but little expectation that governments can or will do anything to improve 1 i ving conditions. The important qualities of individual self-esteem and dedication to community were seen to be strong, but under strain; these were related mainly to economic conditions and unemployment, and secondarily to the history of patchy and generally unsatisfactory government involvement in the west.

Some submitters want the government to do things for them and this took the form of calls for. a needs-based allocation of funds or resources, or alternatively for

20 specific discrimination in favour of the west to redress the balance and help it catch up with the rest of Melbourne.

There is a strong feeling however, that people want the government to do things with them rather than for them, by working through established community networks, and extending this concept across other agencies.

4.3.4 Main Message 4

Improve the image of the west

A number of people stated that the west had a poor image. There are two main dimensions to this idea - one, that the social stigma attached to living in the west is an unfair representation. The 'deprived west' view is held principally by outsiders and exploited unreasonably by the metropolitan media; it overlooks the many fine assets that exist in the west and 'puts down' the efforts of councils and dedicated people in community groups who are doing their best to achieve improvements.

The other is that the poor physical environment, with its industries, smells and derelict sites, its traffic 'indigestion' and barren, treeless appearance ensures that this view is alive and well and not to be denied.

Some submissions specifically advised that although the problems might be recognised the positive aspects of the western environment should be emphasised. Others said that 'public relations' actions would be quite inadequate; 'real' improvements are needed first.

21 4. A sea of rooftops with barely a tree in sight

5. How trees can improve the appearance of a neighbourhood

22 4.3.5 Main Message 5

Plant more trees

Many submissions stated that the western suburbs environment would be significantly improved if major attention were given to the planting of trees and shrubs. Submissions suggested urban forests in buffer areas between industry and housing, trees on vacant sites and government reservations, landscaping of existing industries, plantations on road verges and along major access routes, and extensive' vegetation planting in parks and on stream frontages.

Trees were not seen simply as beautifying an area, but as having a more fundamental social role in softening the harsh visual impact of unkempt factory areas, in dispersing unpleasant smells, and in providing attractive areas essential for recreation.

5. RESIDENT GROUP DISCUSSIONS

5.1 Independent investigations

Discussions with six groups of residents from throughout the study area were undertaken by our consultant, Maxine Cooper. These were carried out and ana11sed independently of the study team's reporting on submissions. This enables a comparison to be made of the views arising from both sources.

23 5.2 Summary of findings

The group discussions highlighted the commitmt!nt that residents have to their local suburb. The attractions of the social environment (jobs, friends, family, shops, community facilities) far outweighs the perceived problems with the natural environment and urban areas (air and water pollution, lack of trees, poor facilities for recreation etc).

It is also clear however, that environmental and urban planning improvements are necessary and important to upgrade living conditions and community confidence generally. The main concerns are those associated with industrial activity especially air and water pollution and poor visual appearance. Industrial development is regarded as being unplanned and buffer zones are inadequate. Housing and industry are located too close together. The main local issues are access by public transport to shopping and community facilities, and recreation opportunities, especially for youth. All these matters were seen to be the responsibility of governments and councils.

People who participated in tpe group discussions feel that governments and most municipal cour.cils have not given them a fair deal; they feel powerless to do anything about it, frustrated or despondent (why bother?). These feelings were noted particularly amongst the youth and are exacerbated by unemployment.

24 0 6. The Footscray Mall -a place to identify with

(photo courtesy of E. Rabich~ a local resident)

. ~ ...... t ......

25 The main opportunities and priorities for. environmental and urban planning improvements were seen to be:-

* Clean air;

* Access by public transport to shopping and community facilities; and

* Recreation facilities for youth.

and to a lesser degree:-

* Jobs in shops and offices;

* Water quality in local streams; and

* The need to separate industry from residents by providing treed spaces between them.

The group discussions also revealed that the community wants to be involved in the planning and decisions on environmental improvements for its area.

6. INDUSTRIAL AND RELATED ISSUES

The Industrial and Related Activities Task Group identified from submissions received a ra'?ge of issues affecting life in the western suburbs. Some of these are general planning or economic problems rather than specifically western suburbs problems. The key issue which appears substantially greater in the western suburbs is the conflict between industry, and residential and associated activities.

26 •.. :"1. li ~

7. More trees would improve the residential

amenity of this area

27 8. Industrial traffic - a fact of life in many residential streets \

9. Mixed industrial and residential uses are part of the west's character

28 While residents expressed a wide range of concerns about the detrimental effects of some industries on the quality of life in parts of the study area, submissions from industrial interests expressed concerns with .. planning controls .

The matters of greatest concern expressed in submissions were:

* effect of air quality, particularly odours, on residents;

* poor planning which has allowed industry and housing to be located adjacent to each other;

* effect of industrial traf~ic, including noise and hazard; concern at transport of dangerous goods; heavy vehicles on road surfaces;

* effect of industrial noise on residential areas, particularly---- at night; * the appearance of the west, including particularly premises and industrial localities;

*· pollution of surface water;

* public safety risk of fire, explosion or .) leakage of chemicals at plants.

The effectiveness of the Environment Protection Authority was questioned in many submissions; most

29 people suggesting that this agency be given greater resources to carry out its task more efficiently.

Many people suggested that planning provisions for industry under the Melbourne Metropolitan Planning Scheme should be reviewed, and this review should include opportunities for public involvement.

Industry representatives were also critical of some planning provisions, approval procedures and environmental controls. Suggestions were made for improvements that would encourage further industrial development (provision of adequate buffer zones, transport routes, co-ordination of services, and government support for adoption of new technology).

Industry representatives requested that any review of planning and environmental controls should take account of industrial viability and economic circumstances.

A consultative approach to future decision-making in the planning and environmental areas was sought by many parties.

7. RESIDENTIAL AND RELATED ISSUES

The Residential and Related Activities Task Group categorised submissions under four headings for purposes of discussion. These are: Access to housing; Residential services and facilities; Residential environment; and Land availability.

••!

30 Access to housing considers the percei~ed need for more public and private housing developments in the west. Specific matters raised in Stage 1 include the growth of unemployment, homelessness, small households and the number of elderly people. The need to improve the design of buildings and the residential environment (e.g. to better accommodate disabled people and to provide a greater diversity of housing opportunities) were topics also raised.

Public comments concerning housing type, tenure, need, and availability have been considered in the light of a brief statistical examination of the housing stock and characteristics of the population (e.g. age groups and household size).

Residential services and facilities considers the perceived shortfalls in and problems of access to the range of human services, (retailing outlets, schools, health and welfare facilities in the residential environment) .

The image of the west· as a deprived area has been alluded to in many submissions. So too has the relative lack of services in newer residential areas.

I Whilst responsibility for provision of these services is I I split between numerous public agencies and private I enterprise, comments about the need for better co-ordination of service provision with residential lj growth and development is an important consideration in this section. I

31 The development of Footscray and Sunshine District Centres and apparent public preference for a range of retail centres has also been raised in submissions.

Widespread public comments have been received about the need to improve transport facilties (roads and public transport) in the west generally. This latter issue underlies many public comments about access to human services and highlights the desirability of linking land use and transport planning in the study.

Residential environment addresses public concerns about quality and the appearance of the residential environment, including the need to reduce pollution, and for more landscaping and tree planting schemes.

I I l; I I

10. Careless rubbish dumping is unsightly in residential areas ••' I l

32 The question of maintenance and redevelopment of urban areas is also addressed in this section. In particular the perceived need to undertake urban renewal and neighbourhood improvement projects is considered.

Land availability considers some . of the opportunities I. for increasing residential development. It has been I frequently suggested that publicly owned land i.e., Commonwealth, State and statutory authority land, holds potential for residential development or for related residential activites. So too, does 'obsolete' industrial (and other) land.

~~sues In the first stage, eight key planning and environmental issues have been identified by the Task Group following consideration of submissions and the investigations undertaken to date. These are:

* the provision of a variety of housing types, tenures- and costs to meet the changing needs of the western suburbs population.

* a means of stimulating residential development projects which can act as a catalyst for regenerating private and public interest and investment in specific areas in the west.

* a means of improving the image of the west.

* sites suitable for housing or related residential use - either for specific develop ment projects or incremental development within existing urban areas.

33 10 a. The Deer Park Shopping Centre

* the provision of retail facilities, appropriate to the local population with particular attention to their accessibility.

* the means to identify and encourage urban renewal and urban conservation activities.

* the effective co-ordination of residential development, with associated services, including employment, cultural and recreational requirements.

* the provision of transport facilties (e.g. roads) and services (e.g. buses) to accord with local needs, taking into account residents access both within the study area and to the other areas.

34 It is acknowledged that a number of different agE:ncies are involved in actions and the further development o{ policies that relate to these issues. A necessary element of Stage 2 would be to identify those activities and highlight any gaps for further attention, or areas where joint action may be undertaken.

B. RECREATION AND CULTURAL ISSUES

The work of the Recreational and Cultural Issues Task Group during Stage 1 of this Study has drawn attention to a range of matters varying from local parks to assessing community needs. The key issue, however, which arises from those matters is that there is a need for selective imE:rovement of the st.andards and levels of provisions of some recreation and cultural facilities in the study area.

The following recreation and cultural issues have been gathered by the Task Group after consideration of public submissions, meetings and research and represent (to this stage) the main findings:

* Although the total areas of loca1 parks appear adequate, their relatively poor quality reduces their value particularly for informal activities.

* Additional open space for informal activities is needed, particularly in Footscray, Sunshine and Werribee.

35 11. Environmental and recreational improvements

are desirable along many creek valleys

...,,,-:····"" :" .:?- ~- ~ > .:~.;..:,.:::t:i;·,-;::' ".""'''""~"~·~~ ...:!.

.. .. ~ ......

.:~' .. 12. Foreshores - an important recreation asset to the

west (photo courtesy of A. Bishop, a local resident)

36 * There is a strongly expressed preference for river valleys and creek frontages to be planned with sensitivity for natural features and providing protected areas of natural habitats. There is high degree of community awareness of the Maribyrnong River, Kororoit I. Creek, Werribee River and Stony Creek. I * The foreshore areas have been identified as I. important assets of the area, however in some areas improvements could be made. Foreshore I quality could be improved in Altona and Werribee and potential exists to increase access to areas such as Greenwich Reserve, Williamstown Rifle Range and Point Cook.

* There are large expanses of undeveloped open space in Sunshine, Altona and werribee which have a high recreational potential.

* Greater use of school facilities needs to be encouraged wherever possible for both indoor and outdoor recreation.

* Generally outdoor active recreation facilities are well supplied in the study area.

* Demand exists for improving the supply of certain indoor sports facilities particularly in the outer parts of the study area.

* There is a need for a performing arts centre in either Footscray or Sunshine.

37 * Facilities for youth are inadequate and clubs, drop in centres etc. are needed in almost all municipal areas.

* Steps are required to ensure protection of historic buildings and features particularly those outside Williamstown.

9. INTER-RELATED ISSUES

The Study Team, following consideration of the submissions and group discussions, recognises that: the main issue the relationship between industries and residents •.. has many interlocking dimensions.

* Many residents are critical of air quality, noise, hazards, visual appearance and other aspects of some existing industries. They are also critical of the performance of tne Environment Protection Authority, and advocate that this agency should be strengthened to ensure better environmental conditions in the future.

* Industry representatives state that there is little scope for further reducing waste emissions because in most cases they have already modified their plants, often at considerable expense, to meet pollution I control requirements. Further constraints may force plant closures.

38 * There was concern from both residents and industry about industrial' traffic problems in the western suburbs. Residents complained at the effect of truck movements on the amenity of the suburbs and ·of actual and potential problems with tt.e transport by road of hazardods materials. Industry I._ representatives felt there · was difficult transport accessibility to other areas and ~ought improvements.

13. The ever present problem of industrial traffic in residential neighbourhoods

39 * Submissions stated that ther~ should be greater physical separation provided between some industries (e.g. offensive industries, chemical plants, livestock related processers) and residential areas. These buffers should be planted with trees to help dissipate noise, fumes, odours and unpleasant appearance._

* Industry representatives are a!so concerned about past planning decisions which have allowed new housing -to be established too close to existing plants. Industry representatives feel it is quit.e unfair for them to be penalised for these bad decisons by having to satisfy tougher pollution controls on their operations.

* Industry representatives emphasise their key role in provid~ng local and regional· employ ment, and point out that the benefits of economic activity are also felt on a metropolitan or even wider basis.

* They indicate that there are some specific advantages of locating in the west, and these opportunitie·s should be sensibly protected and promoted for the future. Industry representatives suggest that government permit consideratiun procedures and regulations should be reviewed to reduce complexity and increase the efficiency and fairness of decisions.

40 * Residents are critical of the development approvals process, which places them in a position of having to react to a project after corporate and institutional commitments have been made. A closely related concern is that some of the zonings and other provisions of the Melbourne Metropolitan Planning Scheme are now perceived by submitters as being inappropriate for the orderly future development of the area.

These different and sometimes conflicting viewpoints raised in submissions will be further examined in Stage 2 as part of a process to review planning and environmental controls.

10. LOCALITY ISSUES

In the course of the· study submissions referred to a large number of specific sites and requested investigation and action under the study. Localities most frequently mentioned were:

10.1 Laverton North "offensive industrial" zone, Shire of Werribee. Suggestions range from retaining the zone 'as is' and speeding up approvals processes, to preventing new offensive industries from locating in the area and taking steps to control or diminish the detrimental effects of some already there. Any review of this area would need to take regional and metropolitan factors into account.

41 10.2 Vacant land at Derrimut zoned for stock saleyards, abattoirs and associated uses. ("Special Use No. 7" zone). Suggestions range from adjusting the extent and zonings of the site to provide for future industrial and saleyards development, to major rezoning to remove the prospect of saleyards/abattoirs and providing instead for light industry development and urban forest areas.

10.3 Maribyrnong River frontages were a favourite area for suggestions on environmental and recreation improvements. The industrial and maritime emphasis south of Hopetoun Bridge (Hopkins !?treet) to Newport Power Station was suggested for extensive riverside landscaping and improvement of selected 'natural' areas. Sites mentioned included Henderson's Piggery, Thames Reserve and Grimes' landing, Footscray wharves, Stony Creek mouth and backwash, Old Newport Power Station and Greenwich Bay. Above Lynch's Bridge (Ballarat Road) emphasis was placed on open space and recreation associated with adjacent residential uses. Mention was made of Humes Pipe Works site, Anglers Arms, Walter Burley Griffin Incinerator, Commonwealth lands, Old Tea Gardens, Cranw,ll Street reserve and the McGrath Quarries along Duke Street, Sunshine.

10.4 Kororoi t Creek frontages and nearby areas are suggested as providing important opportunities for tree planting and selective improvement for semi-natural parklands, barbecue and picnicking, bike riding and playgrounds mainly for informal leisure activities. Wetland areas south of Kororoi t Creek Road and Cherry Lake provide opportunities for habitat protection.

42 10.5 Municipal boundaries were perceived to be a problem in the following areas:

St Albans. The suburb of St Albans is partly within the City of Sunshine, and partly in the City of Keilor. Residents perceive difficulties in obtaining municipal support for community projects and in co ordinating the interests of two councils.

Laverton North. The offensive industry zone is situated in an outlying arm of the Shire of Werribee bordered on the north by Sunshine and on the south by Altona. Residents of these neighbouri'ng municipalities feel that ·they have insufficient say in council (Werribee) approvals of development in this local i t.y.

Altona Meadows. An old undeveloped subdivision straddles the boundary between the Altona and Werd.. bee municipalities. The lots are very small and the land has no services. Difficulties in co-ordination have hindered the design of imaginative and economic proposals for restructuring for modern residential development.

I 1. 10.6 Other sites suggested in submissions as requiring furtDer investigation include:

* Newport Power Station and precincts.

43 * Specific industries as identified in the report by the Industry Task Group.

* Commonwealth land at Williamstown Rifle Range in Deer Park, and in St Albans. ·

11. LOOKING AHEAD

11. 1 Investigations

As a result of the issues identification work completed to date the Study Team is now preparing a list of additional problems requiring investigation.

Those matters for which land use planning and physical environment considerations can contribute to the solution will be sorted out for further specific attention. Those matters which do not fall within the ambit of the study or the principal agencies involved will be referred to other agencies for their attention.

The sorting process will be an important task as Stage 2 gets under way. It is envisaged however, that the investigations may include:

* Investigation and consultation on environ mental protection policies and controls; planning zones (location and extent); planning provisions (definitions, minimum require ments): and the decision proce~s for new developments.

44 * Investigation and consultation on the land use planning and physical environment aspects of housing, urban revitalisation, land avail ability and associated services, provision of access, and other facilities for resident communities and employers.

* Investigation and consultation on the feasibility and relative i~portance (community support) for different recreation and cultural improvement projects.

* Investigation and consultation on the planning and development of specific sites (from those listed in Chapter 10).

Investigations will be focused around three main topic areas, and will be carried out under the guidance of groups made up of government and non-government persons. The 'Investigation Groups' are:

* Land Use Planning and Environmental Controls Review Group

This group will seek improvements in living conditions for residents and seek acceptability and certainty for industries through the combined operation of planning and environmental controls and policies. Specific localities and problems of industries and residents will be examined, including statutory and procedural issues 'of planning and environment controls.

45 * Industrial Commercial and Residential Development Group

This group will explore opportunities and recommend actions for encouraging viable industrial, commercial and residential development in the west.

* Urban Conservation, Recreation and Development of Community Activities Group.

In addition the Study Team will contribute to, or maintain close liaison with the following investigations that are being carried out mainly by other agencies:

* Lynch's Bridge Project (Planning and other agencies)

* Lower Maribyrnong River Project (MMBW)

46 * Sunshine District Centre (MMBW and other agencies)

* Old Subdivisions Redevelopment (MMBW and Councils)

* Transport '83 (Transport and other agencies)

* "Western Metropolitan Region Economic. Develop ment Strategy (Economic Development and their agencies).

11.2 Action Program

The main purpose of the study is to develop an action program for improving planning and environment conditions in the west. The approach to this task is firstly to identify the issues, secondly to carry out investigations on the main issues, and then to prepare a program of actions.

In practice, however, a flexible approach to this work has been taken; it is expected, for example, to continue finding more problems and issues throughout the period of the study. Also some useful actions have already been identified to help get the ball rolling on necessary improvements. The main actions taken to' date are discussed below.

47 11.2.1 Employment Initiatives Program

The Ministry for Employment and Training's Employment Initiatives Program is recognised as providing an excellent opportunity for achieving some important environmental improvements in the western suburbs.

Accordingly the Study Team arranged dis~ussions with Ministry officers and offered its assistance in the program. In the first instance we have acted as a catalyst to encourage other agencies (councils and the Board of Works) to make submissions for achievable community projects and small public works and maintenance projects in the study area.

The Study Team held discussions with each municipality and in some cases this has resulted in the identification of projects which might not otherwise have been advanced. Most of the projects which councils did identify have direct re~evance to the study and should have a positive impact in the study area because they will produce visible evidence of the Government's intentions.

The Study Team is now examining a number of other more complex projects arising out of submissions received in the public participation program to see if they have the potential for future funding under the Ministry's program. Perhaps the most important of these in terms of creating an impact on the residents of Melbourne's western suburbs concerns a proposal to ·clean up and beautify the major.arterial roads to the west-Dynon and Footscray Roads.

48 Other projects which come within this category include Greenwich Bay at the mouth of the River Yarra, the approaches to Williamstown along Douglas Parade, and developments on land owned by the Board of Works between the Altona Meadows residential area and the industrial area to the north-east.

It is envisaged that the Study Team will be of particular assistance for those projects where inter-agency liaison and agreements are needed before designs can be completed and implemented. Negotiations commenced now will enable submissions for assistance under the Ministry's program next financial year.

11.2.2 "Industry in the west" project.

This is a joint project between the Western Region Commission, the Western Suburbs Study and the Ministry for Economic Development. It is intended to prepare a small booklet on current industrial development and opportunities for the future. The booklet will have a combined information and promotion role. Information will be provided on the location of existing industries, availability and broad specification of different

services, location of vacant or unused sites, ~onings, approvals processes, licences and other factors influencing the choice of site for new industrial development proposals. The proposed booklet will complement the State and regional economic development strategies currently being prepared by the Ministry for Economic Development.

49 11.2.3 Lynch's Bridge Project

An inter-agency project team has commenced investigating options for developing 54 hectares of land around Lynch's Bridge in Footscray. The study covers sites on both sides of the Maribyrnong River including the derelict Angliss Meatworks, the former MCC abattoirs, Newmarket saleyards, and other nearby sites. Emphasis in planning for redevelopment will be given to residential and recreation uses and to social, economic and visual factors. The study, which is expected to take twelve months, involves the Department of Planning, Melbourne City Council, Footscray Council, Melbourne and Metropolitan Board of Works, and the Ministry of

Housing. Public consultation will be ~ncluded once preliminary plans for development of the area have been prepared.

11.3 Public Participation and Consultation

The public participation program in Stage 2 will have two main components as discussed below.

11.3. 1 Community issues and ideas

The purpose of this program will be to give the community more opportunities to make known problems existing in the west and what ideas they have for making it a better place. This report "Planning and Environment Issues in the Western Suburbs of Melbourne", will be used as a starting point. Community groups, industries and individuals will be asked to respond to the issues identified.

50 r

In view of the limited response to the broadsheet it is envisaged that more emphasis will be placed on radio, television and public meetings to try to get more public interest and involvemeni.

11.3.2 Consultation during investigations

It is intended to include community representatives, local politicans, industry representatives, local government and other agencies as appropriate to assist in the investigation work and help develop an effective program of actions.

It is expected that for many of the matters under investigation local government, regional offices and community groups will form a central point for these activities. This will help ensure that the ideas are planned and thought through with the close involvement of the citizens and employers of the west itself.

11.4 Recent Actions

Some recent actions illustrate the contribution various government agencies are making towards improving the quality of life in the western suburbs,

* Radio Station. Radio 3WRB, 'The Voice of the West' recently conducted test transmissions as an FM public broadcaster. This Footscray based radio station has as its aim the cohesion of the west and the enhancement of its various cultures.

51 * Neweort Lakes. The proposal to develop an urban forest, recreation lake with picnic and barbecue facilities in the olrl quarries at Newport is the top priority of Williamstown Council's submission for funds from the Ministry for Employment anJ Training's Employment Initiatives Program.

* Regional Economic Develoement Strategy. The Ministry for Economic Development has commenced the preparation of a strategy aimed at enhancing the potential for economic development based on the needs and resources of the western suburbs. The strategy covers the nine municipalities in the government's western metropolitan administrative region and is being prepared in close association with the Western Region Commission and the Planning and Environment Action Program.

* Maribyrnonq River earklands a~d recreation facilities. The Melbourne and Metropolitan Board of Works has received an allocation of funds under the Employment Initiatives Program for the development and bP.autification of its extensive landholdings along the banks of the Maribyrnong River. The Board will contribute additional funds and the project will create 61 new jobs in the area.

* Code for transport of dangerous goods. The Environment Protection Authority ha~ commenced

52 discussions with the Department of Minerals and Energy, the agency whjch largely controls the transport of dangerous chemicals, with a view to introducing a code for the transport of dangerous goods and materials by road and rilil.

* Housing. The Housing Ministry intends purchasing 52 homes under the spot purchase scheme.

* Residential units for handicapped. Three additional residential units will be built for the handicapped in the western region in mid 1983 in a move to de-institutionalise handicapped services.

* Health. A new community mental health centre will be attached to the Sunshine Health Complex and an adult day training centre will be provided for Melton and Bacchus Marsh.

* Recreation developments. Design work is proceeding for possible development of Westgate Park in the vicinity of Westgate Bridge.

* Railway and bus improvements. The opening of Furlong station and the proposal to extend the Altona line to Laverton will provide for better train services. The Ministry of Transport in consultation with municipalities and other agencies has also recommended improvements to bus services in the west.

53 APPENDIX 1

ORGANISATION OF THE STUDY

1. Structure

Minister for Planning and for Conservation

Western Suburbs Planning and Environment Action Program STEERING COMMITTEE

INTER-AGENCY

r------L-~--~~--w_o_R_K_IN_G__ G-~ro_u_P __ ~~SULTANTS

STAGE I Industrial Residential and Recreation TASK and Related Related Activities and Cultural GROUPS Activities Activities

2. Membership of Steering Committee and the Inter-agency Working Group is listed at the front of this report.

55 3. The Task Groups

(a) Industrial and Related Activities Task Group

Alan Wareham Environment Protection Authority

Brian Kirkby Departrrent of Plannning

John Manton Departrrent of Planning

Elaine Brown Victorian Cllamber of Manufactures

Nick Fothergill Mell:x:>urne and Metropolitan Board of w:>rks

(b) Residential and Related Activities Task Group

Rosenary Cousin Departrrent of Planning

Barry Fox Mell:x:>urne and Metropolitan Board of Works

Q3thy Mitchell Ministry of Housing

Rhonda Boyle Mell:x:>urne and Metropolitan Board of w:>rks

Jill Garvey Depart:nJnt of Planning

Michael Scott Department of Youth, Sp:>rt and Recreation

56 APPENDIX 2

CONSULTANT AND TASK GROUP REPORTS

Reports prepared by the consultant and the three task groups are available upon request. A small charge is made to help defray the costs of copying and delivery.

Consultant Report: (Maxine Cooper and Associates)

* REPORT ON GROUP DISCUSSIONS WITH RESIDENTS

Task Group Reports:

* REPORT ON INDUSTRIAL AND RELATED ISSUES * REPORT ON RESIDENTIAL AND RELATED ISSUES * REPORT ON RECREATION AND CULTURAL ISSUES

A charge of $2.00 is made for each copy of each report.

All four reports (bound together) can be purchased for $5.00 per copy.

If you wish to obtain any of these documents please send a note enclosing payment to The Publications Officer, Department of Planning, P 0 BOX 2240T, Melbourne 3001. If you have any queries please ring Mr Cedric Koelmeyer on 6029244.