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'S DOCKLANDS A Strategic Planning Framework

,. " Report on Public Consultation .by Minister For Planning and Urban Growth

May 1990

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711.5 1 099451 '~--; DOC I' strategic Pf~,===:f=' ======::::::!J :opy 21 , . 711.5 7458117 099451 DOC Melbourne's docklands : a strategic pf a strategic planning copy 2 framework. Report on public consultation INTRODUCTION

This report summarises issues raised during the public consultation process undertaken on the "Strategic Planning Framework for Melbourne"s Docklands" (SPF) released by the Government in August 1989.

The release of the SPF was an initial step in the long term public consultation process surrounding planning for the Docklands area. Following its release a series of meetings, workshops and public seminars were held with interested groups and individuals. Written submissions were also made by a number of people.

This report summarizes the views expressed and outlines the action the Government is taking to address concerns raised.

Following the public consultation, the Government has made two key decisions affecting long-term planning for the Docklands area. The 'first was to consider re-development opportunities tor a wider area than that which was included in tne SPF. This Greater Docklands study area covers some 22 square kilometres comprising the port area, the railway yards and the South/Port Technology Precinct.

The second important decision was to establish a Docklands Task Force (DTF) to consider long-term development options for this area. The DTF has been given responsibility to further consider many of the issues raised in the SPF consultation process.

The DTF will report to the Government in the middle of the year. Its report will also be made available as part of an extensive public consultation period beginning in the second ha·lf of 1990 and running well into 1991.

CONSULTATION

An extensive public consultation process was undertaken after the release of the SPF,in August 1989. This included:

two major public seminars attended by over 400 people;

a series of public ~eminars/workshops on particular issues e.g. housing, boating, road planning; 2

meetings and workshops with local Government, State Government agencies, and interest groups;

consultation with the Melbourne City Council at a meetihg involving the Premier, Government Ministers and the Lord Mayor and City Councillors; and,

consideration of a number of written submissions.

The issues which were raised through these processes are summarized in this report. They have been grouped under five broad themes:

* process * transport * regional impacts * land use * urban design However, it is also recognised that many of the issues have wider implications, are interrelated and must not be viewed in isolation.

ISSUES RAISED

PROCESS

Ongoing Planning Process

One of the major issues raised related to the form of the ongoing planning process.

People were particularly concerned that:

the next steps be defined;

opportunities for public involvement be established.

Following the release of this report and the "Melbourne Docklands Progress Report" by Major Projects Unit and Department of Planning and Urban Growth, the next step in the consultation process will be the release of the DTF report for an extensive period of consultation, beginning in the second half of the year.

Olympics Planning

If Melbourne is awarded the Olympics, the Government considers it essential that there be significant opportunities for public scrutiny of Olympic proposals and for comment and suggestions for improvements. Formal periods of exhibition of

l' 3 major proposals and review by an independent panel will therefore be established. However there will be a need for some modifications to the statutory planning process to enable facilities to be developed in time for the Games.

Queries were also raised abbut review processes, in particular:

the use of the Environmental Effects Statement (EES) process, or

other consultative models e.g. public hearings.

The Government is committed to public review of environmental aspects. The Olympic planning process outlined above would deal with environmental issues during the public exhibition and panel hearing phase.

Development Authority

Issues related to:

the need for-a development authority;

its structure and membership; and

its role and powers.

The Government is considering a range of options for implementation.

Implementation

Issues related to

land release

financing of development

Olympic requirements and timing.

The Government will be considering these issues in terms of overall development of the Greater Docklands_area. In the interim the Major Projects Unit is clarifying specific requirements for the Olympics in liaison with the DTF.

Release of Information

The desire to have a range of information available to inform community debate was expressed. In particular, participants felt that information of the following sort was needed:

background information used in strategy development; 4

information about infrastructure relocation and costs; and

information about· development economics.

The Government is making a range of information publicly available, including the Committee for Melbourne submission to the Commonwealth, the Progress Report on Melbourne's Docklands prepared by the Major Projects Unit and the Department of Planning and Urban Growth, and this report on the consultation outcomes. Th~ final report of the DTF will also be publicly released as an input to the consultation process.

Integration of Social Infrastructure and Land Use Planning

A number of groups emphasised the need to ensure the integration of social infrastructure and land use planning.

The DTF is liaising with the Department of Planning and Urban Growth (which is responsible for the Metropolitan Services· Coordination System) in this regard. The DTF will also investigate processes to facilitate integration.

Gentrification._._. ----- Concern was expressed that Docklands development will hasten "gentrification" of inner. .

The Government is developing strategies in consultation with relevant community groups to ensure more affordable housing opportunities throughout inner Melbourne. Discussion of options concerning the mix of housing types and costs within the Greater Docklands will be contained in the DTF report.

Traffic through adjacent areas

Serious concerns about the cr~atioti of excess in surrounding suburbs, in particular southern suburbs, were raised. Specific issues included:

Footscray Road causing increased traffic volumes in South Melbourne and Port Melbourne; and

Docklands becoming a destination which generates traffic in the southern suburbs.

1· It was also felt that the work on the Western Bypass study - stage 2 should consider a number of options to address these potential problems particularly in terms of traffi'c impact south of the Yarra.

Alternative road options, taking account of these concerns, as well as future land use and transport requirements, are therefore being investigated. 5

Coode Island - Dangerous Goods Storage

Strong concerns was expressed about the risk from dangerous goods storage on .

These concerns will be examined by the newly established Ministerial Task Force on Dangerous Chemicals.

Impact on existing physical and social infrastructure

The desire to see residential and associated development in Docklands effectively limited to existing residential area and therefore better utilise existing facilities rather than diverting funds to develop.newinfrastructure, was expressed.

In particular, issues were raised relating to:

requirements for upgrading physical infrastructure;

the extent to which development will increase the load on existing social infrastructure; and

use of existing community facilities in adjacent areas.

The Government is addressing these issues in terms of the, overall planning process. It sees Docklands development as an . important initiative in the Government's p'olicy designed to more intensively use existing infrastructure. Physical infrastructure authorities (e.g. MMBW) will take Docklands development proposals into account in their planning activities and existing community facilities will be taken into account.

Competition with other areas

Concerns were raised about the impact of Docklands development on:

the viability of other inner city developments especially Jolimont and Southbank; and

the economic viability and the nature of future development within the Central Activities District (CAD).

The DTF is considering these and other regional impacts and taking these into account in developing a broad development framework that confirms the mixe'd use emphasis proposed in the SPF.

Impact on Industrial Zone South of the Yarra

The issue of possible incompatibilities between Docklands development and adjacent industrial uses was raised. 6

The Department of Planning and Urban Growth, in conjunction with Port Melbourne Council, is reviewing the for this area, in the light of plans for the South/Port technology precinct and Docklandsdevelopment. .

TRANSPORT

Collins Street Extension

In discussions about the options of extending Collins Street concerns were raised including:

the form it would take;

its' potential impact on development opportunities; and

the prospect of demolition of buildings of heritage significance in the existing rail yards.

urban design issues concerning its ramped development;

the question of extending or not extending the Central Activities District road grid; and

the perceived need to establish a unique built form and hence character for this area.

Further work is being done on options and configuration of street extensions. into Docklands and this will be discussed in the DTf' report.

Fbotscray Road

Issues were raised relating to:

its role as both a through road and an access road to the Docklands;

potential impacts of increased traffic particularly to the southern suburbs;

possible alternative routes including options using a river crossing to the so0th of Dockl~nds; and

planning, including landscaping and adjacent land uses.

Broadly speaking, comments related primarily to the role of Footscray Road as a major carrier of truck traffic and the perceived inappropriateness of this role if.Docklands development is to proceed. It was felt that new solutions to the truck traffic question would need to. be found.

L i ------

7

The DFT is working with the Ministry of Transport to investigate, evaluate and report on options in this regard.

Public Transport

The importance of effective within the Docklands area was emphasised.

In particular:

the need for good linksi with existing services;

the need to determine appropriate routes: and

the possibility of investigating other appropriate forms of transport (eg cable , monorail)

were highlighted in discussion.

The DFT, in conjunction with the Ministry of Transport will further develop public transport plans as part of the on-going planning process. Particular route proposals will be evaluated by the Ministry of Transport. Both tirganisations will investigate other innovative forms of public transport.

Car Parking Provision

The importance of public transport was also raised in relation to the identified need to minimise car traffic and attendant parking demands. In particular, a potential conflict was perceived between the need to limit car parking provision within Docklands to encourage usage of public transport and to minimise traffic movement and' the desire for car' parking as an adjunct to development of the area.

The Department of Planning and Urban Growth will develop a car-parking policy as part of the on-going planning process, taking into account central Melbourne parking policies.

Multi-Modal Interchange

The proposed multi-modal interchange was generally considered as being of overall benefit, depending on its precise form and location. The DFT and the Ministry of Transport are completing work to develop and analyse options for the interchange.

Webb Dock Railway

Criticisms were made about the current route and low level of usage of this railway. Key issues related to :

the amenity of the Docklands area; and, 8

the potential detrimental affect on proposed intensi£ication of use of the line.

Alternative routes are being investigated by the DTF and the Ministry of Transport in the context of identifying broad options for Docklands development.

Water Traffic

The question of water traffic and, in particular, the future of existing charter boat and other private operators, was raised. Specific concerns related to :

potential conflict between port and other uses;

the need for facilities for charter boats and yachts;

the need for public landing facilities; and

the need to establish public water transport

Use of the waterwa~s for both public and private transport and recreation is envisaged as a key feature of the Docklands re-; development.

The Ministry of Transport and the Authority will establish a work~ng group involving relevant agencies and interest groups to develop strategies for boarding facilities and water use. Suitable accommodation and facilities will be planned as part of the detailed land use planning process~

Bicycle Routes

The issue of provision being made for bicycle routes within the Docklands area, linked to regional bike networks was raised.

The Ministry of Transport is to d~velop a strategic plan for bicycle routes in consultation with appropriate user groups. This work will be incorporated into the overall planning process.

LAND USE

Residential Use

The potential for residential use attracted a great deal of comment, particularly in terms of:

the proportion of housing to other uses; 9

the degree to which a mix of housing types, including low-income and public housing, is provided;

~he relationship of any new residential areas to existing residential areas; and

th~ extent to which existing facilities and infrastructure can be utilised to support new housing areas..

It will be necessary to develop a housing. policy for Docklands, in a central Melbourne context. The DTF, the Department of Planning and U~ban Growth, the Ministry of Housing and , affected local Councils and other relevant agencies and interest groups will all be involved in this process.

Open Space

Comment was made about the need to include· significant areas of open space in development·plans, giving thought to:

its. relationship to other uses, especially residential uses; and

determining issues of type, location and quality

An open space strategy will be prepared by the DTF, in co­ operation with the Department of Planning and Urban Growth, Local government and other agencies and groups.

PMA Operations at North . Dock

Concerns were expressed about on-going PMA operations at Victoria Dock and potential adverse impacts on development proposals.

The Ministry of Transport will develop operational guidelines to minimise such impacts on the Victoria Harbour development and the DTF will investigate the relationship between different port uses and surrounding areas to minimise impacts on the Greater Docklands are~.

Retailing

The potential of the area to accommodate significant regional retail facilities was discussed.

Retail opportunities, in the context of surrounding areas, will be analysed by the DTF and the Department of Planning and Urban Growth, in consultation with Local government and other agencies and groups. ------

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URBAN DESIGN

Public Access to the Waterfront

The need for public access along the waterfront was raised. Generally it was felt that equity of access to the waterfront was desirable in order to encourage life and vitality in the area and ensure that the community benefits of the development are shared within the community.

The Government places high priority on public access to the waterfront and the Department 'of Planning and Urban Growth will define requirements as part of the detailed planning process.

CBD extension

Questions arose about the way in which development in the Docklands area would relate to the existing Central Activities District area.

Questions of design relating to the existing city grid and the type of built form desirable were raised.

·Alternative patterns for development will be investigated by the DTF and the Department of Planning and Urban Growth and planning guidelines will· be established for individual development areas. Public consultation will occur during the development of these guidelines.

Heritage

There were calls for further exploration of the heritage significance of the area and for assurances that structures of heritage significance would be integrated within development plans. .

A preliminary investigation of heritage issues has been made and further work will be undertaken, in consultation with appropriate groups, as an input to the detailed planning process.

Height Controls

The issue of h~ight controls and, in particular, the need to define parameters applying to various parts of the area was highlighted by various -groups.

This issue is being addressed in the context of planning for the Central Activities extension.

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Bridges over the Yarra

Attention was drawn to the need to plan carefully any bridges which might be built over the Yarra in order to:

provide clearance for water traffic;

ensure urban design principles are met; and

minimize any negative effects on adjacent land uses.

Guidelines to address these issues will be prepared in consultation with the Port of Melbourne Authority and boating groups.

CONSULTATION

There are many issues which require further clarification and discussion before detailed plans for Docklands can be made. The Strategic Planning Framework Consultation Program was an important initial step in this proce~s.

The Government is committed to a continuing process of consultation during the further development of plans. The next step will be the release of the Committee for Melbourne submission to the Commonwealth. The Docklands Task Force report will be released ih the middle of this year. Thi~ will be followed by further extensive consultation to ensure that the plans for the Docklands area address the issues and concerns raised by the community.

For further information contact: Docklands Task Force, 251-257 Collins Street Melbourne 3000

Phone: (03) 650 1366 Fax: (03) 650 4480

PF-24.B DOCKLANDS STRATEGIC PLANNING FRAMEWORK

Public Consultation Program

Public Seminar 27.9.89

Arranged in association with:

Bui lding Owners & Managers Association (BOMA) Australian Institute of Urban studies Royal Australian In~titute of Architects Local Government Planners Association Royal Australian Planning Institute Institution of Engineers - Transportation Branch Rea,l Estate Institute of Victoria National Trust of (Victoria)

Public seminar 7.10.89

Arranged in association with:

Charter Boat Association National Trust of Australia (Victoria) Public Tra~sport Users Association Inner Urban Regional Housing Council ~orth Melbourne Association

WorkshopsiMeetings:

National Trust of Australia (Victoria 26.9.89 Ministry of Housing'& Construction 29.8.89 & 20.11.89 South Melbourne City Council 9.10.89 Community Services Victoria 23.10.89 Roads Corporation - Inner Metropolitan 24.10.89 Port Melbourne City Council 24.10.89 :'le I bourneCi ty Council

Public Seminars/Workshops

Boating Issues 2.11.89 Road Planning 8.11.89 Housing & Related Issues 9.11.89 Public Transport Issues 14.11.89 Heritage Issues 16.11.89