COMMONWEALTH GAMES 2006 YARRA PRECINCT PEDESTRIAN LINK
Report of a Planning Advisory Committee
Pursuant to the Commonwealth Games Arrangements Act 2001
Planning Advisory Committee:
Ms Kathryn Mitchell, Chair
Mr Gordon Anderson
Mr Robert McGauran
10 October 2003 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
COMMONWEALTH GAMES 2006
YARRA PRECINCT PEDESTRIAN LINK
Report of a Planning Advisory Committee
Pursuant to the Commonwealth Games Arrangements Act 2001
Ms Kathryn Mitchell, Chair
Mr Gordon Anderson, Member
Mr Robert McGauran, Member
10 October 2003
Page 2 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
TABLE OF CONTENTS PAGE NO.
EXECUTIVE SUMMARY...... 5
1. INTRODUCTION...... 11
1.1 THE PLANNING ADVISORY COMMITTEE ...... 11 1.2 TERMS OF REFERENCE ...... 12 1.3 BACKGROUND INFORMATION...... 13 1.4 SITE VISITS ...... 16 2. CONSULTATION PROCESS...... 17
3. THE YARRA PRECINCT PEDESTRIAN LINK PROPOSAL ...... 21
3.1 EXISTING CONTEXT ...... 21 3.2 NEED FOR THE PEDESTRIAN LINK ...... 24 3.3 PROPOSED DEVELOPMENT...... 25 3.4 DESIGN CONCEPT...... 30 4. PLANNING AND HERITAGE CONTEXT ...... 33
4.1 PLANNING FRAMEWORK ...... 33 4.2 RELATED STRATEGIES ...... 40 4.3 CULTURAL HERITAGE ...... 42 4.4 COMMITTEE RECOMMENDATIONS...... 43 5. OPERATIONAL OBJECTIVES OF THE GAMES...... 44
5.1 THE PEDESTRIAN TASK ...... 44 5.2 PEDESTRIAN CAPACITY OF YPPL...... 45 6. DESIGN AND INTEGRATION ISSUES...... 47
6.1 PEDESTRIAN BRIDGES IN MELBOURNE ...... 47 6.2 BIRRARUNG MARR ...... 48 6.3 NORTHERN SIDE OF PLAZA AND TRAM STOP ...... 51 6.4 NORTHERN PEDESTRIAN LINK ...... 52 6.5 PEDESTRIAN SPACES, ROAD CROSSINGS AND PRIORITIES ...... 53 6.6 PODIUM HEIGHT AND DESIGN ...... 55 6.7 THE BRIDGE LINK...... 59 6.8 YARRA PARK LANDING ...... 60 6.9 COMMITTEE RECOMMENDATIONS...... 62
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7. ACCESSIBILITY...... 65
7.1 ACCESS TO THE YARRA PRECINCT PEDESTRIAN LINK ...... 65 7.2 PEDESTRIAN ACCESS OPTIONS ...... 67 7.3 USERS OF VARIED MOBILITY...... 69 7.4 SIGNAGE AND GENERAL WAY-FINDING ...... 70 7.5 COMMITTEE RECOMMENDATIONS...... 70 8. AMENITY AND IMPACTS ...... 71
8.1 VISUAL AMENITY ...... 71 8.2 NOISE IMPACTS ...... 72 8.3 MANAGEMENT OF GENERAL CONSTRUCTION IMPACTS...... 73 8.4 MANAGEMENT OF OTHER LOCAL AMENITY IMPACTS ...... 76 8.5 MANAGEMENT OF SECURITY AND SAFETY...... 77 8.6 COMMITTEE RECOMMENDATIONS...... 78 9. ENVIRONMENTALLY SUSTAINABLE DEVELOPMENT...... 79
9.1 ESD PRINCIPLES...... 79 9.2 COMMITTEE RECOMMENDATIONS...... 82 10. CONCLUSIONS AND RECOMMENDATIONS...... 83
10.1 CONCLUSIONS ...... 83 10.2 RECOMMENDATIONS...... 87 APPENDIX 1: TERMS OF REFERENCE ...... 90
APPENDIX 2: ADDITIONAL BACKGROUND DOCUMENTS...... 96
APPENDIX 3: WRITTEN SUBMISSIONS RECEIVED ...... 99
APPENDIX 4: TIMETABLE FOR PUBLIC HEARING...... 101
APPENDIX 5: SUMMARY OF SUBMITTER ISSUES...... 103
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EXECUTIVE SUMMARY
This Executive Summary is drawn from the key issues raised in the context of this report. It has been prepared to provide a brief overview of the main issues, and it needs to be read in the context of the Terms of Reference for this project and the Planning Advisory Committee’s response to it.
Background and Consultation (Sections 1 and 2 of Report):
1. A Planning Advisory Committee (the Committee) was established by the Minister for Commonwealth Games, The Hon. Justin Madden MLC to review the Government’s preferred option for development of a pedestrian link from Birrarung Marr to the Melbourne Cricket Ground. The key objective of the pedestrian link, known as the Yarra Precinct Pedestrian Link (YPPL), is to provide ease of pedestrian movement between major venues during the Commonwealth Games, to be held in Melbourne in March 2006. The Proponent for the project is Major Projects Victoria.
2. In undertaking this work, the Planning Advisory Committee has been guided by Terms of Reference for the project, a tight timeline and an understanding that any recommendations it makes should not result in additional cost pressures on the project, which has a set budget of $27.8 million. The Committee has undertaken numerous site visits to the subject land, and its immediate and wider locality during the course of its work.
3. The Planning Advisory Committee has met with a wide range of stakeholders and interested groups, a number of Government authorities and departments, it has called for public submissions and has held a public hearing. It has reviewed a range of background material and information provided to it, and has sought out other material as required. All of the stakeholders indicated varying levels of support for the Yarra Precinct Pedestrian Link as a matter of principle, although there were some differing views on design details, and matters relating to its possible impact on Birrarung Marr.
Development Overview (Section 3 of Report):
4. The Yarra Precinct comprises a number of facilities and sites used for a wide range of cultural and sporting events – all of which are inextricably linked by the Yarra River. Development of this area has been active since the 1980s and it is now recognised as a major tourist and sporting destination in the world. However major infrastructure barriers separate many of these places and connectivity is not optimal. Mobility is
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affected at times of major events and the lack of a reasonably direct route reduces the efficiency and ease with which people can move around and enjoy the wider Yarra Precinct.
5. The proposed Yarra Precinct Pedestrian Link will provide a pedestrian pathway that directly connects the Federation Square and Birrarung Marr area with Melbourne and Olympic Parks, the Melbourne Cricket Ground (MCG) and Yarra Park. It is a key infrastructure project for the Commonwealth Games and it will improve access and exit opportunities for users of the MCG and the Melbourne and Olympic Parks facilities. The link will essentially comprise a pedestrian bridge which will rise out of the middle terrace of Birrarung Marr, cross Batman Avenue, have a two level plaza/pedestrian distribution node near the Tennis Centre Entrance A, and follow across the Jolimont rail corridor and Brunton Avenue, with a landing in Yarra Park west of the MCG.
6. The Government selected a preferred option for the pedestrian link after consultation with key stakeholders. It is proposed to commence the construction of the Yarra Precinct Pedestrian Link in early 2004 and complete construction for use by Australian Football League Grand Final day in September 2005.
Planning and Heritage Context (Section 4 of Report):
7. The Planning Advisory Committee has considered this proposal in accordance with the Commonwealth Games Arrangements Act 2001 which streamlines the planning and approvals process for Commonwealth Games projects. It has undertaken an analysis of the proposal with the relevant provisions of the Melbourne Planning Scheme and has concluded that the State policy objectives found in the Scheme generally support the Yarra Precinct Pedestrian Link. There are some aspects of the local policy provisions the Committee considers the proposal might not fully meet, however some of the recommendations of the Committee go some way in meeting these objectives. The proposal supports the Metropolitan Strategy – Melbourne 2030, and the overall intent of the draft Yarra Plan.
8. The Committee has reviewed the cultural aspects of the proposal and has concluded that subject to compliance with its recommendations, the Yarra Precinct Pedestrian Link will not diminish the cultural significance of Yarra Park or Birrarung Marr. However the final design outcome should acknowledge the pre and post settlement cultural heritage of the environment in which the link will be constructed.
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Operational Objectives of the Games (Section 5 of Report):
9. The Yarra Precinct potentially needs to cope with around 350,000 pedestrians per day during the Commonwealth Games, and the Yarra Precinct Pedestrian Link is integral to enable people to move safely in and around the precinct. Pedestrian activity will be regulated in order to ensure varying dispersal rates, however the pedestrian link will be critically important in providing pedestrian access opportunities that have minimal impacts on road traffic movement. Separation of pedestrians and vehicular traffic is a key operational objective of the Commonwealth Games.
Design and Integration Issues (Section 6 of Report):
10. Melbourne City is characterised by high quality pedestrian bridges and the proposed Yarra Precinct Pedestrian Link should continue this tradition. A competitive design and review process should ensure this.
11. One of the key points of difference in some submissions related to the impact the Yarra Precinct Pedestrian Link might have on the overall integrity of Birrarung Marr. This new park was designed with particular criteria in mind, which did not include a bridge emerging from the middle terrace area. While the City of Melbourne and the Urban Design Group of Department of Sustainability and Environment support the bridge in principle, they urged the Committee to consider an option that saw the bridge rising from the eastern side of Batman Avenue. This consideration is outside of the Committee’s Terms of Reference, however it does have some merit and while there are no specific recommendations in this regard, it may be worthy of further consideration. However it does not achieve the primary objective of providing a fully grade separated option and therefore it does not meet the Government’s operational objectives for the Commonwealth Games in this regard for the Yarra Precinct. The Committee has made a number of recommendations that assist to reduce the impact of the bridge on Birrarung Marr.
12. The Planning Advisory Committee considers that the adjacent VicTrack land is a key strategic site where development opportunities should be maximised. It has potential to provide for a wide range of uses that are complementary to the Sports and Entertainment Precinct and to provide an additional gateway from the City to the precinct. For these reasons, the Committee considers the site should be properly integrated through appropriate planning and design measures – possibly through the application of an appropriate overlay or though urban design guidelines. At the same time the Yarra Precinct Pedestrian Link should not impede the development opportunities for either the VicTrack land or for other adjacent uses.
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13. The Committee considers the design of the podium and plaza is critically important to ensure it is a viable and usable public space which is open and transparent at all times, particularly for safety and amenity reasons. To achieve these objectives it considers the arrangement of the design elements of their expression require review. The staircase component rising to the podium of the plaza requires re-design so that it does not result in such a high climb/descent. At the moment it would be a major deterrent to many able bodied users. The Committee is concerned about the formidable nature of the staircase and its impact on the likely safety of pedestrian flows during major crowd events.
14. While the proposed Yarra Precinct Pedestrian Link will provide an opportunity for a grade separated crossing at Batman Avenue, the “path of least resistance” will mean that pedestrians will still be able to cross Batman Avenue at road level. The existing pedestrian crossing should be re-aligned and widened so that it provides a more direct route from Birrarung Marr to the Tennis Centre. A wider pedestrian path is also more desirable. The Committee considers the efficiency and safety of pedestrian movements at the ground level plaza can be further improved by reducing and reconfiguring the traffic lanes alongside the plaza.
15. The Committee believes insufficient regard was given in the initial proposal to the emerging importance of the northern entrance as a key gateway to the Melbourne and Olympic Parks precinct. The Committee was encouraged by the progress made by the Proponent in the development of Option 3 for an enhanced ground floor plaza and aligned links to Birrarung Marr and the proposed northern entrance to the Tennis Centre. Subject to continued development, the Committee believes this option represents a substantial enhancement in flexibility and pedestrian amenity.
Accessibility (Section 7 of Report):
16. The principal beneficiaries of the proposed Yarra Precinct Pedestrian Link will be pedestrians seeking to enjoy the formal and informal activities and events within the precinct. The Committee is confident the link will achieve its key objectives on big event occasions such as the Commonwealth Games and on other event days. Although the link is strongly aligned with the east-west pedestrian desire line in the Yarra Precinct, it will enhance general accessibility and mobility in the north-south and other orientations.
17. The link will provide additional opportunities for private and public transport users. The Committee considers the Yarra Precinct Pedestrian Link will assist in shortening some of the long walking journeys through the Yarra Precinct. However, the height of the podium at over nine metres, the banks of access stairs and the limited number of ramps may discourage some users. These issues need to be addressed in the final
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design.
18. There are other desirable pedestrian improvements to improve operational safety and efficiency, particularly during major events. These include extending a dedicated pathway along the southern edge of the rail corridor easterly from Rod Laver Arena to Vodafone Arena, and ultimately to Punt Road and Richmond Rail Station.
Amenity and Impacts (Section 8 of Report):
19. While the Committee accepts that there may be some impacts with regard to visual amenity, these mainly relate to the intrusion of new infrastructure in an area previously unencumbered. There will be some noise impacts, particularly during the construction phase, but these will be closely monitored through a proposed Construction Environmental Management Plan. The Committee acknowledges that there will be some night-time construction activities which may impact on nearby residential uses at some stages of the construction process.
20. The Committee supports the implementation of a Construction Environmental Management Plan and a Traffic Management Plan, and supports the continued involvement of the Reference Group until the project is completed. Membership of this group should continue to include The East Melbourne Group Inc., and should include some representation of the Birrarung Marr design team through the City of Melbourne.
21. Management of security and safety and the prevention of vandalism is critical to the successful operation of the Yarra Precinct Pedestrian Link. The design and management arrangements should ensure that security measures are in place at all times.
Environmentally Sustainable Development (Section 9 of Report):
22. The design concept for the Yarra Precinct Pedestrian Link is underpinned by principles of Environmentally Sustainable Development (ESD). The Melbourne Commonwealth Games Environment Strategy commits the Government to minimising the ecological footprint of each Games related infrastructure project. The initial ESD methodology consisted primarily of wind powered generation, waste minimisation and potential storm-water re-use. This was complemented by further work that resulted in additional recommendations to be adopted during the final design stage. While the Committee is confident that the ESD principles adopted for this project are adequate, it supports the inclusion of these improvements. The design would better respond to the ESD opportunities if it were to undertake a precinct as well as a project response.
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Conclusions and Recommendations (Section 11 of Report):
23. The Planning Advisory Committee considers development of the Yarra Precinct Pedestrian Link will add to the urban experience of Melbourne, both during the Commonwealth Games and post Games. It will enable people to safely walk and enjoy the Yarra River and the world-renowned Sports and Entertainment Precinct. It will provide a pedestrian link between the cultural and sporting facilities of Melbourne and will enable patrons to continue the journey along the Yarra River that commences at Docklands, moves through Southbank, along Federation Square and now through to Melbourne and Olympic Parks complex and the MCG. It adds important infrastructure to an area that is heavily utilised throughout the year in a manner that will result in few impacts but numerous benefits. It will enhance the precinct’s relationship with the Yarra River and improve the amenity of the overall precinct in an environmentally sustainable manner.
24. The Yarra Precinct Pedestrian Link will add to an already impressive series of pedestrian bridges in Melbourne, all of which have unique design expressions. Subject to the recommendations made in this report about various design issues, the Planning Advisory Committee is confident the Yarra Precinct Pedestrian Link will sit comfortably with the existing pedestrian bridges in the City of Melbourne. The proposal will not result in net loss of open space and will add to the experience of being able to walk from one facility to another and thus add to the enjoyment of Melbourne’s open space network. The link will be one of the infrastructure legacies of the Commonwealth Games and will leave a significant imprint on the City of Melbourne – both to its own community and to visitors. It will introduce new views to the City and to other features in the Yarra Precinct.
25. The Planning Advisory Committee commends the Yarra Precinct Pedestrian Link as a further link in the continued development of a “walking city”. The link will enhance the synergies between the MCG and Melbourne and Olympic Parks, and the Yarra River. The link will offer a new experience to users and visitors to the precinct. The Committee is satisfied the bridge can be designed to touch both Birrarung Marr and Yarra Park “lightly” with little impact on the existing parks and associated vegetation. It provides opportunities for integrated art to further enhance the reputation of Melbourne as a sensitive and culturally diverse community.
26. The Yarra Precinct Pedestrian Link will contribute positively to the successful implementation of the 2006 Commonwealth Games.
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1. INTRODUCTION
1.1 The Planning Advisory Committee A Planning Advisory Committee (the Committee) to consider the proposed Yarra Precinct Pedestrian Link (YPPL) was appointed by The Hon. Justin Madden MLC, Minister for Commonwealth Games on 28 July 2003. The Committee consisted of:
• Ms Kathryn Mitchell, Chair • Mr Gordon Anderson • Mr Robert McGauran
This Committee has been established under the provisions of the Commonwealth Games Arrangements Act 2001.
On 4 May 2003 the Minister for Commonwealth Games publicly announced a commitment by the Victorian State Government to deliver the YPPL Project. The YPPL comprises a 525-metre bridge spanning the Jolimont Rail Yards between Birrarung Marr and Yarra Park on the western side of the Melbourne Cricket Ground (MCG).
The statutory approvals for the new link are taking place within the legislative framework of the Commonwealth Games Arrangements Act 2001. The Act is intended to facilitate provision of key infrastructure projects in time for the Commonwealth Games that are to be held in Melbourne from 15 to 26 March 2006. The YPPL project will be a designated Commonwealth Games project under the Act. This approach is consistent with the major works for other Commonwealth Games facilities, including redevelopment of the Northern Stand of the MCG, the second stage of the Melbourne Sports and Aquatic Centre at Albert Park and the Games Village at Parkville.
The Proponent for the proposal is Major Projects Victoria.
An advertisement in “The Age” and “Herald Sun” on 7 August 2003 announced the appointment of a Planning Advisory Committee and invited submissions on the proposed YPPL by 29 August 2003. The notice indicated venues for exhibition of the concept design and associated documentation from 6 to 29 August 2003. It outlined key aspects and dates of the Committee process.
Key information and documents about the project and the process, with Request to be Heard forms, were available on the Department for Victorian Communities and Major Projects Victoria websites.
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A Directions Hearing was held at the offices of Planning Panels Victoria with regard to this matter on 4 September 2003. The Committee then met from 16 to 18 September 2003 in the offices of Planning Panels Victoria to consider and hear submissions about the proposed YPPL.
The Committee acknowledges the assistance provided throughout the process by:
• Office of Commonwealth Games Co-ordination, Department for Victorian Communities – Justin Burney and Chris Carter. • Major Projects Victoria, Department of Infrastructure – Arvind David and Rod Johns.
1.2 Terms of Reference The Committee was provided with Terms of Reference (Appendix 1) to provide the context for its work. The Committee’s task is given in Section 4 of the Terms of Reference:
The purpose of the Committee will be to advise the Minister for Commonwealth Games on matters relating to the preferred design option for the Yarra Precinct Pedestrian Link.
In undertaking this work the following matters will be addressed:
• An evaluation of the preferred concept design option of the Pedestrian Link against the broader long-term Government objectives for the Yarra Precinct; • A review of the concept design detail, and scale of the preferred Pedestrian Link in relation to its ability to reasonably meet the operational objectives of the Commonwealth Games; • A review of how the design of the Pedestrian Link: - Integrates with surrounding landscape, land uses and infrastructure including Birrarung Marr Park, Yarra Park, roads, tramways, railways, Melbourne and Olympic Park, and the Melbourne Cricket Ground; - Provides opportunities to advance other developments in the Yarra Precinct; - Gives reasonable access to users of varied mobility; - Incorporates or acknowledges pre and post settlement cultural heritage; - Incorporates environmental sustainable features consistent with the Government’s Commonwealth Games Environment Strategy. • An investigation into the impact of the Pedestrian Link on the local amenity and access by the public and how impacts (if any) can be managed, and • Any other matters the Committee considers relevant.
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In preparing its advice, the Terms of Reference notes the Committee must review all relevant planning reports prepared by the Proponent and consider all written submissions and the outcomes of any consultation with stakeholders.
It says the Committee may recommend to the Minister appropriate conditions and requirements on the redevelopment that should be satisfied. Specifically, the Terms of Reference stipulate that:
The Committee will not be considering those matters already determined by Government, such as whether the Pedestrian Link is necessary, its broad alignment, or whether it represents a net community benefit. These are already matters considered by Government in making its commitment to the project. Similarly, the Committee must ensure that its recommendations do not jeopardise the project being delivered within the financial and time commitments already made by Government to the project.
The Committee has structured its report to directly respond to the Terms of Reference. The role of the Committee is not to recommend or otherwise whether the proposed YPPL should proceed. Its role is to provide advice to the Government on the matters listed as Task 4 in the Terms of Reference. The Committee saw its role as essentially one of “fine tuning” the proposal to ensure a satisfactory and workable outcome.
1.3 Background Information Several key background reports and other documents were provided to the Committee at the commencement and during the course of its proceedings. These included the following documents at the start of the Committee’s work:
1. Report on Proceedings of Project Reference Group Workshop on 11 June 2003; 2. Notes of Project Reference Group Meeting 26 June 2003; 3. Notes of Project Reference Group Meeting 15 July 2003; 4. Commonwealth Games Arrangements Act 2001 (version as at 14 May 2003); 5. Yarra Precinct Pedestrian Link Concept Design Report, 15 July 2003; 6. Yarra Precinct Pedestrian Link Submission Prepared for Public Information, August 2003 (including Appendix A – Terms of Reference and Appendix B – Options Analysis); 7. Brochure Yarra Precinct Pedestrian Link - Linking people to places, August 2003; 8. Pedestrian Modelling of MCG Footbridge Designs, Sinclair Knight Merz, 19 August 2003 – a consolidation of pedestrian modelling information;
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9. Yarra Park Landing Revised Concepts by the Project Team, 22 August 2003.
Documents numbered 6 and 7 were displayed at nominated venues and on the Department for Victorian Communities and Major Projects Victoria websites.
A list of other documents provided mainly by the Proponent is given in Appendix 2.
On 8 and 10 September 2003, the Proponent provided the following documents to the Committee in response to submissions and the Committee’s Directions given on 4 September 2003:
10. Yarra Precinct Pedestrian Link, Plaza Ground Level, Pedestrian Design Review, GTA Consultants, 5 September 2003; 11. Proponent’s Response to Telstra Corporation Limited and CitiPower Pty submissions to Committee; 12. Diagrams of Modelled Pedestrian Flows (Figures 1 to 4) by SKM, September 2003.
On 10 September 2003, the Proponent provided the following documents for the Hearing:
13. Outline of Presentation to Planning Advisory Committee by Cox Architects and Planners, 10 September 2003; 14. Outline of Traffic and Transport Evidence to Planning Advisory Committee (Document C1590), by GTA Consultants, 9 September 2003; 15. ESD Review by Arup, September 2003; 16. Construction Planning by Arup, September 2003; 17. Melbourne 2006 Commonwealth Games letter dated 10 September 2003; 18. Noise Impact Assessment (Report No. 03239A) by Marshall Day Acoustics, 9 September 2003; 19. Construction Environmental Management Plan by HLA-Envirosciences Pty Limited, 2 September 2003; 20. Expert Witness Statement on Landscape Implications by Allan Wyatt of ERM, September 2003; 21. Heritage Impact Assessment by Bryce Raworth Conservation Urban Design, 10 September 2003.
The Committee was provided with the following documents at the Hearing:
22. Submission by Minter Ellison Lawyers on behalf of the Department for Victorian Communities, the Office of Commonwealth Games Co-
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ordination, the Department of Infrastructure and Major Projects Victoria, 16 September 2003; 23. Review of Environmentally Sustainable Design Outcomes by Ark Resources, 15 September 2003; 24. MCG Concourse & Melbourne Park Footbridge Risk Assessment, Risk & Reliability Associates Pty Ltd, November 2000; 25. Drawing of Option 12c showing Extended Alignment of Spring Street by Cox Architects and Planners (tabled 16 September 2003); 26. Drawing of Option 12/Option GTA3 – Ground Level Plaza by Cox Architects and Planners (tabled 17 September 2003).
The Proponent provided the following documents to the Committee after the Hearing:
27. Yarra Precinct Pedestrian Link, Request for Tender – Part B, Brief, Professional Contract Services, Design Services, Department of Infrastructure, Major Projects Victoria, August 2003; 28. Melbourne 2006 Commonwealth Games Environmental Policy; 29. 2006 Melbourne Commonwealth Games the environmental strategy; 30. 2006 Melbourne Commonwealth Games the environment framework summary; 31. 2006 Melbourne Commonwealth Games the environment framework; 32. Cox Architects and Planners A3 Sketch MPV -131-DE-SK I Rev A YPPL - Option 12c, Existing Conditions Plan - Birrarung Marr dated 24 September 2003; 33. Cox Architects and Planners A3 Transparency Sketch MPV-131-DE-SK2 Rev A YPPL - Option 12c, Proposed Layout - Birrarung Marr dated 24 September 2003.
Mr Rob Adams of City of Melbourne forwarded to the Committee after the Hearing:
34. Letter dated 22 September 2003 with a copy of Minutes No. 31 from Council’s Planning Development and Services Committee held on 4 September 2003. Item 5.8 relates to Yarra Precinct Pedestrian Link, Proposed Bridge from Birrarung Marr to Yarra Park and the MCG.
The Committee has reviewed this information, which has assisted in developing its conclusions and recommendations.
The Proponent provided images used in this report unless otherwise acknowledged.
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1.4 Site Visits The Committee made several visits to the subject site and its local and wider surrounds. In particular on 8 August 2003, the Committee made an accompanied site visit as part of an initial comprehensive briefing on the project. On 20 September 2003 the Committee visited the precinct to determine pedestrian movement during major events at both the MCG (AFL preliminary final) and Melbourne and Olympic Parks (Rod Laver Arena – Davis Cup semi-final). On other occasions the Committee made various and sometimes separate site visits to increase its knowledge of the site, the proposed project and understanding of specific issues.
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2. CONSULTATION PROCESS
The Terms of Reference indicate the Committee should inform itself in any way it sees fit. They note the Committee will hold public hearings and may consult with any person or groups it considers relevant. Specifically, the Terms of Reference state:
The Planning Advisory Committee should conduct public consultation in accordance with Section 11 of the Commonwealth Games Arrangements Act 2001. Section 11 requires a notification to be published in newspapers calling for representations within not less than 21 days of the notice appearing. Representations should be in the form of written submissions. Submissions should be confined to addressing those matters raised in Section 4 above. (See Section 1.2 of this report.)
The Committee shall arrange hearings as it sees fit, and will be subject to the following conditions:
• Hearings are to be conducted in public unless specific circumstances warrant an in camera hearing • The Committee may impose time limits on presentations • Cross-examination of witnesses or submitters will not be permitted, although questions may be directed through the Chair at the Chair’s discretion • For the purpose of hearings, the Committee has a quorum of two members • The Committee may continue to function notwithstanding a vacancy in the membership.
The newspaper advertisement placed in “The Age” and “Herald Sun” on 7 August 2003 specifically noted that submissions must address the Terms of Reference, and there would be limited public hearings. At the close of the submission date, 25 written submissions had been received. Four submissions were received after the close date.
As a key early step the Committee was briefed about the project on 8 August 2003. The Proponent’s representative at the briefing was Arvind David, Senior Project Manager. He presented a summary of the extensive investigations, concept design development and stakeholder consultation undertaken, resulting in a preferred option being chosen for the YPPL. Present and assisting in the briefing were:
• Jonathan Gardiner, Cox Architects and Planners; • John Pickford, Connell Wagner; • Peter Burton, Maunsell Australia;
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• Frank Gargano, Arup.
Following the presentation the Committee inspected the site of the proposed YPPL.
The Committee held further meetings with various organisations and stakeholders:
• VicTrack, represented by Andrew Webster and Georgia Bradbury (14 August 2003); • VicRoads, represented by Bruce Hicks, Victoria Police represented by Harry Hayes, Connex represented by Daryl Taylor, and Department of Infrastructure’s Public Transport Division represented by Sergio Lacchiana (14 August 2003); • City of Melbourne, represented by Rob Adams, Vince Haining and Vince Keogh (19 August 2003); • Department of Sustainability - Urban Design Group, represented by Stephen Thorne (26 August 2003); • Melbourne and Olympic Parks Trust, represented by Gareth James and Mark Graham, Melbourne Cricket Club represented by Trevor Dohnt and Melbourne Cricket Ground Trust represented by David Waldren (26 August 2003); • Major Projects Victoria, represented by James Cain and Arvind David (26 August 2003); • East Melbourne Group, represented by Margaret Wood (28 August 2003); • Yarra Trams, represented by Les Kulesza and Geoff Lockwood (11 September 2003); • Department of Infrastructure - Office of the Director of Melbourne CityLink, represented by Geoff Rayner and Graham Gosby (11 September 2003).
At the conclusion of the initial consultation meetings, on 28 August 2003, the Committee held a briefing with the Proponent to advise on the key issues that had emerged so far. In this way, the Proponent was then able to more fully respond to the key issues.
The Committee Hearing for the YPPL was held over three days – 16 to 18 September 2003 - at the offices of Planning Panels Victoria. A detailed Timetable is attached at Appendix 4. The following parties were represented and/or heard:
• Major Projects Victoria (Proponent), represented by Mark Naughton, Minter Ellison; • Melbourne Cricket Club, represented by Don Wilkinson (Submission No. 7); • City of Melbourne, represented by Rob Adams (No. 11); • James Badcock (No. 13);
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• Helen Page (No. 16); • Ronald Jones of Jones & Whitehead Pty Ltd (No. 17) and others in the Birrarung Marr Design Team; • Robert Mann (No. 20); • VicTrack, represented by Rob Burgess, KLM Gerner Consulting Group (No. 21).
Victoria Police (Submission No. 25) withdrew its Request to be Heard, however its representatives, David Short and Kevin Close, attended the Hearing at the start of Day 2 to respond to questions from the Committee. Halvard Dalheim (Submission No. 14) who was scheduled to be heard on Day 1 did not appear.
A summary of the key issues from written submissions and from the Committee’s consultation with the various stakeholders is attached at Appendix 5.
The conclusions of the Committee directly respond to the Terms of Reference, while the recommendations include those that have emerged in response to the Terms of Reference, and others, which the Committee considers should be further considered and followed up by the Proponent and other parties.
In reaching its conclusions and recommendations, the Committee has read and considered all submissions and other material referred to it. All issues raised in written submissions and at the consultation meetings with key stakeholders have been treated equally. In addressing the issues the Committee has been assisted by the information provided to it as well as its own observations from inspections of the site of the YPPL and surrounding area. The Committee has identified several key issues that need to be addressed, which can be broadly summarised in the context of its Terms of Reference as follows:
• Planning and Heritage Issues – See Section 4 of this Report • Commonwealth Games Operational Objectives – Section 5 • Design and Integration - Section 6 • Accessibility - Section 7 • Amenity and Impacts - Section 8 • Environmentally Sustainable Development – Section 9 • Other Issues – Section 10 • Conclusions and Recommendations – Section 11
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In preparing its report, the Committee has largely depended upon the written material and evidence provided by the Proponent. No other party tendered written evidence and while there were some issues where other parties disagreed with the views of the Proponent, evidence was not provided to support those views. In saying this, the Committee valued the input from all submitters and stakeholders and considers the various reports and submissions have added a great deal of value to this overall process.
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3. THE YARRA PRECINCT PEDESTRIAN LINK PROPOSAL
This section of the report provides the existing context of the proposed YPPL, the need for the pedestrian link and the proposed development and its design concept.
3.1 Existing Context Since the 1980s Melbourne has continued to embrace the edges of Port Phillip Bay and the Yarra River for living, business, leisure and recreation. In central Melbourne major land use change has occurred through urban renewal along both sides of the Yarra River and in Docklands. The focus is on public enjoyment of the new facilities and urban spaces created by redeveloping largely run-down and under-used areas.
Major investment has been made by the State Government and sporting clubs and associations in developing significant new cultural and sporting venues and enhancing the quality of experience of a series of pre-existing facilities in this corridor.
The capacity to accommodate large numbers of people who seek to move in and around these venues and revitalised waterfronts and surrounding areas is an important objective.
A long-term vision known as the Yarra Plan seeks to connect the key parts of central Melbourne using the asset of the Yarra River as a primary spine. It extends from Docklands at the western edge of the City to the Yarra Precinct with its parks, gardens and the entertainment and sports venues east of the City to Richmond as shown in Figure 3.1.
The Yarra Precinct at the right-hand side of Figure 3.2 includes Melbourne and Olympic Parks, the MCG, Birrarung Marr, Federation Square, Alexandra Gardens and Yarra River. The precinct is one of Melbourne’s key competitive assets internationally. It attracts tourists and business personnel to join in the full range of sporting, cultural and business opportunities.
Page 21 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
Figure 3.1 – Yarra River Corridor in Central Melbourne (Source: Department of Sustainability and Environment Urban Design Group)
The Yarra Development Plan comprises 41 projects. These are portrayed in Figure 3.2.
Figure 3.2 – Yarra Development Plan (Source: Department of Sustainability and Environment Urban Design Group)
Page 22 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
Birrarung Marr is a new park that was commissioned by the State Government and principally developed by the City of Melbourne. It is not a traditional park providing a green retreat but, as expressed by representatives of the design team, is “an urban place, designed to embrace society and civic life, and to celebrate public activity as a source of interest”.
The Melbourne Cricket Ground (MCG) is widely recognised as a national and international icon for sport. It is generally regarded as Australia’s premier sporting facility with two of its most sought-after and popular events including the Australian Football League (AFL) Grand Final and the Boxing Day Cricket Test. It is used as a preferred and regular venue for AFL football games from late March to the Grand Final on the last Saturday in September, and it has a full programme of test and one- day cricket events from December to February. The MCG has hosted many one-off national and international sporting events such as rugby and soccer, and is used as a concert venue when large numbers of people are likely to attend.
Melbourne and Olympic Parks complex includes several sporting and entertainment facilities: Melbourne Park (Rod Laver Arena and Tennis Centre), home to the Australian Tennis Open, the Vodafone MultiSports venue, the former Glasshouse facility, and Olympic Park.
The MCG is located within Yarra Park which forms part of a connecting series of major open spaces in Melbourne through to East Melbourne.
The residential areas of East Melbourne and Jolimont adjoin the northern edge of the precinct. The East Melbourne residential area largely comprises well established single and two storey dwellings, many of which are of some heritage value. The Jolimont area comprises new apartment style dwellings that have been developed within the past ten years.
The Exhibition Street Extension from the City, known as Batman Avenue, connects to CityLink and acts as a threshold between the urban and social space of Birrarung Marr and the more formal infrastructure of the rail corridor and the sports and entertainment facilities.
The Railway Corridor comprises infrastructure including many sets of tracks that carry suburban and regional train passenger services and freight services generally east of the City.
The VicTrack Jolimont Site that is on the southern edge of the rail corridor and surplus to train operating requirements - see Figure 3.3.
Page 23 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
Figure 3.3 – VicTrack Site Plan at Proposed Plaza (Source: VicTrack Submission)
The Yarra River flows along the southern edge of the precinct.
3.2 Need for the Pedestrian Link The Yarra Precinct will be the centrepiece for the 2006 Commonwealth Games as it will host most of the sporting and cultural events.
Although the entertainment, sport and lifestyle venues and places in the Yarra Precinct are separated by several major infrastructure barriers, the existing connections and open space adequately provides for most people movements to and within the precinct. However, east-west connectivity through the precinct between the area comprising Flinders Street Train Station, Federation Square and Southgate in the west and the area comprising the MCG and Richmond Train Station in the east is largely indirect and circuitous.
Mobility is affected at times of major events such as the Commonwealth Games, with increased pedestrian activity and movements between the areas in the west and the sporting and entertainment facilities in the east. The lack of a reasonably direct link reduces the efficiency and ease with which all people, particularly event attendees, can move around and enjoy the Yarra Precinct.
The State Government is committed to providing a pedestrian path that links major venues in the Sporting and Entertainment Precinct with Federation Square, Southbank and other key activity areas on the south edge of the City.
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3.3 Proposed Development (i) Proposal
The proposed YPPL will provide a pedestrian pathway on the desire line between Docklands and Richmond, as identified in the Yarra Plan. Specifically within the local precinct, the YPPL will provide a clear pathway connecting Flinders Street Station, Federation Square, Birrarung Marr, Melbourne and Olympic Parks, the City and the MCG. The biggest single source of use will be as an access and exit route for major events at the MCG. Aerial photographs of the Yarra Precinct, the proposed YPPL and its environs are shown in Figures 3.4 and 3.5.
Figure 3.4 – Yarra Precinct and Environs
Figure 3.5 – Proposed YPPL
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Existing infrastructure is not considered sufficient to cope with predicted operational requirements and patronage demand during the Commonwealth Games. The proposed YPPL will relieve congestion in this area, particularly during the Commonwealth Games when up to 350,000 people are expected to use the Yarra Precinct each day.
The YPPL is a key project for the Commonwealth Games in March 2006. The Government is committed to start construction early in 2004, with completion by the end of 2005. Commissioning of the YPPL is intended before the AFL Grand Final on 3 September 2005 to test and refine pedestrian management plans before the Commonwealth Games. The budget for the Commonwealth Games has been announced and Government funding is capped at $27.8 million.
The YPPL comprises:
• A pedestrian bridge rising out of the middle terrace of Birrarung Marr and crossing Batman Avenue. • A two-level plaza/pedestrian distribution node near Tennis Centre Entrance A, with access to Batman Avenue and the facilities within Melbourne and Olympic Parks. • A pedestrian bridge across the Jolimont rail corridor. • A pedestrian bridge across Brunton Avenue to land in Yarra Park west of the MCG.
As summarised in the Terms of Reference (Appendix 1) this major piece of infrastructure will:
• Become the main pedestrian thoroughfare and a direct link between the major sports venues, cultural activities, cafes and restaurants along the Yarra River. • Provide an alternative to the existing congested and circuitous pedestrian routes around the Precinct. • Reduce congestion in the Precinct during peak times. • Enhance mobility and access for everyday use. • Provide long-term benefit for the precinct by connecting the MCG directly to public transport facilities at Flinders Street Station and St Kilda Road/Swanston Street, thereby reducing pressure on Richmond Train Station. • Facilitate pedestrian movement from the Yarra River to Bridge Road, Richmond. • Maximise long-term benefits to the patronage of Federation Square, Southbank and the facilities further along the Yarra River before and after events.
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The YPPL will improve pedestrian access and exit arrangements at the MCG. The northern boundary and access to Melbourne and Olympic Parks will be improved.
The proposal will address concerns about poor pedestrian access otherwise expected within the Yarra Precinct during the 2006 Commonwealth Games and provide long- term benefits for Melbourne and the Yarra Precinct.
As part of this process, several concept design options were prepared for the proposed YPPL, all of which were underpinned by the desire of Government to provide a link which was grade separated from Birrarung Marr through to the MCG. On 30 July 2003 the Government announced a preferred design option (known as Option 12).
The options considered involved different combinations of alignment and structural form as described in the exhibited documents. The options were evaluated against the following criteria:
• Design objectives – break the journey; make it legible, safe, accessible, memorable, and able to respond to changing circumstances; • Performance objectives – avoid congestion, follow the desire line; • Constructability requirements; • Project completion by end of 2005; • Cost - the preferred design option must be able to be constructed within the fixed budget of $27.8 million; • Key stakeholders support - it was important that the directly affected parties support the preferred design option.
The preferred option was chosen after consultation with key stakeholders. They included the City of Melbourne, the Melbourne Cricket Ground Trust and Melbourne Cricket Club, The East Melbourne Group Inc., road and public transport operators and owners and the Melbourne and Olympic Parks Trust (MOPT). An existing view from the City towards the sporting and entertainment venues is shown in Figure 3.6. An image of the preferred option is shown in Figure 3.7.
Page 27 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
Figure 3.6 – View of Precinct (looking South-East from the City)
Figure 3.7 – Preferred Option
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An image of part of the proposed pedestrian plaza, a key part of the YPPL, is shown in Figure 3.8.
Figure 3.8 – Image of Plaza Area looking towards the City
The layout of the preferred option with a summary of its key features is shown in Figure 3.9. The matching profile is shown in Figure 3.10.
Figure 3.9 - Layout and Summary of Key Features - Preferred Option
Page 29 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
Figure 3.10 - Profile - Preferred Option
(ii) Proposed Timing and Staging
As indicated in Section 2.2, the proposed broad timing is:
• Early 2004 - Start construction; • By 3 September 2005 – Commission new YPPL to test pedestrian management plans on day of AFL Grand Final; • End 2005 – Finish construction; • March 2006 – Commonwealth Games.
Significant stages of the total programme extracted from Yarra Precinct Pedestrian Link Concept Design Report, 15 July 2003 (Document 5 listed in Section 1.3) include:
• July 2003 to April 2004 – Tender Phase; • April to October 2004 – Detailed Design and Approvals; • July 2004 to May 2005 – Construct Bridge over Railway Corridor; • August 2004 to January 2005 – Construct Plaza, including connections to Batman Avenue and Melbourne and Olympic Parks; • September 2004 to May 2005 – Construct Bridge from Birrarung Marr across Batman Avenue to Plaza; • November 2004 to March 2005 – Construct Bridge from Railway across Jolimont Street/Brunton Avenue to Yarra Park; • June to September 2005 – Finish Works (including 15% delay allowance).
3.4 Design Concept The intent of the design concept presented to the Committee as described by the Proponent is as follows:
• Birrarung Marr component - a land bridge, terminating on the middle terrace of Birrarung Marr and designed to integrate with existing land bridges and land against the slope so as not to impact on the events space on the top surface. Further explanatory drawings presented during the Hearing indicated a lightweight bridge structure supported off a skeletal system of steel posts for around half its span to Batman Avenue with the balance
Page 30 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
supported on a gabion wall structure into which landings and staircases would be incorporated. Paved areas of the middle terrace would be varied to receive this new arrival point and manage pedestrian dispersal. Transitional lighting has been considered but not indicated in the landing area. The existing east-west pedestrian and service ramp from Batman Avenue would be removed. A new ramp graded at no more than 1 in 16 descending from this landing area to a point near the crossing of the primary lower east-west asphalt pathway would be formed requiring the reconstruction of the northern embankment and floral display. The bridge is proposed to be 6 metres in width.
• The Batman Avenue (Exhibition Street Extension) crossing – A lightweight single span concrete structure, 6 metres in width, with glass, steel and mesh balustrade components supported on concrete columns to each end.
• The Plaza area is conceived to provide direct connections to Melbourne and Olympic Parks and towards the City via Batman Avenue and allow further integration with the redevelopment of these sites. It has been designed to visually break up the area, funnel pedestrians from one section of the YPPL to the next, allow light to the tram stop below and create connection between the podium and ground levels below. The plans feature a large yellow concrete folded land form and staircase to the northern edge of the element forming the edge to the landscape and rising to a height of approximately 11 metres. This stair is held at its internal edge for the upper two flights of stairs by a further concrete white planar form of similar height and rectangular profiler that frames with a matching panel to the south an upper westward projecting landing area into which the lift is located. The lift is framed to each side by vertical yellow concrete panels that fold outwards at their vertical termination part way up the element. The lift itself is glazed to the front and rear and capped with a vertical wind turbine, which is said to form a key platform of the sustainability demonstration objective for the project. Staircases to the south and south-east deliver pedestrians down to Batman Avenue and the southern tram stop platform areas respectively and are again proposed in concrete with metal balustrade. The ground floor area proposes no amendment to the existing road configuration into and out of the Tennis Centre and VicTrack land to the north (see Figure 3.3) and no change to the tram shelter arrangements save for the increased coverage of the lower area. Both the podium and the column supporting structure are to be constructed in concrete.
• The Rail Corridor crossing is straight and follows the desire line to the MCG. The structural form is a relatively low profile, although some elevated
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superstructure is required to minimise weight and depth. The deck is proposed to be 9 metres in width and formed of concrete. Outrigger structures from the deck area are to be formed to prevent debris dropped off the bridge falling onto electrified overhead system for the trains below. The bridge upstands have been designed for access by lightweight emergency and service vehicles. Balustrades have been designed to a height of 1.2 metres and the structure located centrally so as to maximise the apparent sense of openness of the bridge form.
• The Brunton Avenue crossing and Yarra Park termination have been conceived similar to the Birrarung Marr termination. A single span concrete bridge supported on concrete columns with lightweight balustrade is used as the methodology for the Brunton Avenue crossing. A land bridge form terminating in a timber decked gabion structure landing is proposed in Yarra Park parallel to Jolimont Street. A new 6-metre wide pathway has then been formed up to the Electricity Substation and bus/taxi area where it will join the new MCG concourse and pathway. Tree removal and relocation has been limited to a peppercorn and oak tree through the selection of this alignment. Removal of an existing pathway system west of the land bridge on Jolimont Street and diagonally through Yarra Park is proposed to maximise the soft landscaped area.
The design concept is underpinned by Environmentally Sustainable Development (ESD) principles. The document 2006 Melbourne Commonwealth Games the environmental strategy commits the Government to “minimising the ecological footprint of each Games related infrastructure project”. In addition the Strategy requires projects to be carbon neutral, low waste and water wise.
The initial ESD methodology consisted primarily of wind-powered power generation, waste minimisation and potential stormwater reuse. Fittings and equipment are to be selected with regard to their energy efficiency and embodied energy. ESD issues are further discussed in Section 9 of this report.
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4. PLANNING AND HERITAGE CONTEXT
This section of the report discusses the planning and heritage context of the YPPL. It includes a brief analysis of how the proposal responds to the State planning framework, the Metropolitan Strategy, and the Melbourne Planning Scheme. With regard to the planning context, the Terms of Reference require the Committee to specifically address two issues. These include “an evaluation of the preferred concept design option of the Pedestrian Link against the broader long-term Government objectives for the Yarra Precinct” and “A review of how the concept design of the pedestrian link ….. incorporates or acknowledges pre and post settlement cultural heritage”.
The Committee is considering this proposal in accordance with the Commonwealth Games Arrangements Act 2001, the purpose of which is to streamline the planning and approvals processes for Commonwealth Games projects. It provides for a system of Ministerial Orders, including an Advisory Committee process and consideration of submissions.
The Planning and Environment Act 1987 (and other related legislation) does not apply to designated Commonwealth Games Projects that are referred to a Planning Advisory Committee, which means that a planning permit is not required for a designated Commonwealth Games project. The Committee was informed that it is anticipated that the Yarra Precinct Pedestrian Link will be a designated Commonwealth Games project under the Commonwealth Games Arrangements Act 2001. Notwithstanding this, the Committee has provided a short analysis of the planning context of the proposal and assessed it accordingly.
4.1 Planning Framework
The planning framework for the YPPL is found in the Melbourne Planning Scheme, through the SPPF, the MSS and LPPF and through the zone and overlay provisions.
(i) State Planning Policy Framework (SPPF)
The purpose of the SPPF in planning schemes is to inform planning authorities and others of those aspects of state level planning policy which need to be taken into account and give effect to planning and development proposals. Planning policies are directed to land use and development through the Planning and Environment Act 1987, a primary objective of which is to provide for the fair, orderly, economic and sustainable use and development of land. Clause 11 of the SPPF contains seven principles of land use and development planning, namely settlement, environment,
Page 33 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003 management of resources, infrastructure, economic well-being, social needs and regional co-operation.
Clause 11.02 states that:
The State Planning Policy Framework seeks to ensure that the objectives of planning in Victoria (as set out in Section 4 of the Planning and Environment Act 1987) are fostered through appropriate land use and development planning policies and practices which integrate relevant environmental, social and economic factors in the interests of net community benefit and sustainable development.
The SPPF in the Melbourne Planning Scheme recognises the Capital City role of the City of Melbourne as the major focus of activity in finance, retail, commerce and tourism, culture and entertainment, and the environmental and recreational values of the Yarra River. There are a number of clauses relevant to this proposal and these are briefly outlined.
Clause 15.10 relates to open space and the objective is “To assist creation of a diverse and integrated network of public open space commensurate with the needs of urban communities and rural areas”. The clause notes that planning and responsible authorities should ensure open space networks:
• are linked through the provision of walking and cycle trails and rights of way • …. • incorporate, where possible, links between major parks and activity areas, along waterways and natural drainage corridors, connecting places of natural and cultural interest, as well as maintaining public accessibility on public land immediately adjoining waterways and coasts.
Heritage is dealt with at Clause 15.11, the objective of which is:
To assist the conservation of places that have natural, environmental, aesthetic, historic, cultural, scientific or social significance or other special value important for scientific and research purposes, as a means of understanding our past, as well as maintaining and enhancing Victoria’s image and making a contribution to the economic and cultural growth of the State.
Clause 15.11-2 provides the following State-wide policy in respect of heritage:
Planning and responsible authorities should identify, conserve and protect places of natural or cultural value from inappropriate development: These include:
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• Places of botanical, zoological or other scientific importance, including national parks and conservation reserves and the habitats of rare or endangered plants and animals. • Places and sites of geological, palaeontological or other scientific importance, including rock formations and fossil sites. • Places of Aboriginal cultural heritage significance, including historical and archaeological sites. • Sites associated with European discovery, exploration and settlement of Victoria. • Important buildings, structures, parks, gardens, sites, areas, landscapes, towns and other places associated with the historic and cultural development of Victoria, including places associated with pastoral expansion, gold mining, industrial development and the economic expansion growth of Victoria.
This proposal gives effect to the SPPF, as it recognises the need to specifically identify and seek to protect places of cultural value, including important structures associated with the historic and cultural development of Victoria. Cultural heritage is dealt with further in Section 4.3.
To a certain extent, Clause 18.02 has some relevance in that it seeks to ensure that there is good car parking and public transport access to development, and that consideration should be given to all modes of travel (including walking and cycling).
The design and built form objectives at Clause 19.03 in the SPPF seek to achieve high quality urban design and architecture that:
• Reflects the particular characteristics, aspirations and cultural identity of the community; • Enhances liveability, diversity, amenity and safety of the public realm; • Promotes attractiveness of towns and cities within broader strategic contexts.
Developments should achieve architectural and design outcomes that contribute positively to local urban character and enhance the public realm. Design principles are identified, with the key principles in this proposal relating to context; the public realm; landmarks, views and vistas; pedestrian spaces; heritage; light and shade; energy and resource efficiency; architectural quality; and landscape architecture. The Committee comments on the design issues as they relate to the YPPL in Section 6 of this report.
Overall, the Committee accepts the proposed Yarra Precinct Pedestrian Link is consistent with, and implements relevant aspects of the State Planning Policy Framework.
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(ii) Local Planning Policy Framework (MSS and LPP)
The Municipal Strategic Statement (MSS) for Melbourne is found at Clause 21 of the Planning Scheme. It provides the strategic planning, land use and development objectives for the municipality and the strategies and actions for achieving those objectives. The Melbourne MSS sets out the vision for the future development of the municipality. Local Planning Policies are the tools used to implement the objectives and strategies of the MSS. The City of Melbourne has recently exhibited and held a Panel Hearing for its new MSS (Amendment C60). The MSS for the City of Melbourne is extensive and it is not proposed to detail the relevant aspects here. The Proponent’s submission briefly highlighted some of the key provisions, and in essence the Committee adopts that summary.
The MSS for Melbourne is in two parts: Part 1 is CityPlan and Part 2 contains aims and objectives for identified precincts (for example Southbank and Parkville) within the municipality. CityPlan identifies aims to achieve a Prosperous, Innovative, Culturally Vital, People, Attractive and Sustainable City.
The Sports and Entertainment Precinct is identified in Part 2 of the MSS as the location of venues of State and national significance.
The revised MSS sets the broad framework and vision for the future of the City, which includes strengthening and enhancing the Capital City role of the City of Melbourne. The Capital City role includes:
• A centre for entertainment, arts, leisure and sport, including key sporting facilities such as the MCG, Tennis Centre, Docklands Stadium, and major metropolitan parks and gardens • Tourism and visitor gateway and home of major international events and festivals
The Planning Scheme increases focus on the Yarra River corridor with improvements to the north bank of the River and enhanced links with the Hoddle Grid. The wider precinct is now proposed to be included in the “Domain Parklands and the Sports and Entertainment Area” at Clause 21.03-2 which notes following:
Domain Parklands and the Sport and Entertainment Area
This precinct includes some of the largest areas of parklands in the vicinity of the central city along the Yarra river corridor. It provides passive recreational, cultural and entertainment opportunities. …… More active organised sporting spaces and facilities are provided in the Sport and Entertainment Area including the MCG and Melbourne Park and Olympic Park.
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Through the redevelopment of the MCG, its role as a pre-eminent sporting stadium and tourist attraction will be consolidated. Enhancements planned to the Sports and Entertainment Precinct in the lead up to the 2006 Commonwealth Games will consolidate the role of this precinct.
Strategic role
On the edge of the Central City with the Yarra River major parklands and a nationally important Sport and Entertainment Precinct, this area will provide Melbourne with world class recreational, entertainment and leisure facilities. The beauty, cultural value and functionality of the parklands and the institutions within and around the area should be supported and not jeopardised by intrusive development. The area will provide recreational activities along the Yarra River corridor and an improvement of links within, to and from the Yarra River and parklands.
Clause 21.05-5 provides objectives and strategies for recreation, entertainment and the arts, with a key objective being to “support and enhance the City’s major sports and entertainment facilities in recognition of their national importance”. Strategies in the revised MSS to support this objective include:
• Support the functioning and growth of sports and entertainment facilities commensurate with their key state and national role. • Ensure that any future development within or abutting the Sports and Entertainment Area incorporates provision for improving public transport access for large crowds attending events in the area. • Ensure that existing access to, links between and the provision of public transport facilities, to the area are maintained and enhanced. • Support the maintenance of the natural state of Yarra Park and minimise the impact of car parking.
Clause 21.06 relates to City Structure and Built Form and with regard to “Improved Connections” variously includes the following strategies:
• Ensure that the Central City, Yarra River and Docklands waterfront are physically and visually linked. • Support enhanced public space and pedestrian and cycle connections on both sides and across the Yarra River. • Improve links between the waterside entertainment and recreational attractions. • Support enhanced links between Birrarung Marr and Alexandra Gardens. • Support links from the Sports and Entertainment Precinct to areas to the north and east especially Richmond Station and other public transport nodes.
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Clause 21.06-3 relates to “Public realm quality and pedestrian and disability access”. The Committee notes that the Proponent did not bring these objectives or the related strategies to its attention. In this regard the three objectives are significant:
• To increase the vitality, amenity, comfort, safety and distinctive city experience of the public realm. • To facilitate walking, cycling and disabled access. • To remove barriers to access for people with mobility and vision impairments.
As discussed in Sections 6 and 7, one of the key concerns the Committee has about the proposed link is the sheer number of stairs at the northern side of the Plaza, and the impact this may have on accessibility, not just by those with some mobility constraints, but by able-bodied users.
Community safety is addressed at Clause 21.06-5 where it notes that “the creation of a safe city environment is important for residents, workers and visitors to the City”. The objectives to support this goal include:
• To create a city environment where the community feels safe and comfortable. • To ensure that the design of new buildings and spaces promotes personal safety and helps reduce the fear of crime.
Relevant strategies include:
Development should: • Enable people to be seen, to see and to interpret their surrounds. • Enable people to leave an area or seek assistance when in danger through legible design and clearly defined ownership patterns. • Provide casual surveillance of streets and public spaces. • ….. • Avoid the use of materials that are susceptible to damage and vandalism.
Ensure that principles of public private safety are incorporated in the design of buildings and development of public spaces. ….. Encourage interaction and surveillance between the public domain in the design and layout of new sues and activities along important pedestrian networks.
Again, the objectives and strategies were not brought to the attention of the Committee, however the issue of crime and safety was a key issue raised by a number of submitters, including Victoria Police. The Committee addresses these
Page 38 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003 matters in Sections 6, 7 and 8 of this report.
The Committee is reasonably confident that the YPPL will contribute to the achievement of the objectives and strategies in the revised MSS, but considers that some issues relating to the public realm and community safety need to be better addressed.
There are a number of Local Policies that have some relevance to this proposal, and these include the following:
• Clause 22.01 - Urban Design within the Capital City Zone Policy • Clause 22.02 – Sunlight to Public Spaces • Clause 22.19 – Ecologically Sustainable Buildings • Clause 22.20 – Bicycle Facilities
The Committee accepts that the YPPL is reasonably consistent with and implements the current and revised MSS, and the Local Planning Policy Framework in the Melbourne Planning Scheme. Overall the pedestrian link supports the City of Melbourne’s sustainability objectives, because it will promote walking and the increased use of public transport.
(iii) Zones and Overlays
Most of the land in the Yarra Precinct is included in the Public Park and Recreation Zone in recognition of its role as public open space available for public recreation. The link’s “landings” in Birrarung Marr and Yarra Park are on land included in this zone.
The Jolimont rail corridor is included in the Public Use Zone 4 (Transport).
A Heritage Overlay (HO2 - East Melbourne and Jolimont Precinct) applies to Yarra Park.
The area north of Jolimont Street and east of Jolimont Road is zoned Business 5. The purpose of this zone is to encourage the development of offices or multi-unit dwellings. The land north of the railway corridor and west of Jolimont Road is zoned Residential 1.
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4.2 Related Strategies The YPPL must have varying degrees of regard to a number of strategic documents. Those of particular note include the Metropolitan Strategy and Yarra Plan.
(i) Metropolitan Strategy – Melbourne 2030
On 8 October 2002, Melbourne 2030, the Metropolitan Strategy became a document that Responsible Authorities must consider. Melbourne 2030 - Planning for Sustainable Growth, presents the State Government’s “blueprint” for the future growth of Melbourne. The strategy is based on a vision, principles and key directions.
The YPPL proposal will contribute to Melbourne’s reputation as one of the most livable, attractive and prosperous areas in the world for residents, businesses and visitors. It will contribute to the achievement of the vision and key principle of sustainability by encouraging alternatives to car transport and increased use of public transport.
The link will enhance the role of Melbourne as a Capital City, and its riverside setting and the Yarra Precinct as the premier sport, recreation and entertainment destination in Victoria. Initiatives include completing the currently committed civic improvement projects including the new facilities for the Commonwealth Games, improvements to the Yarra Northbank precinct and working towards completion of the Yarra Plan.
Melbourne 2030 identifies the Yarra Plan as contributing to the strengthening of Central Melbourne’s functions and its role as the primary business, retail, sport and entertainment hub for the metropolitan area. According to Melbourne 2030, the Government wants to see the Yarra Precinct developed as:
• An essential part of Central City attractions. • A highly accessible and safe area. • A high quality pedestrian and cycling environment with linkages along and across the precinct. • An area capable of hosting major festivals and events. • A focus for the 2006 Commonwealth Games.
Key projects identified in Yarra Plan include:
• Constructing Northbank promenade between Docklands and Birrarung Marr. • Upgrading the MCG. • Upgrading Melbourne and Olympic Parks.
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The Committee accepts that the Yarra Precinct Pedestrian Link is consistent with and implements the policy directions in Melbourne 2030.
(ii) Draft Yarra Plan 2002
The Yarra Development Plan is the State Government’s vision for the Yarra River Corridor including Yarra Precinct. It identifies Melbourne as a City with six Outcomes as follows:
• Melbourne – A Waterfront City • Melbourne – A City for Celebration • Melbourne – A Connected and Accessible City • Melbourne – A Living City • Melbourne – A Prosperous City • Melbourne – A Sustainable City
In commentary about A City for Celebration, the Committee notes that there are a number of projects proposed to enhance Melbourne as an international event venue and in preparation for the 2006 Commonwealth Games. Project 21 recognises a link from Federation Square to the MCG – “to facilitate direct pedestrian access from Federation Square to the MCG”. Project 19 proposes an enhanced land bridge between the MCG and the Melbourne and Olympic Parks areas – “linking two international standard venues with an event plaza”. Project 21 is again highlighted in projects for A Connected and Accessible City that aims to establish continuous and connected networks of paths and promenades.
The broad objectives as outlined in the Yarra Plan (sourced from Yarra Precinct Pedestrian Link, Pedestrian Access Options, Report 5746/19/001 Revision 3, Connell Wagner Pty Ltd) are to:
• Link major attractions and activities along the Yarra River via coherent, visible and intelligible networks of great public spaces and pathways. • Provide visible public pathways to the sporting complex at the MCG, the Melbourne Tennis Centre and Olympic Park that are easy to find and use especially from the City. • Improve the connections and links between major attractions and activities along the Yarra River to achieve the cultural, economic and social "multiplier effect" with its associated environmental benefit - the essence of sustainable development. • Provide walking and cycling opportunities for local and visiting people. • Improve access to activities for people of all ages, abilities and income levels.
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• Enable the safe and effective operation of events. • Create pathways for continuous access along both sides of the Yarra River and links into the adjacent business or residential areas. • Enable direct pedestrian access from Federation Square to the MCG. • Link facilities in a way that increases ease of access, safety, comfort and amenity for the 2006 Commonwealth Games.
Both the City of Melbourne and the Department of Sustainability and Environment Urban Design Group emphasised the significance of Yarra Plan and considered it was the result of a great deal of government initiative and work. At the time of writing this report, the Committee had not been advised of its formal adoption by Government and thus has taken the report into account but afforded no special weight to it. It would seem that the overall, the intent of the YPPL is consistent with Yarra Plan, although the specific alignment might be slightly different. This is a matter for resolution by the Government if required at a later stage. So far as the broad objectives and strategies of Yarra Plan is concerned, the Committee is satisfied the proposed YPPL does not conflict.
4.3 Cultural Heritage Yarra Park is included in Heritage Overlay 2 under the provisions of the Melbourne Planning Scheme. The overlay covers an area to the north of Brunton Avenue and includes the Yarra Park area and the developed parts of Jolimont and East Melbourne. The MCG is identified as a heritage place in the Melbourne Planning Scheme and is protected under its own Heritage Overlay (890). The MCG is a registered place (H1928) under the provisions of the Heritage Act 1995.
The Proponent engaged Bryce Raworth, Conservation Architect, to review the design concept for the YPPL and to assess potential impacts on the heritage assets in the Yarra Precinct and Yarra Park. Issues about any heritage and cultural significance of the proposal were not raised in the submissions and there was very little discussion about these matters at the Hearing. Mr Raworth was not called to present his evidence and his report was tabled.
Mr Raworth made the following comments in his report about the various heritage assets on Yarra Park:
The individual heritage assets in Yarra Park were assessed in the Yarra Park Conservation Analysis prepared for the City of Melbourne by John Patrick Pty Ltd with Bryce Raworth Pty Ltd in July 2001. A small number of significant heritage items were noted in the western sections of the park near the termination of the proposed link. These included an electrical substation on Jolimont Street and the western drinking fountain
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(one of a pair located along the Brunton Road frontage). No significant trees were identified near the proposed termination of the link, but it does terminate near a path identified within the Yarra Park Conservation Analysis and is also proximate two rows/avenues of oaks identified in the report.
Mr Raworth then went on to identify the particular issues of significance about the drinking fountains, the electrical substation and the avenues and paths and the Committee accepts that these would not be adversely impacted by development of the proposed link.
The Proponent indicated that it is possible for the detailed design of the link or the associated public art feature to incorporate acknowledgement of the pre and post settlement cultural heritage of the environment in which the link will be constructed. The Committee considers this is an important issue and should be acknowledged in the final design outcome.
The Committee received little information about the cultural aspects of Birrarung Marr from the Proponent, although it was advised by the City of Melbourne and those associated with the design of it that its overall design theme recognised attributes of the evolution of the area. For example the design incorporated features relating to its indigenous communities and has incorporated billabongs and other water features. Birrarung Marr means “misty river” and the Committee considers that the design concept for the Yarra Precinct Pedestrian Link should respect and be consistent with the overall cultural philosophy of Birrarung Marr.
Mr Raworth’s overall conclusion is that the proposed works in Yarra Park will impact in a modest way but will not diminish the significance of Yarra Park in any significant way. The Planning Advisory Committee accepts that advice.
4.4 Committee Recommendations The Committee makes the following recommendations with respect to the planning framework and cultural heritage aspects of the proposal:
Review more closely the revised Municipal Strategic Statement to ensure that key objectives and strategies in Clause 21.06 are complied with in the final design of the link.
Incorporate acknowledgement of the pre and post settlement cultural heritage of the environment in which the link will be constructed in the final design outcome for the Yarra Precinct Pedestrian Link and any associated public art.
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5. OPERATIONAL OBJECTIVES OF THE GAMES
The Terms of Reference require the Committee to undertake “A review of the concept design detail, and scale of the preferred Pedestrian Link in relation to its ability to reasonably meet the operational objectives of the Commonwealth Games”. In this regard, the Committee was provided with limited information relating to the operational objectives of the Games. Information was largely oral during the Hearing from Mr Peter Stewart from Melbourne 2006 Commonwealth Games Pty Ltd, and through the primary submission of Mr Naughton.
5.1 The Pedestrian Task As indicated in the Terms of Reference, the Yarra Precinct potentially needs to cope with around 350,000 pedestrians per day during the Commonwealth Games. This number of pedestrians would not only comprise people attending sporting events and moving between venues - it would include people in the precinct enjoying the cultural and other events, or just there to absorb the atmosphere.
The large pedestrian movements during the Commonwealth Games will result from the way events are staged and managed in the Precinct. For example, typically the MCG will cater for two separately-ticketed major event sessions on the same day.
Although broad information was given to the Committee, there was no hard data in support of the 350,000 pedestrians per day presented. High quality access and mobility to and within the precinct will be crucial to the success of Games.
In addition the Committee was advised that there are currently in the order of 160 events per year at Melbourne and Olympic Parks. The MCG generates in the order of 3 million visitors per year and Melbourne Olympic Parks in the order of 1.3 million visitors.
At the Hearing, Mr Stewart emphasised the importance of the YPPL for the Games. He strongly supported the need for a bridge from Birrarung Marr to the Plaza area principally to provide a direct, continuous and uninterrupted (by road traffic) connection between the City and the MCG.
As discussed in Section 7.2 Mr Stewart said that Batman Avenue is expected to carry higher-than-normal traffic flows because other roads in the network might be dedicated to Commonwealth Games use.
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5.2 Pedestrian Capacity of YPPL The Proponent and its consultants expressed confidence in the ability of the proposed YPPL to carry the expected pedestrian flows associated with major events, including the Commonwealth Games. Consultants Maunsell and SKM undertook extensive modelling of expected pedestrian movements for various demand scenarios. A key report is Sports and Entertainment Precinct Pedestrian Model, Sinclair Knight Merz & Halcrow, 19 June 2003, included in Appendix I to Yarra Precinct Pedestrian Link Concept Design Report, 15 July 2003 (Document 5 listed in Section 1.3). The report outlined the preliminary PAXPORT model used to provide an overview of expected pedestrian movements in the Sports and Entertainment Precinct for Commonwealth Games scenarios. These involved different schedules of sporting and cultural events and different approaches to the development and management of the walking infrastructure. The PAXPORT model is a pedestrian simulation designed to model the demands, flows and interactions of pedestrian movements in public areas, such as airports, railway stations and sporting stadiums.
The report described typical walking speeds for different conditions and details of start and end times and likely attendances for arena-based events used in the model. Although the model was developed on a plan for Day 6 of the Commonwealth Games it is a generic model that allows a range of events and event timings to be simulated reflecting activities on other days.
The performance of several designs for YPPL was tested using the PAXPORT model. Critical elements of the YPPL design included:
• Width of the main span over the rail corridor – in particular its capacity to handle the intense pedestrian activity at the end of a major sporting event. • Width and locations of the plaza stairways – the capacity and positioning of stairways linking the podium with ground level at Batman Avenue.
A subsequent report Pedestrian Modelling of MCG Footbridge Designs, Sinclair Knight Merz, 19 August 2003 (Document 8 listed in Section 1.3) summarised the testing undertaken and drew the following conclusions from modelling of the various bridge designs:
• All bridge options with 9 metre width provided sufficient capacity for pedestrians to cross from the MCG to Birrarung Marr during typical football final conditions. • Option 12 provided the best free-flowing conditions in the plaza area, assisted by the wider stairway on the north side of the plaza. • A 7.5 metre bridge width with Option 12 had insufficient capacity to prevent significant congestion (level of service F). The minimum practical width of the Option 12 bridge is therefore likely to be about 9 metres.
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• The location of the southern stairway from the plaza did not have a noticeable effect on pedestrian congestion for crowds attending the Australian Open. However, the width of the stairway was significant, with a 2 metre width causing congestion for some periods of the day. A width of 2.5 metres (as endorsed by MOPT) is likely to provide more acceptable levels of pedestrian flow during peak conditions.
In a further report Yarra Precinct Pedestrian Link, Plaza Ground Level, Pedestrian Design Review, GTA Consultants, 5 September 2003 (Document 10 listed in Section 1.3), two scenarios are summarised.
One scenario giving high YPPL volumes across the rail corridor bridge section but low demands at ground level through the plaza area is known as Scenario 5b. It is based on pedestrians leaving a major event at the MCG operating at 90% capacity (90,000 people) and pedestrians leaving cultural events operating at 90% capacity at Birrarung Marr (54,000 people), Alexandra Gardens (36,000 people) and Federation Square (9,000 people) 20 minutes later. For this scenario GTA estimated the peak hour demand levels on the proposed 9-metre wide section of the YPPL across the rail corridor as 11,740 pedestrians west-bound and 5,900 pedestrians east-bound.
The second scenario giving lower overall demands but having higher demands at the plaza ground level than Scenario 5b is for the Australian Tennis Open. It is based on 50% of people discharging from a day event and 20% of people arriving for a night session. For this scenario GTA estimated peak hour pedestrian volumes of over 2,200 west-bound and nearly 350 east-bound in the pathway between the plaza and the northern entrance to the Tennis Centre.
The project implementation plan has a key milestone relating to the performance of the YPPL. It is to be able to test the YPPL’s capacity on AFL Grand Final on 3 September 2005.
Mr Stewart indicated to the Hearing that the operating plan for the Commonwealth Games provides for measures to regulate the pedestrian demand on key pieces of infrastructure. For example, special activities and attractions can be introduced to spread pedestrian dispersal rates from major venues.
Based on the submissions and evidence presented to it, the Committee believes the preferred YPPL design option with a 9 metre wide bridge across the rail corridor will be able to cope with the expected pedestrian demands during the Commonwealth Games. The Committee makes no specific recommendation with respect to the operational objectives of the Games. However it supports the proposed testing of the performance of the Yarra Precinct Pedestrian Link on AFL Grand Final day in September 2005.
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6. DESIGN AND INTEGRATION ISSUES
The Terms of Reference require the Committee to undertake “A review of how the concept design of the pedestrian link ….. integrates with surrounding landscape, land uses and infrastructure including Birrarung Marr, Yarra Park, roads, tramways, railways Melbourne and Olympic Park and the Melbourne Cricket Ground” and how it “provides opportunities to advance other developments in the Yarra Precinct”. In undertaking this review, the Committee has been mindful of the need for flexibility in the overall design to ensure that it integrates well with a range of existing and potential adjoining and nearby land uses.
6.1 Pedestrian Bridges in Melbourne The development of high quality pedestrian bridges has been a feature of Melbourne’s Yarra River corridor development raised by a number of the submitters and stakeholders as a tradition of which the City should be justifiably proud. Contemporary bridges considered to be of some merit include:
• The bridges within Birrarung Marr; • The Bourke Street Bridge into Docklands; • The Southgate Pedestrian Bridge; and • The Webb Bridge in Docklands.
Each is characterised by a strong underlying design idea in its conception and beauty in its realisation.
The Committee is of the view that these bridges should provide the basis of quality that should be matched or exceeded by this proposal. Hence it is concerned about the way to achieve design excellence. The Committee believes the selected design team should be able to demonstrate its ability to realise meritorious standards of design and innovation as well as meet time and cost imperatives.
The Committee notes the development of these recent bridges involved a design review process that sought the expert input from acknowledged leaders in architecture, urban design and engineering in their realisation. It is strongly supportive of a rigorous review process in this instance, particularly given the fact it is to link two projects that have been recognised by peers with awards of excellence, that is, the Birrarung Marr and MCG Great Southern Stand at each end.
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6.2 Birrarung Marr The Committee heard from both the City of Melbourne and representatives of the Birrarung Marr design team in relation to the design intent behind the existing park, the stages of implementation undertaken to date and future stages, and desired additional measures in the future including the Children’s Garden and new pedestrian links across the Yarra River.
Several aspects are of key importance to the YPPL project.
At the Hearing Mr Ron Jones and Ms Helena Piha, assisted by Mr Russell Thompson, provided the Committee and Proponent with a thorough briefing on the intent and key design strategies and modes of expression.
Birrarung Marr is described as an “urban place”, a social space and a “linking space” designed to respond to and accommodate a range of activities, functions and opportunities for meeting and accessing the elements of the City. It is seen as an important missing link in the southern and eastern park network around the City.
Its design is conceived as a contemporary expression of a series of layers of meaning. These describe patterns of evolution, movement, definition of space, integration between the river and the City, and interpretation of the relationship and expression of soft and hard landscape. The layers have been gently interposed over each other so as not to obliterate the layer beneath in a manner Ms Piha described as in deference to the indigenous communities who once occupied the land in a manner wherein the footprints they left by each step were carefully considered so as to minimise the destruction of the pre-existing natural arrangements.
The middle terrace shown in Figure 6.1 was described as incorporating a number of individual designs for each facet. Mr Thompson said it is a modern interpretation of a Victorian park with the northern terrace described as the most brazen display therein and incorporating a style of urban planting design not seen in any other Melbourne Park.
Birrarung Marr has been conceived in stages with the next stage to incorporate planting of canopy trees to the upper terrace areas in a grid pattern, and the development of the Children’s Garden and Art Education Centre.
The plan contemplated a land bridge from the upper terrace across to the south bank of the Yarra River adjacent to the Rowing Sheds precinct.
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Figure 6.1 Aerial View of Birrarung Marr middle terrace and northern embankment (Taken by: John Gollings Photographer c/- City of Melbourne)
Mr Adams spoke of the parks implementation, the Children’s Garden component and the further studies undertaken in relation to a future Yarra River bridge between Birrarung Marr and Alexandra Gardens. Council has formed the view that a location further to the south-east launched from the middle terrace would provide a shorter span and less visually intrusive option likely to result in a better result, notably in respect to the Rowing Sheds heritage precinct. Both groups acknowledged the immediate success of the park and its broad range of uses. They acknowledged the importance of the at-grade alignment of the ground level pathway across Batman Avenue. It was the strong view of both the City of Melbourne and the Birrarung Marr design team that:
• Too little value had been placed on keeping pedestrians at street level and providing for an appropriate crossing of Batman Avenue. • Too little emphasis had been given to the design value of the present Birrarung Marr scheme and arrangements in particular the perpendicular relationship between land bridges and landscape, the horticultural and design merit of the northern embankment and treatment of middle terrace areas. • The design language developed within the Birrarung Marr precinct.
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Based on the evidence presented by the Proponent’s architects and landscape architects, the Committee is inclined to agree the level of briefing sought by the Proponent from the Birrarung Marr design team for a contemporary park of such acknowledged design excellence has been less than exemplary. This is surprising given the extent of recent debate and guidelines established in relation to design attribution and the nature of the park implementation as one in which the original scheme is progressively and accurately being implemented.
The Committee is of the view too little value has been ascribed to the floral displays and underbridge soft landscaping treatments conceived for the northern embankments by Mr Thompson. It does not believe the scheme as originally presented or subsequently amended, or the evidence provided to the Committee by design experts, demonstrated sufficient understanding of the design language and underlying ideas. This too is surprising given the detailed nature of the submissions made by the designers and the Australian Institute of Landscape Architects.
Nevertheless, it is the view of the Committee the design of Birrarung Marr is sufficiently robust to be able to accommodate the proposed new land bridge location if required, particularly given the underlying role of the park as a linking place. It would appear preferable for an approach that effectively:
• Flips the relationship of ramped access to the middle terrace as proposed; • Excludes the provision of the projecting landing and staircase and associated gabion walls; and • Adopts a bridge structure and the use of hedging treatments for underbridge poorly sunlit areas (such as adopted for the other land bridge interface with the north terrace), could achieve a balance between grade separation of pedestrians departing the MCG and Batman Avenue and the retention of a high quality “brazen” floral display treatment for the northern embankment.
It would be appropriate in the Committee’s view given the fact that the design of this embankment has been previously commissioned and has only recently been installed, the designer be given the opportunity to reinterpret the embankment for the new configuration.
Similarly, given the very recent and ongoing nature of the land bridges within the park it would be appropriate to consult with the original designers of Birrarung Marr via the City of Melbourne to determine an appropriate language for this bridge and the future Yarra River Crossing land bridge within the park.
The landing area and its realignment were raised as an issue by the Birrarung Marr design team. Mr Jones described the current arrangement and the means by which
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the current ramp provided access from Batman Avenue and minimised conflict between pedestrians and event customers for the middle terrace. Mr David countered that the new ramp alignment provide more direct access to the terrace for vehicles, required less severe turning radii for vehicles and was likely to result in less damage to the terrace area in the case of events such as the recent Circus Oz. The Committee noted the damaged surface at an early inspection. The Committee is of the view that if the lower Yarra River bridge link to Alexandra Gardens is built, there will be a need for a pathway in alignment in Birrarung Marr. Given the arrival point and terrace arrangements, the absence of reconfiguration of hard paved areas would inevitably result in degradation of adjacent areas in these direct alignments.
Transitional lighting and lighting in general were discussed. Victoria Police raised the important issue of the need to incorporate transitional lighting to avoid temporary glare or blindness arising from sudden transitions in lighting level. The design of the Birrarung Marr park areas has been conceived to light pathways quite brightly and other elements such as bridges in a manner to enhances way-finding and the underlying principle of elemental layering within the park. A language of light fittings has been adopted for the park and should provide the basis for these new interventions for the YPPL in a manner that acknowledges the day and night use of these pathways and the need to provide a safe journey while continuing to reinforce the way-finding measures adopted within the park and proposed within the broader draft Yarra Plan.
6.3 Northern Side of Plaza and Tram Stop The Committee was briefed by VicTrack representatives who explained that they were in the initial phase of investigating the feasibility for redevelopment of land currently used for bus and car parking to the north of the Plaza.
Victoria Police and Yarra Trams articulated a series of design principles that they believed were important to incorporate in the future design of the plaza and podium element:
• The tram stop area remains as open to the street as possible and obstructions and hiding areas minimised. • Smooth surfaces conducive to graffiti are minimised. • The extent of undercroft areas is minimised. • The plaza area on ground level available to pedestrians is maximised • Intersections and crossings be self-managing. • Conflicts between pedestrians and trams be minimised hence a pedestrian crossing of Batman Avenue south of the tramway should remain. • Conflict between trams, cars and pedestrians should be minimised.
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The submission of Mr Thorne, the Department of Sustainability and Environment’s Director of Urban Design, questions the need for a podium of such magnitude in this location and raises concerns in relation to the diminished levels and perceptions of safety and amenity arising from the adoption of a large podium as envisaged. A large podium he contends will diminish the economic viability and potential for good frontage for development of the adjacent VicTrack land and the development of active ground floor development fronting the existing tram stop.
MOPT confirmed that design of the podium and plaza area should be cognisant of the increasing role of the northern entrance as a gateway to Melbourne and Olympics Parks and the Tennis Centre in particular and priority should be given to pedestrians over motor vehicles in this area.
The Committee is strongly supportive of the imperative of ensuring these provisions are made in future design of this element.
6.4 Northern Pedestrian Link In recognition of the growing status of the northern entrance to the Tennis Centre and Vodafone Arena, a proposal for a dedicated pathway of approximately 4 metres in width south of the tram tracks was tabled by MOPT together with a concept for a unifying visual pavement treatment to the Batman Avenue entry. This pathway would replace the narrow poor quality pathway north of the tracks as the primary pedestrian link south of the rail corridor.
The Committee acknowledges MOPT’s forward thinking in the proposed upgrade of the northern pedestrian entrance given the long-term nature of the proposed podium and the rapidly evolving nature of the precinct. The Committee sees considerable merit in providing this pathway as a means of facilitating greater flexibility in managing crowd movement at the 2006 Commonwealth Games and other major events in the precinct. The Committee sees merit in investigating further linkages to the east of this precinct to the MCG-Vodafone Arena pedestrian bridge and Richmond Station.
In its visits to the precinct the Committee noted that there was an opportunity at relatively little cost to dramatically improve the amenity of the pedestrian environment and diminish the number of conflicts between pedestrians and vehicles. The suggested measures include the following:
• Replacement of the small sections of 1.8 metre high chain wire fencing linking the tram stop areas to the base of ramps to the MCG-Rod Laver Arena
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Pedestrian Bridge with galvanised barrier treatments matching those used within the tram stop zone so as to provide a visually cohesive pathway experience. • Incorporation of an exit through the area currently screened by a plastic coated chain wire barrier from the northern-most staircase south of the rail corridor servicing the tram stop to enable pedestrians to link directly to the existing pedestrian pathways east of the bridge that link to Swan Street and Punt Road without the need to cross the vehicle exit and bus turning area.
In addition both Department of Sustainability and Environment and City of Melbourne representatives spoke of the importance of facilitating the “missing pedestrian link” between the Vodafone Arena and Rod Laver Arena at the earliest possible time either at grade or at an elevated level. While the Committee acknowledges that together with the other measures mentioned above, these elements lie outside the Terms of Reference, they nevertheless remain critical components in the utilisation of the proposed YPPL and entrance to their full potential.
Yarra Trams representatives reported that at the Australian Open alone, in excess of 300,000 patrons access the precinct via tram and additional services are provided for in the order of 160 - 200 events throughout the year indicating strong public support for the service. They indicated for major events they had been able to offer effective ticketing packages providing both venue entrance and public transport travel. The Committee was impressed with this initiative and sees (given the limited nature of car parking available and for that matter desirable in the precinct during large events) considerable potential upon the realisation of these latest measures for further expansion of this program.
6.5 Pedestrian Spaces, Road Crossings and Priorities In visits to the site, the Committee observed frequent crossing of Batman Avenue by pedestrians on the line of the main Birrarung Marr east-west pathway rather than via the designated signalised crossing south of the Plaza area. This observation was confirmed by representatives of VicRoads and Victoria Police, and the expert evidence of GTA Consultants at the Hearing. The desirability of aligning pedestrian crossings with these preferred movements and desire lines was acknowledged by parties to the Hearing including the City of Melbourne, the Proponent, MOPT and Victoria Police as well as representatives of the design team of Birrarung Marr.
Representatives of the Office of the Director of Melbourne CityLink said that the allocation of green time to the various traffic, tram and pedestrian movements is not constrained under the terms of the arrangements with Transurban. The signals are
Page 53 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003 controlled by VicRoads. They expressed the view that a change in signalling to provide for direct crossing from the southern tram stop platform into the Birrarung Marr pathway alignment would have undiscernible traffic impacts over the course of a year. Batman Avenue at this location presently carries a two-way flow of around 16,000 vehicles per day.
Mr Christian Griffith from GTA Consultants was invited by the Proponent to further analyse the intersection layout and its operations. He suggested a preferred balance of pedestrian and vehicle circulation areas by reducing the number of vehicle lanes from five to three accessing and egressing the site and a consequent increase in the scale of the dedicated pedestrian area associated with the southern tram platform. This would provide a more direct and wider at-grade pathway for pedestrian movements between the Melbourne and Olympic Parks area and Birrarung Marr. Mr Griffith acknowledged that this was an important movement and that most pedestrians engaged in this movement would not climb to podium level to undertake this crossing.
A major influence on the required road space at the site is the number of west-bound vehicles seeking to exit from the northern car park at the Tennis Centre. The car park accommodates around 450 vehicles. Mr David said the time taken to discharge these vehicles to Batman Avenue via a reduced number of lanes would be around two hours. The Committee notes that MOPT suggested it could re-direct these vehicles in a south-easterly direction to exit via its existing Swan Street access during major events.
These principles were outlined in the drawing Option 12/Option GTA3 – Ground Level Plaza by Cox Architects and Planners tabled at the Hearing. It is a variation of the preferred Option 3 contained in the report Yarra Precinct Pedestrian Link, Plaza Ground Level, Pedestrian Design Review, GTA Consultants, 5 September 2003 (Document 10 listed in Section 1.3).
Mr Griffith agreed that the pedestrian area could be further enlarged through the removal of the traffic median and islands separating the egress and ingress lanes to both Batman Avenue and the Federation Square car park.
The Committee observed in site visits that the footpath along the southern edge of the Melbourne and Olympic Parks access road terminates approximately 50 metres east of the Batman Avenue intersection. As noted by the Committee, pedestrian and vehicle conflicts arise when pedestrians, prevented from connecting to the northern pedestrian pathway by a barrier south of the tramlines, walk along the roadway.
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There appears to be potential to remove this short pathway and push the roadway further south. This would maximise the pedestrian area in the plaza zone and facilitate the development of a new safer, wider and more direct pathway south of the tram reserve as proposed by MOPT.
The principles of effective pedestrian flow to and from the site should in the Committee’s view provide for at-grade pedestrian flows west and east in line with the primary east-west pathway in Birrarung Marr and with City access northwards along Batman Avenue.
The design should facilitate staircase access down onto the plaza both south of the southern tram platform in line with the Birrarung Marr pathway linking to the new pedestrian pathway into Melbourne and Olympic Parks and north of the northern platform enabling convenient access to the northern platform and City.
6.6 Podium Height and Design The architect for the development Mr Gardiner advised that the podium is 9.8 metres above natural ground level and approximately 9.45 metres above ground at the point where the northern stair meets the existing footpath. Following concern expressed by the Committee on Day 1 of the Hearing, he described the northern staircase configuration options for the bridge to incorporate four groups each with 15 risers of 157 mm in height and 300 mm in going with three 4-metre long landings or three groups of 18 risers with two 5-metre intermediate landings – a total of 60 steps.
Subsequent, investigation of comparisons by the Committee indicated the following:
• Bourke St overpass to Docklands - 36 steps of 170 riser and 270 going • Vodafone Bridge southern entry 44 risers • Vodafone Bridge northern platform 48 risers
The Committee is concerned about the formidable nature of the staircase and in particular its impact on the likely safety of pedestrian flows during major crowd events where differing physical abilities may be anticipated. Mr Stewart expressed a requirement for smooth pedestrian flows and outlined their strategy of having helpers assisting people across the bridge areas in lieu of the creation of rest zones. The Committee remains concerned at the effectiveness of such a measure in the instance of staircases of these magnitudes.
The Proponent acknowledged this height as an issue and indicated confidence that the podium could be lowered by at least 800 mm. Reasons were put forward by Mr David and Mr Gardiner for not lowering the height further. Primarily this related to
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clearance heights over an existing gantry, height clearances for double-stacked container freight trains and the proposed deck height for the future bridging of the rail corridor. The Committee’s view that in respect to future rail corridor height, the major investment recently in Federation Square and the design heights determined in that instance would appear to determine a maximum future required clearance height.
Given the variable physical capacities of visitors to the precinct the reduction of each flight of stairs to the minimum number of risers is considered by the Committee to be an important consideration, as is the minimisation of the necessary rise to podium level. An alternative that the Proponent may wish to consider is an elevated ramp effectively providing a significantly graduated link around the south-western edge of the VicTrack land to a point further north on Batman Avenue. Mr Gardiner expressed a view that such a device may be unsightly. The Committee is not convinced that the presence of a lightweight structure could not be integrated given the language of lightweight structures that already exists within the precinct and this should remain a potential alternative to the proposed northern stair.
Following further review of flows and discussions with organisers the Proponent may wish to consider escalators to enable more even movement of pedestrians heading northwards along Batman Avenue to the City. This is consistent with systems used in major transport centres such as railway stations and airports.
Having heard representations, particularly from Victoria Police and Yarra Trams, the Committee is of the view the staircase component requires significant review as an element. The Committee believes the proposed concrete form is inappropriate given its context and the likelihood of redevelopment of the VicTrack land in the short to medium term. The Committee is of the view the panel needs to be constructed of materials that enable it to be as visually permeable as possible. Members noted the majority of staircases in the precinct irrespective of their finish were characterised by open risers and handrail treatments that minimised hiding areas. The Committee is not convinced a high quality architectural solution cannot be realised within the constraints of materials that would facilitate this.
The design of the podium was the subject of some considerable review during the Committee process. Mr Gardiner presented an alternative proposal to the Committee following the input of VicTrack. It indicated a substantial increase in the unobstructed area to the north of the site but retained the lift location and stair construction methodologies nominated in the initial plan. He explained he was concerned that the design sought to anchor the podium using the shaped stair edge device.
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Discussions with VicTrack indicated that commercial uses were preferred for its site (see Figure 3.3). In normal circumstances these could be anticipated to have floor-to- floor levels approximating 4 metres with possibly a larger floor-to-floor height for the ground floor area. The draft Yarra Plan documentation suggests one possible treatment of buildings on this site. It indicates the potential for significant opportunities for interface with the plaza area at ground floor and Batman Avenue, surveillance of the plaza area from all levels and linkages to the podium level at a second floor level. The Committee would support this methodology as facilitating enhanced interaction with the adjacent public realm.
Mr Gardiner’s evidence indicated that providing a colonnade on the podium level within this development would enable pedestrians accessing or egressing the podium level to or from Batman Avenue north, to do so without the need to negotiate the 60 steps referred to earlier. VicTrack and the Proponent acknowledged that retaining sunlight to the bridge and podium, and developing uses at podium and plaza interfaces that facilitated greater levels of activity and hours of use by the public in the area, would be desirable.
MOPT expressed the view that uses such as sports medicine, sports-related corporate offices, hotel and hospitality uses would all be consistent with emerging needs within the precinct. Mr Burgess spoke of VicTrack’s desire to have the land rezoned Capital City. The Committee considers this zone option to be questionable, but does agree that the YPPL will only enhance the development potential of the VicTrack land. It might be preferable for a Development Plan Overlay or a Design and Development Overlay to be placed over the VicTrack land to ensure appropriate integration with the YPPL.
The Committee is of the very strong view that having regard to the proposed life of the bridge and the likely decking of the rail corridor, that its design must contemplate future integration with development of the northern portion of the VicTrack site, extension of the Spring Street alignment and consideration in the design of the bridge.
It is the Committee’s view that the Proponent should work with the City of Melbourne and VicTrack to ensure that there is optimal integration of the VicTrack land – possibly through the preparation of Urban Design Guidelines or an appropriate overlay. These guidelines should:
• Be designed to preserve and enhance the amenity of pedestrians. • Ensure overshadowing of the podium is minimised and parklands are avoided while optimising the site’s development potential. • Facilitate informal surveillance from the development of these adjacent public
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spaces and circulation areas. • Encourage activity at the ground level plaza and second floor podium level. • Facilitate movement from podium level to the north-western end of the VicTrack interface with Batman Avenue at grade. • Preserve and acknowledge the Spring Street alignment.
Should Government in relation to the Yarra Plan make a decision in the shorter term, this should be acknowledged in the final guidelines for the VicTrack site.
Mr Gardiner described the proposed plaza lift location and treatment as relating to the need to create a waiting area and provide an appropriate focal element. The Committee is concerned that the location for the lift and the proposed enclosure treatments create:
• Unnecessary areas for concealment and enclosure of the tram stop area. • A significant undercroft area. • Large graffiti-prone areas.
The Committee is of the view that the preferred design for the podium should:
• Maximise the sense of openness to the tram stop and ground floor pedestrian plaza area. • Minimise the extent of undercroft areas. • Maximise the visual permeability of the public realm on the lower plaza areas, including greater transparency of the lift cladding. • Ensure pedestrian flows through the ground floor plaza enable direct connections to the main east-west Birrarung Marr pathway and Batman Avenue (north) from the proposed new southern pathway and podium level staircases.
The podium level provides for a primary interchange point for pedestrians exiting or accessing the level to access areas west or east of the podium. Mr Thorne of Department of Sustainability and Environment Urban Design Group described this podium as a significant place within the strategic future of the precinct, linking Richmond to the Docklands and the City to the Yarra River. The Committee is encouraged by the potential offered in the further development of GTA Consultant’s Option 3, notably reduce the Plaza area and better configure the upper podium area.
A wind turbine caps the upper level lift core element. The turbine is intended to generate power for the lift and lighting of the podium. The Committee is supportive of the incorporation of the turbine element but is not of the view that its successful incorporation is reliant on the current treatments adopted for the lift structure. It
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does concur with Mr Gardiner on its potential for design expression within the development and as part of the way-finding methodology within the draft Yarra Plan.
6.7 The Bridge Link The Bridge Link incorporates a 9-metre wide pedestrian bridge that is divided into two carriageways by a central double-arched truss structure. Mr Gardiner spoke of the potential for this element to be clad with perforated material or similar as part of the design development process. He advised that lighting design for this area needs to be sensitively developed so as not to distract drivers of trains within the train corridor. Outrigger trusses off the bridge deck area are intended to prevent debris being thrown or accidentally dropped from the bridge to the nearby electrified overhead system. Balustrades were described as being of 1.2 metres in height to discourage such incidents occurring while enabling the attractive views available to the City and other parts of the Precinct to remain unencumbered. Victoria Police raised some issues about the adequacy of this height in the event of incidents that might result from crowding, and suggested two possible solutions.
The Committee in its visits to the area during AFL Preliminary Final week noted that both the MCG-Rod Laver Arena and MCG-Vodafone Arena pedestrian bridges incorporated handrails of similar height that had been reduced in effective width by the provision of temporary fencing.
The Committee requested that the Proponent provide further cross-sectional profiles of the bridge to better explain the design intent and materiality. While some additional elevations were made available no sections were provided during the Hearing. The site visits undertaken lead the Committee to believe there would appear to remain some differences of view between those responsible for designing the bridge crossings and those responsible for these crossings in “Events Mode”. This has lead in the case of the existing bridges to both an unsatisfactory visual outcome with unsightly temporary screens and a diminution of effective bridge widths. Given the pedestrian flow modelling undertaken by the Proponent to date, such a situation cannot be allowed to arise in this instance.
Mr Adams introduced the Committee to the principles outlined in the draft Yarra Plan. He spoke of the economic studies that indicated a likelihood that the decking of the rail corridor will occur in large part during the life of the proposed bridge. His view was that the bridge should be designed to allow lateral crossings of its structure and be constructed at least in its deck so as not to be redundant at that time. The Committee is keen to see a solution developed that addresses safety concerns, facilitates the bridge operating at its maximum operational efficiency and
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enables views to the City and other surrounding areas to be maintained. It is keen to ensure that the bridge’s structural solution optimises its longer-term integration into the Yarra Plan.
Mr Robert Mann in his submission (No. 20) raised the potential for a staircase providing access to the residential enclave west of Jolimont Road. Mr Adams was of the view that potential existed in a small area south-east of the bridge at its abutment near the rail reserve and Brunton Avenue for such a measure to be incorporated and that it may serve usefully both these residents and those accessing the precinct via Yarra Park. In response to this, the Proponent noted that there are significant rail infrastructure items in this vicinity of this area and a staircase would not be appropriate.
The Committee is of the view that the eastern landing area for the bridge is sufficiently close that such a stair may not be necessary and may have the effect of bringing pedestrians down into a zone that is hostile to pedestrian movement. The Committee’s view is that defined mid-block crossings of Jolimont Road would provide a better solution for safe pedestrian movements from west of Jolimont Road to the eastern end of the YPPL in Yarra Park.
6.8 Yarra Park Landing The Yarra Park landing area has been the subject of extensive consultation between the Project Team, the landlords and managers of the MCG and Yarra Park and The East Melbourne Group. The Committee acknowledges the efforts of these groups in finding a well-resolved interface with the park zone in which it believes pedestrian and landscape aspects are well managed. The Committee is pleased that the redundant pathways parallel and west of the landing area in Jolimont Street and transversely across Yarra Park towards the south-east will be removed as part of the process.
The Committee acknowledges two elements of necessary works that are not yet resolved and should be as a matter of urgency. These relate to the MCG – Rod Laver Arena footbridge redundant ramp west of the new podium to the MCG and the pathway parallel to Jolimont Street east of the proposed YPPL landing area. Mr David informed the Committee that a significant retaining wall existed behind the trees fronting Jolimont Street east of the landing area and north of the pathway and that removal and reinstatement as a pathway was seen as problematic. Mr Adams advised that the City of Melbourne would probably be prepared to remove this pathway as part of their cyclic maintenance and upgrade of Yarra Park. The Committee subsequently revisited the site and was surprised at the relatively low height of the retaining wall in question and felt that a relatively low-cost swale
Page 60 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003 treatment could be implemented within the scope of work of the current proposal.
The MCG Trust outlined its proposed podium and cricket practice nets area treatments and pathway treatments that extend westwards as far as the electricity substation building. The plans indicated embankment treatments extending further westwards with this work to be undertaken under the YPPL project.
If the footbridge ramp is to remain it will diminish the potential for the reintroduced cricket practice nets area to interface with the Yarra Park and are conceded by all parties as redundant. It was argued by the MCG Trust and Melbourne Cricket Club that the ramp removal lies outside the scope of the MCG works and only arises as a result of the new YPPL. The counter view expressed by the Proponent is that the removal of the ramp while cranes are on site for the grandstand would be attainable with greater speed and reduced costs over other means of removal and hence should logically be done by the current contractors for the MCG Redevelopment Project.
It would appear to the Committee that the argument that the ramp should be removed as a result of this new YPPL has some credibility. It is acknowledged that the City of Melbourne in meeting the cost of reinstating parklands to replace the redundant eastern pathway is undertaking remedial work that should be accounted for in the current budget. The removal of the ramp does not appear in the Master Plan for the MCG redevelopment, but the Committee considers it is a minor, but important addition.
The Committee is of the view that there is the potential to use the timely existing presence of appropriate crane equipment and construction and demolition skills on site for the removal of the ramp infrastructure and should seek to undertake this work at this time if at all possible given its acknowledged redundancy.
It is the view of the Committee that the embankment works required as part of the pathway construction should be undertaken by one contractor and not broken into two separate contracts wherein arguments may arise about such things as consolidation, alignment, and damage to adjacent works.
The management of the Yarra Park was a source of some discussion. As the Committee of Management, the City of Melbourne’s view is that the triangular area south of the new pathway should revert to parkland and provide a major arrival point for pedestrians and visitors to the ground for the games and other major events rather than via a car park. The Melbourne Cricket Club (MCC) and MOPT noted the ongoing need for access to this area for car parking whilst acknowledging the need to manage car parking in this zone. Their proposal is to ensure that employees who would arrive at least two hours before major events and depart no sooner than one
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hour after, use this area.
The Committee acknowledges this is a management and strategic issue that will require resolution as a matter of urgency to ensure that conflicts that might impact on safety of pedestrians and the orderly movement of pedestrians before and after main events in the shorter and longer term is resolved. The Committee understands that alternative car access arrangements, such as left-in/left-out at Brunton Avenue or beneath the new YPPL from the western end of Jolimont Street, have been rejected for operational and safety reasons. The Committee would prefer that this part of Yarra Park cease to be used for car parking if at all possible.
The proposed materials for use in the landing area were discussed. Representatives of the MCC supported the general design of the YPPL and its location.
6.9 Committee Recommendations The Committee makes the following recommendations with respect to design and integration issues:
Involve a peer review for the design development process from leaders in architecture, urban design, landscape architecture and engineering to ensure that the design response meets the high standards for bridge design established by Government for the Commonwealth Games, and for new bridge infrastructure within the Yarra River Corridor.
Amend the proposed land bridge and landing area in Birrarung Marr to: a) Adopt a bridge structure, northern embankment landscape treatments and use of landscape treatments for underbridge areas similar to that successfully adopted for the existing land bridge interface with the middle terrace. b) Consult with the design team for Birrarung Marr through the City of Melbourne to determine a language appropriate for the proposed land bridge, particularly to assist in reinterpreting the northern embankment for the new configuration. c) Ensure the language of lighting for the Yarra Precinct Pedestrian Link adopts the form of lighting currently used in Birrarung Marr.
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Further refine GTA Consultant’s Option 3 for the Batman Avenue/Access Road/Plaza area during the detailed design process to maximise the amount of space available at ground level for pedestrians and optimise the pedestrian flows to and from the Plaza to Birrarung Marr as follows: a) Reduce the number of vehicle lanes from five to possibly three. b) Remove the southern terminating pathway to allow for a southern shift of the vehicle lanes. c) Increase the area available for pedestrian movements at ground floor (plaza) level. d) Create a new, more direct (and wider) pedestrian crossing of Batman Avenue on the alignment of the Birrarung Marr pathway. e) Create more appropriate links to the northern entrance of the Tennis Centre. f) Resolve the relocation of the bus parking area on the VicTrack land to minimise the recommended width and turning paths to the Federation Square car park.
Amend the preferred design option for the podium and plaza levels to: a) Maximise the sense of openness to the tram stop and ground floor pedestrian plaza area. b) Minimise the extent of undercroft areas through the relocation of the lift and reconfiguration of the staircase areas. c) Minimise the footprint of the podium element to maximise the visual permeability of the public realm on the lower plaza areas. d) Ensure pedestrian flows through the ground floor plaza enable direct connections to the Birrarung Marr pathway and Batman Avenue (north) from the proposed new southern pathway to the Tennis Centre and podium level staircases. e) Minimise the areas available for graffiti. f) Maximise the use of demountable composite and steel systems within the bridge and podium elements so that the design will facilitate easy integration with the proposed future decking of the rail yards corridor, Spring Street extension and development of adjacent VicTrack land.
Work with the City of Melbourne and VicTrack to ensure that there is optimal integration of the VicTrack land – possibly through the preparation of Urban Design Guidelines or an appropriate overlay.
Review the height of the bridge podium and the northern staircase to optimise the safe and efficient movement of pedestrians between the podium and street level.
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Investigate appropriate measures to provide safe crossing opportunities of Jolimont Road to enhance accessibility by local residents and other users of the eastern end of the proposed Yarra Precinct Pedestrian Link.
Ensure that the design of the rail corridor element meets the requirements of those responsible for “Events Mode” operation, and ensure protection of adjacent rail infrastructure so that the temporary screens evident on other bridges over the rail corridor will not be required.
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7. ACCESSIBILITY
The Terms of Reference require the Committee to undertake “A review of how the concept design of the pedestrian link ….. gives reasonable access to users of varied mobility”. In this regard, the Committee has focused on accessibility to the Yarra Precinct Pedestrian Link itself, and then access by pedestrians.
7.1 Access to the Yarra Precinct Pedestrian Link (i) Pedestrian Access
The principal beneficiaries of the proposed YPPL will be pedestrians seeking to enjoy the formal and informal activities and events within the precinct.
The Committee believes the YPPL has the potential to achieve its key objectives on big event occasions such as the Commonwealth Games, on other event days and during non-event times.
Although the YPPL is strongly aligned with the east-west pedestrian desire line in the Yarra Precinct, it will enhance general accessibility and mobility in the north- south and other orientations.
The designers must resolve issues at the proposed plaza about the pedestrian ground-level space and travel paths as well as ease of access to and from the elevated podium, presently proposed at a height of 9.8 metres. This would provide safety and operational benefits by encouraging further separation between pedestrians and road vehicles.
One issue raised by the Committee was the possible need for resting points and occasional shelter from the elements along the YPPL, given its length of over 500 metres. Potential locations included the podium level at the plaza and near Signal Box E on the western side of Jolimont Road. The Proponent and Mr Adams did not believe that some form of shelter would be necessary as, typically, people walking to and from an event would normally have with them appropriate protection from the elements. This is further discussed in Section 9.1.
Installing high quality signage will add value to the YPPL and the general pedestrian experience.
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(ii) Bicycle Access
Cyclists will benefit from the YPPL and what it will achieve in improving safety and general accessibility in the precinct.
Good signage and suitable path surfaces will be important considerations in the next phases of the project.
(iii) Public Transport Access
The YPPL is likely to encourage more people to travel to and from the precinct by public transport, principally by train and tram. It will support walking as the principal way of moving within the precinct. Consistent with the Yarra Plan it will be a major step towards reducing the dependence on travel by private vehicle to the precinct’s venues and facilities.
As indicated in Section 6.4 a greater shift of people to public transport to access the precinct may be achievable through expanded ticketing initiatives.
Bus and coach access to the precinct is important. Demand varies depending on the types and locations of events – from school children visiting City attractions to people from regional Victoria attending sporting events. Although the northern part of VicTrack’s Jolimont Site (see Figure 3.3) was paved and landscaped for an interim (prior to development of the site) bus parking facility it is now mainly used for car parking.
The Committee understands from its consultations with stakeholders that some changes in bus parking arrangements are intended in sites adjoining Swan Street in Melbourne and Olympic Parks. Stakeholders suggested a Yarra Precinct and perhaps broader City-wide review and rationalisation of bus and coach parking requirements would be desirable.
The Committee supports a wider review of bus and coach parking provisions within and around the Yarra Precinct.
(iv) Private Vehicle Access
For people who choose to travel by private motor vehicle the YPPL will enhance general accessibility from car parks in the City and surrounding areas. Any motorists who venture into the plaza and Yarra Park areas of the YPPL must realise that these are mainly pedestrian spaces.
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The Committee acknowledges that some City car parks, particularly those at the eastern edge of the City and at Federation Square, will be used by people to access the Yarra Precinct and hence potentially use the YPPL.
The Committee notes that the additional 360 car parking spaces being provided beneath the redeveloped MCG northern stand area are likely to be made available to selected groups such as corporate guests and not to the broader public.
As discussed in Section 6.8 there are conflicting stakeholder views about continuing to use Yarra Park at the eastern end of the proposed YPPL for car parking, primarily for events and functions at the MCG and Melbourne and Olympic Parks.
7.2 Pedestrian Access Options
(i) Bridge Link from Birrarung Marr to Plaza Area
Some submissions suggested the proposed western part of the YPPL, namely a bridge from the Middle Terrace of Birrarung Marr across Batman Avenue to the proposed Plaza/Node, was not necessary. This has previously been discussed in Section 6 and is further expanded upon here. Mr Griffith in his evidence said:
The pedestrian modelling undertaken identifies very high movements east-west over Batman Avenue between Richmond Station and Federation Square to the MCG. These movements are most safely managed by grade separating vehicle and pedestrian traffic across Batman Avenue. This is of particular relevance for the post-event departure phase from the MCG, which occurs frequently throughout the year.
The main problems with any suggestion to terminate the link on the east side of Batman Avenue are: • Introduces new conflict between high concentrated pedestrian movements and Batman Avenue traffic rather than separating the flows, hence not as safe as Option 12; • Inadequate storage area at the base of the stairs to hold peak pedestrian flows without the flows spilling out onto Batman Avenue or backing up onto the bridge; • Location of stairs blocks pedestrian access to and from Melbourne Park limiting the ability of the Northern Access to function effectively in future; • Creation of a frequent requirement for pedestrian management by Police; • Increased risk of accidents and traffic congestion on Batman Avenue resulting from pedestrian movement at ground level; • Potential for CityLink and public transport franchisee compensation claims against government.
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The key issue is to avoid designing a link that creates a conflict between road and pedestrian traffic, and to avoid a repeat of the traffic and pedestrian problems experienced at Telstra Dome. Temporary management arrangements are required along Spencer Street following events due to the discharge of pedestrians off the bridge onto the footpath on the west side of the street.
Representatives of the Office of the Director of Melbourne CityLink said that compensation claims for any traffic signal phasing modifications would be unlikely. Yarra Trams representatives expressed no concern provided the pedestrian crossing remained south of the tram turning area.
As stated in Section 5.1 Mr Stewart indicated that an at-grade crossing would not be desirable as it would not provide for the uninterrupted, safe and efficient movement of pedestrians between the City and the Sports and Entertainment Precinct. He added that, because some other roads in the network are likely to be dedicated to Commonwealth Games use, Batman Avenue is expected to carry increased traffic volumes.
The Committee believes increased safety and improved operations must be achieved at the proposed Plaza.
(ii) Melbourne and Olympic Parks Northern Entrance
MOPT said that, although its future planning is still flexible, the YPPL would fit well with its intention to enhance its northern entrance.
Several of the key stakeholders, particularly Yarra Trams, Victoria Police and VicRoads, strongly support the proposed new pedestrian path extending east from the Plaza area along the southern edge of the tramway. It will provide a more logical pathway alignment for pedestrians as well as improve safety by separating pedestrians and vehicular traffic.
Extension of this enhanced dedicated pedestrian pathway further east to the MCG - Vodafone Arena bridge and ultimately to Punt Road and Richmond Train Station would increase safety and operational efficiency during high-demand events.
The YPPL potentially provides the catalyst for a reactivated gateway to the Melbourne and Olympic Parks venues.
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(iii) Yarra Park and the MCG
The YPPL will bring Yarra Park and the MCG much closer to the City in terms of walking time.
The Proponent and its consultants say the Yarra Precinct Pedestrian Link will provide sufficient capacity to meet expected pedestrian access demands for all events envisaged at the MCG. It will provide another piece of critical infrastructure to accommodate the expected movements of pedestrians during the intensive period of the Commonwealth Games. It will increase flexibility to better match directional capacity with demand, for example, through one-way operations.
Outside event times the YPPL will add to the already impressive network of paths and open space on the eastern edge of the City.
The Committee is aware the Yarra Plan and other Government initiatives seek to reduce the dependence on private vehicles for access to the precinct. It notes the intention of the City of Melbourne to remove car parking from the section of Yarra Park west of the MCG. Council’s desire to remove potential conflicts between pedestrian and motor vehicles is matched by the Melbourne Cricket Club’s willingness to manage the car parking in a way that largely removes such conflicts. This is discussed in more detail in Section 6.8.
Similar to the Plaza area, the Committee considers pedestrian safety and efficient operation at the Yarra Park end of the Yarra Precinct Pedestrian Link is most important.
7.3 Users of Varied Mobility The Proponent has assured the Committee that the proposed YPPL design satisfies the requirements of the Disability Discrimination Act 1992, principally regarding accessibility.
Relevant features of the design are the ramps at each end of the YPPL and the lift at the Plaza. The Committee understands details of these and other requirements such as paved areas, road crossings and integrated tactile indicators will be developed during the next stages of the project.
The Committee believes the YPPL will assist in effectively shortening some of the long walking journeys through the Yarra Precinct. However, the height of the podium at over 9 metres, the banks of access stairs and limited number of ramps may discourage certain users, for example, people with prams or in wheelchairs.
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The Committee considers the matter of ongoing DDA compliance is a key factor in the detailed design phase for the Yarra Precinct Pedestrian Link.
7.4 Signage and General Way-finding On its visits to the site the Committee observed some inadequacies in signage to assist pedestrians in finding their way to various venues within the precinct. This was most evident on Saturday 20 September 2003, largely for people seeking to walk to the Rod Laver Arena from the City, particularly from Federation Square and Birrarung Marr. Several stakeholders, including VicRoads and Victoria Police highlighted the need for high quality signage around and within the precinct. The Yarra Plan identifies the importance of implementing appropriate way-finding and branding strategies.
The Committee strongly supports the importance of installing high quality way- finding signage within and around the precinct consistent with the aspirations of the Yarra Plan.
7.5 Committee Recommendations The Committee makes the following recommendations with respect to accessibility issues:
Implement appropriate high quality signage at key sites and nodes in and around the Yarra Precinct Pedestrian Link in accordance with the draft Yarra Plan.
Review the proposed surface treatments of the travelled section of the Yarra Precinct Pedestrian Link to ensure it is suitable for all legitimate users of the bridge. Materials selected need to be cognisant of all conditions under which the bridge will operate.
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8. AMENITY AND IMPACTS
The Terms of Reference require that the Committee undertake “An investigation into the impact of the Pedestrian Link on local amenity and access by the public and how impacts (if any) can be managed …..”. The Committee considers that the two major amenity issues to be addressed include visual impacts and noise.
8.1 Visual Amenity Emerging from the extensive stakeholder consultation by the Proponent was a preference for a low-profile YPPL structure, with a low visual impact, that did not compete with the existing icons and views in the Yarra Precinct.
While the preferred concept design (see Figures 3.7, 3.8, and 3.10) clearly has a low profile, some submitters had other concerns, including:
• Mr Matthew E McFall in his submission (No. 8) suggested the design is brutal in form, dominant rather than complementary. He indicated the colour is totally at odds with the palette chosen by the Birrarung Marr designers.
• The East Melbourne Group (Submission No. 12) expressed concern about the visual impact the structural mass of the landing will have on residents living in Jolimont Street and the general character of Jolimont.
• Mr James Badcock (Submission No. 13) raised a few issues including the need for a more modern lighting proposal.
• Mrs Helen Page (Submission No. 16) expressed concern about the severe impact on the “pleasant green” western corner of Yarra Park, an area “constantly abused by its use as a car park”.
• Ms Nadia Gill of the Australian Institute of Landscape Architects, Victorian State Group (Submission No. 19) expressed concern about the physical and visual impact of the proposed pedestrian bridge upon the existing parkland environment, especially the segment beginning in Birrarung Marr and spanning across Batman Avenue. The AILA’s opinion is that the current footbridge design proposal as an aesthetically “heavy and solid” concrete structure will visually dominate the Yarra River parkland precinct and compromise the initial design intent of Birrarung Marr.
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Also, the Committee challenged aspects of the Plaza design. As discussed in Section 6.6, there appears to be scope to reduce the bulk of the concrete blade walls and balustrades, say, by using lightweight re-usable materials, and create better visual permeability into the ground level of the Plaza.
Use of different structural and surface materials would be consistent with the proposed ends of the YPPL that are intended to “lightly touch” Birrarung Marr and Yarra Park. The Committee acknowledges that details of materials, finishes, colours and other visible parts of the YPPL will be investigated further and resolved during the next phase of the project.
8.2 Noise Impacts Mr Peter Fearnside of Marshall Day Acoustics was commissioned by the Proponent to undertake an assessment of noise impact of construction and operation of the YPPL. He said in the introduction to his witness statement (Document 18 listed in Section 1.3):
The impact of environmental noise depends not only on the level of noise, but also on the character of the noise, the frequency of occurrence and the duration of noise. In addition, the change in noise exposure needs to be considered. For example, quiet areas are likely to be more sensitive to new noise sources than noisy areas. Noise impacts can also be exacerbated by non-noise effects, such as visual impacts.
This assessment looks at noise impacts by comparing predicted construction and operational noise levels with established guidelines. It also looks at other aspects, such as the duration and time of noise exposure and the change in noise relative to the existing noise environment.
These considerations are particularly relevant to construction noise. For construction noise, the noise level criteria based on the EPA guidelines are not mandatory noise limits, but trigger levels. If the criteria are exceeded, it acts as a trigger for special noise management procedures, such as informing the community. This is because the duration of noise exposure is limited.
Mr Fearnside considered the construction and operation of the YPPL has the potential to have a negative impact on the following residential properties and hotel:
• Parkside East at the north-east corner of Jolimont Road and Jolimont Street. • Small number of residential properties along the north side of Jolimont Street. • Metro Hotel on west side of Jolimont Road. • Residential properties in Wellington Crescent.
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Mr Fearnside’s evidence covered the existing noise environment, construction noise guidelines, estimated noise levels from construction activities, noise monitoring and an assessment of operational noise. He concluded:
Only residents in the residential apartments at Parkside East and 2 Wellington Crescent, and guests at the Metro Hotel are considered close enough to the pedestrian link to be possibly adversely affected by noise from construction and its operation.
The existing ambient noise level in the area is high due to traffic flow along Brunton Avenue and Jolimont Road, and train movements in the Jolimont rail yard.
A preliminary analysis of construction activities indicates that it will be possible to undertake some construction activities during the evening and night periods, provided noise control measures are undertaken and the community are kept aware of when these activities will occur.
The operation of the pedestrian link will not have an adverse impact on adjacent residential properties or the Metro Hotel and if Yarra Park ceases to become a public car park, the operation of the pedestrian link may have a positive impact on the residents of Parkside East.
The Committee acknowledges that the residential area under scrutiny is already a “noisy” environment because of road traffic and trains. Mr Fearnside indicated that for the YPPL project, construction noise will not be apparent every night and it will be managed in close consultation with affected residents. After the YPPL is built and operational the evidence suggests that noise levels from users of the Link will rarely, if ever, exceed those levels generated by present road traffic and train movements.
8.3 Management of General Construction Impacts The Proponent has acted proactively to address likely construction impacts on nearby residents and others, particularly in Jolimont.
Liaison to date with The East Melbourne Group and others has been beneficial. The Proponent has indicated that consultation will continue through the design, construction and commissioning phases of the project.
Expert witnesses from Arup and Marshall Day Acoustics in their reports (Documents 16 & 18 listed in Section 1.3) and presentations to the Hearing highlighted the criticality of crossing the rail corridor. There are limited windows of opportunity for site occupations because of train operating imperatives. This places
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limits on working hours to largely between last and first train in the early hours of the morning.
Mr Peter Hoad of Arup summarised the primary factors affecting the construction works:
• The performance requirements to deliver high quality infrastructure for this world class precinct. • The location in existing public parks and gardens. • The constraints associated with existing services, public transport infrastructure and road infrastructure. • The highly utilised transportation routes crossed and the disruption to this infrastructure during construction, specifically Melbourne's primary rail access route into the City. • The need to deliver the project in an environment that addresses safety for construction workers, transport infrastructure users and general public. • The high public profile of the project. • The constraints associated with poor access to sections of the link. • The tight construction timeframe and finite budget. • With large spans, there is a need to provide long reach crane access. • Need to ensure minimal disruption to events conducted in the precinct.
Mr Hoad considered the following specific considerations to determine the proposed built form and how it may be constructed:
• Minimise the construction footprint, without compromising public and construction safety. • Minimise construction fencing/compounds, but again without compromising public and/or construction safety. • Complete as much construction as possible off-site to ensure minimal on-site construction activity. That is, maximise prefabrication of link elements. • Minimise construction traffic operating between the three identified construction sites (West, Central and East). • Ensure short burst, high intensity construction activity out-of-hours in the rail corridor and implement procedures that allow safe, conventional operations in the corridor, during normal working hours, as soon as possible during the construction program. • Ensure that the construction philosophy utilises as many existing access routes as possible to reduce the impact during construction and reduce the time for re- establishment of the public areas. • Pre-assemble elements in on-site compounds, to enable large sections to be erected in one-off lifts thus reducing the time required for large cranes to be mobilised on site.
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• Look at ways that the major bridge spans over rail may be designed to allow small mobile cranage on the superstructure to allow the larger cranes to depart from site as early as possible.
HLA-Envirosciences Pty Limited prepared a Construction Environmental Management Plan (CEMP) (Document 19 listed in Section 1.3) for the construction phase of the project. This CEMP is a tool to inform the construction Contractor for the project of the minimum environmental management protocols required by Major Projects Victoria to minimise the risk of impact to the environment during the construction phase. In its document HLA-Envirosciences Pty Limited indicated:
Once appointed, the construction Contractor is required to take responsibility for its own best-practice environmental management, by building on this document to develop its own CEMP. In addition to the minimum requirements herein, the Contractor's own CEMP shall also take into account the specific design parameters, construction methodology and the Contractor responsibility structure that are yet to be finalised.
The environmental objectives of the project and this CEMP are summarised as follows: • Provide a summary of the current environmental status of the proposed construction site and surrounding area and the potential issues anticipated during construction. • Outline the necessary management strategies, actions, monitoring and reporting measures to be undertaken during construction, to minimise the risk of impact to the environment and to meet the environment protection expectations of Government authorities and the community. • Minimise safety risk and inconvenience to the community, including nearby residents and other stakeholders. • Demonstrate to the Planning Advisory Committee a proactive approach to minimising the risk of any environmental impact during the construction phase.
Mr Griffith in his expert witness report indicated that a Construction Traffic Management Plan (CTMP) that addresses such things as site access and any temporary road closures would be prepared for the period of construction. It has been produced in concept form as part of the CEMP.
The Committee considers the Proponent, in conjunction with the City of Melbourne, should continue its close working relationship with local residents and others likely to be affected by construction activities, particularly noise. The Proponent should provide timely quality information about such aspects as construction progress and any possible disruptions.
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8.4 Management of Other Local Amenity Impacts The Committee considered other potential impacts on amenity in the operations of the YPPL:
(i) Birrarung Marr
The Proponent working closely with the City of Melbourne and the Birrarung Marr designers should ensure that any impacts on the built form and language of the park are ameliorated.
(ii) Batman Avenue Pedestrian Crossing Facility
A re-designed layout for the intersection and the Plaza ground level should produce a more pedestrian-friendly environment. A wider crossing of Batman Avenue on the line of the main Birrarung Marr east-west pathway would be safer and more efficient than the existing arrangement. It would complement the elevated bridge rising out of the middle terrace.
(iii) Yarra Park
Mr Bill Bessemer in his submission (No. 15) raised the issue of overlooking and visual intrusion from the elevated sections of the Yarra Precinct Pedestrian Link into residential properties in East Melbourne and Jolimont. The Committee considers that a combination of the distances involved and the ability to provide landscape screening and window blinds or curtains would ameliorate any problems.
(iv) YPPL Operations
Mr Griffith in his expert witness report (Document 14 listed in Section 1.3) indicated that the contractor will be required to prepare a Traffic Management Plan (TMP) for the post-construction operations of the YPPL. It would need to reflect the final configuration of the YPPL. It would need approvals from the relevant, authorities, agencies and stakeholders prior to the opening of the bridge to the public. Mr Griffith suggested the TMP would cover:
• Event mode overlay – Although the YPPL is designed to be “self-managing”, the volume and duration of pedestrian demand for some large events will require temporary pedestrian and traffic management “event overlays”. • Maintenance and emergency vehicle access requirements. • Security surveillance. • Yarra Park car parking at the eastern end of the YPPL. • Provision for cyclists and people with varied mobility.
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• Consistency with MOPT event operations and future planning.
The Committee raised the matter of ongoing maintenance responsibilities for the YPPL after its construction. Several stakeholders, including Yarra Trams and City of Melbourne, have sought to avoid the present apparently unclear ownership and maintenance responsibility regime that exists with the MCG - Vodafone Arena Pedestrian Bridge.
The matter of ownership was raised in the report MCG Concourse & Melbourne Park Footbridge Risk Assessment, Risk & Reliability Associates Pty Ltd, November 2000 (Document 24 listed in Section 1.3). The report assessed the public safety risk issues associated with the MCG-Rod Laver Arena and MCG-Vodafone Arena footbridges. The report was a recast of an earlier report to enable interested stakeholders to have a more detailed appreciation of the potential risks and treatment options. This was considered relevant “in view of advice that the bridges may now have multiple owners rather than single owners as had previously been advised”.
The Committee heard that a Memorandum of Understanding is proposed.
It is understood that the City of Melbourne is prepared to take responsibility for routine maintenance (eg. litter, signage), but not structural maintenance, for all areas apart from the below-deck areas in the rail corridor. Train operating safety considerations and regulations within the rail corridor below the YPPL deck level would mean responsibility for this component should rest with VicTrack and the train operators.
8.5 Management of Security and Safety (i) Vandalism Protection
Some stakeholders and submitters emphasised the importance of removing or at least minimising opportunities for vandalism of the YPPL.
The Committee formed a strong view that there were opportunities during the detailed design phase of the project to meet this objective, for example, to provide a well-lit, visually permeable YPPL without obstructions and hiding areas and use of appropriate anti-graffiti materials and finishes.
The Committee noted that surrounding areas characterised by higher levels of pedestrian activity, good maintenance and design excellence had remained largely free of graffiti, and should hence inform new development within the precinct.
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(ii) Security and Personal Safety
Many stakeholders and some submitters raised issues about the security of the YPPL and personal safety of users.
The Victoria Police Commonwealth Games 2006 Audit Team (Submission No. 25) identified the need for a range of security devices for the Yarra Precinct Pedestrian Link. These included emergency intercom stations and two cameras, one near each end of the bridge. With PTZ (pan, tilt, zoom) capabilities they would provide clear views of the full length of the YPPL. Mr Griffith in his evidence said the Closed- Circuit Television (CCTV) surveillance requirements for the Commonwealth Games public domain would be addressed during the detailed design phase. The Committee supports the retention and ongoing use of these cameras after the Games. It is acknowledged that responsibilities for monitoring have yet to be resolved. The options include the City of Melbourne via its existing system, a centre at the MCG or Melbourne and Olympic Parks.
The Committee understands that during the next phase for the YPPL project a focus will be on design-led initiatives associated with security and personal safety.
8.6 Committee Recommendations The Committee makes the following recommendations with respect to amenity and impact issues:
Ensure appropriate security and safety measures for users of the Yarra Precinct Pedestrian Link are embodied in the final detailed design. For example, the security surveillance cameras proposed at each end of the YPPL for the Commonwealth Games should be considered for retention for ongoing use after the Games.
Ensure that the Environmental Management Plans - Construction EMP (including a Construction Traffic Management Plan) - and an Operational EMP (including a Traffic Management Plan) are updated as the project progresses and that community representatives are able to input to these plans.
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9. ENVIRONMENTALLY SUSTAINABLE DEVELOPMENT
The Terms of Reference require the Committee to undertake “A review of how the concept design of the pedestrian link ….. incorporates environmentally sustainable features consistent with the Government’s Commonwealth Games Environment Strategy”.
9.1 ESD Principles As mentioned in Section 3.4 of this report, the design concept is underpinned by principles of Environmentally Sustainable Development (ESD). The Melbourne Commonwealth Games Environment Strategy commits the Government to “minimising the ecological footprint of each Games related infrastructure project”. In addition the Strategy requires projects to be carbon neutral, low waste and water wise.
The initial ESD methodology consisted primarily of wind-powered power generation, waste minimisation and potential stormwater reuse. Fittings and equipment are to be selected with regard to their energy efficiency and embodied energy.
Mr Peter Hoad of Arup tabled a report on ESD undertaken with support of their SPeAR assessment methodology (Document 15 listed in Section 1.3). In summary it indicated significant improvement in environmental, natural resource, societal and economic outcomes but identified in its analysis some elements that remained outside ideal parameters. These related to the design and operation of the bridge, user comfort and satisfaction, materials used, economic viability and social benefits and costs. When questioned further about these elements he indicated that the concerns related to the following:
In relation to User Comfort, the concern was the remaining issues, including rail noise, thermal comfort/lack of shading, and exposure to winds. Mr Adams when questioned about shade areas noted that those attending events at the venue and undertaking walks could be expected to bring a hat and sunscreen. In combination with shaded parks at each end of the 525-metre bridge, the Committee is satisfied that a shading element is not necessary in this instance.
In respect to rail noise, the Committee is of the view that the benefits of unencumbered view and experience of the elements offsets any apparent noise impacts from trains that might move under the bridge during a pedestrian journey.
In respect to Social Benefits and Costs, Mr Hoad noted that these concerns related
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mainly to Construction Risks and Health and safety given the relatively risky and dangerous nature of building in the environment of an operating rail corridor. He however pointed out that the diminished quality of the plaza environment for pedestrians was a basis of marking down this criterion. The Committee sees this as an important basis for reviewing this Plaza level design. In relation to materials the concerns related to the likelihood that much of the podium would be lost in future development of the precinct (eg. decking) with little chance of recycling, whilst design and operation related to issues of maintenance predominantly.
Mr Naughton tabled a further report by Mr Talacko of Ark Resources (Document No. 23 listed in Section 1.3) in relation to the adoption of a further series of enhancements to the ESD response during the detailed design phase that he indicated were matters the Proponent were prepared to adopt. Mr Talacko recommended that the entire life-cycle of the infrastructure be used as the basis for determining the efficacy of each design response. His recommendations included the following:
1. Reduce Embodied Energy by: a) Specifying low-embodied energy concrete (incorporating blast slag as an extender) for construction b) Considering Composite structures c) Considering steel lattice/space frames as they economise on material 2. Replacing the proposed lift with ramps to reduce energy use (and maintenance requirements) or alternatively ensuring the lift used is an energy efficient model 3. Specifying energy efficient lighting for all public, safety and feature lighting uses 4. Selecting a smaller wind generator (with a recommendation of a 5kW vertical axis aerogenesis machine) sized to supply the reduced operating energy demand as a result of efficient selection of lighting etc 5. Installing a real-time display of renewable energy generation for community education purposes 6. Purchasing greenpower for any operating energy shortfall not supplied by the wind generator 7. To ensure the Waste Management strategy is successful he recommends that: a) A target of 95% diversion of demolition and construction waste from landfill be adopted as a goal b) This target is included as a condition of the construction contract c) The designers be required to address the issue of disassembly, reuse and recycling of components in the event that the adjacent rail yards are covered with concrete decking d) The waste management strategy forms part of the Construction Management Plan 8. Preliminary material selections for the YPPL include: - a) Steel with recycled content
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b) Concrete incorporating: a. Blast furnace slag as a cement extender b. Recycled aggregate c) Timber to be from recycled or plantation sources d) Avoiding PVC by substituting XPLE 9. Where possible to make the entire structure pervious (timber, perforated metal, expanded mesh decking) allowing rain to fall on the rail yards below and avoiding the need to disperse or treat collected water or alternatively to utilise the harvested water for drip irrigation to dedicated landscaping adjacent to the YPPL in accordance with Connell Wagner Water Reuse option 4.
The Committee is largely supportive of the approach espoused by Mr Talacko in so far as it goes. It notes his comments in relation to the requirement of a lift but can see no effective way to reconcile direct Disability Access requirements in this instance from the walkway between the tram stop and the lift except by way of a lift. His report does however raise some important points in relation to the podium structure and steers the thinking to a lightweight structure as in all likelihood preferred over a solid structure. His report indicates that the use of some permeable pavement areas on the lower plaza zone would be appropriate.
His report and indeed the work undertaken by the Proponent does not however go as far as it might to exploring potential synergies between the project as envisaged and the future development as envisaged of the precinct as a whole. Whilst it could be argued that this is outside the brief of the Proponent, it is the Committee’s view that the principles outlined by the Government both for the Commonwealth Games and more generally for the City as a whole contemplate a proactive visionary approach to projects. In this context the provision of precinct based infrastructure or contribution towards environmentally responsible infrastructure and outcomes should be a primary element of the project brief. The Committee is disappointed that there has been no document that has looked at the macro issues of ESD in this instance.
As an example, such a review would have immediately identified the anomaly of creating a new high quality pedestrian access to the MCG whilst effectively ignoring and perhaps contributing to further shortcomings of the gateway pedestrian northern access to the Melbourne and Olympic Parks precinct and ensured that the ESD analysis undertaken by Arup reflected not that the bridge “optimised many aspects of sustainability”, but rather provided an effective tool to identify outstanding shortcomings. Similarly, it would identify the need for the podium height as determined to contemplate floor-to-floor heights likely in abutting development so as to ensure it can be developed in an environmentally effective and responsible manner and ensured that future interfaces would not have required effective
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demolition of a large part of the podium structure that being the feature northern wall. It would seem evident from this review given the likely medium-term development of the VicTrack land that the design methodology for the podium of a sculptural solid impermeable forms and interventions in an area that will effectively form a street is unsound.
There would appear to be insufficient co-ordination between the work undertaken by Mr Talacko and that previously identified by Arup particularly in relation to broader issues. The Committee is left unsure as to the impacts of Mr Talacko’s work on the previous shortcomings identified in Arup’s SPeAR analysis.
It would appear from the Committee’s review of the project that the absence of a detailed Site Analysis and review of the potential strategic evolution (both in built form and use terms) of the precinct, has in the Committee’s view diminished both the scope and vision of the project and directed an ESD outcome described in much narrower and less effective terms than might otherwise be the case.
9.2 Committee Recommendations The Committee makes the following recommendations with respect to Environmentally Sustainable Development:
Adopt the additional ESD measures nominated in the Ark Resources report to the Committee.
Undertake a further review of the precinct development potential to ensure that the work undertaken in the Yarra Precinct Pedestrian Link project optimises the outcomes for both this and future projects in the precinct.
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10. CONCLUSIONS AND RECOMMENDATIONS
10.1 Conclusions In the context of its Terms of Reference, the Planning Advisory Committee has provided the following comments as conclusions to its work:
An evaluation of the preferred concept design option of the Pedestrian Link against the broader long-term Government objectives for the Yarra Precinct:
The Planning Advisory Committee accepts the preferred concept design is consistent with the broader long-term Government objectives for the Yarra Precinct. The proposal can be supported by the relevant policies of the State Planning Policy Framework and mostly to the revised Local Planning Policy Framework of the Melbourne Planning Scheme. In addition, the proposal is consistent with the Metropolitan Strategy - Melbourne 2030 and the draft Yarra Plan.
The importance of the Yarra Precinct and the sports and entertainment venues within the precinct is well recognised and acknowledged. A key emphasis is on providing an improved pedestrian environment and the creation of safe connecting links between various venues and the City, and the provision of a strong east-west pedestrian desire line that links Federation Square with the MCG.
The Yarra Precinct Pedestrian Link from Birrarung Marr to Yarra Park and the MCG is identified as a key project to enhance the precinct. It implements infrastructure for the successful delivery of the 2006 Commonwealth Games. As detailed in the written submission of the Proponent, the Yarra Precinct Pedestrian Link will:
• Become the main pedestrian thoroughfare and a direct link between the major sports venues, cultural activities, cafes and restaurants along the Yarra River; • Provide an alternative to the congested and circuitous pedestrian routes around the precinct; • Reduce congestion during peak times; • Enhance mobility and access for everyday use; • Provide long-term benefit for the precinct by connecting the MCG directly to the public transport facilities at Flinders Street Station and St Kilda Road/Swanston Street thereby reducing pressure on Richmond Station; • Facilitate pedestrian movement from the Yarra River to Bridge Road, Richmond;
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• Maximise long term benefits to the patronage of Federation Square, Southbank and the facilities further along the river before and after events; • Reduce the number of car trips and encourage public transport.
The Committee concludes these outcomes are consistent with the State Government’s long term objectives for the Yarra Precinct.
A review of the concept design detail, and scale of the preferred Pedestrian Link in relation to its ability to reasonably meet the operational objectives of the Commonwealth Games:
The Committee accepts that the existing pedestrian infrastructure within the Yarra Precinct is not sufficient to cope with predicted operational requirements and patronage demand during the 2006 Commonwealth Games. As a result, the pedestrian link from Birrarung Marr to the MCG is essential for the successful staging of the 2006 Commonwealth Games. It will relieve congestion in the area during the Games, when it is expected that the Yarra Precinct will experience crowds in the order of 350,000 visitors per day. It will ensure there is grade separation of pedestrian and vehicular traffic in this significant precinct, which will be the focal point for the Games.
A review of how the concept design of the pedestrian link:
Integrates with surrounding landscape, land uses and infrastructure including Birrarung Marr Park, Yarra Park, roads, tramways, railways, Melbourne and Olympic Park and the Melbourne Cricket Ground:
Whilst the proposed Yarra Precinct Pedestrian Link has been developed to concept design stage only, the Committee is not completely satisfied that the Proponent has successfully resolved the interface with Birrarung Marr or the podium and plaza in its planning and design expression. The detailed design stage will commence shortly and will involve further consultation with stakeholders to ensure the final design complements the landscape character and quality of Birrarung Marr and Yarra Park, and does not unduly impact of the operating infrastructure affected by the alignment of the link. Important integration opportunities are with Birrarung Marr, the VicTrack site, and Yarra Park. Significant event mode requirements for the link design require careful resolution to avoid temporary capacity reducing barriers. These all need to be more fully addressed in the final design stage of the project.
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Provides opportunities to advance other developments in the Yarra Precinct:
There are significant opportunities to enhance the Yarra Precinct in a manner consistent with Government policy, subject to the successful resolution of the Proponent’s Option 3. Overall, the Committee does not consider the Yarra Precinct Pedestrian Link will compromise the delivery of other projects in the precinct including improvements to Yarra Park and the MCG and the possible link to the south from Birrarung Marr across the Yarra River to the Alexandra Gardens. This link project is likely to be a catalyst for these projects and for the much-needed improvements to the pedestrian environment on the east side of Batman Avenue around the northern entrance to the Rod Laver Arena and the Tennis Centre.
The link project will not compromise future decking of the Jolimont rail yards although some changes to the structure in the rail corridor will be required when (if) this opportunity is seriously investigated. The upper level plaza of the link on the east side of Batman Avenue has been located to provide for the extension of Spring Street in the future, in association with the decking of the rail yards.
The Committee accepts that overall, the Yarra Precinct Pedestrian Link provides the opportunity to advance other developments in the Yarra Precinct.
Gives reasonable access to users of varied mobility:
The 2006 Commonwealth Games aims to host events that are accessible for all groups in the community. One of the key design objectives for the link is to make it accessible for users of varied mobility. The preferred design concept provides a lift from the lower level plaza to the upper level plaza on the east side of Batman Avenue to provide for alternative access. However the Committee has expressed concern about the extent of the staircase component of the proposal and has made recommendations to reduce its impact.
Incorporates or acknowledges pre and post settlement cultural heritage:
Overall, the Yarra Precinct Pedestrian Link will not result in adverse impacts on pre and post settlement cultural heritage. Yarra Park is included in a Heritage Overlay and this proposal will not cause detriment to the significance of the area. However, the Committee believes further work is required to properly acknowledge the design language and elements of Birrarung Marr.
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Incorporates environmentally sustainable features consistent with the Government’s Commonwealth Games Environment Strategy:
The Committee recognises the Government is committed to delivering its 2006 Commonwealth Games Environment Strategy. One of the design criteria for the proposal is to explore opportunities for environmental features that implement the Government’s 2006 Commonwealth Games Environment Strategy and the overall sustainability objectives of Melbourne 2030. The proposal incorporates ESD principles that will result in:
• Encouragement of public transport use; • High levels of energy performance, utilising renewable energy sources; • Use of recyclable materials; • Waste management during construction; and • Efficient water use.
The preferred design concept includes provision for a small wind turbine that generates power that will be fed into the grid. The operation of the lift and lighting will draw power from the grid. Additional ESD measures have been proposed that will be included in the final design of the link.
An investigation into the impact of the Pedestrian Link on local amenity and access by the public and how impacts (if any) can be managed:
The key impacts on local amenity include overlooking from the link and loss of amenity. There is the opportunity for impacts during construction (noise, light spill etc). In response to these issues, the Proponent has prepared a Construction Environmental Management Plan, a Construction Traffic Management Plan and a Noise Impact Assessment.
The Noise Impact Assessment concludes that the residents in some apartments in East Melbourne and Jolimont, and guests at the Metro Inn Hotel have the potential to suffer adverse effects from noise during construction and operation of the link. Community consultation and the establishment of a noise- monitoring program will be essential to lessen the impact of construction noise.
Overall, the Planning Advisory Committee considers that the proposed Yarra Precinct Pedestrian Link will be a significant and important piece of infrastructure that will directly link areas such as Flinders Street Station, Federation Square and Birrarung Marr with the Melbourne and Olympic Parks and the Melbourne Cricket Ground.
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10.2 Recommendations For the reasons set out in this report, the Planning Advisory Committee appointed to consider submissions to the proposed Yarra Precinct Pedestrian Link makes the following recommendations to the Minister for Commonwealth Games:
Planning and Heritage Context:
1. Review more closely the revised Municipal Strategic Statement to ensure that key objectives and strategies in Clause 21.06 are complied with in the final design of the link.
2. Incorporate acknowledgement of the pre and post settlement cultural heritage of the environment in which the link will be constructed in the final design outcome for the Yarra Precinct Pedestrian Link and any associated public art.
Design and Integration Issues:
3. Involve a peer review for the design development process from leaders in architecture, urban design, landscape architecture and engineering to ensure that the design response meets the high standards for bridge design established by Government for the Commonwealth Games, and for new bridge infrastructure within the Yarra River Corridor.
4. Amend the proposed land bridge and landing area in Birrarung Marr to: a) Adopt a bridge structure, northern embankment landscape treatments and use of landscape treatments for underbridge areas similar to that successfully adopted for the existing land bridge interface with the middle terrace. b) Consult with the design team for Birrarung Marr through the City of Melbourne to determine a language appropriate for the proposed land bridge, particularly to assist in reinterpreting the northern embankment for the new configuration. c) Ensure the language of lighting for the Yarra Precinct Pedestrian Link adopts the form of lighting currently used in Birrarung Marr.
5. Further refine GTA Consultant’s Option 3 for the Batman Avenue/Access Road/Plaza area during the detailed design process to maximise the amount of space available at ground level for pedestrians and optimise the pedestrian flows to and from the Plaza to Birrarung Marr as follows: a) Reduce the number of vehicle lanes from five to possibly three. b) Remove the southern terminating pathway to allow for a southern shift of the vehicle lanes.
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c) Increase the area available for pedestrian movements at ground floor (plaza) level. d) Create a new, more direct (and wider) pedestrian crossing of Batman Avenue on the alignment of the Birrarung Marr pathway. e) Create more appropriate links to the northern entrance of the Tennis Centre. f) Resolve the relocation of the bus parking area on the VicTrack land to minimise the recommended width and turning paths to the Federation Square car park.
6. Amend the preferred design option for the podium and plaza levels to: a) Maximise the sense of openness to the tram stop and ground floor pedestrian plaza area. b) Minimise the extent of undercroft areas through the relocation of the lift and reconfiguration of the staircase areas. c) Minimise the footprint of the podium element to maximise the visual permeability of the public realm on the lower plaza areas. d) Ensure pedestrian flows through the ground floor plaza enable direct connections to the Birrarung Marr pathway and Batman Avenue (north) from the proposed new southern pathway to the Tennis Centre and podium level staircases. e) Minimise the areas available for graffiti. f) Maximise the use of demountable composite and steel systems within the bridge and podium elements so that the design will facilitate easy integration with the proposed future decking of the rail yards corridor, Spring Street extension and development of adjacent VicTrack land.
7. Work with the City of Melbourne and VicTrack to ensure that there is optimal integration of the VicTrack land – possibly through the preparation of Urban Design Guidelines or an appropriate overlay.
8. Review the height of the bridge podium and the northern staircase to optimise the safe and efficient movement of pedestrians between the podium and street level.
9. Investigate appropriate measures to provide safe crossing opportunities of Jolimont Road to enhance accessibility by local residents and other users of the eastern end of the proposed Yarra Precinct Pedestrian Link.
10. Ensure that the design of the rail corridor element meets the requirements of those responsible for “Events Mode” operation, and ensure protection of adjacent rail infrastructure so that the temporary screens evident on other
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bridges over the rail corridor will not be required.
Accessibility:
11. Implement appropriate high quality signage at key sites and nodes in and around the Yarra Precinct Pedestrian Link in accordance with the draft Yarra Plan.
12. Review the proposed surface treatments of the travelled section of the Yarra Precinct Pedestrian Link to ensure it is suitable for all legitimate users of the bridge. Materials selected need to be cognisant of all conditions under which the bridge will operate.
Amenity and Impacts:
13. Ensure appropriate security and safety measures for users of the Yarra Precinct Pedestrian Link are embodied in the final detailed design. For example, the security surveillance cameras proposed at each end of the YPPL for the Commonwealth Games should be considered for retention for ongoing use after the Games.
14. Ensure that the Environmental Management Plans - Construction EMP (including a Construction Traffic Management Plan) - and an Operational EMP (including a Traffic Management Plan) are updated as the project progresses and that community representatives are able to input to these plans.
Environmentally Sustainable Development:
15. Adopt the additional ESD measures nominated in the Ark Resources report to the Committee.
16. Undertake a further review of the precinct development potential to ensure that the work undertaken in the Yarra Precinct Pedestrian Link project optimises the outcomes for both this and future projects in the precinct.
Kathryn Mitchell Gordon Anderson Robert McGauran 10 October 2003
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APPENDIX 1: TERMS OF REFERENCE
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TERMS OF REFERENCE
COMMONWEALTH GAMES (YARRA PRECINCT PEDESTRIAN LINK) PLANNING ADVISORY COMMITTEE
1. BACKGROUND
The Yarra Precinct is one of Melbourne’s key competitive assets internationally and a key marketing tool to attract tourists and key business personnel to join in the full range of sporting, cultural and business opportunities offered by this city. The Yarra Precinct consists of Melbourne and Olympic Parks, the Melbourne Cricket Ground (MCG), Birrarung Marr, Federation Square, and Alexandra Gardens. The Precinct is proposed to be the centrepiece for the 2006 Commonwealth Games (Games), as it will host the majority of sporting and cultural events during this period.
The Department of Infrastructure undertook a comprehensive master planning exercise in 2001 and 2002 on the Yarra River corridor between Punt Road and the Docklands which, amongst other things, identified a strong east west link from Docklands through to Richmond via the MCG.
A key element of accommodating this link is the provision of a pedestrian bridge from Birrarung Marr to the MCG to:
• become the main pedestrian thoroughfare and a direct link between the major sports venues, cultural activities, cafés and restaurants along the Yarra River • provide an alternative to the existing congested and circuitous pedestrian routes around the Precinct • reduce congestion in the Precinct during peak times • enhance mobility and access for everyday use • provide long-term benefit for the Precinct by connecting the MCG directly to public transport facilities at Flinders Street Station and St Kilda Road/Swanston Street, thereby reducing pressure on Richmond Station • facilitate pedestrian movement from the Yarra River to Bridge Road, Richmond • maximise long-term benefits to the patronage of Federation Square, South Bank and the facilities further along the river before and after events.
Studies show that existing infrastructure is not sufficient to cope with predicted operational requirements and patronage demand during the Commonwealth Games. Developing a pedestrian link however will relieve congestion in this area, particularly during the Commonwealth Games when it is expected the Yarra Precinct will have to cope with up to 350,000 people per day. The studies recommended that pedestrian infrastructure proposed for the Yarra Precinct should be delivered prior to the Games.
The pedestrian infrastructure is proposed to link the MCG with the City to the North and Birrarung Marr, Federation Square, Flinders Street Railway Station and other facilities along the Yarra River to the west.
In early May 2003, the Government announced plans to bring forward proposals to construct a bridge between the MCG, Melbourne Park and Birrarung Marr over the Jolimont Rail Yards before the Commonwealth Games in March 2006. The budget for this project was set at $27.8M.
The proposed Yarra Precinct Pedestrian Link announced by the Minister includes:
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• a pedestrian bridge from Yarra Park over Brunton Ave • a pedestrian bridge over the rail corridor spanning from Brunton Ave in the east to Batman Avenue in the west • a pedestrian plaza at landing point west of the main span with access to Melbourne Park to the south, and • a pedestrian bridge structure from the pedestrian plaza spanning Batman Ave and into the Birrarung Marr parkland.
A preferred concept design option has been announced by the Government following consultation with key stakeholders including the City of Melbourne, the Melbourne Cricket Ground Trust and Melbourne Cricket Club, East Melbourne Residents Group, road and public transport operators and owners and the Melbourne and Olympic Parks Trust.
Construction is planned to commence in early 2004 with the project completed prior to the Games in March 2006.
2. COMMONWEALTH GAMES ARRANGEMENTS ACT 2001
Preparations for the Games are taking place within the framework of the Commonwealth Games Arrangements Act 2001. A copy of the Act together with a summary of the purposes of the Act are set out in Attachment 1 to these terms of reference.
3. COMMITTEE
The Commonwealth Games (Yarra Precinct Pedestrian Link) Planning Advisory Committee will be established under section 5 of the Act by the Minister for Commonwealth Games to consider and advise the Minister on the development of the Yarra Precinct Pedestrian Link.
4. TASK
The purpose of the Committee is to advise the Minister for Commonwealth Games on matters about the preferred concept design option for the Yarra Precinct Pedestrian Link.
In undertaking this work the following matters will be addressed:
• An evaluation of the preferred concept design option of the Pedestrian Link against the broader long-term Government objectives for the Yarra Precinct; • A review of the concept design detail, and scale of the preferred Pedestrian Link in relation to its ability to reasonably meet the operational objectives of the Commonwealth Games; • A review of how the concept design of the pedestrian link: - integrates with surrounding landscape, land uses and infrastructure including Birrarung Marr Park, Yarra Park, roads, tramways, railways, Melbourne and Olympic Park and the Melbourne Cricket Ground; - provides opportunities to advance other developments in the Yarra Precinct; - gives reasonable access to users of varied mobility; - incorporates or acknowledges pre and post settlement cultural heritage; - incorporates environmentally sustainable features consistent with the Government’s Commonwealth Games Environment Strategy. • An investigation into the impact of the Pedestrian Link on local amenity and access by the public and how impacts (if any) can be managed, and
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• Any other matters the Committee considers relevant.
The Committee will not be considering those matters already determined by Government, such as whether the Pedestrian Link is necessary, its broad alignment, or whether it represents a net community benefit. These are already matters considered by Government in making its commitment to the project. Similarly, the Committee must ensure that its recommendations do not jeopardise the project being delivered within the financial and time commitments already made by Government to the project.
5. CONSULTATION
The Advisory Committee may inform itself as it sees fit. The Advisory Committee will hold public hearings and may consult with any persons or groups it considers relevant.
The Advisory Committee should conduct public consultation in accordance with Section 11 of the Commonwealth Games Arrangements Act 2001. Section 11 requires a notification to be published in newspapers calling for representations within not less than 21 days of the notice appearing. Representations should be in the form of written submissions. Submissions should be confined to addressing those matters raised in Section 4 above.
The Committee shall arrange hearings as it sees fit, and will be subject to the following conditions:
• Hearings are to be conducted in public unless specific circumstances warrant an in camera hearing • The Committee may impose time limits on presentations • Cross examination of witnesses or submitters will not be permitted, although questions may be directed through the Chair at the Chair’s discretion • For the purpose of hearings, the Committee has a quorum of two members • The Committee may continue to function notwithstanding a vacancy in the membership.
6. OUTCOMES
The Advisory Committee must provide a report to the Minister for Commonwealth Games addressing the tasks as outlined in Section 4 above.
The report also should include a description of the consultation conducted by the Committee and a list of written submissions and those consulted.
7. TIMING
The Advisory Committee is required to report in writing no later than 14 October 2003.
JUSTIN MADDEN MLC Minister for Commonwealth Games Date: 5 August 2003
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ATTACHMENT 1
The primary purposes of the Commonwealth Games Arrangements Act 2001 are to:
• Streamline the planning and approvals processes for Commonwealth Games projects.
• Provide for a system of Ministerial Orders, including an Advisory Committee process, which will reflect consistency in substantive policy matters, particularly in planning, environment and heritage.
• Establish Advisory Committees to consider matters referred to them by the Minister in relation to the construction of facilities and preparations for the Commonwealth Games.
• Enable the Minister to request a Committee to report on planning, environment, and heritage issues relating to construction works proposals, and various other related matters appropriate to achieving the objectives of timeliness and simplicity.
• Provide that the Advisory Committee process will ensure public consultation on construction works, where appropriate and provide an expert report to the Minister on the suitability of the project. An Advisory Committee must consider all representations received in the consultation process.
• Provide that designated Commonwealth Games projects that are referred to an Advisory Committee will override certain laws by providing that nothing in those laws is to apply to the developments. These include, but are not confined to, matters relating to the Planning and Environment Act 1987 and any planning schemes, the Environmental Effects Act 1978, Coastal Management Act 1995 and matters relating to reserved land.
• Provide that in relation to the Heritage Act 1995 a permit or consent will not be required for projects developed under the provisions of this Act.
• Provide that the existing provisions of the Building Act 1993 in so far as they relate to building standards will continue to operate once the Orders are in place to ensure that all projects adhere to building standards.
• Provide that the Minister will give full consideration to a Committee’s report prior to making a Commonwealth Games Project Order in relation to Commonwealth Games projects.
• Provide that the Minister may make an order to specify or describe land, which will be required for development and construction or a designated access area as the case may be.
• Provide that the Minister may make an Order to:
- declare a Commonwealth Games venue - declare an area for the development and construction of facilities for a Games venue project - approve the development and construction proposal for a facility for a Games venue - declare a designated access area for development and construction of a facility at a Games venue.
• Enable areas adjacent to a Commonwealth Games venue to be available for development and
Page 94 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
construction of a facility for a Games venue.
• Provide powers for the obtaining and disposal of land for the purposes of a Commonwealth Games project, in consultation with other agencies where appropriate. Also provides rights to compensation on surrender or divesting of land.
• Provide that where temporary works have been undertaken, there will be an obligation to restore the land to a condition as agreed before the commencement of the works.
• Provides powers to protect Commonwealth Games project work by controlling entry to restricted areas.
The Yarra Precinct Pedestrian Link will be a declared Commonwealth Games Venue and Project under the Commonwealth Games Arrangements Act 2001.
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APPENDIX 2: ADDITIONAL BACKGROUND DOCUMENTS
Page 96 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
ADDITIONAL BACKGROUND DOCUMENTS PROVIDED TO PLANNING ADVISORY COMMITTEE
1. Pedestrian Links - Alexandra Gardens to Birrarung Marr - To and Across Swan Street Bridge, Yarra Plan Sports + Entertainment Precinct -Stage One: Option Development Report, Ove Arup and Partners, 20 December 2002
2. Yarra Plan Stage 1, Commonwealth Games Infrastructure, Rapid Economic Appraisal No. 2 – Projects Data, Report 5746.14 Revision 2, Connell Wagner Pty Ltd, 4 December 2002
3. Yarra Precinct Pedestrian Link, Pedestrian Access Options, Report 5746/19/001 Revision 3, Connell Wagner Pty Ltd
4. Yarra Precinct Pedestrian Bridge, Geotechnical and Contamination Investigation, Report 579402/ju/200 Revision 1, Connell Wagner Pty Ltd
5. 2006 Commonwealth Games - Sports & Entertainment Precinct Pedestrian Infrastructure, Business Case Review, Department Of Infrastructure, Major Projects Victoria, 23 December 2002
6. 2006 Commonwealth Games, Public Domain Pedestrian Infrastructure, Business Case Review, Evans & Peck, 17 January 2003:
7. Yarra Precinct Pedestrian Link, Concept Overhead Design and Cost Estimate, Report MET341-0000- T-REP-0001, Rev A, Kellogg Brown & Root Pty Ltd, 19 June 2003
8. Yarra Precinct Pedestrian Link, Concept Overhead Design and Cost Estimate Option 1, Revised, Report MET341-0000-T-REP-0002, Rev A, Kellogg Brown & Root Pty Ltd, 7 July 2003
9. Land Bridges -Birrarung Marr to Yarra Park, Issues Paper, Report 30027402, Maunsell Australia Pty Ltd, October 2002
10. Yarra Precinct Transport Modelling, Pedestrian Model Assumptions, Report 30023402, Maunsell Australia Pty Ltd, May 2003
11. Yarra Plan Sports Precinct, Stage 1, Land Bridges: Birrarung Marr to Yarra Park 1 MOPT, Options Report, Report 30027402, Maunsell Australia Pty Ltd, November 2002
12. Yarra Development Plan, Cost Benefit Analysis of Individual Projects, SGS Economics and Planning, November 2002
13. Arboricultural Assessment & Report for Yarra Precinct Pedestrian Link, Tree Logic Pty Ltd, June 2003
14. Arboricultural Assessment & Report for Yarra Precinct Pedestrian Link, Tree Logic Pty Ltd, September 2003
15. Northbank Promenade, Docklands to Birrarung Marr, City of Melbourne City Projects Division in association with the Northbank Promenade Working Group (Parks Victoria, Department of Infrastructure and Melbourne City Council), January 2002.
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16. Yarra Plan 2002 Part 1 – Vision
17. Yarra Plan 2002 Part 2 - Brief Description of 41 Projects
18. Yarra Plan 2002 Part 3 - Urban Elements Study
19. Yarra Plan 2002 Part 4 - Background Reports, comprising: • Sports and Entertainment Precinct – Record of land in public ownership, May 2002 • Parklands Precinct – Record of land in public ownership, May 2002 • Northbank / Southbank Precinct - Record of land in public ownership, May 2002 • Assessment of the benefits in relation to costs of demolition of the Flinders Street Overpass, Macroplan, November 2001 • Northbank Promenade, Queensbridge Square and Southbank Pedestrian Realm Improvements, Cost Benefit Analysis, Macroplan, January 2002 • Safety and Security Audit – Northbank of the Yarra, Victorian Police • Parks Victoria, Yarra 2006, Action Plan, January 2002 • Sports and Entertainment Precinct, Stage 2, Cox Macroplan, February 2002 • Access, Transport and Parking Study, Sports and Entertainment Precinct, Final Report, Sinclair Knight Merz with Booz Allen Hamilton, April 2002 • Flinders Street Overpass, Traffic and Engineering Feasibility, Hyder Consulting, October 2001 • Sports and Entertainment Precinct, Outline Transport Strategy Plan, SKM Booz Allen Hamilton, April 2002 • Pre-Feasibility Study, covering rail tracks between Federation Square and Punt Road, Connell Wagner, January 2002 • Major Assets Identification, Sports and Entertainment Precinct, SKM, November 2001 • Northbank 2 – Making Melbourne a Riverside City, Urbis, March 2002 • Background Demographics, Economics and Trends, Department of Infrastructure (DOI), July 2002 • Planning Context Background Report, DOI, July 2002
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APPENDIX 3: WRITTEN SUBMISSIONS RECEIVED
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WRITTEN SUBMISSIONS RECEIVED
Date No. Name Organisation
18 Aug 03 1 Ian Campbell Richmond Football Club 18 Aug 03 2 Bruce Hicks VicRoads 18 Aug 03 3 Shane Wright Metropolitan Fire & Emergency Services Board 18 Aug 03 4 Jeremy MacCreadie 21 Aug 03 5 Terry Prentice Telstra Corporation Limited 21 Aug 03 6 Colin Hoole CitiPower Pty 28 Aug 03 7 Stephen Gough Melbourne Cricket Club 18 Aug 03 8 Matthew E McFall 18 Aug 03 9 Gerard O’Neill Parks Victoria 27 Aug 03 10 Philip Eggleston 27 Aug 03 11 Rob Adams City of Melbourne 28 Aug 03 12 Margaret Wood The East Melbourne Group Inc. 28 Aug 03 13 James Badcock 28 Aug 03 14 Halvard Dalheim 29 Aug 03 15 Bill Bessemer 29 Aug 03 16 Helen Page 29 Aug 03 17 Ronald Jones Jones & Whitehead Pty Ltd 29 Aug 03 18 Helena Piha 4D Form Pty Ltd 29 Aug 03 19 Nadia Gill Australian Institute of Landscape Architects 29 Aug 03 20 Robert Mann 29 Aug 03 21 Michael Gerner KLM Gerner Consulting Group on behalf of VicTrack 29 Aug 03 22 Perry Lethlean Taylor Cullity Lethlean 29 Aug 03 23 Sally Draper Swan Draper Pty Ltd 1 Sep 03 24 Jill Hauser 1 Sep 03 25 Christine Nixon Victoria Police 27 Aug 03 26 Peter Seamer Federation Square Management Pty Ltd 1 Sep 03 27 David Pullen Environment Protection Authority Victoria 29 Aug 03 28 Gerard Thurbon Melbourne Water Corporation 8 Sep 03 29 Stephen Thorne Department of Sustainability and Environment
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APPENDIX 4: TIMETABLE FOR PUBLIC HEARING
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TIMETABLE FOR PUBLIC HEARING
VENUE: Planning Panels Victoria, Level 11, 80 Collins Street, Melbourne DAY 1: Tuesday 16 September 2003
Time Name Time Requested 9:30am – 12:30pm Proponent – Major Projects Victoria, represented by Mr 1 day Mark Naughton, (Minter Ellison Lawyers) and calling up 7 witnesses: Jonathan Gardiner, Cox, Architecture & Urban Design Alan Wyatt, ERM, Landscape Architecture Christian Griffith, GTA, Traffic & Transport Peter Stewart, Melbourne 2006, Event Operations Peter Bowtell, Arup, ESD Peter Hoad, Arup, Constructability Peter Fearnside, Marshall Day Acoustics, Acoustics
12:30pm – 1:30pm LUNCH 1:30pm – 4:30pm Proponent continued 4:30pm – 5:30pm Mr Halvard Dalheim (14) 1 hour
DAY 2: Wednesday 17 September 2003
Time Name Time Requested 9:30am – 11:00am Proponent continued 1.5 hours 11:15am – 11:45am Melbourne Cricket Club, represented by Mr Don 30 mins Wilkinson (7) 11:45am – 12noon Mr Robert Mann (20) 15 mins 12noon – 1:00pm VicTrack, represented by Mr Rob Burgess of KLM Gerner 1 hour Consulting Group (21) 1:00pm – 2:00pm LUNCH 2: 00pm – 2:30pm City of Melbourne, represented by Mr Rob Adams, Acting 30 mins Chief Executive Officer (11)
DAY 3: Thursday 18 September 2003
Time Name Time Requested 9:30am – 10:00am Victoria Police, represented by Sergeant David Short and 30 mins Leading Senior Constable Kevin Close (25) 10:00am – 11:30am Birrarung Marr Design Team, represented by Mr Ronald 1.5 hours Jones and others (17) 11:45am – 11:55am Ms Helen Page (16) 10 mins 11:55am – 12:15pm Mr James Badcock (13) 20 mins 12:30pm – 1:30pm LUNCH 1:30pm – 3:00pm Concluding comments by Proponent 1.5 hours
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APPENDIX 5: SUMMARY OF SUBMITTER ISSUES
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SUMMARY OF SUBMITTER AND STAKEHOLDER ISSUES
The following represents a summary and overview of the submissions received by the Planning Advisory Committee and an overview of the key issues raise din the various consultation meetings held with stakeholders during the course of the Committee’s proceedings.
• Richmond Football Club (Submission No. 1)
Wholehearted support. Aligns with Club’s long-term vision for Punt Road Oval.
• VicRoads (Submission No. 2 and Meeting 14 August 2003)
Support in principle. Summarised issues for consideration in design, build and post-opening stages of the project (eg. road capacity, sightlines/visibility, structural clearances, accessibility to link and surrounds by all users and service vehicles, security surveillance, safety audits, adequacy of stair and ramp widths and surface finishes, drainage, pedestrian directional signage, construction activity impacts on events).
• Metropolitan Fire & Emergency Services Board Melbourne (Submission No. 3)
No concerns.
• Jeremy MacCreadie (Submission No. 4)
Bridge should be designed so it is not a target for graffiti.
• Telstra Corporation Limited (Submission No. 5)
No objections. Seeking further participation to remove all risks to Telstra’s communication network during construction.
• CitiPower Pty (Submission No. 6)
Keen to work with proponent to facilitate construction.
• Melbourne Cricket Club (Submission No. 7 and Meeting 26 August 2003)
Support for YPPL in its entirety, including the bridge from Birrarung Marr across Batman Avenue. Two major points:
• Ongoing use of the triangular section of Yarra Park west of the MCG for car parking primarily by staff can be properly managed to eliminate any potential vehicle/pedestrian conflicts. • Suggested rationalisation of pedestrian infrastructure in Yarra Park on the western side of the MCG – by removal of the ramp and eastern stairs to the Tennis Centre footbridge (but retention of western stairs), removal of the diagonal pathway across Yarra Park, and enhancement of the pathway from the expanded concourse to the proposed YPPL.
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• Matthew E McFall, Landscape Architect (Submission No. 8)
Objection for the reasons outlined in the Australian Institute of Landscape Architects (AILA) Special Report Threat to Birrarung Marr: MCG footbridge will spoil Melbourne’s new park, published on AILA website, August 2003. Also, design is brutal in form, dominant rather than complementary, and ‘the colour is totally at odds with the palette chosen by the park designers’.
• Parks Victoria (Submission No. 9)
Support for the proposal as it is an important link in the functionality and connectivity of pedestrian access within the Yarra Precinct. It also complements the existing trail connections along the Yarra River and enhances land and water-based trail linkages. Detailed design will need to resolve the management of bicycle use to avoid potential safety issues.
• Philip Eggleston (Submission No. 10)
Concern (as outlined in the AILA Special Report):
• Terms of Reference are limited making the consultation process a sham. • Process to date has neglected Birrarung Marr design and intended use, shows lack of respect for the park’s designers, and excluded landscape architectural expertise. • Basic options such as an at-grade crossing of Batman Avenue with potential cost savings have been ignored. • The options analysis is biased and refers to broader precinct plans that are not being scrutinised and conflict with approved Birrarung Marr plans that were supported by a public consultation process. • Impacts on Birrarung Marr eg. destroy important features and reduce its ability to be used as intended.
Assurances are sought that these concerns will be addressed.
• City of Melbourne (Submission No. 11, Meeting 19 August 2003 & Letter 22 September 2003)
Support for the proposal for a bridge from Yarra Park to Exhibition Street Extension, but concerned about the need for a bridge across Exhibition Street Extension to Birrarung Marr. Before any decision is made for the bridge to Birrarung Marr it should be established that the proposed budget is sufficient to cover the cost of a high-quality design solution for:
• The main bridge structure over the rail tracks, allowing for future integration with the Yarra Plan deck. • A landing plaza that provides easy universal access for all users, integrates with the future building site to the north, and creates an attractive shelter for trams. • A remodel of the Exhibition Street Extension node/plaza intersection to ensure a better pedestrian environment and easy, safe and controlled pedestrian access at grade. • All path and landscape issues in Yarra Park adjacent to Jolimont Street including the removal of the existing footbridge ramp to the south-west of the MCG. • Council should be consulted during the detailed design stages of the project.
Council suggested that Exhibition Street Extension is not a freeway, but is a 60km/h section of typical CAD roadway, and no different from other streets such as Swan Street, Wellington Parade and Punt Road when accommodating high numbers of crossing pedestrians. Also, the design solution should
Page 105 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003 preserve the ability to integrate and connect seamlessly with future adjoining projects such as decking of the rail tracks and development of the VicTrack car and bus parking site.
Other points made in the meeting with Council officers included:
• The design of the bridge end ramps should be lightweight for maximum light and visual penetration. • Public lighting levels should be improved, particularly transitional lighting between Birrarung Marr and the new YPPL. • Materials and finishes should be easily cleaned or not attractive to graffiti. • Council is only interested in a routine maintenance role for the completed YPPL.
A copy of the Minutes of Council’s Planning, Development and Services Committee Meeting (No. 31) on 4 September 2003 were submitted with a letter dated 22 September 2003. Item 5.8 dealt with the YPPL as follows:
The report advised the Planning, Development and Services Committee of a Victorian Government proposal for a new pedestrian bridge to be constructed from Birrarung Marr to Yarra Park and the MCG, crossing Exhibition Street Extension/Batman A venue and the Jolimont rail yards.
The Acting Chief Executive Officer, Rob Adams, provided the Committee with a PowerPoint presentation outlining the main details of the proposal.
Councillor comments included:
• Clarification sought whether there exists any documentation on the traffic volumes along the Exhibition Street extension; • Clarification sought on the implications of paragraph 20.3 in the Management Report; • The link between the upper level and the ground level needs to be attractive so that people will be inclined to utilise it; and • Question whether there is any way to make the proposal compatible with cyclists by including ramps.
Incorporating Councillor comments, Cr Redwood moved the following motion:
That the Planning, Development and Services Committee request the administration prepare and submit a written submission to the State Government's Planning Advisory Committee stating:
• Council's support for a bridge from Yarra Park to Exhibition Street extension; • Council's concerns regarding the need for a bridge from Exhibition Street Extension to Birrarung Marr and its impact on the function and design of the newly completed park; • Council acknowledges that this is a State Government owned asset and does not accept any responsibility for on-going maintenance of the bridge and associated infrastructure; • that the issue of ramps for bike usage be pursued subject to safety concerns being addressed; • that before any decisions are made to extend a bridge into Birrarung Marr from the east side of Exhibition Street Extension it should be established that the proposed budget is sufficient to cover the cost of a high quality design solution for: • the main bridge structure allowing for the future integration with the Yarra Plan deck; − a landing plaza that provides easy universal access for all users, integrates with the future building site to the north, and creates an attractive shelter for trams; − a remodel of the Exhibition Street Extension node/plaza intersection to ensure a better pedestrian environment and easy, safe and controlled pedestrian access at grade; and
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− all path and landscape issues in Yarra Park adjacent to J Jolimont terrace including the removal of the existing footbridge ramp to the south west of the MCG; and • that Council should continue to be consulted during the detailed design stages of this project.
Cr Chamberlin seconded Cr Redwood's motion. The motion was put and carried unanimously.
• The East Melbourne Group Inc. (Submission No. 12 and Meeting 28 August 2003)
Support in principle. Primary concern is potential loss of parkland and mature trees in Yarra Park. Second concern is the visual impact the structural mass of the landing will have on residents living in Jolimont Street and the general character of Jolimont. Seeks to be involved and make further comment in detailed design phase.
• James Badcock (Submission No. 13)
Several personal and architectural comments about:
• Integrating the new design with the look and feel of the existing Birrarung Marr paths and bridge eg. lightweight, natural materials, re-establishment of any affected plantings. • The proposed plaza achieving disabled access requirements solely through ramps rather than providing a lift, thereby saving significant funds that could be put into more architectural expression. • Possibly include seating, rubbish bins and perhaps an art installation on the plaza deck as it will be a great vantage point of the city. • Bridge over the rail corridor - would prefer the whole nine-metre width to be a single element rather than split into two by the central arch truss; the design looks somewhat ordinary; needs measures such as a screen to reduce the potential for accidents (including objects being thrown from the bridge); and should not include any furniture ‘that may end up just being clutter that gets in the way’. • Widening the path from the Yarra Park end of the YPPL to the MCG concourse to nine metres or thereabouts. • The need for a more modern lighting proposal eg. underside of the bridge, LED (Light Emitting Diode) in ground or in balustrade and minimising light leakage. • The wind-powered turbine being a ‘nice idea’ which could be integrated elsewhere if the lift is removed. • Potential commercial/advertising opportunities.
• Halvard Dalheim (Submission No. 14)
The following is extracted from Mr Dalheim’s submission:
Firstly, I make this submission both as a resident who is a user of the trails in the vicinity of the proposal and as a professional city planner.
Regarding the proposal I make the following comments: • I regularly use a range of trails to walk from my home in Richmond towards Federation Square/Southbank. I would make this journey on foot about once a fortnight. • The existing trails network allows me to travel from the north east corner of Yarra Park to Federation Square, via Birrarung Marr with a need to cross only one road, though importantly a signalised pedestrian crossing is provided. • The proposed link will:
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- Remove the need to use the pedestrian crossing - Shorten the journey by an order of 300m. • Except at event times I see very few people making the journey from Yarra Park towards Federation Square. • The proposed pedestrian link will have very little impact on the quality of the trip that I already take. • The proposed link is not identified in the State Government’s open space strategy 'Linking People and Spaces'. • The project appears to be resolving an issue that will only be an issue for a couple of weeks in 2006. My experience at visiting the Olympics in Sydney showed how volunteers could be used in place of additional infrastructure that would have only been needed for a specified period. • At $27.8 million the proposal appears to be an in-appropriate allocation of resources. • By way of comparison: - Linking People and Spaces identifies the need for a new regional park in Cranbourne. - While the resolution of the parks location is a short term action. - Development of the park is a long term outcome, I have been advised that it will be in the order of 20 years. - Recent research shows that the Cranbourne area is under significant, social (welfare), education, and income stress. - Melbourne 2030 advocates for the timely provision of infrastructure. - The resource allocation proposed would deliver the park at Cranbourne. - It would deliver an asset that would be utilised for generations.
There I submit that the proposal is an inappropriate allocation of scarce community resources, it is not part of the State Governments own adopted open space strategy and the resources could be better applied elsewhere.
• Bill Bessemer (Submission No. 15)
Concerned about the bridge and the process, focussing on:
• Lack of recognition of domestic residences in Jolimont Street. • Potential for overlooking his house and lack of screening by trees. • Potential attraction for vandalism. • Need to remove car parking from the section of Yarra Park in which the bridge ends. • False promises made in the MCG Redevelopment process.
• Helen Page (Submission No. 16)
Concerned about the bridge and its impact on Birrarung Marr and Yarra Park, including:
• Lack of consultation with designers of Birrarung Marr and lack of respect for their design concepts. • Impact on the display embankment on the north side of the Middle Terrace in Birrarung Marr. • Severe impact on the ‘pleasant green’ western corner of Yarra Park, an area ‘constantly abused by its use as a car park’.
• Ronald Jones of Jones & Whitehead Pty Ltd (Submission No. 17)
The following is an extract from the submission by Mr Jones who was a member of the Birrarung Marr design team:
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I would like to express my deep concern with the proposed footbridge from the MCG to Birrarung Marr, especially the segment spanning Batman Avenue and landing in the new riverside park.
I request an opportunity to be heard by the Review Committee, along with the other key members of the design team for the park (none of whom are now employed by the City of Melbourne or other stakeholder groups that may have been consulted in the development of the Yarra Precinct Pedestrian Link project).
We would like to be heard as a group, and consider that it may be appropriate for us to provide a briefing to you on the objectives and design intent for Birrarung Marr as well as discussing our concerns with the current proposal.
I have fundamental concerns with the location and design of the bridge and believe it will cause serious damage to the park if implemented according to the current plans.
I also have concerns with the process undertaken in developing the project to date, and with the terms of reference of your Review Committee, which are restrictive and can be read as limiting the review to matters of detail. However, I have confidence that you will undertake your responsibilities in good faith, treating it as a review of the Yarra Precinct Pedestrian Link and the best ways to meet its objectives, rather than as a critique of a predetermined footbridge design.
Mr Jones added that his concerns were outlined in more detail in the AILA Special Report, a copy of which he enclosed. He included a report on the design of the park ‘Melbourne’s New Riverside Park: Birrarung Marr’.
• Helena Piha of 4D Form Pty Ltd (Submission No. 18)
As a member of the Birrarung Marr design team indicated that she was:
‘very concerned about the implications of the proposal to the park and request an opportunity to make a presentation to the Committee regarding the background and justification of the original Birrarung Marr design concept and its further development, including our views on fitting the new proposed pedestrian link into the park plan while retaining its integrity’.
Ms Piha added:
‘We also believe that there might be breach of copyright and due process, considering that no one from the original design team has been briefed or consulted about the new proposal so far.’
Ms Piha attached a copy of the AILA Special Report.
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• Nadia Gill of the Australian Institute of Landscape Architects, Victorian State Group (Submission No. 19)
The following is an extract from the submission by Ms Gill:
The Australian Institute of Landscape Architects (AILA), Victorian Chapter would like to formally lodge a written submission of appeal to the Commonwealth Games Planning Advisory Committee: firstly, against the proposed development of the Yarra Precinct Pedestrian Link itself, and secondly against the Terms of Reference of the current consultation and review process under which the Advisory Committee has operated to this date.
AILA is a non-profit professional institute formed to serve the mutual interests of its members and the wider profession throughout Australia. The Victorian Chapter consists of some 250 No. professionals who work across public, private and academic sectors.
As professional custodians of Victoria's public domain, AILA is all too well aware that the increasing urbanisation of Victoria has placed growing pressures on our public spaces and natural systems, thus reflecting the need for a more complex arrangement of social, physical, economic, aesthetic and cultural forces. Consequently, it is essential that every aspect of the public domain's future development incorporates an appropriate level of multi-disciplinary planning to ensure that all of Melbourne's public places are well designed, sustainable, meaningful, delightful and equitable for the people who use them.
AILA wishes to express concern about the physical and visual impact of the proposed pedestrian bridge upon the existing parkland environment, especially the segment beginning in Birrarung Marr and spanning across Batman Avenue. It is our opinion that the current footbridge design proposal as an aesthetically 'heavy and solid' concrete structure will visually dominate the Yarra River Parkland precinct and compromise the initial design intent of Birrarung Marr.
In particular, AILA is concerned that the Terms of Reference of the current consultation and review process has thus far, been managed to an unsatisfactory level. To our knowledge, the review panel has not consulted any of the original Birrarung Marr landscape design team members, including Ron Jones, Helena Piha and the Landscape Architectural firm of Taylor Cullity Lethlean Pty Ltd.
We believe achieving effective and sustainable outcomes in the built and natural environment requires an integrated design and planning response. Thus, in the interests of best practice, we propose that the Advisory Committee should carefully reconsider its consultation and review process for this project to include the valuable contributions from the Landscape Architectural profession.
AILA expressed its support for the independent written submission from Ron Jones (No. 17).
• Robert Mann (Submission No. 20)
Believed the YPPL is an excellent initiative, the benefit and accessibility of which could be improved at little extra cost by the addition of stairs from the bridge to the footpath on the western side of Jolimont Street as shown in a plan he prepared.
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• Michael Gerner of KLM Gerner Consulting Group on behalf of VicTrack (Submission No. 21)
VicTrack supports the YPPL as it will make a significant improvement to accessibility to and within this world-class precinct. The submission included a plan of the VicTrack site at the proposed plaza/node (see Figure 3.10).
The submission was ‘based on an evaluation of the preferred design concept and its various features, in particular, as they would affect the VicTrack site’.
The submission specifically concentrated on two aspects of the YPPL as outlined in the Planning Advisory Committee's Term of Reference:
• How the concept design of the pedestrian link integrates with the surrounding landscape; and • How the proposed YPPL provides opportunities to advance other developments in the Yarra Precinct.
Key points made included:
• Current use of the area on the north side for public car parking and noting that it was originally intended to accommodate tourist bus parking. • Ongoing requirement for use of the access road along the site’s northern boundary to car parking areas at Federation Square and uses along the Yarra River frontage east of Princes Bridge. • Vastly improved connectivity to the array of sporting and cultural venues and facilities that will be provided by the YPPL. • Consistent with the Yarra Plan, the VicTrack site: - ‘presents an ideal opportunity to create a genuine landmark development that could assist in knitting together a disjointed environment’… - ‘is positioned at an important pivotal threshold where there is a transition of uses between those associated with the Sports and Entertainment Precinct and the Melbourne CAD.’ - ’presents an ideal setting for the establishment of a gateway treatment that could improve the structure and function of both precincts.’ • The substantial and positive contribution that could be made by the right combination of land use and built form. • The importance of providing a key visual focal point, and encouraging a high-quality contemporary design that incorporates and promotes ESD principles. • The importance of close integration of uses and active frontages at both ground and plaza levels between the site and the YPPL. • Potential uses could complement the precinct’s sport and entertainment identity – ideally a mix of business, retail, tourism and recreational uses might be included.
• Perry Lethlean of Taylor Cullity Lethlean (Submission No. 22)
The following is an extract from the submission by Mr Lethlean:
We wish to advise you of our objection to the proposed footbridge connecting, Birrarung Marr, Melbourne's newest park, the Tennis Centre and the MCG.
Our firm, Taylor Cullity Lethlean were engaged as principal landscape architects by the City of Melbourne for the detailed design and documentation of Birrarung Marr.
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Our objection relates to:
• Absence of any consultation with the design stakeholders of Birrarung Marr regarding the proposal. • Detrimental impact on the intention, function and appeal of the Park, particularly the upper and middle terraces. • Absence of any demonstrated need for the bridge. • The limited terms of reference provided to the advisory panel which limits discussion on the overall merits or otherwise of the proposal.
These objections are further described in the attached letter by Ron Jones, principal designer, with Helena Piha, of the Park.
• Sally Draper of Swaney Draper Pty Ltd (Submission No. 23)
The following is an extract from the submission by Ms Draper:
Following the selection of our proposal in an invited competition in September 1999. Swaney Draper Architects were commissioned by the City of Melbourne to design and document the pedestrian bridge in Birrarung Marr.
Between September 2000 and December 2001. Swaney Draper Architects were part of the consultant team which oversaw the construction of the pedestrian bridge as part of the realisation of Birrarung Marr.
We are aware that the Department of Infrastructure has proposed a pedestrian link between the MCG and Birrarung Marr, including an elevated connection across Batman Avenue to the middle terrace of the Park.
We have inspected the report detailing this proposal at the Planning Information Centre of the Department of Sustainability and Environment and would like to formally submit our strong objection to this proposal and request that we are given the opportunity to present our view at the hearing on 4 September 2003.
It is our position that the elevated connection between the tram stop on the eastern side of Batman Avenue and the middle terrace of Birrarung Marr is unnecessary. The direction and placement of this link not only severely compromises the overall master planning of the park and its elements but also ignores the more obvious solution of using the existing pedestrian crossing at street level across Batman Avenue to the park. Birrarung Marr is seen as a park within the city's urban fabric which would allow visitors to escape from the city and seek a calm environment on the north side of the river. The placement of the terraces at different levels provides visitors the opportunity to view the city from a variety of vantage points. The proposed elevated connection to the middle terrace would negate the calm environment of the middle terrace and turn it into a pedestrian thoroughfare.
We understand that similar objections to this proposal have been submitted by Ron Jones of Jones and Whitehead Pty Ltd and Taylor Cullity Lethlean and we wish to add our objection to this proposal.
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• Jill Hauser (Submission No. 24)
Protesting against the YPPL for a number of reasons including:
• The wisdom of spending almost $30 million on a project in a precinct already well-served and accessible from Federation Square and Flinders Street Station by tram, ferry and walking. • How much thought has gone into the YPPL and how much will it be used after the Commonwealth Games? • The YPPL will not make access any easier or quicker.
• Victoria Police (Submission No. 25)
The submission covered several security-related recommendations from an assessment by the Police’s Commonwealth Games Planning Office Security Audit Team. Recommendations were about:
• Emergency Intercom Stations being provided at readily-accessible points along the YPPL eg. at the Plaza and near the Yarra park end. • Closed Circuit Television (CCTV) Monitoring, ideally connected to the existing City of Melbourne Safe City Camera Program. • Graffiti-Resistant finishes. • Sightlines and Entrapment Zones – good visibility ahead is directly related to the level of safety perceived about that area, and hiding places and entrapment zones should be eliminated by good design. • Lift at the Plaza should be of glass or other transparent material to promote safety of occupants through increased natural surveillance. • Lighting Design – to ensure adequate levels for camera surveillance and appropriate transitions between areas of different lighting levels. • Signage, appropriately designed and installed (eg. use of multi-lingual information and international symbols) enhances safety by giving confidence about directions, distances etc to all users. • Walkway Central Arch Design should provide for regular openings for flexibility of movements and options for users, resulting in increased safety in the event of any obstructions. • Walkway Balustrade - During ‘choked’ conditions there could be potential for people to fall or be pushed off the structure, and rubbish or other missiles thrown onto the railway below. Possible solutions were suggested. • ‘Anti-Skating’ Treatments to all flat and smooth surfaces should be installed to deter ‘grinding’ and other recreational use of skateboards and roller blades on the YPPL.
• Federation Square Management Pty Ltd (Submission No. 26)
The following is an extract from the submission:
We wish to formally place on record Federation Square Management's support for this project.
The pedestrian link will create a much needed and strategically important link for Melbourne by connecting the City (via Federation Square and Birrarung Marr) and the Sports & Entertainment Precinct.
We support the proposed option, as it achieves an important objective in providing a strong connection to
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both the MCG and Melbourne Park from Federation Square. We also support the use of the existing pathways between the upper and middle terraces of Birrarung Marr to access this link.
While we support the overall project, we wish to stress a number of issues that are of paramount importance to Federation Square's ongoing operations that need to be taken into account with the design, construction and operation of the pedestrian bridge. The Federation Square Loading Bay, Yarra River boating wharf and the Federation Square Car Park all require full 24 hour - 7 days per week unrestricted access for cars, trucks and heavy vehicles through the access road that runs through the VicTrack/Regal Car Park area off CityLink and in tum through to Federation Square. We formally submit that these requirements be taken into full account.
As we are in support of the project we do not believe it necessary to present our submission at the Public Hearings at this stage. However, if issues arise as result of this consultation process that may significantly alter the project, then we would request to be further involved as appropriate.
• Environment Protection Authority Victoria (Submission No. 27)
Comments included:
• Construction should be done in accordance with an approved Environmental Management Plan (EMP) which addresses risk specific to this project and is developed in conjunction with interested stakeholders. • Special attention should be given in the EMP to justifying and minimising out-of-hours construction activities, and to consultation procedures to be implemented before and during such activities.
• Melbourne Water Corporation (Submission No. 28)
No objection to the YPPL and supports further investigating options to collect, store and reuse rain water. Some recommendations to assist in the investigations were provided, covering:
• Landscape infiltration • Rainwater Tanks • Water-Efficient Landscaping
• Department of Sustainability and Environment (Submission No. 29)
Reiterated the urban design comments made by Stephen Thorne at the meeting with the Committee on 26 August 2003, including:
• General support for the YPPL and particularly its alignment as they reflect the Yarra Development Plan. • Questioned the need for a permanent grade-separated solution across Exhibition Street Extension (Batman Avenue). Instead believes an at-grade crossing, which is shown in the Yarra Development Plan, would be the most effective “out-of-event” mode solution. • Questioned need for an upper level plaza. Such a plaza was envisaged as part of fully decking the rail yards. If the plaza is intended to manage pedestrian flows, believes this should occur in Yarra Park and/or in a ground level plaza to the east of Exhibition Street Extension (Batman Avenue), and not as part of the bridge structure.
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• Personal safety needs to be enhanced personal by the YPPL. Believes this can be achieved by good frontage development of the VicTrack site adjacent to the tram stop. Suggests the preferred concept option as displayed will not support the safe use of public transport at this location. • Development potential of the VicTrack site should be maximised. Believes the present YPPL design will reduce development viability.
• Department of Infrastructure Public Transport Division (Meeting 14 August 2003)
No major concerns. Indicated that apart from some minor works the Richmond Train Station upgrade is not presently scheduled to proceed.
• Connex (Meeting 14 August 2003)
No major concerns from a passenger train operating perspective.
• Melbourne and Olympic Parks Trust (Meeting 26 August 2003 & Email 5 September 2003)
Support for the YPPL as displayed as ‘the best option available within the budget parameters’.
Although MOPT is keen to retain flexibility in its vision for the next ten years, it generally agreed in principle with:
• Improving pedestrian access and safety between the plaza area and an enhanced northern entrance to Melbourne and Olympic Parks, for example, as shown in Cox Architects Drawing “YPPL - Option 14a – Minimum Road Alterations – Current MOPT Conditions”. The drawing is of a new improved pedestrian access along southern edge of tramway that would provide flexibility in MOPT’s use of the road and northern car park area. • Reducing the road space and traffic lanes at the plaza area to achieve larger and more comfortable pedestrian spaces. If the number of traffic lanes is reduced MOPT expressed no major concerns if some cars from its northern car park used the existing access roadway to Swan Street. • Rationalising bus and coach parking as part of future development of Melbourne and Olympic Parks, for example, by relocating existing on the north side of Swan Street east of Vodafone Arena to the south side of Swan Street.
MOPT also:
• Emphasised the importance of ongoing use of Yarra Park on the west side of the MCG for car parking associated with events at Melbourne and Olympic Parks. • Agreed that greater use of Public Transport was desirable, but said the inclusion of public transport travel in ticket pricing was difficult due to variability in event sizes and patronage levels. It does however work well for the Australian Tennis Open.
Page 115 Commonwealth Games 2006: Yarra Precinct Pedestrian Link Report of the Planning Advisory Committee: 10 October 2003
• Melbourne Cricket Ground Trust (Meeting 26 August 2003)
Expressed views similar to those by Melbourne Cricket Club (see Submission No. 7). Emphasised the limits of works on the western edge of the MCG included in the MCG Redevelopment Project cost plan.
• Yarra Trams (Meeting 11 September 2003)
Yarra Trams:
• Accepts the proposed YPPL is a given but believes there are more pedestrian links needed in the precinct that do not form part of this project. For example, improved pedestrian path and links around the tram stops at Vodafone Arena, Rod Laver Arena and at the proposed plaza would increase safety (eg. avoid people walking along tram tracks) and tram operations. • Outlined key issues associated with its operations in the area, focusing on tram stop usage, patronage and pedestrian movements, queuing and control, particularly during major events. • Set out the desirable features and layouts for the tram stop, tracks, podium staircases and passenger approach and waiting areas at the plaza. • Emphasised the importance of a maintenance agreement amongst stakeholders to avoid present lack of clarity on graffiti removal and other routine maintenance responsibilities at the Vodafone Arena tram stop and pedestrian bridge.
• Department of Infrastructure Office of the Director Melbourne CityLink (Meeting 11 September 2003)
No major concerns, but emphasised some key considerations already identified to the Proponent:
• Definition of the space leased for CityLink operations and clearances. • The normal controls and any associated costs for temporary road closures during construction.
There were no concerns in principle about reducing the road space in the plaza area. There are no agreements with the CityLink operators about the ‘green time’ allocated at the traffic control signals.
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