Planning of retail centres
711 . 5522 0194 51 SAN
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DEPUTA'I'ION '1'0 THE MINISTER FOR PLANNING
The Honourable, L.S. Lieberman, M.P.
r, BY THE COUNCIL OF THE CITY OF SANDRINGHAM
PLANNING OF RETAIL CENTRES
THURSDAY 16th &UGUST, 1979 Dear Mr. Minister,
Thank you for the opportunity to put before you matters of serious concern to the Council of the City of Sandringh~m.
The Council of the City of Sandringham assumed its town planning responsibilities in 1948 with the adoption of the Sandringham Planning Scheme for its industrial area. Since that time most of the municipality has become fully developed.
The coastal residenti~l character of Sandringham largely reflecti the vision and the long term strategies of past Councils with recent development superimposed on the older coastal settlements without disturbing t~e character and identity of the city.
In essence these strategies, through the Councils local government and coastal management roles, often through direct consultation with other public authoritiei, have resulted in:-
- the provision of metropolitan Melbourne and the residents of Sandringham with a coastal reserve which" includes some of the finest beaches in the metropolitan area (mainly funded from Council revenues) not spoilt by inappropriate development.
"" through the long term purchase of indiviaual allotments, a magnif-
icent municipal golf-co~rse which is completemented by one of
the te~ best privately owned golf courses iothe world.
- throu~the operation of its planning controls development of
a relatively attractive and significant industri~! - employment ar2il.
preserva~jon of 5 acres of some of the last remaining indigenous heathland in the Metropolitan area.
-" development "of "the" charm "and character of" the Beaum"aris""area
as a coast~l suburb through retention of much of the coastal vegetation.
• ,/2, extensive provision of low income housing inthe Hampton area 'inconjunction with the Housing Commission of Victoria, without disruption to the Hampton community.
- the development of planning policies for flat development which, although resulting in flats comprising % of the residences I has limited impact on the residential character of the city. I - the retention of an extensive system of ~ublic transport which . i is.now complemented by a mUllicipal community bus for the eld~rly (and handicapped:).
the proviston of an extensive range of community service facilities adjacent to the shopping centres at the public transport nodes.
the consolidation and enhancement of the original coastal shopping centres into a comprehensive network of retail centres
com~lemented by the development of the establishment of the
Beaumaris Community Shopping Centre and the Bluff-B~lcombe Road series of neighbourhood centres.
The Council believes that the form and character of development of the City of Sandringham is one of which ·the community is proud
and shoul~ not be lightly destroyed or marred.
~ The Council believes that its retail centres being at the focal points of community services and public transport as well
a~ functioriing as local employment centres, form the heart of the day to day social life of the c6mmunity,
Whilst ~he Council encourages the upgrading of .the retail facilities which service the community, it believes that in developed areas, the form and location of new facilities should strengthen
and reinforce the ov~rall network of centres~ not disrupt it.
The essential reason for this deputation is that Council
believes that recent trends at ;eta~l development, post a significant
threat to the .character of existing community r~tail and service
ceri~res, and to the plinned provision and distribution of metropolitah retail facilities.
J !
J MATTERS FOR DISCUSSION
1. The Role of Local Government in Metropolitan
Planning and" it~ right to proper consultation with the Planning Authority.
2. Review of Planning Policies for Retail Centres
3. The Existing Community-Retail Centr~ Network
4. Adequacy ?f the Existing N~twork and Possible future Developments which could impact on it.
5, Redevelopment of Council~'owned prope:rties in the
Sandringharn Shop'pin~ Cen-t:.E!.
, i ~ t ! I i 1. The Role of Local Government in Metropolitan Planning and its right to proper consultation by the Planning Authority
1, 1. The Gouncil believes that .Local Government, being the' democratically elected representatives of the local communities, should be.responsible for determining planning strategies which directly impact on the local community.
1 , 2. Equally, the Council believes that in deciding matters of regional importance that the regional
planning authority should ~ake strong cognizance of the views and properly consult with the local authority in determining matters which affect those communities.
1. 3. The Council believes that this 1S the spirit and explicit intent of the Government through the provisions of the Town and Country Planning Act, specifically Section 53(6) of the Act, The Council believes that the Bains Report will reaffirm the importance of this municipal responsibility.
1. 4. The Council would respectfully submit that the recent reconstitution of the Board of Works, and ineffective
system of Area Commissions has effectively disen~ranchised metroporitan Local Governments which unlike other municipalities no longer have direct representation in the Planning Authority.
• c;. J...... a Similarly, the Council is concerned that there are no
elected municipal representatives on the Boa~d of Wurks Technical Advisory Committee on retailing,
despite the fact th~t Councils are charged with the responsibility for admini$teringthe planning schemes, and levying separate rates, providing the primary service facilities and so on)in retail centres.
I, 6 ~ With regard to ·the Building and Development Commission
Report on Planning a~d the recent Amendment of the. Act, the Council accepts the principle that C6uncils should become the local "orie-stop" shop for all plarrning
perlnits, however it would be most ~oncerned that the
function of Local.Gov~rnment does not' become one purely administrative expedience for the regional a.uthority ,that its current planning prerogativ'es were not curtail~d and that it retained the ability to contest decisions of the regional planning where it believed that they ran contrary to the interests
of proper planning for the local co~munity.
1.7" The Council respectfully submits that it is its
prercgative to ensure proper plannin~ pract~ce in relation to matters which affect the local community: - it should not be denied all information supplied to the regional authority by a developer on the
g r 0 u n d s 0 f " con f ide n t i ali t y " - it must be able to contest'plannjng decisions
made under a metropolitan ~ianning scheme affecting
the provision, location and distribution of l~nd uses where they impact upon the particular municipality, even though the actual'site may be outside a Council's municipal bonndaries.
however the Cou~cil 1S concerned that when, in the
administration of the planning schem~ consistent with the interpretatiois placed on the scheme by ·the planning authority, it 'is enjoined in a Supreme Court action for an order to review on a matter of planning scheme interpretation, the planning authority
is not party to, such action ~nd the local Council must carry the full burden of the cost of the action,
,. 2. Retail Network S~~~tegy
.2 .1. The Council wishes to thank the Government for its initiative in requesting the M.M,B.W. and the Town & Country Planning Board to ·prepare.retail planning Policies,
2 , 2 • The cost to all paFties and the problems highlighted by the recent Werribee, Keilor, Geelong, Frankston, Morwell, Knox, Doncaster and Moorabbin/Sandringham retail development proposals, have emphasised the need for such policies.
During the past three"years, building approvals in Victoria ha"~' increased both in the number of· shops ~.'J' by 48% and a value by 97% - A.B.S,, June 1979. Whilst this may be largely attributable to significant increases in real personal incomes in the early 1970s - the relatively higher returns on retail development - an 'apparent preference by financiers for tetail
~evelopment proposals.
the d9pressed state of the housing ~ndustry/market. - high interest rates - continuing changes in the economy and retail supply (imports, etc.) and distribution networks I the Council believes that the resultant retail development proposals has not always accorded with the proper planned provision of retail facilities for the benefit of the community as a whole.
1. 4. Specifically, the Council is concerned that
there is currently large scale provision of additional retail floor space, which will in many
cases be unsupport~ble for many years.
- the location of much of this floor space outside
the e~isting centre network, rather than selectively ,uJ:'>grading. and strengthening the established network of commupity and commercial centres.
- the significant investment by the community, in particular local traders, community organizations,
! public authorities and Local Government inthe existing network of. retail~community centres;developed ------~------~------
Re!ai~~~etw?rk Strategy (cont'd)
·in acco:t-danc:c with ·theestablished ·planning schei'ne, will be written off in the current push for
retail expansio~,
that the warning by Sir Keith Campbell (Financial Review 21/7/78) that Australia was in danger of a serious over-provision of retail floor-space will " be realized in Victqria, because the Council
believ~s that this will most seriously impactoD the retail facil·ities in the established community centres, which, in general,have higher cost structures and more marginal viability ,thereby causing a serious
contraction in- the ftinct~on and the range of goods
and services available in these centres and seriousl~ disrupting the overall network (distribution) of retail-service centres.
2 . 5 . The Council accepts that the development of the Regional ShoEping Centres during the 1960's, as fore-shadowed by the 1954 report of the Board of Works, provided a metropolitan network of regional (mini - C.B.D.) .. "comparison goods " shopping centres, ·complementing the established regional centres and reflecting the growth of Melbourne.
The establishme~t of these cent~es enabled a more local ized, regiona 1 pattern of " compar i son goods" trading to develop, thereby generally off-setting any immediate diminution of trade, by retention of trade' within the region.
2.6. In the developed suburbs, subsequent retail development was generally within the established centres, particularly by way of supermarkets, upgrading their essential weekly convenience shopping and service functions. This has been complimented by substantial investment by local government and' traders in off-street carparking and beautification schemes to improve the general shopping amenity, and location of a greatly expanded range of private and public service facilities in proximity to these centres, i'10st o_f these centres are \l7ell serviced by p\lblic transport ------
,Ret~l.l Network Strategy (cont!d), • . • " < (' ~ <. " ~. , 'i ,~-~~~... -~ ; " i" •
2.7. However many recent retail proposals demonstrate the emergence of a new'trend in the provision of retail fac{lities, which are clearly contrary to , the fundamental principle~ upon which the Bo~rd of Works 1954 report and subsequent development in
accordance ,with 'the planning scheme has been based:~
the larg~ scale of the retail facilities, frequently with single stores with floor areas of between 5,000 and a,ooo m2 - the dispersal of retail facilities - their freestanding location, often ±n industrial areas, in isolation from any public transport or community or service facilities, - the essential retail function, weekly convenience shopping, duplicating the function of existing nearby community centres, rather than extending
the range of good~ and services available at suburban locations.
Whilst these trends are not of themselves considered appropriate, with regard for the recent metr6politan planning statement by the Board of Works "Challenge of Change", and can be disastrous within fully developed suburban areas or rural, areas, they can both be appropriate and necessary in developing, outer suburban areas with high rates of population growth.
2.8. Further, the Board of Works has recently approved
the rezoning of industrial la~d to facilitate the l'ocation of a ,"new form ll of retailing; a "discount
store~, in an area, th~ rationale being that the residents are entitled to a wider range of facilities.
However, the essential retail function of these facilities as clearly stated in their annexed,publicity
is" vi e e k 1 Y con v en i e n c e s hop pin g " . This is the same function as is already provided for retail facilities in the existing nearby community centres. The
di~count stores do not take trade away from the higher order, 'department store based, regional centres, but from the local community centres. This function ,is clearly demonstrated by the retailers preference for inclusion of a supermarket on 'the si te.
"Discounting" does not o£'itself provide a wider range of goods, but is purely and simply a low-cost, low mark-~PI h{gh turnover form of retailing which has previously operated in other retail spheres.
The economies 'in this case essentially deriving from the scale of the operation, the substitution
of floor~space for labour and the 'low site ~nd
development costs~
The Council believes that should such facilities be
con~idered necessary within an area, then particularly
in the fully develop~d inner and middle suburbs which in the main have declining populations and established
n~tworks of community shopping centres based on the public transport nodes, such facilities should be located within or adjacent to, existing centres, with
shared carparking provision and assum~ng a form wh~ch rectifies any deficiencies in the present range of goods and retail facilities offered.
The facilities can be viable with floor space of less than 3,006 m2 in existing centres. Arguments of lack of site availability generally assume an optimum
size for the facility rather than one appropria~e to the location and existing provision of retail facilities.
2.9. The Council has been infoimed discount operations do not satisfactorily integrate within existing centres, however as the following photographs clearly illustrate such facilities can be integrated, with shared carparking in existing centres:-
.. Retail Network Strategy ( cont'd ) -~----'-- -.::--:-~-.....- . ( ~ \ - . ~--
Di scou nt store and s upe r market
o p po s i te anothe r s u permarke t and elec t rical store, and the s tation/market ca rpark
2 .1 0 . It s hould be m e ntio~ed that in the followin g areas where
i t . i s c 1 a i tn edt hat. dis C 0 U n t fa c i 1 i tie s h a ' 7 e 1 0 cat e d without detr i ment to nearby community centres , there
ha s be e~ sign i ficant population growth. Ret:ail Ne twork Strategy (cont'd)
Population (C ensus) 1966 1971 1976
(Preston) 89,775 9 1, 900 9 0,400 Reservoir - Target ( H e id e 1 b erg ) .:::.6~3"--,-,.::.9.:::.3_ :2=--___--=-=--!...:::.....:::...:::. 68,300 67,600
{Nunawad i ng)7 4 ,57 8 90,800 94 ,8 00 BUr\'lOOd . - K-Hart. ( vhtver ley) 69 , 8 4.. .:::.5___ -=-..:...... !_ 97,100.:::...~ __ _ ~.,700
Karingal - Woolworths (F'ston) 42,085, 59,800 74,600 . ~~~----~~~~
Campbe 11 f i eld-K-Ma rt (B' me adow~ ~8_8_,~. .::.0..;::.8--'0 '--__-'=--=--'-'-''-- 101,200__ 109,400 can be compared with Sandringham-Target (Sandh'm) 36, 6 72 35,460 33,400
Further these centre s all have full catchments, unlike most of the Sandr ingham Community Centres , ...... --...------___- ----: D.~ i ll---
----. - ______'' _~_l5' ___ BA y
85 --...... -.----___?Jl . ~ J------
MAP h
Pattern of Existino r p n~r0~ KEY T o HAP 6 - LD7-\'l'TERN i . OF EXISTING CENTRES
Y\ A----______, Bri~~~;~~ BentlGigh I
Brlghton . \ ~ leth .. ~1iddleO O~:~~ ~ __ " , Crry OF [ BRIGHTON O
t r L ------.-~C-)100rabbigITY O~ 1 ) . MOORABBLN . OHampto<, . 0ighett .
~andrlngn ,~_ ~~ - [ ..... '" '-....
CITY OF ~ 1._r SAN[))UNGHAM ( ) Chel tenl1iiffi
"[ " ~ Black Rock 0 .'F--"- ---- "L
Bea UITlc.r i s \) __ " '---./ Cay OF MORDIALLOC 3. THE EX ISTING CO MMERCI AL CENTRE NETWORK
3.1. The Council b e lieves that the ultimate goal o f the retail planning policies i s not the protection of existing traders, but is the provision of the local communities with an ac c essibl e , comprehensive network of retail, service and community facilities which optimize the choice of goods and services available
to the communities which they se ~ve, primarily in terms of location and distr ibution .
• A copy of the commercial network centre study und e rtaken by Plant Location International for the Council has already been supplied to the M,M.R,W, and the Town and Country Planning Board (the s ummary is attache d).
, j ' c' 3,2. The City of Sandringham Jo C> \>lell served by a comprehensl v~ network of community and ne ighb ourhood shopping centres, as well as the Southlands regional shopping centre at Cheltenham on the Nepean Highway (5 km. from Port Phillip Bay) • See Attached Maps.
All community centres, with in Sandringham, Brighton, Moorabbin and Mordialloc, also have direct public transpor . , links by train (or Railway Bus) to the Cen t ral Business District.
3.3: Historically, the older coastal shopping centres of Hampton, Sandringham , Black Rock and Beaumaris Village (neighbourhood centre) have expanded to complement the series of community centres a long the Nepea n Highway at Moorabbin, Righett, Cheltenham and Mentone as residential development occurred between the t wo transport corridors.
Development of the B ea u ma~is Concourse Shopp ing Centre, and the neighbourhood centl.-es of "Seaview" (C r omer Road) and Balcombe Park in Beaumar is, and Hampton East and Ca st l e fiel d in Hampton, were p lanned developments b y
th~e 'l'own a nd Co untry Planning Board, the H.r.1.B . W., the H.C,V. and the Cities of Moorabbin and Sandringh am
during the 1 950 1 s.
Subsequentl y in 1 967, th e "Southland " Regional Shopping
Cen'cre, f o r e ~ha. do ed by 'c h G M.a . B, W, in 1954, wa s d eveloped nea r the Chelt2nham S h oppi n g Ce ntre at the inter se c t i n oi Ray Road and the Nepean Hi g h way . The Nepean Highway location enabled the Centre to p r operly service th e largely fully deve lope d r e sidential areas to the west of the Nepean Highway (comprising the who le of the City of Sandringham, and part o f Moo rabbin, Brighton and Mordialloc) as well as the largely rural and industrial areas to the east of the Nepean Highway where residential developme nt is now occurring (part of the Prefeired Development Areas) •
3 • 4 • The size and characteristics of the Community and neighbourhood shopping cen tres wi thin Sandringham are located on the attached maps and illustrated below : - , j:; Ii ~ I ~ , ~ Ii; I!, , ~ I . ': 1 - lij i;i I ~ I ," .~ I ; '. I ~ ! ~ I ~ 1
CITY OF SA N ?RI NG HAM ~~ - ~
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c
.... o -9,..
LEGEND
COMMUNITY CENTRES
NEIGHBOURHOOD CEI'-lTRES
FIG .
SHOPPlf'-JG CENTRE r JE TWORK ' PLAN I L_. ------,----- ._------_. -j " ,:, '
HAMPTON SHOPPI NG CEN TRE
The shopping c e nt r e is typical of many of the older strip shopping centre s.
It i s over 1 . 2 kilo meters in l ength, wi th over 3.50 individual o c cupanc i es / two supermark e ts an d 14/000 m2 o f n ett retail flocr spa c e.
It s primary focus is aroun d the Waolworths Supermarke t between Hill'; 51 Street and t he Railway line.
Its main strength has been the r ange o f small speciality shop s , howeve r wi th t h e a d v e~t o f Southland it h a s assume d a mo r e l o c a li z e d function.
T~e c e ntre r unE na~th - sou t h between South Ro a d and Cr isp Stre e t . It draws its p r i ma r y trad e from the east . BLACK ROC K SHO P P ING CENTRE
The shopp ing centre is very much the trad itional community "conven i ence" shopping cen tre, b e ing located on the 3 way intersection of "B e ach, Blu f f and Balcombe Road s, in a coastal location.
It has 76 occupancies, with two supermarkets " and ove r 4,400 m2 of nett retail floo r space.
With over 4 0 % of the floor space devoted to food sales, its stre ngth ha s b een in the food s a les for the local ar e a to the s o u th east and north .
It also ha s an extens ive range of community faciliti e s and is serviced b y three main bus s e rvices.
The 76 trade rs a n d t h e Coun6il have alre a dy provided 176 off- s tree t parking s p aces for the centre . BEAUMARIS CONCOURSE SHO PPI NG CEN TRE
This centre was planned by M.M . B.W. and the City of Sandringham Council during the d e velopme nt o f the Beaumaris area in the 1950's.
The centre occupies a site \-{ith 90 occupancies and a nett retail floor space o f The centre
has only one super~ark e t with a large number of specialty shops .
It is serviced by two bus service s .
The centre is located adjacent to Reserve Road with generous o ff and on-stre e t c a rparking and an attractive plantation re servE: .
The shopping centre is cloi e to the Co mmun i t y Centre also in
Res e r v e Road, w h i c ~ occupies a s i~i lar Si Z 8 site .
THE SANDRIN GHAM SHOPP INC CE NT.'E I S DISCUSSED LA TER .
I • I I NEI GHBOURHOOD SHOPPING CENTRES
BEAUMA RIS VILLAGE SHOPPING CENTRE (B each Road and Ke y s Street )
The c entre wa s the orig inal Beaumaris coas t al v i llage centre. It adjoins the Beatmaris Ho te l , and is , near the Infan t Welfare Centre and P reschool and Bowl i n"g Ciub.
It serves a ve r y localized function with 1200 m2 of r e t ai l floor space.
It has two bus servic e s .
"SEAVIEW" CE NTRE ( Balcombe & Crome r Roads)
This centre was p l anned and de ve loped as a comple- mentary neighbourhoo d centre to the Concours e . This thriving centre has two small supermarkets and net retail floor spa ce of 1800
It i s also serviced b y public buses.
The c entre has a quite local i zed; but strong conven i ence shopp ing func tion. CASTLE FIELD S HOPPING CENTRE
(South and Bluff Roads)
This c entre was ag a in planned and d~v e lop e d by the H.C.V. It is featured as the model neighbourhood centre in the 1954 M.M.B.W. r e port .
This and the other Bluff Road c entre s we re pro vid e d as neighbourh ood centres, complementing th e co a stal and Nepean Highway c ommun i t y centres . Thi s c entre has 4 , 000 m2 o f n et retai l floor spac e , b ut l a ck s a stro ng con v en i enc e functio n .
HAMPTON EAST (Highett & Bluf f Roads)
This typical s t rip neighbourhood centr e , ha s ove r 2,000 m2 o f ~e t t retail floor space. Jt d epe n d s heavil y u p on the 65 0 m2 supermarke t .
Both th i s a nd C as~lef i eld a re s e rvice d by east-wes t bus r o u tes . 3.5. The com~unity centres are also the focal points for the community of private and public service facilities. A typical range of such £acilities are those found
within 400 m, of the Sandr~ngham Shopping Centre (see At ta'ched Map):- General: Abbott Street Beach and Beach Park
the ~ublic Transport Terminus a Post Office and Telephone Exchange a Pol'ice Station a Court House
6 Churches with ~ssociated Halls and Social facilities 3 Medical practices ,with ~ total of 7 medical practitione~s 2 Dentists a Life Saving Club Parliamentarian's offices 6 Banks a Veterinary 'Surgeon Hotel Picnic gardens Citizens Advice Bureau a Family Planning Centre Christian Scientists Reading Rooms/Hall
~he Municipal Library
Youth: a Youth Drop in Centre an Infant Welfare Centre a Child Care Centre
2 Primary Schools a Scout Hall
' .. ,,~ . a Guides Hall
Adult: The Senior Citizens· Club 24 Elderly Citizens flats 3 Geriatric Hospitals providing 64 beds plus a day clinic 6 Licenced Restaurants 3 'Cafes a Hotel (with 10 residential suites and 240 m2 of bar spaCE 4 Aged Persons Hostels (129 "beds) a Convent a P:d,va,te Club a Masonic Club·
/ I These facilities are accessible to all sections of the
~ommunity by private car as well as public transport and the community bus, LEGEND
COMMUNITY SERVICES
PRIVATE SERVICE PRE~JjISES
------_.------FIG ..S. EXISTING COMMUNITY SERVICE FACILITIES ------.------3.6. The Counoil recognizes that for the centres to optimize its service function to the community the "market place" must be viable, as well as having a social function,
To this end the Council has, within the past ten years,
elfcouraged upgrad ing of the shopping 'f ac iIi tie 5 by permitting the development ot supermarkets of an appropriate scale within the following centres:-
Community Centr_~~ Hampton (2 supermarkets), Black Rock and Beaumaris Concours
\ \ Ne~gh.bourhood Centre Hampton East.
Similarly, the neighbouring municipalities have allowed the development of supermarkets within other nearby
com~unity cnetres, which form part of the overall network of retail centres. These facilities, have
in som~ cases required assemblage of parcels of prop~rties by developers, and rezonings, but all have in accordance with the planning scheme been located in or adjacent to existing centres!-
City of Moorabbin: Moorabbin and Cheltenham
Brig~ton: Middle Brighton (now 2 supermarkets) Mordialloc: Mentone (2 supermarkets) and Hordialloc •
.With greater personal mobility and the advent of "one
stop" shopping ha~its, these facilities, when provided in an appropriate scale, have complemented the range of goods and services provided by the smaLler specialty
shops and provided the rna j or· II food 11 conven ienc e shopping store to' make the centres competitive and attractive to the younger more mobile shoppers,
3.7. The Council and th~ private traders, mainly through separate rate schemes, have provided additional Qff
street car~arking at the following centres:-
, . Hampton Shopping ,Cen tre 447 spaces Black Rock 176 " Beaumaris Concourse 130 1\ Beaumaris Village Centre 40 II Sandringham ( nO'tJ being' implemented) 121 "
Total provision 914 spa.ces
A conservative estimate of the provision of these spaces, at current values being between $2,000 and
$~,500 per space, would be around tw6 million dollars. I 3. 8. At, the same time the Council hasy carried out sbreet
b~autification schemes to improve the shopping amenity I
Station Square, Sandringham 4. AD~ACY OF THE EXISTING RETAIL NETvWRK
4. l. The "Comnlercial Centre Network Analysis" undertaken by Plant Location International and submitted with
the Council's objection to A~M. 82 part 3, concluded
that the network wasr~asonably in balance (Summary attached) , No justification was found for the creation of any new shopping centres,
4. 2. ' In terms of the analysis, given the later-mature age
profile of the population, the lo~ household formation
rate and declining populations in the residential area~ to the west of the Nepean 8ighway, it was considered that apart from some selective upgrading of existingcentr~~J that there was no justification for a new shopping centre of 30% increase in the nett retail floor space of the centres within the area bounded by the Nepean I Highway, South Road, the Bay and Charman Road, as is currently proposes for a discount store,
4.3. Similarly, the network is currently well balanced in terms of the complementary relationship of the neigh- bourhood centres to community centres, Consequently,
the recent proposal to the H.C.V~ by a major retailer for the Castlefield neighbourhood centre to be converted to a 4,600 m2 supeimarket with some specialty shops Could not be justified, except in terms of accessibility.
This proposal was subs~qu~ntly turned down by the then Minister for Housing.
4 . 4 , In terms of th~ distribution and location of centres,
most of the Sandringham ~ommunity centres enjoy a coastal location, however as thid deprives them of i • western catchment, penetration of their eastern catchment
by a new convenience retail facility wi'll be particular~y detrimental to Sandringham, Black Rock, Hampton, Hampton East and Highett. Whilst the other centres will be effected this will be offset to some extent by their eastern catchments,
4.6. Given the ~,M.B.W, 's statement that suburban regional shopping centre networks should provide residents with & full range of retail facilities, and that apart from the 1,200 m2 discount store ~t Southland, the nearest full rang~ discount facility is 17 km. from the Bay at
I Parkmore, then it can be anticipated that a discount
facility will be permitted within the region, However~ the current proposal is to be located only 2.7 km. from the Bay,
4.7. The M.M.B.W. recently refused a permit appli?ation for a 10,2-)0 m2 communi ty centre which incl uded a 5,000 m2 discount store and supermarket, ~tating "interalia" that: "Adequate ?rovision has alrSady been made for establishment of shopping facilities in the area",
4.8, In terms of location, and accessibility location of a discount store along the Nepean Highway or Warrigal Road would seem far more appropriate than a location 2,4 km. west of the Highway,
4.9. However, iQ terms of distribution of retail facilities,
site avail~bility and reinforcement of the network
of existin~ centres, provision of one or more smaller. 3,000 m2 ~ 5~' 00 0 m2 f aci 1 i tie s would be more appropriate. There is currently a 1,200 ~2 clothing facility in Southland, however larger area was recently converted to small speciality shops,
opposite S~uthland on the Nepean Highway there is a 3.8 ha, site which could accommodate a 4,000·- 5,000 m 2 discount store.
Adjoining the Cheltenham Shopping Centre there is a 1.4 ha. site which could accommodate a 3,000 m2 facility.
To the east along Warrigal Road there are a number of sites which could accommodate a 5,000 m2 plus, facility.
Within the Sandringham Shopping Centre, .there is an alternative development site which could accommodate a 3,000 m2 facility, should there be the population/trade to fully support it.
4.10. Further, it is considered that location of one or more discount facilities at any of the above locations would be preferable to confining peak vehicular access and egress flows inthe order of 600 vehicles per hour each
way to one entry and two exit points on Bay Road~ BAY ROAD looking east
Further service vehicle entry to the site is intended to be
__--._ .... _.~-,..__-vi~Advan tage Road,
Advantage Rqad looking south
However, because of the congestion the vehicles are quite likely to use one of the nearby residential streets, such as Miller Street or take the same route through residential streets as the l'l.B,B.W, construction vehicles,
.'
4,11, Location of the total regional discount facilities, on one site to the west of the Nepean Highway is not considered to accord with the proper planned provision of retail facilities, either in terms of dj.stribution or l':)cation, Such facilitie~ should properly be located qn four lane divided carriageways,
ENTRY TO DISCOUNT STORE RESERVOIR
PRESTON ------
. -:.- .... -.- . :~~ -,.
,.
~/ternative Dey. Site
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I • * Traffic Management / Shopping Enviroment Works i I .. I I I
. SUMMARY OF STRATEGY TARGET SITE
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Port Phillip Bay
SANDRINGHAM SHOPPING" CENTRE - .- SP.NDP. I ~!GHP.M SHOPP I NG CENTPf STPATEGY
SU~~P.RY OF THE STR. .f.l.TEGY flJID OF P.ECOj"1 ~ END~.T I O~lS .1.
SUMMjJ.RY AND RECOMMENDATIONS
1. Introduction
The main purpose or this E'tudy is to set out a forward planning strategy
for the Sandri.n gham Shopping centre for use by developers I shopkeepers, the community generally , and the Council .
2. Future of the Shopping Centre
Upgrading and enhancement of the centre should occur by:- r (a ) retention of the scenic coastal village character of the centre (b ) the location of a modern supermarket l-lithin (or adjacent to) the centre (c ) consoLidation of the centre , referably within the main body of the centre to the lvest of the railway line (d ) increased , more accessible carparking provision within the centre (e) creation of a pedestrian shopping precinct betl\'een Bay Road and Abbott Street v.'i thin a consolidated shopping centre (f ) creation of a pedestrian mall in the eastern part of Melrose Street (g ) furt0er utilizing the existing potential for office space within or adjacent to the centre. (h ) encouraging specialized housing adja.cent to the centre ,
(i) retention and reinforcement of non-reta.il communi ty - service facil.ities at selected locations within or adjacent to the centre (k ) providing guidelines for the intergrated future development of the c entre
3 . E!isting Conditions
Despite the extensive provision of community service facilities and public trarsport the ~entre is fragmented and lacks adequate parking provision. It also lacks the drawing power of a modern food tra.ding fa cility to provide the centre with a competit.lve range of goods and services to satisfactorily serve the community .
The centre still has a coastal resort " village" character and this should be retained . A full range of com'71unity faci.Iities are proTll'ded within t he centre and in the nearby residential area . Prol.rision for office accommoda tion has been made along Bay Road, and further opportunities exist vlithin the centre itself, particularly at the first floor level . • The centre has an eastern trade area of 9 , 100 persons, predominate.ly mature age families comprised of 3 , 100 households .
The centre currently has 4,400 m2 of net selling area, of which only 1 , 037 m2 is devoted to food sales , with the largest f ood store having area of only 261 m2 ,
4 . Current role and function of the Centre
The Centre forpts part of an established netlvork of neighbourhood , communi ty and reyiona I shopping cer;tre, and fulfils a "community c entre" functio!? for the convenience shopping and services needs of the Sandringham com1Tlunit~ .
5. Assessment of the centre
. ':.'he ce,1::re is deficient in that it does not have a :najor "food" shopping sto::- e , vlh j.ch is required to attract and retain convenience retCJ.il expenditure ~11 th2 centre and to ll ,ake the centre competi ti vc vIi th othel' supermarke t based centres. Summa .>::.] &Tld RecoTil;;Jenda tions
2 .
6. Deve lopment Alternatives
Two essentially alternative proposals have been received for supermarkets of 3 , 100 m2 each with 1350 m2 of specialty shops . 'l'he proposed sites are on the eastern and thE: western sides respectively of the railway line, between Bay Road and Abbott Street . Both proposals entail r edevelopment of l arge commercial-zoned sites plus a number of smaller s eparate.2y o{me d properties.
7. An optimal retail provision for the centre as a whole woul d include : -
.- a major s upermarket (1 , 500 - 3 , 500 m2 ) - a full range of food stores - domestic hardware - chemists f ull range of personal services - newsagents - variet y store or discount store e . g . a Mini K, small Target , Venture , or Magnet store (3 , 000 - 5 , 000 m2 ) - clothing stores - shoe stores - o ther specialty s t ores
Rental area of retail uses in "Community " centres 5hou1.d normally be betvleen 5, 000 m2 and 15 , 000 m2 but it is the function of the centre , rather than its size , which is of critical .impo:rtC!nce,
8. The preferred development alternative i s :-
Development of a 2, SOD m2 superrra rket on the vlestern side of the rail",'ay line, reinforcing the main body of shops and consolicating the centre between the railway line and Beach Road, between Abbott Street and Bay Road.
The alternative site to the east cf the railway line could be redeveloped for a secondary magnet such as a mini-discount or household goods store .
Location on the k7estern si te r"lou1.d reint·orce tile Station Square focus of the cent re and optimi ze the d.istrib ution of shopping traffic throughout the centre .
Provision of relocated, improved commul1.ity f acilities would b e necessiJ.ry • prior to redevelopment of this site .
9 . Elemeni;s o~ the proposed s trategy (refer t o figure 2) - i n terms oE the pr eferred development alternaUve_:-
(a ) F!1 nc"..:.lon, r:omiJ0'-: i tion and Size of Centre
(5) Enhance primary convenie nce shopping function of the centre , b y encouraging following optimum retail prolTision (ne t retaJ:l f.loor SP2.cs/
.food sales 3,000 3 , 800 m2 42 - 45% personal se::cvices 800 m2 12 ~~ clothing 1 , 400 m2 20% small & l ar ge. goods - Household 25%
Total
pJ.us Offices (OFfice Zone - J. , SOD m? ) and Hotel
(ii) Enhance the centre's communj ty sen,j.ces by upgraded - Library ( 500))12 to 7 20 m2 ) , < - Senior Citizens Club ( 220 m2) • • j - • Summal'Y and RecorfU'TIenda ti OIlS
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- provision of - Theaterette - Reception Rooms - Youth Centre and maintenance o .f other complementary facilities . (iii) Encourage the coastal recreational and resort aspects of the centre (ivj Encoura ge the employment function of the centre, with regard for the above and the establ.ishment of additional office accommodation within the centre and the "Office" zone .
(b) ~ccessibility
Improve accessibility by:
(i) Maintaining and as far as is feasible extend the existing public transport facilities, (ii) Maintain the Station Square focus of the Centre. (iii ) Improve accessibiJ.ity to the centre froIn Beach Road and Bay Road. (iv) Provide additional .linked carparking both off-street and on-street and improved in-centre vehicular circulation for customers and service vehicles . (v ) Provide addi tional bicycle storage facilities . (vi) Improve pedestrian shopping t.r:affic amenity.
(c) Pedestrian Prec.incts and Circulation (i ) create a pleasant pedestrian envi:Lonment , for optimum distriblltion of pedestrian shopping traffic within a pedestrian priority precinct. (ii) creation of a pedestrian mall at the eastern end of Melrose Street .
(d) Character of the Centre
(~) Improve centre identification by encouraging a thematic architectural treatment and the scale of buildings , signage proposals and [,o,Torks to develop the coastal village character of the centre. (i i ) Visually, create a sense of place and identity, using the scenic coastal l ocation and integrated streetscape and building • trea tmen ts • (iii)Create a high level cf pede stri an amenity within the centr e particularly by way of plantings for climatic and visual effect . •
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LEGEND
SERVICE BUSINESS r LOCAL BUSINESS I OFFICES
EXISTING RAILWAY'
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