711.30994 5 URB: UrbanDevelopment -options for ' . . •:• P u b I i c •:• C o n s u I t a t i o n •:• R e p o r t •:•

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P~NNJNG AND EPA LIBRARY·

. State Government of Victoria Department ofPlanning and Housing . 1991

Printed on recycled paper Foreword

In January 199i, I released the Urban Development Options for Victoria discussion paper' and · launched a four month public consl.lltation period. The discussion paper synthesises the major issues raised in ba.cl

Andrew McCutcheon· Minister for Planning and Housing ..

. . Disclaimer· . . The views presented in this working paper do not represent the official position: of the Victorian Government or agenc1es involved in the strategic studies. . ·

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• Contents

Introduction 1 Exeeutive summary 2 1. Background 3 2. Public consultation process 4 2.1 Public consultation seminars 4 2.1.1 Format of the seminars 4 2.1.2 Minister's speech 4 2.1.3 Additional seminars 4 2.2 Newsletters 5 3. Analysis of submissions and issues raised at public seminars 6 3.1 Environmental/ agricultural 6 3.2 Economic overview 7· 3.3 Urban infrastructure 8 3.4 Transport . 9. 3.5 Density issues. . 11 3.6 Leisure and recreation issues 12 3.7 .Commui:uty development 13 3.8 Immigration 14 3.9 Regional centres 14 3.9.1 Infrastructure in regional centres 14 3~9.2. ' The regional eeonomy . 15

3.10 Issues addressing specific regions 16 3.10.1 Metropolitan Mell:xmrne. 16 3.10.2 Outskirts of Melbourne 17 3.10.3 Geelong· · · 18 3.10.4 Ball~at- Central Highlands regio~ . 19 3.10.5 Bertd1go- Loddon/Campaspe regt.on 20 3.10.6 Murray Goulburn and tne Northnast 21 - Wodonga 21 - 22 - Wangaratta 23 3.10.7 Latrobe Valley 23 3.10.8' South and East Gippsland 24 3.10.9 Mallee 25 .3.10.10 South Western Victoria 25 3.10.11 · Wimmera · 26

4 .. General con:clusions 28

Appendice.~ 1. Table of seminars attended by the Minister. · . 32 2. Minister's s~h preser:'-ted at Melbourne seminar 8/3/91 35 3. Table of additional semmars .. · . 44 ·4.' Summary of respondents 45 5.. List of all submitters . 46 6. I Table of issues .given major emphasis in submissions 48 7. Summary of responses . . 49 8. The Public Consultation Project team . 50 1

Introduction

This document is part of a long term commitment by the Department of Plannin& and . Housing to provide for the development of this State. several strategies have been designed to ensure tnat Victoria's growing population has a high quality ·fiving environment and opportunities for sustainable development. These include the VictprJ

Robert A Carter Director General Department of Planning and Housing 2

·Executive summary

This report has been produced at the end of an extensive community consultation process for the Urban Development Options for Victoria DiscussiOn Paper, which was ·launched by the· Minister for Planning and Housmg on January 25, 1991. The reJ?Ort provides details of the community consultation process and provides a summary of maJOr issues raised within the comm~nity .. -So~e g~neral conclu~ions are pr~vide<;l to. identify the major is_sues canvassed and this section highlights the need for further mvestigations. . . , . · The main issues rclised by the community· were: the widespread communitY support and commitment to a comprehensive stafe-wide strategy to guide Victoria's growth; · · · . a clear expression of people's val~es and preferenc~s in regard to Victoria's .future urban and regional growth; . · . . . . · the desire and need· to halt Melbourne's sprawl, incorporating urban consolidation principles; · the need fo~ sustainable .development principles to be incorporated into planning for future growth; . . · · · · ·· supp<)rt for further population and economic growth in regional Victoria; and the need for stronger recognition of competitive advantages of regional centres and their catchments; · · . . . · · . . · the need to identify_ and recognise areas of el)vironmental, landscape and agricultural significance, when planning for future development; . . . . .

support for the retention of the corridor-green wedge pla~ing policy; support_ for the further stimulation of development ·at Dandenong, balanced with the recognised need to prote~t .the surrounding natural· environment, agricultural !arid and tl}.e sensitive ecology of Westernport Bay; · . support for the introduction of adequate pricing systems arid developer levies to· assist in the provision of infrastructure in Melbourne and ~egional centres;

the need to pi_an new ur~an areas to cap~talise on public transport infrastructure and reduce the rehance on pnvate motor vehicles; · .

the need to r~cognise the advantages of provinCial centres. in regard to life style qualities and cost effective use of infrastructure; . . . _- recognition of the importance of Melbourne as a. national and international centre of economic growth and its role in encouraging investment in Victoria as a whole. . ·

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1. · . Background

In August 1988 the State Government· released .its publication Trading on Achievement .. This report emphasised the need to focus on competitive strengths as the basis for economic growth and diversifi~ation. The capacity for regional centres ·in Victoria. to accommodate additional population levels and further eeonomic growth was identified, and several broad options were suggested. · An Interdepartmental Steering Co~ttee was established to research these options further and to oversee the production of a series of issues papers and technical'reports. The titles of these working papers were: · , . . · · . . Victoria'n Regional Development- A Recent Perspective, Regional Centres Study, · · . . The Immediate Future Towards the Year 2000, · Housi"!g. ¥.elburniaris for the Next Twenty Years: Probl~, Prospects and · Posszoiltttes, · . . · . . Population Trends and Forecasts, . . . . . · Statewide Employment Projections: the Next Fortv Years, . Physical Planning Aspects of Victoria's Future l.Irban Development, Catchments of Provincial Centres in Victoria · · . . · Water.Supply, Sew~rage and Drainage Services, . . The Vzctonan Spatwl Econ(Jmy, . . . · . Relative Infrastructure Costs of Urban and Provincial Development, Transport 'Working Paper, ami · . Statistical and Data Analysis These reports were prepared by ·a variety of government ·agencies, but particularly the· Departments of Manufacturing and Industry Uevelopment, Labour, Conservation and Environment, Transport and Treasury. Other specialists and research groups frqm Monash University, Swinburne Institute of Technology, RMIT and planning consultants also prepared reports.· · · · · ·

On 25·January 1991 the Minister for Planning and Housing', the Hon Andrew McCutcheon· launched the Urban Development Options for Vic;toria Discusswn Paper. The Discussion Paper synthesises the.working papers relerred to above and outlines trends and opportunities for .. long term urban devefopment. . The intention of the Discussion Paper was to encourage thoughts and contributions from the community about the future urban development of · Victoria. The Discussion Paper outlined current ~rends inCluding popuiation, economic aspects and the environment, and discussed the impact on the future aevelopment of Victoria. The paper highlighted the need for the community and government to formulate a ·strategy to. gu•de · . future growth; The Paper provided. four inain development alternatives for Melbourne and regional centres in order to promote discussion of alternative development scenarios. . 4

2. Public consultation process

A four month public consultation period for the Discussion Paper concluded on 31 May. The purpose of the cornmuniry consultation program was: . · _ · .

to obtaincornment upon the information· presented in the Discussion Paper, . ' . . ' to stimulate debate concerning urban issues relating to Melbourne's growth and the . future roles of regions in the State, . . · · · · .

to elicit variety of opinion and discussion fro in the community as. to directions for · future urban growth in Victoria, and· : . . . . to gain an appreciation of the attitudes of planning bodies, other organisations and individuals. as a foundation upon which a preferred urban strategy may later be . developed......

D~ring th~ con~ultati_on period 7,500 Discussion Pap~rs ~nd 15,000 Summary brochures were pnntea. The Discussion Paper and brochures weredistnbuted free of charge. . The Discussion Papers were distributed according to a. mailing list which Includes all gover~ent and pnv~te agencies. involved i~ urban planning, Local Government, Members of Parliament ana maJOr cornmuruty groups. · · - · . · · Discussion Papers· and brochures were also distributed at the Department's Bookshop and Regional Offices and at public seminars. ·

2.1 Public consultation seminars Seminars and workshops were organised by the Deparbn~nt and other interested agencies and community groups. . . . .

· Nine seminars were attended by the Minister at major regional c~ntres: Geelong, Ballarat, . Wodonga, Shepparton, Latrobe Valley, Bendigo, Melbourne, Warrnambool and Dandenong.

2.1.1 Format of the seminars The agenda for these seminar~ usually comprised a gerierai introduction to the Urb~n Development Options Program, the Minister's Speech and questions from the floor to the Minister. Local speakers usually followed the Minister's speech, then a group discussion, workshop or panel discussion would take place. · . · · . · · The table in Appendix- 1 summarises the details of these seminars.. The seminars were . organised by the Department:and advertised in local papers, via press releases and in the case of the Melbourne Seminar, an advertisement was placed in The Age. · . ·. 2.1.2 ·Minister's speech The Minister's ~peech presented .at the Melbo~rne seminar on March 8, 1991 is. attached i~ Appendix2. · · . . .I . . . 'I At the end of his speech at each ~eminar the Miilister addressed local issues and answered questions from the floor~ · . · . 2.1.3 · Additional seminars Other _agencies, professional bodies and interest groups were encouraged to organise their · own seminars between February and May, assisted by· officers _from. this Department. Approximately 18 seminars 'were held. A summary table attached in Appendix 3 details seminars attended by Departmental Officers. · 5

2.2 Newsletters . . . - . .The Department has prepared ne~sl~tters for all seminars held in the major regi~nal centres . except for Dandenong and Warrnambool. The newsletters provide a precis of the Minister's · speeCh, and presentations given by guest speakers. Also mcluded is a summary of issues · raised during workshop. sessions and panel discussions...... · Each newsletter is approximately 1,500 words.· The newsletters .have been mailed out to inore than 800 people who are. i~cluded on a maili:r:tg list fo! the -seminars held in all major re~onal centres. Therefore partiopants at. the Bendtgo semmar for example, would also receive a n~wsletter from the Shepparton Seminar. . . . · . l I I 6

3. Analysis of submissions and issues raised at public s.eminars

A total of liB written submissions were received during the public consultation process. A table of respondent groups is in Appendix 4. · · · . The majority of submissions were received from local government, and professional groups. A smaller proportion was received from re~onal authorities, other government agencies, private individuals and interest groups. Oruy a handful were received fr<;>m educational mstitutions and private consultants. A list of all submitters is in Appendix 5. It is interesting to note that a large proportion of the submissions were received from country Victoria. The submissions raised a variety of different issues. A summary table indicating how many submitters emphasised a particular issue is included in Appendix 6. The options for development were included in the.discuss~on pa~r mai~y: to pr<;>mote discussion ab<;>ut·the development of future urban centres, and If possible provide tne Impetu~ for new options to be canvassed. Instead most of the submitters chose one or two of the suggested options ?S their preference for the. future pattern of. Victoria's growth. A summary of submitters preferences for a particular option is in Appendix 7. · Most ofthe submitters and those who attended the public seminars, expressed their concerns about existing and future growth patterns in Melbourne and Victoria as a whole. They have indicated strong support for the introduction of a comprehensive strategy which addresses the needs of the State as a whole. It was considered essential that the Strategy is equitable to all members of the community and addresses the needs of city and country dwellers, whilst addn~$ij_lg economic, social and environmental principles. The majority of submitters congratulated the Minister and this Department for tackling a very complex issue, and for providing a forum to enable community input to form\}lating the vision for Victoria's·future development...... People have stated the need for a co-ordinated approach by all level~ of government, the development industry and the. community, to address current trends and establish guidelines for the future. . \1he~e- has been a strong response supporting the need to contai~ Melbourne's urban sprawl. · While · ~ople generalfy support consolidation l!leasures they recognise t~at changes ·in commuruty, developer and local government attitudes take time, and reqmre a concerted , effort from everyone. Coupled with the desire to curb Melbourne's sprawl was a very J ~~onglyargued case for fuWre development in regional centres. The support for regional ~ntre growth underlined the need for co-operation between government agencies. . Pebplewere concerned that economic forces which will either make or break regional development need to be thoroughly addressed. The need for self-generating economic activity in regional centres was recognised in many submissions b1.1-t there were concerns that these measures need to be reinforced by government policies, seeding grants and job creation.

The main issues canvassed at the public seminars and in written sub~issions are outlined below. . .

3.1 Environmental/agricultural issues

Submissions highlighting the need to protect important environmental and ·a~ cultural resources, supported urban· consolidation and the need to stop· Melbourne s sprawl. Submitters dii:f not support the "New Towns"· option because of its potential to . create additional environmental problems for Victoria, ana the possibility of impinging on areas of agricultural si~ficance. Some groups questioned whether the planned growth corridors were curbing urban sprawl or contributing to it. · 1~recognised that development in regional centres should incorporate similar principles of urban consolidation, sustamability ana energy efficiency as proposed for Melbourne to. protect rural land and areas of environmental significance. Furthermore, sprawling urban development is not only expensive to establish and service infrastructure, it is also very inefficient in terms of energy consumption, greenhouse erriissions and sustainability. , 7

Submitters were concerned that inadeguate information is ·currently available about areas of enviro~ental ~nd a~cultural significance, especially adjacent to the no~nated regional centres m the discussiOn paper. It wa~ suggested that the Department of Agnculture should have greater involvement in the planning process. - The issue was taken further by conservation groups ·who highlighted the need to ·preserve productive high quality agricultural land from development pressures, and the need for a strategy whicfi clearly defined the future of agriculture in Victoria. . . Submitters encouraged self sufficient communities, alternative life styles and the protection of environmental resources. Design offuture urban areas should incorporate solar efficiency, increased use of public transport, recycling, alternative~ to current means of waste disposal' and use of alternative energy ~urces .. The use of rain water to supplement-mains supplies to ·urban areas was also suggested. · The problem of light pollution owing to uncontrolled outdoor lighting was highlighted by the Astronomical SOciety who have proposed an "Outdoor· Nighllighting COde". The implementation of this policy woulcf save fossil fuels, decrease air and water pollution and provide clearer viewing of the night sky. . . · . . Some submitters ·advocated low density residential development. with on site effluent disposal. This view however was challenged by environmental agencies. Submitters also stated. there was opportunity for revegetation and forestry activities m non-urban areas. T~e l_leed to r~tain th~ quality 'of life advantages ~nd character of ~egional c~ntres was highlighted. There was a clearly stated concern that Melbourne's eXIsting environmental problems of pollution and traffic congestion should not simply be transposed to regional Victoria.· Furthermore submitters gave support to the Compact Mel~ourne. opti~n because, }f properly planned and controlled, It was seen as a means of reduang nmse, air and traffic polfution· problems in the State. The need for planning to .incorporate measures to reduce· the effect of greenhouse emissions, and thereby create.a more ~u~tamable city was highlighted by subrnitters. · · . . . A number of submitters emphasised the importance of Melbourne's green wedges and were concerned further pressure would be placed on the green wedges as residential aevelopment opportunities, hohday destinations and as recreational outlets for Melbourne's larger and more compact population. The issue of green wedges was highlighted in submissions which discussed the Twin City concept. There was concern that further growth in Dandenong would provide impetus for aevelopment · east of Pakenham . township, and perhaps ·.development would continu~ down to the Latrobe Valley. · · Most submitters clearly stated that should tWin city development occur, a high priority should be the protection of areas of open space and. environmental significance and reinforcement of the green wedge policy. Particular areas of concern includedKoo Wee_Rup Swamp, Port Phillip and Westernport Bays. · · ·' Other groups requested that the Government re-think Melbourne's pattern of development in terms. of corridors and green wedges and questioned whether It was in fact cheaper to develop on green wedges or to provide infrastructure beyond Pakenham for example.

3.2 Economic ov:erview Submitters highlighted the need for planners to focus on the connection between economic pro~esses and spatial patterns in planning_f<;>r future ec

The Royal Australian Planning Institute (RAPI) submission in particular stated the need to take into account international, national ami state economic conditions and ·exis~ing problems of low or negative. growth, high unemployment. under-utilised capacity and' balance of payments diff.iculties exac~rbated by high imports and iow exp(>rt prices. · I . . .

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. . it was suggested that a more co-ordinated approach to planning for our future would be achieved through co-operation of·alllevels of Government. The RAPI submission reflected the views of many submitters by stating that "the issues of tariff protection, industry assistance and immigration are critical for any spatial development strategy for Victoria."

The desire for economically balanced development in Victoria between Melbourne and · regional centres ~as expressed in many submissions. Economic issues relating specifically to Regional Centres are discussed in further detail in section. 3.9.2 of this report. · · . . · Those sul?missions which supported the need to curb Melbourne's sprawl recognised the current inequities of increasing housing and development costs, increased travelling times and cross town journeys to work, coupled with the cost of infrastructure provision on Melbourne's· fringe. Whilst th~re was general support to redress the econoffiic imbalance perpe~uated by Melbourne's sprawl, there was also recogtlition that Melbourne's role as the economic base for Victoria could create positive spin offs for regional centres, as an attractor for overseas investment. ·

3.3 Urban infrastructure issues The high .costs associated with the provision of infrastructure for a sprawling metropolis was a major. issue raised in many submissions and by people attending the seminars.·. The consolidation of Melbourne's growth was largely supported as a sensible alternative, where maximum use of major infrastructure alreaay m place, would occur. Many submissions therefore supported the Compact Melbourne option as a means of curbing Melbourn~·s sprawl: Submissions OJ?posing the New Tow~s concept, pointed out that the higher up-front . capital investment reqmred was not justifiable. ~ The Public Transport Corporation (PTC) considers consOlidation is a means of better utilising rolling stock and existing infrastructure. It supported the extension of urban development in areas which complement the existing publjc transport system and those areas whicn can be readily serviced by public transport. The PTC supports a .more consolidated pattern of growth because increased pc>pulation densities would lead to greater patronage of public transport, capitalisation on toe existing network and therefore greater cost recovery from. existing infrastructure. A more compact city would also promote the use of other means ·of transport such as cycling and walking.

It ind~cated the introduction of dou_ble deck~r· trains will provide sufficient capacity for the electrified system by increasing passenger capacity and allowing redistribution of single deck trains to service peak demand elsewhere~

VIC ROADS stated that, at a regional scale, two integrated land u·se/transport actions that make the most of existing investments and consolidate landuse development are: . Transport service development for access levels that will sustain and develop the existing investment base at selected activity centres, and . · .

. II~westment in landuse dev.elopment that is well sited for quality servicing by transpo,rt infrastructure. · · · . It was recognised that the provision of infrastructure and the high standard required in outer and fringe suburbs is expensive: The system as it has evolved, now offers little choice between fully serviced lots arid alternative housing. Some people recommended that costs should be .bOrne by the developers and passed on to purchasers in fringe ·areas, as an incentive to consolidate Melbourne. Furthermore, there were concerns that fhe. provision of infrastructure such as community facilities and services often lagged behind development in outer suburbs. · It was generally agreed that incre~sed densities would provide sc~pe for different types of housing and lot sizes and would provide greater housing accessibility and affordability in the long term. · · There was support for the introduction of developer levies to enable. the provision· of infrast.rucfure. The development industry also suggested the introduction of tax mcentives to facilitate building a variety of housing types and higher densities. . ------~------,

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...... In supporting the development of a more comract city a number of submissions stated that existing infrastructure, especially in Melbourne s inner suburbs, may need to be upgraded or replaced to cater for a larger population andincreased use. A number of inner murucipalities were concerned about who would l'ay for any maintenance and_ upgrading required. The costs·of upgrading and replacing eXIsting infrastructure need to be compared to the costs of providing Infrastructure on the fringe. The ability for inner suburbs to accommodate additional growth without threatening their character was also questioned. Studies undertaken on Docklands indicate that, in comparison to development on the fringe, there could be savings made in the use of infrastructure in and around Docklands~ .

The City of Essendon in particular, raised the iss~e of closing Essendon Aiq:>Ort It was . . considered more appropriate to utilise existing infrastructure at Point Cook and Melbourne Airport, for example, therefore-enabling the Essendon Airport site to be redeveloped. There is concern that ilie existing E~ndon Airport operations are not economically viable and presently create noise ana· safety problems due to inadequate buffering from nearby residential areas. ·

3.4 Transport issues

Oilly nve of the submissions emphasised transport issues. However, the majority of submissions supported regional centre development, outlined aspects of transport infrastructure which would need -to be upgraded or developeQ. to provide better links to Melbourne, and links between regional centres.

·The .Environment Protection Authority (EPA) submission in particular highlighted the importance of the link between land use poliCies~ transport and the e.nvironment. Their submissions outlined the need for an integrated transport strategy, incorporating public transp<>rt where possible when considering future urban development. This could specifically be aci:Ueved through the efficient use of resources, accessibility to jobs, goods and services, environmental protection, safety and security, economic regeneration, and practicability, including financial_feasibility.

A concern raised by a number of subrilissions was the present reliance on the use of private motor .vehicles, particularly in. Melbourne. This problem is further compounded by low density urban development on Melbourne's fri~ge, and the greater distances travelled to shopping centres, schools, hospitals etc. The_ depenqence on cars in preference to other ,. · . modes of transport is a major concern. particularly in terms of environmental and social planning impacts on the urban environment. ·

A particular concern of the EPA is the level of air and noise pollution currently generated by motor vehicles in Melbourne's urban environment. The EPA outlines the need to plan for a more sustainable city ~here public transport patronage is optimised and dependence on private motor vehicles is minimised. The need for othe_r .more environmentally acceptable forrris of transport such as walking and cycling is emphasised,· and should be an integral component of planning for new urban forms.

Most submitters recognised that public transport is a crucial element in developing patterns of urban development, and optimum use should be made of this resource. Strategic framework plans and land use policies can influence future patterns of travel, and should be based on access to public transP<>rt infrastructure. Long lead times are required to plan and resource major p~blic transport infras~cture. This aspect must therefore considered in the early phases of strategic planning. · · · ·

The provision of public transport facilities and the recurrent expenditure required represents . a major long term public investment. The Public Transport Corporation (PTC) submission. highlighted the· need to · capitalise on existing infrastructure and opposed further development of uneconomic transport services. Development in areas which can not be effectively serviced should be discouraged. The PTC has provideO. a broad assessment of

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likely costs of public transport service improvements based on the four options proposed in the Discussion . Paper. The PTC ·submission rai~s · the concern that continued high expenditure on road infrastructure would further reinforce dependence on motor vehicles and further encourage urban sprawl. The PTC submission ·outlines th<;tt the Compact Melbourne option would enable future development to capitalise on the existing · infrastructure network.

The PTC consider:s that Compact Melbourne is the only option which can be,lanned with . certainty, as the relative value of existing infrastructure is overwhelming an as the other· options are highly susceptible to changes m external circumstances. .

The PTC indicated that additional study is required to address ·a number of important issues, before a preferred pattern of development should~ adopted. Areas for study mclude: . linkages between urban centres; . . . the importance of public transport as a determinant of employment and industrial location; . · the implications of changing national and international economies, and the implications of energy costs in the long term. . - · .

The VIC ROADS submission highlights that a more compact city .. .'should. include a sma:ll I number of major ·activity nodes as focal points for a comprehensive range of retail, ·' commercial and service activities, building on investment already in place. The employment · and activity· would create higher. threshold levels for more viable transport ~rvices for further consolidation of the local region's transport patterns.' The interconnection of these major activity nodes would form a lm1g distance transit infrastructure around which local distribution services would develop. · ·

VIC ROADS considers that dorrnitory suburbs should carry cost surcharges for the provision of transport services to provide access to jobs elsewhere. In future the pricing of public transport services will need to more closely reflect the overall costs of providing that service.

At present, the capital costs for road and public transport services amount to 60% of the total capital costs for integrated urba~ development. There are also ongoing funding requirements for maintenance and operating costs. VIC ROADS acknowledges that transport infrastructure can lead development. However; the provision of this infrastructure aheaci of d~yelopment needs to be well founded and carefully programmed.

The national freight initiative task force has been established to rationalise rail inf~astructure and improve the efficiency of freight transport. Proposals for freight movement will have a major .impact on the economy of . regional centres .and the location of industrial and employment nodes. · ·

the National Rail Corporation will be established this year to operate interstate rail freight services. At present, a major constraint on the operation of a national rail network is the absence of a standard gauge system between Melbourne and Adelaide. The standard gauge would ~nable better interstate links for manufacturing industries and port facilities ..If the linkproceeds it could be constructed by 1995. It is recognised that national and state land - transport connections and supporting air and sea terminals play a vital role in the communications and .strategic development network.

VIC ROADS' submission has three major thrusts: .

the role of transport service. provision in urban and regional planning for the State's long term urban development, · · outlined "strategic transport linkages", and the need to bridge ahead through community-based~ regional forward programs, for consistent public and private sector actions, directed at a diverse regional· urban and eco.nomic system. 11

. VIC ROADS provided two plans showing regional and metropolitan strategic transport . linkages: Their metropolitan Melbourne strategic transport linkages map highlights:

Consolidated major regional acti~ity, service and employment ce'ntres at Dandenong, Ringwood and Frankston. · . Geelong as a preferred outer western major activity centre. The option of a ·consolidated northern centr~ of a different kind of activity /employment mix in the north west in the yicinity of Melbourne Airport. an option for a major land use, development driven regional activity centre to the north . of Werribee. The metropolitan ring road · The radial transport access corridor, linking inner Melbourne to Melbourne Airport. Secondary transport service linkages to the preferred South. Eastern, Werribee and Plenty Valley Growth Areas and secondary linkages from other potential growth areas su~ as the Merri Corridor and Sydenham.

The VIC ROADS submission highlights two significant str~tegic linkage constraints:

Ge~ting pas't,the Central Activities District (CAD)- Where the neckipg down of .the land m~ss and the confluence of .the corridors from the east ·and south of the CAD means that the area will always be under pressure. The corridor south of the CAD is a critical . one for efficient movement past the CAD for access to significant terminals on its south­ western perimeter and to significant land uses further west and north. ·

Eastern/South Eastern Region access to the Northern Corridor/Melbourne Airport - Across the most populous and largest metropolitan employment base extending from east of the· CAD, the absence of high quality cross-town linkage (s) to the nation's most significant land trans.port corriqor and the regularly accessed Melbourne Airport. A consequence is the drawing of high valued travel into the less-reliable, more congested and high travel-cost central area· environs. ·

The absence of quality inner-area roads for traffic passing around or across the central area was highlighted as a general constraint. · ·

The VIC ROADS submission highlights that community-oriented forward programs are required and emphasised the importance of taxes and charges to reflect more appropriately the real costs of providing urban services.

3.5 . Density issues Whilst most respondents agreed that densities in Melbourne should be i.ncreased the issue raised a variety of conflicting responses. · · . · · Some submissions considered that high density housing is usually poor qu;1lity and more expensive to const~ct. It is recognised that new, higher density developments, such as DOcklands and Southbank will need to lead the way, and prove that higner densities are attractive, provide adeq_uate community facilities ana are sympathetic to the environment. Some submissions nommated the ULA as a suitable agenty to provide 'good examples of higher density development. The potential to redevelop· redundant industrial and commercial sites, buildmgs and underutilised public land for residential development, has · been recognised and should be encouraged. However, the practical difficulties of doing so were also recognised, for example, fire restrictions on the re-use of old buildings. The Docklands Task Force outlined that the Docklands project would provide a significant redevelopment opportunity to Inner Melbourne. However, owing to the length of time development wilf take and the variety of uses proposed, Docklands would only provide a · small proportion of future housing stock, in the context of Victoria as a whole. 12

A number of developers voiced concern that the planning system is currently frustrating attempts to provide _medium density housing. They suggested uniform changes to building regulations and council policies to streamline medium density development approvals. . There was also a concern that urban consolidation has not worked so far, given low po,Pulation levels in the inner suburbs, and the tendency for commercial development to take Jmority ov~r !~side':'ti~l development in inner areas. Further residential development in the · Central ActiVIties Distnct was supported. · . · . .

Tw~ conyer~ perceptio.ns about dual occu.Pancy develoJ>ment were ~aised. Some J?eDple beheved It did not provide a cheap alternative to detacheeing more important than mandated densities. The mobility of young people is presently constrained by the existing system of pricing, taxing and regulating housing development and transfers. The importance of maintaining residential amenity in a city with higher densities was also. raised. People have flagged the need to implement an education ·program to gain genenil acceptance of nigher densities and urban consolidation principles in tfie community, and at the local government level. Current trends for people to give their priority choice to housing in the· eastern and south-eastern suburbs will need to be turnea around and other residential · opportunities highlighted,. for example the northern and western suburbs. It was considered that comm~nity education will need to.be accompanied by political cornn'Utrnent. It was suggested that model higher density developments be constructed for the purpose of community education. The VLA were nominated to provide an example to developers, councils and the public. . · .

. 3.6 ·Leisure and recreation issues Only a small proportion of submitters raised issues of recreational facilities and resources and access to leisure opportunities. It was stated t];lat residents have a right to basic leisure faCilities. Submitters generally supported-the notion that urb~ consolidation would provide people with an increased variety of leisure and entertainment choices and opportunities because catchment sizes would be larger. In a more compact city, residents would use public transport and travel shorter distances to access a greater variety· of leisure and recreational facilities. · ·

It was considered that open space should be of high quality, accessible to the J>9pulation and provide a range of leisure opportunities. However there was concelll that additional pressure would be placed on existing recreational and open space areas in a more compact city. Particular interest groups emphasised the. importance ~f retaining open space ·along Melbourne's waterways, . which will face greater pressure as recreational outlets for . Melbourne's increasing populati.on. The waterways will be a significant resource should further co,nsolidation or Melbourne take place and therefore should be considered as essential infrastructure for the city. Waterways would contribute to enhancing .the quality of life of people living in a more compact Melbourne. · . · · . 13

3.7 Community deyelopment

Community development and equity is~ues were an underlying consideration ·in the preference expressed in many submissions for a more compact Melbourne. Many recognised there were benefits, in having ready access to. nearby community facilities and services, in contrast to fringe suburbs of"lvfeloourne where services lagged f>ehind development. This situation wa~ perceived to ~.e.specially inequitable for low in~o.me families on ilie fringe .who face lortger JOurneys to faohties and empfoytllent opporturuties. The need to co-ordmate Social planrung and physical planiling was highlighted. : .

The benefits of a closer community and community networks were also m~ntipned, especiall}' in those submissions outlining tlle benefits .of living in a country town. There was .a real concern in country Victoria that people living in the metrop

.. I It was generally considered however that new towns would create a costly and socially isolated environment for r~sidents. . · · ·

3.8 Immigration A small number of respondents held vely strong· views that if immigration levels were lowered, there would be no need for a strategy to guide Victoria's growth over the next 40 years. These submissions commented that immigration creates environmental and economic problems particularly in the capital cities. They consider that immigration has contributed . significantly to ·the costs of urban infrastructure provision and has increased housing prices, as more remote ·and difficult sites are developed. Most people, however, treated the immigration ·issue as a 'given! whilst others gav~ examples of tfie benefits of immigration. I Some people suggested that further .information should .be obtained regarding the impact of I migration policies to more accurately assess population forecasts. · · . The· Royal Australian Planning Institute stated that 'Without migration the housing task would 0e substantially diminisned because of our relatively low growth by natural increase." .Their submission along with others, suggested that given the concentration of immigration levels in capital cities tile Federal Government should take greater financial responsibility for urban infrastructur:-e provision.· · · ' The submission from the Geelong Regiona.l. Commission goes f~~ther, to sugg~st that ~e "Commonwealth Government ... fully mvestigate the .effects, positive and negative, of their immigration p<)licy to determine whether it's sustainable i~ the longer term." This 14

submission also suggests that :'Federal and State. Government investigate mechanisms to direct incoming migrants to desired localities," other than the major capital cities of .

3.9 ·Regional-centres The overwhelming response from written subinissions, public consultation seminars and .workshops was support for further population and economic growth in regional centres. Of those suomitters wbo supported further growth in regional centres, a num'Der also supported ·the implementation of urban consolidation policies in ~elbourne. Some concern was raised that the discussion paper focussed :mainly on Melbourne and its urban growth problems, to the detriment· of provincial Victona ·and its potential to accommpdate further growth. · · · · ·

Strong sub~ssions were receiv~ supportin~ growth in all six regional ce~tres nominated in the DiscussiOn Paper or alternatively a selection of these centres was normnated. A number of strongly argue

The Royal Australian ~Ianning Instit-ute submisSion suggested that a medium-term capital budget should be established to support the preferred spatial development strategy. . · The Gas and Fuel Corporation assessed the four options in terms of their relative capital costs for new gas supply. Reticulation and local transmission pipeline costs are included, but costs associatea witb new gas supJ?lY projects _to support the expanded population are not included. On this basis the Reg10narCentres and Twin Cities options are marginally cheaper · than the Compact Melbourne option. · 15

The Public Transp

With regard to development in regional centres, the PTC conSiders there is scope to improve the operation and capacity of existing services, but this would require significant capital. expenditure and recurrent funding; Improvements in public transport to regional centres should be undertaken to cater for existing demand, rather than regarded as a major opportunity to develop-new areas. Aspects noted about regional issues by the PTC are: industrial and employment location as affected by public transport and rail, . · extent, type and staging of public transport to support the development of regional centres, . . assessment of linkages between urban centres and the development of suitable transport models.

The Regional Strategic Transport map supplied by VIC ROADS highlights:

The primary national land transport linkage to Sydney. Primary linkages to the closer regional centres of Geelong, Ballarat, Latrobe Valley and Bendigo. . · . . The secondary national land transport linkages beyond Ballarat to Adelaide and through Shepparton to Brisbane and secondary linkages to or between provincial centres. · · Regional catchments feeding _urban centres, markets and ports. · 3.9.2 The regional·economy

It w~s acknowledged that successful development of regional centres was intrinsically linked to economic J?Olicy, processes and initiatives. The need to encourage the expansion of - existing worlo com~titive industries in regional Victoria and ·exporting value added enterprise was highltghted. It was suggested that seeding grants were a means of attracting these industries. . There was also recognition that the areas which should I>e promoted are those which are economically strong and active. These areas would therefore attract the greatest proportion · of funding and become self generating. · ' ·

Th~ regional towns ~nd c~ntres highlighted ~e n~ to promote the potentia~ of their own regiOnal centre, and m domg so they would highltght to mvestors the econormc strengths of their region. · · Some of the regional. centres stated that access to Melbourne was important to achieve successful economic growth in regional centres, whilst other regional centres considered their centre should be self contained. The need for pOlicies to concentrate on economic processes linked with spatial patterns for economic growth was highlighted. TheSe ~licies would also need to link with . environmental, social justice ancf infrastructure irutiatives and policies. . · It was generally recognised that more emphasis needed to be placed on economic ·growth especially if current trends in regional centres were to be reversea. Thus the development of employment opportunities needs to be underpinned by resource strengths. . · · Many of the responses received from the regional centres considered that manufacturing offered future op_r.ortunities for economic expansion. A number of. the ·regional centres outlined their available raw material reSources and emphasised the availability of a stable workforce with skilled and -unskilled workers .

. Th~ need to build a bu~iness environment favourable t~ manu~act?ring ~as emphasised. This would encourage mvestment and the agglomeration of hke-mdustrtes. There was emphasis placed on tne attraction of value-added industry, such as food and minerals, which would be more efficient if located close to the source of raw materials. Also important was the need to develop global competitivene~s, international markets and new oppoitunities. . 16

The major itlfluences on locational decisions made by manufacturing investors include the availability of a ;;killed labour force, the ability to trans~rt goods to and from markets and suppliers and the· availability of cheap, serviced industrial land; It is also necessary. to have gooCi educational and training facihties for employees therefore close ties are necessary 5et.ween an education campus and industry. The provision of quality tertiary educational institutions was seen as an important component of economic growth and service industry development in regional ceritres. Furthermore, should tertiary education be available 1ocally, students would not have to relocate to Melbourne, and a rrofessional labour force would also be available to service the regional centres. Individua regional centres have·highlighted the important role played by tertiary . ed~cation facilities in their community, especially in regard to the econonuc development of · their town. . · · The need for good communications and transport links between regional centres is important to ensure economic growth. .Submissions identified· the need for the State Government to take a lead role to increase investment in infrastructure. One submission suggested that the division of labour and specialisation of industry in nominated regions is happening in Europe, and perhaps should apply in Victoria. Furthermore future growth in regional centres reqmres an examit;'ation of s~D-regiona~ carrying capacitie~ and tfie P.?tential ~f _hinterland . towns. From a social, econonuc ana environp1ental perspective, the abihty of regiOnal centres to cope with growth should alSo be examined. · Submissions ·indicated that economic growth in regional centres should be more diverse and not rely solely on manufacturing. The relocation of Government departments to regional centres was seen as an important influence on the local economy. There was also a strong feeling that the Government should provide incentives to attract mdustry to regional centres. Therefore the regional ·centres require a combination of diverse manufacturing, private business anq ·public sector services for economic viability .. It was recognised tfiat the diversification of rural-economies is a critical future issue. the tendency towards increased large holding~, low~r labour intensities ~nd cha_nge~ in p~oduction have fed to lower levels of . employment m agriCulture and weaker mdustnaf diversity. In some areas these factors have combined with a lack of new employment opportunities and led to a dedine in population I and access to facilities and services. I I 3.10 Issues addressing specific regions· I 3.10.1 Metropolitan Melbourne I Two options for urban development were favoured by respondents within metropolitan Melbourne, Compact Melbourne and Twin Cities. The local government authorities of the . metropolitan region expressed their support for the c:o.mpac.t-Melboume_conc..ep.!,_ ernpha~the-need .t? conSQ!idat~~~~·s_:s:r:-o~th within_j_ts~e~is.t!_ng_!Irbg~..n . · bOii'i'i(lafies.~The authonties and local agencieS m flie soutn:-east of~elbourne, althougL supporting consotidcrriun, .expressedtlleii'pre"ference fOrllleTWii\Cffies concept. · However, the need to apply urban consolidation policies to development within-metropolitan Melbourne was emphasised by most respondents regardless of their option preference. It was considered that the efficient use of 'e:J9sting infrastructure, increasing catchment. densities . for public transport, implementing the new :n:tedit,Im density residential development codes would have important economic~ soCial and environmental benefits. It. was expressed that while the emphasis was on the consolidation of established urban areas, consideration should be given ·to the provision of infrastructure in the outer fringe and growth areas. It was empnasised that this should- be accompanied by an assurance that the quality and accessibility of services would be given a high priority. · · It was considered that efforts should focus on integrating public and private transport to improve the efficiency of existing services. · . . One. of the concerns raised in the seminars was the source of funding for future infrastructure projects. It was suggested in a presentation at the Melbourne seminar by the Chamber of Commerce representative that it is expected that $915 billion would be under superannuation funds management l:>y the year 2000. This woul~ be a major funding source for priority projects. · · 17

Another concern was the need to. ~nsure that land was not withheld from the. market place and speculation was avoided by introducing developer incentives in the proposed . development areas.· · Support was expressed for .the Twin City concept in terms of further development. of Dandenong. However, the need to increase the awareness of the alternatives that existed beyond the South-east of Melbourne was also raised. There was some concern that further development at Dandenong would reinforce the bias of development away from the western suburbs of Melbourne. . . . . - . . . It was acknowledged that the development of the metropolitan ring road, proximity to the Hume corridor and Melbourne Airport and the existence of a productive industrial base, would be incentives for the future economic focus of Melbourne to shift from the south-east to the northern and western suburbs. · · · The north and west of Melbourne are expected to become a majOr focus for employment and therefore residential development as a consequence. The availability of land for this future grewth would_be provid~ m the ur~an growt~ areas.of Plenty, Me~i, Melton and Werribee. Future transport hnks will play a ~JOT strategtc role m the econormc growth of the north~rn and western suburbs. . . The resj:xmdents that favoured a focus in the north-west suggested that policy if1.itiatives be· djrected towards establishing a twin city in proximity to_MelbOurne Airport. The .local government authorities and associated agencies in the south-east of Melbourne considerea that the development of ·a twin city at Dandenong was already occurring,· therefore they accepted this option as a reflection of the status quo. · . These submissions suggested it was not a question of whether Dandenong would grow but rather how it would grow. . · . .

Dandenong. was considered to .be well placed to support additional ~rowth given it. was already a major employment node. and nad a ready supply of inc;iustnally zrined land and good access to rail and bus transport. The City of Springvale in particular highlighted there was a gener~l shortage of employment in the tertiary ~or at present in the soutn-east. This has hao an Impact on the number of people travelhng away from the area for work and . highlights the hlgh rate of unemployment amongst women in the region who perhaps do not ha:ve access to a car. The PTC ·submission states that the devefopment of employment opportunities in Dandenong is crucial to the further provision of public transport services .. . The existing high standard of commercial, education and medical facilities and services in Dandenong was emphasised as an employment generator and a good basis for further growth. . Submissions emphasised that Dandenong was important to the economic aevelopment of Victoria. Dandenong is already operating as a regional headquarters -for government and priyate industry and offers further opporturiity for office development. The Westernport area also has reco&nised areas of environmental significance and the potential for further tourism industry mvestment. However, further growth would require ~he protec~on ~f a~!=llltural land, the ~atural environment and attention to waste disposal Issues, which will hrmt long term expansion m the south east_. · It was suggested that Twin City development at Dandenong would require the provision of · funding or major additional infrastructure for example the SCoresby Freeway, upgraded port facilities at Hastings, commercial airport facilities at Clyde and costly rail infrastructure improvements, including a major international freight facility to encourage the movement of heavy freight by rail· rather than road. Cross town roacf freight movements is a major. strategic issue which needs to be addressed, and raises a number of amenity an<:i environmental concerns .. Some submitters suggested emphasis be given to District Centre development. rather than twin cities, in order to spread retajl development more evenly. VIC ROADS particularly. highlight~ the need for a selected number of strong activity nodes. . 3.10.2 · Outskirts of Melbourne The outskirts of .metropolitan Melbourne have been .the focus of much attention with the ·pressure from <;J.evelopers. to extend urban development beyon? ~he existing metropolitan boundary. This concern was stro_ngly expressed by the maJonty of respondents, who 18

regardless of concept preference, saw the need to undertake policies directed towards the · ·containment of the metropolitan ar~a...... The growth rate in fringe municipalities such as Balian (West), Romsey (North), Korumburra and Bass (South-east) is rapidly accelerating. The concern is that with: an increasing demand for rural residential living, land owners could be tempted to restructure their existing titles and subdivide portions of their land for short term economic gain. . . The loss of productive agricultural land and the increased environmental pressure associated with this accelerated growth in population was seen as a serious proolem that required immediate attention. ·

It was also recogn]sed that accelerated growth would place increa~ strain on the existing infrastructure, wnich in some fringe municipalities was already under extreme pressure to Sl!PP?rt the present population. The Public ~ransport Corporation submission in particular .higfilighted that demand for commuter services on the fnnge of Melbourne has mcreased substantially. Their sul:>mission outlines existing services to regional areas and proposals for expansion. · · The respondents, whilst a'cknowledging the need to extend existing physical and human infrastructure to accommodate growth, reaffirmed the need to· contain •growth within the existing urban area!? of metrop<)litan Melbourne and the regional centres. This would encourage the more efficient utilisation of existing infrastructure and reduce infrastructure expenditure. · · A further .concern for· residents in the outskirts, was that if development was not contained within existing settlements, the potential influx of people woufd ~qmpromise the rQral · character and amenity of the region. It was stated that most residents had moved to the area to enjoy the rural environment, tl)erefore further development would be to the detriment of . ~re~ . . . . . There was a strong emphasis on maintaining the quality of life advantages associated with ~~~~- ...... · The hinterland s~ttlements influenced by the activities of the ·larger regional centres,· expressed the desire to improve economic activity within existing urban areas. It was felt that investments to date, were largely based around farming and commuter communities, with little local industry. Emphasis was not placed on competition with the services provided in the regional centres, but rather the provision of quality services· that would enhance the hinterfand settlements and compliment the larger development-centres. A further concern of hinterland communities is the possible impact that regiOnal centre growth would have on their existing_ quality of life, environment, economic resources and population levels. . The opinion expressed in some of the fringe settlements was that with the potential for accelerated growth and the problems associated with such development, it was important for local authonties to take a pro-active role in addressing these pressing planning Issues and encouraging swift action to limit urban expansion. · · . 3.10.3 Geelong Geelong has been promoted for regional centre development owing to its size and proximitY to Melooume. Geelong presently .has available zoned residential land to accommodate an additional 20,000 dwellings and is currently planning a major growth corridor ~omprising. 1,500 hectares. There are also opportunities for devefopment in towns .near -to Geelong, for example Winchelsea and Lome, nowever areas of agricultural and environmental significance need to be protected. · The Royal Australian Planning Institute submission in ·particular supports further growth at Geelong and Ballarat because of their potential to attract overseas migrants; who are perceived as the primary component of future population growth. These regional centres both have good eaucational facilities and spare infrastructure capacity. There are good road connection to Melbourne via the Princes Freeway from Geelong and Western Freeway from Ballarat. · · The Geelong manufacturing sector provided 24% of jobs in 1986. The dominance ·of this sector is declining and a number of major employers such as those in the car industry are facing changing economic conditions .. Unemplo}'l!\ent haS increased b¥ 7J ~ oyer the past 12 months ancf ilie unemployment rate m Geefong ts currently 14% whlch IS higher tnan the ~tate average. There is a readily pvailable skilled workforce. . . . .19

In 1986, 6.7% o{ Geelong' s workforce commuted daily" to Melbourne~ This figure is expected to rise over 8% by 1997. . . . . Industries . which were identified . as being · important to Geelong's future regional development are the service sector, the alununium smelter and the opportunity to lo~ate downstream processors such as casting houses. The automotive and aerospace industrieS are. alSo mentioned by respondents. Geefong also has a number of assets which would attract value added industry. These include the port, grain handling facilities,. the availability of major inqustrial land holdings, proximity to rail, ship, road and air transportation and proximity to markets in Mel6ourne and interstate. It is considered that Geelong should encourage a diversity of employers to reduce its vulnerability to cyclical effects. The Geelong-Meloourne road-tail corridor will gain increasing importance in the future, owing to tfie completion of the Metropolitan Ririg Road from Laverton to the Hume Highway. This will enable linkages to existing traae terminals ar Melbourne Airport and oilier developing nodes. . Road travel tiine between Geelong and· Melbourne is one hour, which compares favourably with intra-urban travel times in ~elbourne. . . . · · .

<:;ommuter rail services are well established between Geelong and Melbourne. There ar~ a number of local traffic movement conflicts within Geelong which will need to be addressed to cater for future residential development and recreation traffic. · Measures which need to be developed to encourage further growth in Geelong include: continued improvements to rail linkages and main arterial roads into and through Geelong; . . . . . · positive promotion of Geelong's attributes including· beaches, tourism potential and historical significance to dispel the pe!ception of Geelong being solely an industrial city; promotion of education (Deakin University) and research institutions (CSIRO) and the ·opportunity to develop Avalon airport as an aerospace technology centre; · promotion of new agricultural and food processing industries; introduction of pro-active economic policies and tax incentives to promote investment in regional centres and create local employment; . investigation of the capacity and quality of Geelong's water resources; development ·of physical and social infrastructure together with employment opportunities. · 3.10A Ballarat- Central Highlands region· ·Most respondents in the Ballarat region supported further growth in Ballarat and . recommended that any expansion of Ballarat should be based on the Ballarat Region Strategy Plan·. This plan has been established to guide develoRment over the next 20 y:ears, however, t.he plan needs to be put intp the context of State and Federal Government policies for urban development. An important consideration in planning future growth in Ballarat is the need to maintain the region's unique character, sense of community and quality of life advantages. The strategy plan recognises that Ballarat's current urban population would rise from 82,000 to 105,000-by 2011 and 130,000 by 2031. This increase woufd require an extension of water supply, sew:erage and comm1,1nity facilities infrastructure. ·

'.Some potential problems which woulci need to be ta}

t 20 expand employment in information services, tourism, high technology, education and food and mineral proce~ing. Major industries already located at Ballarat include McCain Australia and Paddle Shoes. The Ballarat branch of the Chamber of Manufactures was partict.tlady concerned to stop the decline in manufacturing as a percentage of employment in . Ballarat. A manufacturing base of at least 20%·is important to ensure a oalanced and diverse local «onomy, and to provide enhanced business and employment opportunities with a better mutual support base for existing industries. · Given increased. population in Melbourne there is aiso potential for increased tourism to Ballarat, which is already well established as an historic centre. An emphasis on increased education and training was evident to provide greater employment potential. . Ballarat has excellent educational facilities, many of which already have close linkS with inqustry. There is J>Otential 'to expand existing tertiary facilities and to provide links to the development of · high technology employment. · · .It was suggested that the Ballarat Regional Board and the Greater Ballarat Group of Councils work together to produce a long-term business plan to a,ttract industry to the·regiOn .. The need for the region to attract international trade markets was also highlighted; The Western Freeway currently provides adequate services for the movement of goods by road and provides a freight route between Melbourne and Adelaide. Inter citY road travel times between Ballarat and Melbourne are below two hours which leads to greater interaction between the centres, especially from the western suburbs.. The effect of tile Ballarat Bypass will need to be assessed, along with the potential for better links between Ballarat and Geelonl?. · · . . .

Should a standard gauge rail service be constructed to Adelaide as part of the National Rail Freight Corporation program, a stop at Ballarat would provide an opportunity to expand freight services.

Residents in the Ballarat region consider Ballarat should maintain its independence from Melbourne. The potential for improved commuter links was raised. Sprinter trains were encouraged as a means of providing secondary employment opportunities for residents in the Ballarat region. · ·

VIC ROADS considers that "the capnal, operating and u5er cost of such a service needs to be evaluated against other actions for greater containment of jobs ·locally." Therefore the · "subsidy needed for fixe9. rail transport might be better spent in more productive local job­ supporting ways". Ballarat has potential to develop in an environmentally sympathetic manner. The BaJlarat Region conservation strate~ and the int!oduction ?f urban consolidation meas~res were supported as measures whtch should be mtegrated mto urban development plans. It was also suggested that. the. ULA could provide a good. example of urban consolifiation by undertal?i:'tunities for future emplo~ent and economic growffi. There is also potential to link in with existing educational facihties, including Bendigo TAFE and the Latrobe University campus. The neeo to prqvide higher education and opportunities for young people in the region was seen as important to retain the younger people and provide ell).ployment opportunities. The manufacturing sector is also expected to provide employment in the future. However the emphasis will move to heavy engineering, food production and light industries. 21

Further ~owth in the Bendigo region would have ~n impact on towns in the surro·unding hinterland. These potential impacts need to be investigated further through comprehensive regional plannin~. Nearby towns such as Maryborougn, with spare infrastructure capacity, presently have high unemplo}'ffient ·rates (18-20%) with limited job opportunities. Economic benefits would ffow on to Maryborough if the Bendigo region is promoted as a whole. Similarly Echuca recognises that a long-term strategy plan is required to guide development in the region and to capitalise on the benefits it has to offer. . · · . I In contr~st, other towns like St Arnaud, are cOncerned that Bendigo has grown in recent times· at their expense. The-promotion of Bendigo as a growth cet;ttre was Seen as having a negative effect on St Arnaud 'Decause services would relOcate to Bendigo causing inconvenience to residents and businesses; and the regionalisation of services woula create a lose of employment which would have a multiplier effect on the local economy. On the whole Bendigo respondents consider there would be definite employment advantages for the region if the employment base was broader. It is estimated that. in order to support a population of 190,000 people by the Year 2030~ the Bendigo region will.need to generate an additional47,000 jobs. The value of heritage and tourism to the regional economy, particularly in the- Central Goldfields, Kyneton, Castlemaine ~nd Echuca areas is recognised. It is also recognised that expansion of the economic base of regional centres enables them to reduce their vulnerability to the economic downturn of particular industries, and the subsequent loss of community facilities ·and support services. The joint submission received from the Loddon-Campaspe · Regi~nal Planning Authorio/ and the. Bendi~o Regional Developll)ent Board outlines the relative strengths of centres m the Bendigo regton. · The economic strengths of the Bendigo region were outlined as agriculture, community .services and tourism, recreation and communications. Particular opportunities for future · economic growth in the Echuca region are largely based on tourism. The potential for poker machines m Victoria was also seen as an opportu~ty for development in Fchuca. . Further economic and. population growth in Bendigo would require·. an improvement in trans~rt links to Melbourne and linl

There is an existing dual track rail connection between MelbOurne and Bendigo~ however Bendigo's role in the standard gauge-freight review has not yet been resolved. • · The upgrade of rail services to provide commuter transport between Melbourne and the Bendigo Corridor needs ·to be assessed, particularly in terms of impactS on the environment and an increased demand for rural resiaential development. Transport proposals and the Bendigo 2020 Strategy need to be integrated. . · . ~ . The upgrade of Bendigo's airport is seen as an important element which would contribute to further economic development in the region. . · . . Further growth in Bendigo should combine environmentall}" sensitive long-term plannin1? · and ecologically sustaina6le development. The Bendigo and District Environment Council s submission in particular stressed the need to use alternative energy sources and promoted energy efficiency, recycling and social development. The protection of Bendigo's water catchment the provision of water supply and ~ffluent disposal are major concerns should. further development occur. The capture and use of rain water by households was encouraged-by the :environment Council. . . . 3.10.6 Murray Goulburn and the North East · Wodonga The Albury-Wodm1ga re~on is well placed to accommodate additional growth. In the mid 1970s, following its designation as a na~ional growth centre, the population of Albury­ . Wodonga was projected to rise to 300,000 oy the tum of the century. Current projections are greatly reduced and predict a population increase to 106,700 by 2001. . . · · 22

· Therefore considerable surplus capacity for growth and infrastructure is available. For example, in the suburb of Baranduda, services exist to accommodate 4,000 to 5,000 people, yet the current population is only 400. There is concern that reduced growth expectations have caused government departments to move away from Albury-Wodonga and changes in government have caused instability and reduced commitment to development. This current trend should be turned around and major commitments are required from Federal, State and Local Government. Owing to the road. distance between Melbourne and Albury-Wodonga the region is less dependent on Melbourne, and plays a major role as a service centre for the north eastern part of Victoria. The centre. is located on the Hume Highway, a major inter-capital access corriaor, especially for road freight transport. Issues whiCh would need to be addressed· include the potential for a fast freigbt rail terminal and increases in air freight and passenger travel. The extension of the Wodonga ByPaSS through Albury is favoured in preference to adding to infrastructure and investment m a low-demand, outer bypass of the area .. There would also be· opportunity .to provide local transport. service . . connections. · · Considerable industrial development has already occurred in the region. For example, Uncle . Bens of Australia, which is an attraction to further growth and enables the centre to become self generating. The recreational opportunities and the attract~on of the Murray River offer quahty of life advantages to new and existing re~idents. · · ·

.• Ed~cational opportunities are presently expanding with Latrobe. ~niversity providi_ng: a tertiary campus at Wodonga College ofTAFE. There are opporturuhes to establish chairs m food, road and water research at these institutions. It was suggested that future growth should be managed by an upgraded Albury-Wodonga Development Corporation and the Albury-Wodonga Regional Planning Committee. . . . .

A particular barrier to. growth at pre~nt are the large number of border anomalies estimated · at 1,300. These serve to frustrate opportunities for development.. Shepparton The Shepparton Council together with the Shepparton, , Rodney Development Corp<>ration strongly support regional development in conJUnction with a more compact . urban form in Melbourne. The region recognises that further growth will need to· capitalise on economic strengths. Furthermore, the attraction of new development must be dependent on wealth creation with the downstream profits ciirected back to the local comrriumty. The region has been described as the "food bowl" of Australia, with major dairying, agricultural ..and horticultural industries. A major proportion of the regions income is self generated. ·

Shepparton Ci~ is the regional business district, however the urban area incorporates . , Kialla, Shepparton East and Lemnos. The town of is the administrative centre for Rodney Shire and the is an important sub-regional centre. The regional centre of Shepparton-Mooroopna ·has a population in excess of 4D,OOO. The overall catchment population of the district is 100,000-140,000. The Greater Shepparton Area Strategy Plan sets in place a framework for Shepparton's growth·over the next fiiteenyears. The region has fully developed: infrastructure and has attracted a range of food processing, manufacturing, retail and business ~ervices. It is recognised that provincial centres need to target industries in the international sphere, backed by government commitment and· incentives such as seeding grants. · · Existing successful industries in Shepparton, for example Campbells Soup have taken advantage of decentralisation assistance in the past. The relocation of Government Department services to regional centres was also identified as being important to the loc~l economy. · Further development could be attracted to the area through positive promotion and planning work undertaken by the Development Corporation. It is recognisea that the road network will need to be upgraded to attract private mvestment. · ShepJ:>arton is located more than two hours travelling· distance by road from Melbourne. VIC ROADS considers that transport connections in the region should be developed as specific linkages based ·on local production characteristics and access to the interstate transport routes to Brisbane and cross connections to Bendigo-. Special rail ~ervices· would not be envisaged however there is potential for aviation services to contribute to economic growth. · · . The benefits pf seeking out new primary products and encouraging new technology to create value added initiatives are recognised. The College of -TAFE is located at 23

Shepparton, however the region also recognises that it needs to attract tertiary education facilities to provide training and retraining ~r continued economic development. . A major con~ern in the region is rising water tables and the resultant salinity which is threatening the regions agricultural resources and reliant industries. Th~re are also i~entified J drainage constraints in the area due to··the flat topography. · Wangaratta ·

The Wangaratta R~~onal Devel<;>pme~t Corporatio_n consider th~t financial_commitm~.nt should be made to mfrastructure m-regwnal centres m advance of mdustry pohcy. Fundmg should be spent in locations preferable to industry. Wangaratta is well located on the Hume Highway and is geographically central to the north-east region~ · . . . . Water and natural gas are readily available to attract industrjr. Wangaratta has attracted world competitive industry, for example IBM and supports further community partnerships • with industry. Regional Development Corporations are an ideal mechanism to facilitate development and supporting a community culture. · 3.10.7 Latrobe Valley General concern was raised for the Latrobe Valley's ability to spstain regional growth. Although this view was not expressed by local authorities,. the majority of resp<>ndents identified the need to develop new employment opportunities in non-traditional areas, if the plan was to succeed in the long-term. · The need to expand the economic· base of the area was acknowledged as essential because of the reliance on specialist industt:ies deJ:>endent upon diminishing natural resources which include oil, brown coal and timber for pulp and paper production.

Future ~pportunities for ecol)omic development were identified by respondents, and include: The ready availability of basic urban services particularly the supply of natural gas, oil, coal, and electricity generation resources. Other natural resources include water and timber. , · Encouraging the expansion of the strong agricultural base and promoting the development of horticultural activities in the fertile Valley regions.

Decentralisation of Government and Private Sector o~rations. A recent example being the relocation of the National Information Processing Centre·of the Australian Securities Commission to Traralgon. This move was attnbuted to organisations. explo.iting improvements in telecommunications and the subsequent decentralisation of routine activities to lower cost areas. · ·

· The e~tablishment of specialist manufacturing industries to expand, the market base and the skilled labour force. · · . · Accessing the resources of higher educational institutions such as the Monash University College of Gippsland and Yalfourn College of TAFK The ability of these industries to encourage regional growth will·not be immediately realised. It is anticipated that their development wilf act as a catalyst for attracting. service based industries and a skilled labourforce to the region...... The. resource based industrial deveiopment in the Latrobe Valley, and the regio~'s proximity . ~o the South-eastern suburbs of _Melbourne, h_as ensured the provisio!l of extensive physical mfr_astructure and human service~. . The existence of the three pnmary centres of· Moe, and Traralgon within the Latrobe Valley corridor ensures that additional .infrastructure and ,servicing capacity is available for future expansion ancl urban development.

The upgrade of the Princes Highway East which would provide a four lane divid.ed facility to Traralgon is currently underway. Quality levels of performance along this route need to. be maintained for efficient it:lteradion between.the centres which make up the Latrobe Valley. The upgrade of local road .connections and the improvement of bus services would also need to occur to enable better inter~regionallinks.

\ \ 24

. . . . Travel time by 'rQad to Melbo.urne is under two hours, with quicker access to the i;outh­ eastern suburbs and Dandenong. Strategic linkage issueS which need: to be addressed are c<;mnections. to the proposed airport at qyde and the Ports of Melbourne and Hastings.. Given travel times to Melbourne there would be increased pressure on the local airport until proposed facilities at Oyde are operational. l . . Additional development would also require electrification ofthe rail system and provision of regular services ~or commuters. . · . · · . It was recognised that the extensive industrial investment in the Latrobe Valley has been to the detriment of the environment in Central Gippsland. However, residents have highlighted · the economic benefits and life.style opporturuhes that exist in the region. Submitters have promoted the region's extensive recreation assets and the close proxinuty to the attractions of East Gippsland and the Southern Coast: . . · . It was acknowledged that the Latrobe Regional Strategy ·plan which promotes the opportunities of the area, will facilitate urban expansion ana help to offset tne low rate of growth being experienced in the Valley. The Latrobe Regional Commission will" also play a major role in guiaing future development. 3.10.8 South and East Gippsland Respondents expressed conflicting option preferences for this region. Support was either for consolidating Melbourne's growtl\ or the development of the Twm Cities concept. . Those favouring the Compact Melbourne option did so on the premise that this would ensure future urban·development was contained within existing metropolitan boundaries. . Concerns were that if present develop~ent trends continued in the South-east of Melbourne, urban growth would extend into this region. This would severely reduce the availability of qualityagricult4ralland close to Melbourne. · The resulting decline in productivity and the increased transport costs. as agricultural activities are pushed further from the Melbourne market, have senous ec;onomic implications. for the State. · . · . . . This urban encroachment. into productive rural areas restates the concerns expressed in the outskirts of Melbourne, where rural residential·development and the subdivision of viable agricultural land is a growing problem. · The respondents advocating consolidation of Melbourne .believe that land consumption figures do not account for. the growth. of the major provincial cities, towns and tourist . destinations in Victoria: Therefore the implications of expansion in these areas have not been adequately addressed. The second concept preference was Twin City development. It was considered by the proponents of this option, .that development in Melbourne's south-east would stimulate growth in neighbounng muniCipalities such as Korumburra and Warragul, and in South Gippsl~nd_generally. The_ proxi~ity of th_ese municipalitie~ to Da~denong, and the e~~ting transport n:Urastructure, mcludmg rail hnks and the Pnnces Highway, would. facilitate commuter travel .between the areas. This would increase the employment options for the residents of the region, and serve to"sth:nulate the local economy with the likely development · ·of stronger economic ties between the settlements.

The infrastructure and transport links would provide better ac~ess to the established tourist attractions of South Gippsland ·and its ·associated settlements. The attractiveness of and its proxinuty to the Gippsland Lakes and recreational areas was highlighted as a major stimulus to population growtn in the region. - .: The South Gippsland region would also serve as an interchange between the Twin City growth of Me1bourne's south-east and the resource rich Latrobe·Valley. Growth in both regions would influence South Gippsland, but it is considered that the development of the . ·Twin City option would be more· beneficial to the region. It ·is accepted that while the' valuable resources .of the Latrobe Valley are in existence, there will be benefits to the !'eil;hh

3.10.9 Mallee The Mallee_region in general supported the implementation of regional development policies, emp~asising that their region had potential to develop as a maj<;>r north-wes~ern focus c~ntre~ on Mddura. S~ller nearby towns such as Kerang would provide a sub-reg~onal focus m thJS context. A public seminar organised by the emphasised Mildura's strategic location at the cr_oss roads of three States; Victoria, New South Wales and South Australia. Mildura also has iinmediate cross-border ties with Wentworth in NSW. _ The region plays a significant role in food production, packaging and drying, particularly catering for the export mark~t. There is potential for further value-added industrial -development to occur.- · _

The· regional tr~nsport industry focussed on Mildura c~pi,talises on good road links via the· Calder Highway and the interstate links to Perth, Adelaide, Sydney, Brisbane and Darwin. Further deregulation of transport modes will offer greater opportunity for the. transport of "local produce. The airport presently provides a freight and passenger service and this could be further expanded. · . - . There is a~so ~ passenger and freight rail service o~rating, however this will need to be upgraded If Mddura's role was to expand further. . _ The existing T AFE College and other educational facilities provide opportunities for expansion _m the researcli and educational spheres. Opportunities include arid lands research, primary production, horticulture and tfie food industry. _ · . The region offers a pleasant climate, quality of life and environmental features which are attractive to new resiaents. The region particularly attracts retirees, and provides facilities for an older p<>pulation. · ·sewerage treatment" works which are programmed for 1992-1995 will enable further . res.i~ential development in Mildura. The· chmate of the region would encourage energy effiCient development to occur. It is recognised that job creation will be a major factor influenci~g further development in the region. · - ·

3.10.10 South Western Vfct.oria - A comprehensive submission was prepared on behalf of Councils in sOuth Western Victoria, who were particularly concerned that the discussion paper gave little consideration to the potential for urban growth in.the South West Corridor. These municipalities included Warrnamb6ol, Portland, Hamilton, Camperdown and Port Fairy. .Some of these Councils also provided individual submissions. During the public ·consultation period the Mi~:tister accepted an invitation to address a meeting in Warrnambool to discuss regional development, along with a number of local speakers. The submissions propose a .strong case for extending the regional centres option to include the South West corridor. _ -· . _ · The region has established transport links which include the Princes and Hamilton Highways, rail and bus services and three aerodromes. Close regional links have been formed with Mt Gambier and ;;outh eastern South Australia, the WillUJlera and Ballarat. The region has many benefits to ·attract further" economic development and industrial investment. Advantages include spare infrastructure capacity, the availability of industrial land, an adaptable and flexible workforce, and the av·ailability of services including gas,. electricity and water supply. · · · ·

In general it is perceived that development in the south-west would help to ease the costs of providing infrastructure on Melbourne's fringe. · ihe region also boasts significant raw materials including metals, timber, horticulture, wool, sheep, beef and dairy prOduce. ·Large manufacturing companies are based in the south-west in close proximity to raw materials, for e?'ample Fl~tcher Jones and Kraft. The region also

PLANNING AND EPA LIBRARY 26

provides these companies with educational and retraining facilities. It is considered that. ·further development would help to offset cyclical downturns in agriculture. . A major growth industry in the region is tourism with an emphasis ~n natural and cultural features. The tourism industry IS supported by tourist information centres, museums, galleries, tnotels, restaurants and entertainment centres which all generate employment. .. The Portland aluminium smelter has potential to expand and there is scope to develop spin- · off industries such as casting houses. The smelter currently generates net export earrungs of $600m per annum and directly employs 800 people, with an equivalent number of jobs created mdirectly. . . Similarly the port h~ndles m!ljor export trade of aluminium, beef and sheep and could provide increa~ services to the soutn-west regi9n. · . · Major educational facilities already operating in the.south-west region include the S9uth West College of TAFE and Deakin University.· The university is an important element in the economy· of the south-west .and there are significant linkages between the Geelong and Warrnambool campus. Three hundr,ed staff are presently employed in·warrnambool, and the campus has the equivalent of 2,100. full time stud~nts .. Approxil!':ately two thirds of the · , students come from the south-west regiOn and the uruversity has a direct Impact on the local .economy. · · . The university attracts overseas stude~ts and has export potential. It contributes to raising the quality of the workforce, provides social and culturcil benefits, has a well .developed information base and it generates economic growth. . . . Development .in the south-west would enable more effective administration of public policy and would also provide strategic advantages for security and defence. . . . An alternative view ·offered regarding development potential in the south-west, was that Geelong sets up a barrier, and captures growth from Melbourne which was intended for .the south-west. · · . · ·

3.10.11 Wimmera . Municipalities in the Wimmera are concerned. that the western half of Victoria is not recogrused in the discussion paper as a regional development option. They request that equal · status and financial support be given to promote regional development in the Wimmera and suggest a Regional Development paper is written to redress the imbalance of growth in Victoria. · Municipalitiesin this region generally did not support the Compact Melbourne and Twin Cities options. They considered these options only served to encourage further population growth in Melbourne which in turn would compound existing ~nvironmental·and social problems. The particular advantages of development in the Wimmera include quality of life, affordable housing, available worlrtunity to share community facilities and services. The submission rrmri the. Stawell and Grampians Development Association supports this idea, but recommends the development corridor shquld also include Ballarat andRorsham. . · . Horsha~ is similarly w~lllocated in the Adelaide corridor which is particularly attractive to industries such as Holeproof. Horsham is strategically located to serve western Victoria and has spare infrastructure capacity for further ~owth. . . .The Wimmera Development Association recommend that Horsham and the Wimmera region should be promoted as an "Agricultural Centre of Excellence" which would serve·as a focal·

·' .. /

27 point for research and development of cereal and legume production in south-eastern .A~s~ralia.. There would also appear to ~ economic po~e-ntial .for. exi?ansion of. th.e. viab~e tounsm · mdustry based on the Gramptans. Educational Institutions, _.speaahsmg m agriculture are already located in the region as well as a College ofTAFE. · . ~ Furth~r growth potential is envisaged in the mirrlDg industry, with a pilot project having. already commenced near Horsham. . . · · . · .

. , 28

4. General conclusions

The public consultation process has raised ·a broad spectrum of issues. The process reflects the range of views canvassedby the coffimunity, some of which are complementary to each· · other, whilst other views are reflecting vastly different paradigms of thought. Some of the views expressed reflect the objectives of a particular region or group; it is recognised these views need to be balanc.ed against individual subrnissi<;ms and the overall strategic approach · required to formulate a strategy for Victoria.

The follo~ing is a sununilry of issues and conclusions put forward by the respondent~. These conclusions emphasise the major issues canvassed from a strategic perspective, and identify areas where further investigation of issues is required. They do not necessarily reflect the views of the Government. · · 1. The consultation process has revealed that there is widespread community support and commitment for a comprehensive State-wide strategy to guide Victoria's growth. Urban consolidation

2. There is a recognised need and desire to stop Melbourne's sprawl. Urban consolidation policies and programs including· medium aensity residential development codes, are suggested ana should be incorporated into the long term strategy. · 3. Public acceptance of urban consolidation policy · wiil require a· long-term public education program.. · .4. The provision of open space in a. more consolidated Melbourne should .car.italise on areas adjacent to waterways and other high quality sites which are accessible to the papulation and ·provide a range of leisure opportunities.· 5. Urban consolidation principles should be upheld _in the priority growth corridors of Melbourne namely Plenty, South Eastern andWembee. . · . . 6. A detailed·review of costs associated with the re.placement and ongoing maintenance of existing infrastructure in metropolitan Melbourne, to accommodate rugher density development, is required. . · ~. .

7. A review of exis?ng pl~ning and building .legislation i~ regu.ired . t? streamline · ~pprovals for medmm density development and urban consoh~ahon poh~Ies. · . .

8. The potential for redevelopment of the Essendon Airport and relocation of existing s~rvices to other nearby facilities requires further investigation . 9. . ~he {'Oten~al for residentia.l redevelop~e~t of redundant c~mmetcial ~nd in?us?"ial Sites m the mner suburbs of Melbourne IS supported and requires further mvestigation. Regional centres ·

10. There is supp<>rt for Regional centr~ development, however it will require both policy. and econormc support from both State and Federal Government agencies. · · 11. Government spending in selected regional centres should .target physical and social ·infrastructure provision. · . · . . · 12. Respondents have suggested that tax incentives are developed to provide incentive for . investors in r~gional centres. . · .· .. 13. A ~ore equ'itable system of fuel, transport and telecommunication costs is required in regional centres to make trade and industry development more attractive and viable.

14. Regional cent:res. should be encouraged to. generate ec~morn!c. opportunities based on the1r strengths and resources, and to work m co-operation w1th other nearby centres to at.tract development and spin-offs. . 29

·rs. · Regional development boards and Planning Authorities could play an important economic development and promotional role in attracting investment to regional centres. 16. Regional centres together with State Government ·should embark on a promotional campaign to give greater exposure of their economic development strengths and create opportunities to attract investment. · 17. The creation of employment opportunities in regional centres is paramount to creating a sound economic oase and investment opportunjties in regional centres. · 18. The feasibility of relocating appropriate pubiic sector jobs to regional centres should be i~vestigated. · . · . .

19. The State Government should adopt a proactive approach to development in regional Victoria with regard to economic development and activity, environmental impacts, lifestyle interest ·and infrastructu~e. co~tings .. The possib~lity o.f provi_din& seeding grants to encourage world competitive mdustries to focate m regional VIctona should De investigated. . · .

20. An independent. assessment of infrastructure castings, particularly road costs is required, with respect to regional centres. ·

21. . A program needs to be prepared and imElemented to enhance. community awareness · and understanding of the economic and hfestyle opportunities which can be developed. in regional Victoria.

22. . The principle of locating further tertiary education facilities in nonlinated regional centres is supported, and requires further investigation. . . . · .

23. The potential to es~ablish research and development facilities in regional centres needs to beinvestigated. . . · . · . . · 24. Upgrading rail facilities and road access to. regional centres where appropriate, is recommended.

25 .. A standard gauge freight raillil]k between Victoria and Adelaide should be recognised as a high priority,. to enhanc~ economic development in Melbourne and regional . centres.

26. The ('Ote.ntial'to upgr~de Airports in regiona~ centres ~hould be investigated in order to provide mcreased freight and passenger serVices. · · 27. Urban development in regional Victoria should be environmentally sustainable and where possible follow urban consolidation principles in townships, to offer a variety of hou~ing types and d~~sities with a~cess· to emplo~ent and comr~lllnity_facilities and services. · "'rhe provision of pubhc and commumty transport m regional centres nominated for accelerated growtl~ should be investigated:.. · . . Environment

28 .. Further work is required to identify aieas of environmental, landscape and a~icultural :significance located on the outskirts of .Melbourne and adjacent to regional centres. Tfiese areas need to be recognised for their intrinsic valu_g_ in future strategic plans and policy documents. · 29. .Priority sho~.dd be given tq research and development of apolicy, which addresses the consequences of continued low density rural residential development, on the outskirts of.Mefbourne. Issues which. need to De addressed include loss of viable farmland and the provision of physical and social services. · 30. Most submissiqns strongly supported the retention of Melbourne's corridor-green wedge planning policy. · . 31. Alternative lifestyles and developments which are protective of and in harmony with the envi~onment should be ~ncouraged. Opportuni~ies for rery'cling and reducing waste disposal, together with measures for reducmg p

32 .. The feasibility of using rain water and ground water sources to supplement mains • supplies to Melbourne and regional centres should be investigated. · · 33 .. The implementation of an Outdoor Nightlighting ·code· in Melbourne and regional ·centres should be considered. · · . Twin Cities 34. The Government needs to decide to what extent it will give policy and economic commitment to the further stimulation of Danderiong as a twin city. to Melbourne. A · long-term commitment to further. development at Dandenong will require Government investment in road and airport infrastructure. Increased development would need to take the sensitive environment peripheral to Dandenong and east of Pakenham into account, and reinforce the corridor-green wedge policy.

Community d~velopmeilt ...... 35. Further investigation is required into the social implications .of"people·migrating from . country areas. to metropolitan Melbourne. · · · 36. The social, econorilic and environmental planning implications of accelerated growth in · regional ceritres needs to be investigated, and incorpcirated into .strategic plans for those centres. . . . 37. F~rther· investigation is required i~to individual preferences for urban growth patterns in metropolitan and regtonal

·40. Further investigation is required into existing and potential energy resources, and to what extent they will. influence. future patterns of urban growtP, and modes of transport.' Planning for the transport needs of communitie.s should incorporate the principles of sustainable. development. ·Long ·distance commuting by car from the outskirts of Melbourne to jobs in the Centrai Activities District is not supported. . . 41. Future urban development in metropolitan Melbourne should capitalise on the existing public transport infrastructure. Development patterns which create or ·exacerbate . uneconomic services is not supported. · · ·

42. c~~unity costs for travel between centres n~s to be assesSed in regard to other potential actions such as the creation of local employment;

43. . The selected d~velopment options must incorporate the use of public transport where. there is potential for maximum patronage, and focus on. the inter,.connection of activity nodes to reduce the relrance on vehicular trips.

44. The dependence on private car usage should be minimised when planning new urban areas. However it is recognised that the private car will still remain an important · transport mode; •.

45.. The extension of public transport services to growth corridors as a major priority for transport agencies is supported. • . . .

· 46. Alternative modes of .transport such as walking and cycling need to be incorporated in the design of new urban areas. · · · ·

i

.. 31

General 47. . The Urban Land Authority should construct examples of well designed and cost effective higher density development in Melbourne and nominated regional centres~ as part of a broad scale public education program. . · . · . 48. The introduction of. developer levies to assist in the provision pf infrastructure in · ¥elboume a.nd regional centres is supporteo.. The. prep~a~on of guidelines for the .Implementation of developer levy mecharusms IS a htgh pnonty. . . 49. The p<:>tential for increased Federal Government contributions towards infrastructure provision in regional centres and metropolitan Melbourne should beinvestigated. The establishment of a medium-~erm capt tal· bu~get to support the preferred ·spatial development strategy has ment and should be hllked to the budget process. · ·

. · 50. Further information is required regarding forecasts of immigration l~vels.

/ 32

Appendix 1

Table of Seminars Attended By The Minister

Number of Venue Date People Guest Speakers Attending

Geelong 12/2/91 50 Chairperson -The Hon David Henshaw, MLC - Geelong. · . · · Mr Paul Jerome - Director Regiona.l Planning : Division, Department of Planning and · Housing (DPH). · Ms Susan Allen - Department of · · Manufacturing and Industry Development. (DMID). . Professor David James- Deputy Vice Chancellor, Deakin University. . . Mr Colin Atkins, Chairman - Geelong Regional Commission.

Ballarat 13/2/91 ' 60 Chairperson - The Hori Frank Sheehan, MLA ·for Ballarat South. Mr Paul Jerome (DPH). Ms. Su5an Allen (DMID). Mr Rob Jones- Chief Executive Officer, Ballarat Regional Board. · Cr Barbara Hughes, Chairperson - Area Planning Standing Comrmttee, Ballarat Regional Board. · Mr Rudy Kohut - Assistant Director, Urban Strategy .Branch (DPH). · :

· WOdonqa . 20/2/91 100 Chairperson- Cr John Macaulay, Mayor of Wodonga. . .· Mr Paul Jerome (DPH). Mr Jim Sawyer, PresidentWodonga TAFE. Chairperson of Workshop Sessions - Mr Ron Lutton- Regional Manager (DPH). · Mr Rudy Kohut (DPH). Mr Viv Weatherall- LOcal Businessman, Wodonga Chamber of Commerce. Mr Malcolm McEachern, Local Businessman; part-time member Albury /Wodonga Development Corporation. ·Mr Evan Jones -Project Manager, . Albury/Wodonga Regional Planning Committee. . . 33

Number of Venue Date People · Guest Speakers Attending . Shepparton 21/2/91 75 ChairperSon- Cr David Piper, Mayor, . Mr Paul Jerome (DPH). Chairperson workshop session- Mr R<;>n Lutton (DPH). ·. . Cr Doug Crow - Depu\Chairman, Sh~pfcarton, Kta~ram, . odney, Deve o~ment orporahon. Cr Ray ussell, Local Businessman. Mr Keith Furze, Chairman, Greater . Shepparton Planning Advisory Committee.

Latrobe 22/2/91 . 60. Chairperson - Hon Keith Hamilton, Vall~y MLA, Morwell. · Mr Paul Jerome (DPH). Mr Phillip Shanahan- Chief Executive . Officer, Latrobe Regional Commission. Chairperson workshop session - Mr Kevin · Stanley- Regional Manager (DPH). Mr Bruce Graham -Latrobe Regional Commission. . Mr David Mackenzie.:. Gippsland Regional Manager, EPA. · · . Mr David Welch- Re~onal Planner Communi~ Services ictoria. . · . Mr Ge~ennedy- V /Line. · Mr Bob r, Chairman, Latrobe Regional Commission. ·

. Bendigo · 1/3/91 120 Chai~rson- Cr James Douglas, Mayor, . · . Dr Ian MacBean - Chairborson Bendigo Regional Development oard. Ms Elizabeth Sinclair (DMID). Mr Trevor Budfee, Plannini: Consultant. Cr Janina Gaw er- Ci~ of chuca. Mr Paul Jerome (DPH . · ------~-~------

34

Number of Venue Dafe · People· Guest Speakers ·Attending

Melbourne 7i3/91 200 Introduction: Michael van Assche. MMBW · Theatrette Chairperson - Professor Mal Logan, . . (RAPI) Monash University. ·.The Hon Andrew McCutcheon, Minister for Planning and Housin~ . The Hon Bruce Cham rlain, Shadow Minister for Local Goyernment, Planning and State Growth. , '

Melbourne 8/3/91 . 100 Cha.iehrson - Professor Mal Logan, AMP Vice hancellor, Monash University. Theatrette I 'Introduction- Mr Te[fi Healy- Director Urban Development ivision :- (DPH). Panel Members

Ms .Ma~Huxley, Senior Lecturer, Urban , Pohda, IT. . · Mr avid Weston, Manager, Melbourne City Chamber of Commerce. · Mi David Wilmoth, Associate, Director, Higher Education, RMIT.

Warrnambool 15/4/91 50 Professor Alan Lonsdale - Assistant Vice Chanc~llor, Deakin University. . . Mr David Robb - Manager, Kraft Foods - Warrnambool, Chairman of Warrnambool :Regional Development Board.

Dandenong 18/4/91 100 Chairperson: Ron Mason, Chief Executive Of~icer,·westernport Development Council. Cr Ian McDonald, Mayor, City of . Dandenon~. · ·. Professor evin O'Connor, Monash Un~versity. . · .. . Mr Graeme Kendall, Frank Facey Ftrst National Real Estate; Mt Max Grant, Compass Building Society. Mr Graeme Ratcliffe, Telecom Australia. Mr Rob Skinner, Dander:tong Valley e;md Western Port Authority. . Mr David Phillips, Dandenong Chall').ber of . Commerce. · . 35

·Appendix~ ..

. . '· . URBAN DEVELOPMENT OPTIONS FOR. VICTORIA ,. I ' • •

CONTRIBUTION TO MELBOURNE SEMINAR, .

. . . FRIDAY MARCH 8,1991

... .BY THE HON ANDREW MCCUTCHEON··

.. MINISTER FOR PLANNING AND HOUSING

. STATE GOVERNMENT OF VICTORIA

I.

/

·, . 36

INTRODUCTION

TODAY. WE ARE FOCUSSING ON LONG TERM STRATEGIC DIRECTIONS FOR · URBAN DEVELOPMENT. WE ARE NOT CONTEMPLATING OPTIONS WHICH WILL SUDDENLY AND RADICALLY ALTER OUR URBAN LIFESTYLES. CHANGE rN THE PATTERN OF URBAN AND REGIONAL. DEVELOPMENT IS. CLEARLY INCREMENTAL AND SLOW. .

SHORT TO MEDIUM TERM. SCENARIO .

IT IS MOST UNLIKELY THAT WE WILL BE ABLE TO AVOID THE CONTINUED OOTWARD EXPANSION OF MELBOURNE DURiNG THE NEXT DECADE OR SO.

THE ECONOMIC INFRASTRUCTURE ALREADY IN · PLACE IN THE METROPOLITAN AREA, AND ITS CONCENTRATION OF BUSINESS SERVICES, ·wiLL. MEAN THAT OVER THE SHORT TO MEDIUM TERM,. MELBOURNE WILL CONTINUE TO BE THE PRIMARY LOCATION FOR NEW JOBS. ·MOREOVER; FAMILY, SoCIAL AND CULTURAL TIES WILL SEE MELBOURNE REMAIN THE MAJOR SOURCE OF SKILLED LABOUR.

GIVEN CURRENT IMMIGRATION POLICIES, MELBOURNE'S POPULATION WILL iNCREASE BY ABOUT 0.5 MILLION PEOPLE OVER THE NEXT DECADE OR SO. DESPITE THE APPLICATION OF CONSOLIDATION POLIOES, THE ALREADY BUILT UP AREAS WILL ACCOMMODATE ONLY A RELATIVELY SMALL PROPORTION OF THIS GROWTH. THIS IS PARTIALLY BECAUSE OFTHE LONG TERM TREND TOWARDS SMALLER HOUSEHOLD SIZES. ·

THE MOMENTUM .FOR GROWTH IN THE METROPOLITAN AREA OVER THE SHORT TO MEDIUM TERM l-iAS ALREADY GATHERED CONSIDERABLE PACE. TO ATTEMPT TO ENFORCE A ''NO FURTHER EXPANSION- STRATEGY" ON MELBOURNE OVER THIS TIME PERIOD WOULD BE TO RISK A MASSIVE CRISIS IN HOUSING PRICES AND RENTS .. · ·

THEREFORE, WHEN WE LOOK TOWARDS· THE YEAR 2,000, IT IS NOT A QUESTION OF WHETHER MELBOURNE SHOULD GROW BUT RATHER HOW IT GROWS.. .

WE HAVE ALREADY TAKEN STEPS TO ENSpRE THAT THIS URBAN EXPANSION DOES NOT OCCUR IN THE SPRAWLING, AD-HOC MANNER. WHICH CHARACTERISED MUCH OF THE POSTWAR PERIOD.

THE PRIORITY GROWTH CORRIDORS WILL BE CAREFULLY STAGED TO GET ·MAXIMUM V AL(JE FROM THE 11\JFRASTRUCTURE DOLLAR AND THEY WILL . FEATURE MANDATORY DENSITY TARGETS OF 15 DWELLINGS PER HECTARE (AS OPPOSED TO ·THE CURRENT AVERAGE OF 10 DWELLINGS/HECTARE). INTEGRATING PUBLIC TRANSPORT INTO SUBDIVISION DESIGN WILL ALSO BE AN IMPORTANT INNOVATION IN GROWTH CORRIDOR PLANNING.

·BUT WHAT OF THE LONGER TERM; THE PERIOD STRETCHING OUT TO THE . YEAR2030? 37

. LONG TERM SCENARIO

IF CURRENT POLICY SETTINGS REMAiN MORE OR LESS UNCHANGED,' THERE IS LITTLE. REASON TO EXPECT THAT TRENDS IN THE PERIOD BEYOND 2000 . · WILL BE MUCH DIFFERENT TO THOSE WE ARE SEEING TODAY. . . CERTAINLY WE WOULD EXPECT TO SEE THE REGIONAL CENTRES (AND THE TOWNS WITHIN THEIR COMMUTING FIELDS) CONTINUE TO ENJOY MODEST . GROWTH. SUCH GROWTH WOULD BE SUSTAINED BY

ONGOING RURAL ADJUSTMENT AND THE RATIONALISATION OF MANY AGRICULTURAL SUPPORT SERVICES INTO LARGER TOWNS; .. INCREASED COMMUTING AND II TELECOMMUTING II TO THE METROPOLITAN LABOUR MARKETS;

THE STRENGTHENING OF LOCAL INSTITUTIONS THROUGH MICRO­ ECONOMIC REFORMS. (LIKE THE RATIONALISATION OF COLLEGE OF ADVANCED EDUCAT.ION); AND ·

.. GREATER USE OF SUCH CENTRES AND TOWNS AS RETIREMENT HAVENS.

HOWEVER, BARRING SOME MAJOR EXTERNAL SHOCK~ MELBOURNE IS LIKELY TO CONTINUE TO DOMINATE VICTORIA AS IT DOES AT PRESENT. LET US CONSIDER CAREFULLY WHAT THIS WOULD . MEAN FOR FUTURE GENERATIONS OF VICTORIANS ...

EVEN WITH APPLICATION OF THE RDP'S AND SIMILAR MEASURES, THE METROPOLIS COULD RESEMBLE A HUGE OCTOPUS BY THE YEAR 2030. MELBOURNE WOULD EXTEND IN NARROW TENTACLES FROM .. W ARRAGUL IN THE EAST TO GEELONG IN THE SOUTH WEST AND FROM WHITTLESEA IN THE NORTH TO PORTSEA;

.. THE URBAN COMMUTING FIELD AROUND A DOMINANT MELBOuRNE WOULD . BE VERY .. EXTENSIVE AND HAVE IMPLICATIONS FOR ·AGRICULTURAL LAND RESOURCES AND THE CHARACTER OF SMALLER . TOWNS WITHIN THE FIELD;

. .. THE PATTERN OF EMPLOYMENT GROWTH WOULD CONTINUE TO FAVOUR MELBOURNE'S . SOUTH - EASTERN SECTOR LEADING TO . GREATER CROS5-TOWN TRAVEL ·AND INCREASED RELIANCE ON THE CAR.. THIS WOULD WORK AGAINST LABOUR PRODUCTIVITY AND NECESSITATE MAJOR INVESTMENT IN ROADS INFRASTRUCTURE;

.. THE FORM OF URBAN DEVELOPMENT WOuLD BE COSTLY IN TERMS OF INFRASTRUCTURE REQUIREMENTS;

.. THE GAP BETWEEN THE AVERAGE INCOMES OF COUNTRY VICTORIANS AND METRO POLIT AN VICTORIANS WOULD PERSIST; ··

.. INDEED THE INTERNAL STRUCTURE OF THE CITY MAY BECOME MORE POLARISED WITH SHARP DISTINCTIONS BETWEEN THE PRIVILEGED, . . . WELL SERVICED INNER SUBURBS AND THE LESS WELL SERVED OuTER SUBURBS BECOMING ENTRENCHED;

.. THE ELONGATED, SPREADING CITY WOULD ALSO GENERATE MAJOR . . ENviRONMENTAL PROBLEMS LIKE PROMOTION OF GREENHOUSE GAS 38

EMISSIONS. AND INCREASED PRESSURE ON ENVIRONMENTAL ASSETS LIKE WATER CATCHMENTS, THE YARRA VALLEY, DANDENONGS, AND THE .MORNINGTON PENINSULA ETC; AND

* MUCH OF THE ACCUMULATED PUBLIC INVESTMENT IN INNER AND MIDDLE SUBURBAN AREAS, NOT TO MENTION SOME· SMALLER COUNTRY TOWNS, WOULD BE UNDERUTILISED ..

CONSIDERING ALTERNATIVES TO THE" STEADY- AS- SHE- GOES- SCENARIO " .

WE MAY NOT LIKE WHAT WE SEE WHEN WE . CONSIDER LONG TERM CONTINUATION OF CURRENT TRENDS IN URBAN AND REGIONAL DEVELOPMENT. IF, AS A COMMUNITY, WE WANT TO CHANGE DIRECTIONS WE HAVE TO MAKE THOSE DECISIONS NOW BECAUSE AS I SUGGESTED . EARLIER, IT WILL TAKE AT LEAST A DECADE" TO TURN THE SfiiP AROUND".

BUT WHAT SHOULD BE OUR NEW COURSE? HOW Do WE EVALUATE WHAT FORM OF DEVELOPMENT WILL BE IN THE BEST INTERESTS OF VICTORIANS? . . AT THIS JUNCTURE; WE NEED TO REVISIT AND LEARN FROM RECENT HISTORY IN URBAN AND REGIONAL POLICY. WE MUST AVOID THE MISTAKE OF THE EARLY 70'S URBAN PROGRAMS WHICH PORTRAYEO THE BIG SPRAWLING CITIES AS UNWORKABLE AND URGED SELECTIVE DECENTRALISATION ON A MASSIVE SCALE.

IN THOSE HEADY DAYS WE CAME UP WITH IDEAL DESIGNS FOR LIVING ENVIRONMENTS AND, PERHAPS, PAID INADEQUATE ATTENTION TO THE HARD ECONOMICS. 1

IN THIS CONSULTATION PROGRAM I HAVE BEEN EMPHASISING THE NEED FOR A DISTINCTLY DIFFERENT WAY OF THINKING: ABOUT THIS PROBLEM. WE NEED TO ADDRESS OURSELVES FIRSTLY . TO THE· STRUCTURAL ADJUSTMENT PROBLEM. FACING. AUSTRALIA AND THEN CONSIDER HOW URBAN AND.REGIONAL POLICY CAN FACILITATE THE REQUIRED SHIFTS IN OUR ECONOMIC MAKE-UP AND PERFORMANCK

URBAN DEVELOPMENT AND ECONOMIC ADJUSTMENT

WE SHOULD NOT UNDERESTIMATE THE CONTRIBUTION WHICH THE MANAGEMENT OF URBAN GROWTH. CAN MAKE TO ECONOMIC ADJUStMENT. URBAN DEVELOPMENT STRATEGIES SHOULD BE ·sEEN AS VITAL ADJUNCTS TO THE BROAD POLICY SETTINGS OF THE FEDERAL . GOVERNMENT AND THE MICRO-ECONOMIC REFORMS CURRENTLY BEING PUSHED IN THE TRANSPORT AND UTILITY SERVICES SECTORS.

FIRSTLY, THE PATTERN!OF URBAN GROWTH CAN IMPACT SIGNIFICANTLY ON THE CAPITAL RESOURCES AVAILABLE TO INDUSTRY.

THE DEVELOPMENT OF NEW SUBURBS IS VERY EXPENSIVE. OVER THE NEXT 5 YEARS IT WILL COST THE STATE GOVERNMENT BETWEEN $30,000 AND $40,000 FOR EACH HOUSEHOLD WHICH IS ACCOMMODATED IN NEW RESIDENTIAL . AREAS IN MELBOURNE. THIS FIGURE COVERS CAPITAL COSTS ONLY. AND · DOES NOT INCLUDE SOME "BIG TICKET' ITEMS WHICH WILL BE REQUIRED TO SERVICE GROWTH BEYOND THE NEXT 5 YEARS. 39

AVERAGE NEW LOT CONSuMPTION OVER THE NEXT 5 YEARs WILL BE OF THE ORDER OF. 15,000 UNITS PER ANNUM. THE STATE GOVERNMENT WILL THEREFORE BE CALLED UPON TO INVEST ABOUT $0.5 BILUON PER ANNUM IN BASIC URBAN INFRASTRUCTURE OVER TI-iiS PERIOD. TO THIS MUST BE ADDED THE CAPITAL RESOURCES CONTRIBUTED BY OTHER LEVELS. OF GOVERNMENT ANb THE PRIVATE SECTOR. . . .

YOU CAN SEE THAT BY UTILISING AND. EXTENDING ·URBAN INFRASTRUCTURE JN THE MOST EFFICIENT WAY POSSIBLE, WE CAN, POTENTIALLY, FREE UP A SUBSTANTIAL PROPORTION. OF THE NATION'S SAVINGS FOR INVESTMENT IN THE TRADED GOODS SECTOR. . SO UTILISATION. OF SPARE INFRASTRUCTURE CAPA CITY SHOULD FIGURE PROMINENTLY IN LONG TERM .URBAN GROWTH STRATEGY.

HOWEVER, THE ROLE OF URBAN STRATEGIES IN RESPECT OF ECONOMIC ADjUSTMENT lS NOT JUST ABOUT SAViNG INFRASTRUCTURE COSTS. WE MUST ALSO LOOK AT. THE OUTPUT, OR INCOME EARNTI:JG, SID~ OF THE ECONOMY ..

IN THE-POST-INDUSTRIAL WORLD WHERE KNOWLEDGE, IDEAS AND SKILLS ARE THE PRINCIPAL SOURCES OF WEALTH CREATION, NATI,ONAL PRODUCTIVITY WILL DEPEND HEAVILY ON THE QUALITY OF "URBAN SERVICES". ·BY "URBAN SERVICES" I AM REFERRING TO ACCESS TO FAMILY SUPPORT SERVICES, EDUCATION, TRAINING, AFFORDABLE HOUSING, RECREATION AND ENTERTAINMENT FACIUTIES~ HEALTH CARE, CULTURAL DEVELOPMENT OPPORTUNITIES .AND SO ON. . I. AM ALSO REFERRING TO QUALITY OF UFE IN THE. WORKPLACE; THAT IS STRESS FREE TRAVEL TO WORK, THE AVAILABIUTY OF SUITABLE RETAILING, RECREATIONAL AND BUSINESS SUPPORT SERVICES NEAR THE WORKPLACE AND GOOD QUAUTY URBAN DESIGN: · IF URBAN SERVICES ARE INADEQUATE OR POORLY. PLANNED, WE CANNOT EXPECT TO MAXIMISE THE POTENTIAL OF OUR HUMAN CAPITAL, WHETHER THIS BE IN THE FORM OF ENTREPRENEURS OR WORKERS DEDICATED TO EXCELLENCE .

. SO, IN STRUCTURING OUR. LONG. TERM URBAN AND REGIONAL. DEVELOPMENT PATTERNS WE HAVE TO DO MORE THAN ACHIEVE EFFICIENCIES IN THE EXTENSiON OF INFRASTRUCTURE. WE MUST ALSO · CONSIDER THE STRATEGIC USE OF INFRASTRUCTURE TO LINK UP A WHOLE. RANGE OF URBAN SERVICES.· ·THIS IS WHERE TRANSPORT STRATEGIES WILL · BE A VITAL FACTOR IN . DECIDING THE BEST LONG TERM OPTION FOR VICTORIA.

WHEN WE FOCUS ON THE PRODUCTIVE CAPACITY OF THE NATION THERE IS A FURTHER RELATIONSHIP BETWEEN STRUCTURAL ECONOMIC ADJUSTMENT AND THE PATTERN OF URBAN AND REGIONAL DEVELOPMENT. .

WORLD TRADE IS INCREASINGLY DEPENDENT . UPON CITY-TO-CITY. AS OPPOSED TO NATION-TO-NATION CONTACTS. STRATEGICALLY ·PLACED WORLD COMPETITIVE CITIES WILL NEED TO PEA TURE MORE tHAN WORLD COMPETITIVE FIRMS. THEY WILL ALSO NEED TO OFFER THE QUAUTY OF LIFE AND EXPERIENCE THAT WE NORMALLY ASSOCIATE· WITH· SOPHISTICATED AND CULTURALLY VIBRANT CITIES 4.0

STRATEGIC DIRECTIONS

WITH THE CHALLENGE OF S1RUCTURAL ECONOMIC ADJUSTMENT FIRMLY IN MIND LET US LOOK AT WHAT OUR LONG TERM URBAN DEVELOPMENT OPTIONS ARE.

THE DISCUSSION PAPER PUTS FORWARD A NUMBER OF ALTERNATIVES TO THIS "STEADY-AS-SHE-GOES" SCENARIO. AS I HAVE PREVIOUSLY STRESSED, THESE OPTIONS ARE INTENDED TO PROMOTE DISCUSSION .. THEY ARE NOT A COMPREHENSIVE OR CONCLUSIVE LIST OF POSSffiiLITIES. THEY CERTAINLY DO NOT PROMOTE A FINAL SOLUTION AT THIS STAGE.

THE ESSENTIAL DIFFERENCE BETWEEN THESE OPTIONS, OR ANY VARIATIONS . ON THEM, WILL BE THE EXTENT TO WHICH WE ATTEMPT TO DIVERT GROWTH TO REGIONAL CENTRES.

FACTORS FAVOURING REGIONAL CENTRE DEVELOPMENT

A NUMBER OF FACTORS ARE URGING A RENEWED THRUST ON REGIONAL CENTRE DEVELOPMENT.

FIRSTLY, AND PERHAPS MOST IMPORTANTLY, THERE IS A NEW MATURITY IN THE COMMUNITY DEBATE ABOUT WHAT DECENTRALISATION POLICIES CAN .ACHIEVE.. THERE IS A GROWING RECOGNITION, WHICH WAS QUITE EVIDENT .. TO ME DURING THE REGIONAL SEMINARS, THAT THE· DEVELOPMENT OF THE PROVINCIAL CENTRES AND THEIR ASSOCIATED CLUSTERS OF TOWNS IS AS MUCH DEPENDENT UPON LOCAL INiTIATIVE AS GOVERNMENT ACTION. .

LINKED TO THIS IS A BETTER UNDERSTANDING TI:IA T n-i:E KEY TO BUiLDING STRONG EMPLOYMENT IN NON . ME1ROPOLITAN AREAS WILL BE TO. STRENGTHEN THE EXPORT POTENTIAL OF THOSE INDUSTRIES ~ICH . .ALREADY l:IAVE COMPETITIVE ADVANTAGES IN THE COUNTRY. THAT IS, THERE IS A NEED FOR ECONOMIC DEVELOPMENT STRATEGIES WHICH PROMOTE GROWTH "FROM WITHIN", AND A VOID SIMPLY TRANSPLANTING · BUSINESSES WHICH MAY HAVE ONLY WEAK ECONOMIC LINKAGES WITHIN. LOCAL REGIONS. (PAST EXPERIENCE HAS SHOWN THAT INDISCRIMINATELY TRANSPLANTED BUSINESSES ARE SUSCEPTIBLE TO .MOVING OUT ANYWAY · WHEN CIRCUMSTANCES CI-JANGE) ..

ONE. OF THE FIRST INITIATIVES. OF THIS GOVERNMENT IN THE REGIONAL . DEVELOPMENT AREA . WAS THE ABOLITION OF "SCATTERGUN" DECENTRALISATION PROGRAMS WHICH HAD PROVEN TO BE VERY COSTLY AS WELL AS INEFFECTIVE; INSTEAD, WE HAVE EMBRACED THE "GROWTH FROM WITHIN" PHILOSOPHY. GOVERNMENT SPENDING HAS BEEN TARGETED TO INFRAS1RUCTURE WHICH REINFORCES :THE COMPETITIVE · STRENGTHS OF A REGION AND TO INDIVIDUAL ENTERPRISES WHICH CAN BENEFIT FROM THESE .STRENGTHS .

. I BELIEVE THAT THIS APPROACH HAS WON BROAD ACCEPTANCE AND WE· CAN NOW TACKLE THE OPTION OF DECENTRALISING GROWTH WITHOUT NECESSARILY HAVING TO TAKE A UNIFORM, UNSOPHISTICATED APPROACH TO EACH CANDIDATE CENTRE. .

INDEED, WE MAY HAVE GOT TO THE POINT WHERE THE INITIAL ROLE OF· GOVERNMENT IS TO SUPPORT BUSINESS DEVELOPMENT WITHIN REGIONAL CENTRES USING THE SORTS OF POLICIES WE HAVE IMPLEMENTED OVER THE ·. PAST 8 YEARS, AND ·THEN ALLOW THE CENTRES TO SELF SELECT FOR 41

· ACCELERATED DEVELOPMENT DEPENDING UPON HOW WELL THEY HAVE RESPONDED· ·LOCALLY TO THE CHALLENGE OF ACHIEVING WORLD COMPETITIVENESS. THESE· LOCAL RESPONSES WOULD ENCOMPASS THINGS LIKE, REFORM OF ADMINISTRATIVE ARRANGEMENTS FOR DEVELOPMENT PLANNING; CAREFUL IDENTIFICATION AND MARKETING OF LOCAL COMPETITIVE STRENGTHS; AND THE PROMOTION OF EFFECTIVE NETWORKING AMONGST LOCAL FIRMS AND KEY TRAINING AND RESEARCH ESTABLISHMENTS TO PROMOTE THE DIFFUSION OF NEW TECHNOLOGIES.

OTHER FACTORS FAVOURJNG ACCELERATED REGIONAL DEVELOPMENT INCLuDE;

THE POLLUTION AND CONGESTION WITHIN MELBOURNE WHICH ADD TO THE COST OF OOING BUSINESS AND ADVERSELY AFFECT LABOUR . PRODUCTIVITY;

THE GROWING CAJ,> A CITY FOR GOVERNMENTS TO DECENTRALISE THEIR FUNCTIONS WITH. IMPROVEMENTS IN COMMUNICATIONS . . TECHNOLOGIES; AND

THE LIFESTYLE ADVANTAGES OF THE PROVINCIAL CENTRES (I.E. SHORT COMMUTING TIMES AND MORE AFFORDABLE HOUSING).

HOWEVER, WE SHOULD NOT OVERLOOK A NUMBER OF INFLUENCES WHICH MILITATE AGAINST AN ACCELERATED PROVINCIAL CENTRE DEVELOPMENT . ·sTRATEGY.

THIS GOVERNMENT HAS DEMONSTRATED THAT SENSIBLE DEVELOPMENT POLICIES TARGETED TO THE COMPETITIVE STRENGTHS OF THE REGIONS .WILL ENSURE THEIR STEADY GROWtH. BUT RAPID ACCELERATION OF THIS . GROWTH TO THE POINT WHERE PRESSURES ARE SIGNiFICANTLY DIVERTED FROM MELBOURNE WOULD PROBABLY REQUIRE .MAJOR INFRASTRUCTURE INVESTMENT, PARTICULARLY IN THE FORM OF ROAD AND RAIL TRANSPORT.

THE COST OF SUCH INVESTMENT WOULD BE CONSIDERABLE AND THE COMMUNITY MAY.HAV:E TO BE PREPARED TO WAIT A LONG TIME FOR A RETURN ON ITS OUTLAY. MOREOVER THE ECONOMY MAY NOT BE WELL PLACED TO DIVERT CAPITAL RESOURCES FROM THE TRADED GOODS SECTOR INTO SUCH PROJECTS.

SECONDLY, CONTRARY TO CONVENTIONAL WISDOM, IT JS NOT · ALTOGETHER CLEAR THATTHERE IS SPARE INFRASTRUCTURE CAPACITY IN· THE PROVINCIAL CENTRES. SOME OF YOU MIGHT HAVE NOTICED· IN THE OPTIONS PAPER THAT THE MARGINAL iNFRASTRUCTURE COST OF ACCOMMODATING ADDITIONAL POPULATION J::J\J THE MAJOR REGIONAL CENTRES MAY EVEN BE A LITTLE HI~HER THAN FOR MELBOURNE'S GROWTH CORRIDORS. CERTAINLY THERE ARE ADDITIONAL COSTS TO BE BORNE IN MIND WHEN INTERPRETING THE FIGURES. FOR MELBOURNE'S GROWTH CORRIDORS: IN PARTICULAR WE NEED TO TAKE·INTO ACCOUNT THE COSTS OF POLLUTION AND CONGESTION, AND THE COST OF UPGRADING THE ARTERIAL ROADS WHICH LINK GROWTH AREAS TO JOBS AND HUMAN . SERVICES. ON THE OTHER HAND, THE COST OF GREATLY. UPGRADING TRANSPORT LINKS TO THE PROVINCIAL CENTRES NEED TO BE FACTORED. INTO THE FIGURES FOR THESE ALTERNATIVE GROWTH AREA5.

THIRDLY, THE NET. ENVIRONMENTAL EFFECT OF ACCELERATED REGIONAL CENTRE DEVELOPMENT IS ALSO UNCLEAR. IT IS TRUE THAT WE MIGHT SAVE ON-CONGESTION ·AND POLLUTION COSTS IN THE METROPOLIS. WE 42

WOULD ALSO RELIEVE DEVELOPMENT PRES$URES· ON NEAR MELBOURNE ENVIRONMENTAL ASSETS LIKE THE DANDENONGS, THE YARRA VALLEY AND THE BAYS. BUT WE MUST NOT FORGET THAT RAPID. G~OWTH IN PROVINCIAL CENTRES WILL GENERATE PRESSURES FOR GROWTH IN· THE . TOWNS WITHIN . .

THEIR COMMUTING·FIELDS. UNLpSS FLOWS OF PEOPLE CAN BE CAREFULLY MANAGED THROUGH PLANNING POLICIES,.WE MAY WELL SEE AN INCREASE ~ IN AGGREGATE CAR DEPENDENCE UNDER AN ACCELERATED REGIONAL DEVELOPMENT SCENARIO.. MOREOVER~ THE ENVIRONMENTAL NUISANCE FIELD AROUND GROWING URBAN SETTLEMENTS COULD BE EXTENDED OVER . . A WIDER PART OF VICTORIA.

FOURTHLY, MAINTENANCE OF DESIRABLE SOCIAL JUSTICE OUTCOMES ·COULD BE AN ISSUE IN AN ACCELERATED REGIONAL DEVELOPMENT SCENARIO: URBAN DEVELOPMENT OCCURRING . ON SEVERAL FRONTS THROUGHOUT VICTORIA COULD DILUTE OUR CAPA CITY TO PROVIDE · TIMELY INFRASTRUCTURE IN LINE WITH HOUSEHOLD NEEDS. ALSO, THE ECONOMIC BASE OF THE REGIONAL CENTRES WILL REMAIN NARROWER THAN TiiAT FOR TilE METROPOLITAN AREA EXCEPT PERHAPS IN THE VERY· . LONG TERM.. THIS MIGHT IMPLY GREATER VULNERABILITY TO. ECONOMIC DOWNTURNS WHICH, COUPLED WITH LESSER FLEXIBILITY IN THE LABOUR MARKET, COULD PLACE A GREATER PROPORTION·OF FAMILIES AT RiSK OF UNEMPLOYMENT AND THE. TENSIONS THAT GO WITH IT ..

FACTORS. FAVOURING THE CONTINUED .GROWTH OF MELBOURNE

. THE FACTORS FAVOURING CONTINUED GROWTH OF MELBOURNE ARE WELL · KNOWN;

... . THE CITY'S EXISTING DEPTH OF BUSINESS SUPPORT SERVICES;

.. ITS STATUS AS THE WORLD'S MOST LNABLE CITY;

.. THE FACT. THAT INCREMENTAL INFRASTRUCTURE EXTENSION IS· PROBABLY MORE MANAGEABLE, . POLITICALLY AND FINANCIALLY, THAN LARGE ONE OFF PROJECTS LIKE UPGRADED J>UBLIC TRANSPORT LINKS TO PROVINCIAL CENTRES; ...... THE OPPORTUNITY TO DEAL WITH. POLLUTION . AND CONGESTION .· THROUGH MORE . EFFECTNE . PLANNING, PRICING AND ENVIRONMENTAL PROTECTION POLICIES;

THE OPPORTUNITY TO ENHANCE PUBLIC TRANSPORT SERVICES THROUGH APPROPRIATE URBAN MANAGEMENT POLICIES (E.G. DISTRICT CENTRES AND HlGHER DENSITY·. PuBLIC · TRANSPORT CORRIDORS); AND

.. THE. CITY'S MORE STABLE JOB MARKET AND ESTABLISHED STOCK OF COMMuNITY SUPP0RT SERVICES.

I . I I . 43

CONCLUDING REMARKS.

I BELIEVE THERE IS LITTLE OOUBT THAT LEFf TO MARKET FORCES AND CURRENT PLANNlNG PoLIOES, MELBOuRNE WILL CONTINlJE TO ATTRACf · THE LION'S SHARE OF DEVELOPMENT IN VICfORIA. . BECAUSE OF. THE UNDERLYING FORCES DRIVING . THIS TREND~ ANY STRATEGY TO.·. SIGNIFICANTLY DIVERT GROWTH FROM MELBOURNE WILL REQUiRE AHIGH DEGREE OF COMMUNITY CONSENSUS, A CONSISTENT BI-PARTISAN APPROACH OVER A LONG. PERIOD AND · A PREPAREDNESS BY THE COMMUNITY TO MAKE MAJOR INFRASTRUCfURE. INVESTMENTS ON A . · DEFERRED RETURN BASIS.

TODAY, I HAVE NOT ATTEMPTED TO ANSWER THE QUESTION AS TO WHEtHER; AND HOW, ACCELERATED REGIONAL CENTRE DEVELOPMENT WOULD· BE IN VICTORIA'S BEST LONG TERM INTERESTS. . THE. RESOLUTION OF THESE QUESTIONS WILL DEPEND PARTLY ON THE INPUT FROM SEMINARS LIKE TODAY'S. . I HAVE SIMPLY .HIGHLIGHTED SOME OF THE DIFFICULT ISSUES WHICH NEED TO BE ADDRESSED WHEN EVALUATING THE VARIOUS. OPTIONS BEFORE US .

. lAM GRAT~FUL FOR YOUR PA~TICIPATION TODAY AND"LOOK FORWARD TO YOUR CONSTRUCfiVE CONTRiBUTIONS TO THIS VITAL DEJ3ATE .

. ,

.,

I

! ' 44

Appendix 3

Table of Additional Seminars

Date Organisation Number of People in Attendance

. 4/2/91 . Dandeno~ District Centre / 15 Working. roup .

5/2/91 · Kilmore Shire Council 20

7/2/91 Moe-Gippsland Planners Group 25

28/2/91· Chief Executive Officers 10 of Municipalities in the t Westernport Region-Hastings

21/3/91 Goulburn-North-east 25 Regional Planners· Group.- Benalla

11/4/91 City of Sunshine Planning, · . 4 Engineerin~ & Community · Services 0 icers · ·

26/4/91 Officers of the Western Regio.n 5 Commission . .

$0/4·/91 - 7 Outer Eastern. Municipalities AsSociation

30/4/91 Castlemaine City Council 12

30/4/91 Kyneton.City Council 10

1/5/91 Boo.k Cellars Club 30

1/5/91 Maryborough City Council 20

2/5/91 20

i3/5/91 Footscray Institute of 30. Technology .

14/5/91 Echuca City Council 10

.•

. I 45

. Date Organisation Number of People in Attendance ..

20/5/91 . ~0.

26/5/91 Kyneton Ratepayers Association 45.

31/~/91 Provincial Cities Towns 100 and Boroughs Association - Geelong ..

Appendix4

Summary. of Respondents

Respondents . % Respondents

Local Government 44 ·Professional Groups . 18 Regional Authority 10 State Government Agency . 10 Private Individual 8 Interest Group 7 Education Institution 2

Private Consultants 1

As of Monday 12 August 1991, a total of 128 reSponses were received. · ..... 46

Appendix 5 ·

List ofall submitters (As of Monday 12 August 1991) Individuals

CHAMBERLAIN B (SHAOOW MINISTER FoR LOCAL GOVERNMENT PLANNING "AND STATE GROWTH) .EVANS DAVID FURST DIETRICH · FRANCIS DAVID. GARROW b . ·HALLAM R M (SHADOW MINISTER FOR . REGIONAL PLANNING FORMERLY SHADOW MINISTER FOR FINANCE) -. KERRENS J ·KOWALA· B. . MILES RUSSELL . - .· ·McGRATH JOHN, MEMBER OF LEGISLATIVE ASSEMBLY. McLEISH ANNA MUTIMER-ALLEN HEATHER RATCLIFFE TREVOR .SMITH IAN, MEMBER OF LEGISLATNE ASSEMBLY VINEY ROBIN .

Organisations ALBURY WOOONGA DEVELOPMENT COUNCIL . · ANGLICAN DIOCESE OF MELBOURNE . ARARAT REGIONAL OEVELOPMENT BOARD INC. ASTRONOMICAL SOCIETY OF VICTORIA INC AUSTRALIAN CHAMBER OF MANUFACTURES. AUSTRALIAN NATNES' ASSOCIATION FRIENDLY SOCIETY . AUSTRALIANS AGAINST FURTHER IMMIGRATION BALANCED DEVELOPMENT ASSOCIATION OF VICTORIA BALLARAT REGIONAL BOARD BALLARAT UNIVERSITY COLLEGE BENDIGO & DISTRICT ENVIRONMENT COUNCIL BENDIGO WATER BOARD BICYCLE VICTORIA . 1 BOROUGH OFWONTHAGGI CITY OF ALBURY CITY OF BALLAARA T . CITY OF BENDIGO CITY OF. BERWICK CITY OF COBURG ·· CITY· OF .CROYDON .CITY OF DANDENONG · CITY OF DONCASTER AND TEMPLESTOWE CITY OF ESSENOON CITY OF FRANKSTON ... CITY OF HAWTHORN . CITY-OF KEILOR CITY OF MARYBOROUGH. CITY OF MELBOURNE .. CITYOFMOE . CITY OF MORDIALLOC CITY ·oF PRAHRAN CITY OF PRESTON 47

CITY OF SHEPPARTON . CITY OF SPRINGYALE . CITY.OF STAWELL CITY OF ST KILDA . CITY OF SUNSHINE . · CITY OF WAVERLEY CITY OF wERRIBEE . COMMUNITY SERVICES VICTORIA · COUNTRY FIRE AUTBOR1TY· . . CROYDON CONSERVATION SOCIETY .. . DEPARTMENT OF SPORT AND RECREATION VICTORIA . DUDLEY MARROWS MARROWS ESTATES PTY LTD ENVIRONMENT PROTECTION AUTHORITY . GAS & FUEL CORPORATION OF VICTORIA GEELONG .REGIONAL COMMISSION HOLGREN DESIGN SERVICES . INSTITUTION OF ENGINEE.RS, AUSTRALIA . KEEP ROMSEY RURAL LOBBY INC · KYNETON ENVIRONMENT AWARENESS GROUP ,. KYNETON RESIDENTS & RATEPAYERS ASSOCIATION LATROBE REGIONAL COMMISSION . LATROBE VALLEY WATER & SEWERAGE ·BOARD LEND LEASE RETAIL PROJECTS . LODDON-CAMPASPE REGIONAL PLANNING AUTHORITY MERRI CREEK MANAGEMENT COMMITTEE INC MONASH UNIVERSITY COLLEGE GIPPSLAND . MUNICIPAL ASSOCIATION OF VICTORIA .. NORTH EAST VICTORIA JillGIONAL COUNCIL. ·OFFICE OF THE ENVIRONMENT .. OYTE~ EASTERN MuNICIPALITIES ASSOCIATION PORTLAND DEVELOPMENT COMMITTEE INCORPORA TED · PROVINCIAL CITIES, TOWNS & BOROUGHS ASSOCIATION PUBLIC TRANSPORT CORPORATION ' ROBERT PECK VON HARTEL TRETHOWAN · ROYAL AUSTRALIAN PLANNING INSTITUTE

·. . . . . ~ SHEPPARTON KY ABRAM RODNEY DEVELOPMENT CORPORATION SHIRE OFALEXANDRA \ . SHIRE OF CRANBOURNE SHIRE OF DAYLESFORD & GLENL YON. . SHIRE OF HASTINGS . SHIRE OF·KILMORE SHIRE OF LILLYDALE SHIRE OF MIL DURA SHIRE OF P AKENHAM · · SHIRE OF SHERBROOKE SJ-IIRE OF 5Th\WELL

' . 48

SHIRE OF STRATHFIELbsAYE · SHIRE OF TUNG AMAH SHIRE OF WARRACKNABEAL . SHIRE OF MORNINGTON SOMMER CONSTRUCfiONS VIC P1Y LTD SOUTH WEST REGIONAL COUNCILS (CITIES OF· WARRNAMBOOL; BAMILTON,· PORTLAND, THE AND THE , REPRESENTED BY REGIONAL CONSULTANT GREG WALSH) STAWELL & GRAMPIANS DEVELOPMENT ASSOCIATION . SUSTAINABLE SOLUTIONS P1Y LTD

THE INSTITUTION OF SURVEYORS, VICfORIA TOWN OF CAM~EROOWN UPPER YARRA VALLEY & DANDENONG RANGES AUTHORITY · .

VIC ROADS VICTORIAN EMPLOYERS FEDERATION , VICTORIAN NATIONAL PARKS ASSOCIATION · W ANGARATTA REGIONAL DEVELOPMENT CORPORATION. WESTERN PLANNING TOWN PLANNING SERVICES WESTERN PORT DEVELOPMENT COUNCIL WESTERNPORT REGIONAL PLANNING & CO-ORDINATION WIMMERA DEVELOPMENT ASSOCIATION WODONGA CHAMBER OF COMMERCE & INDUSTRY

Appendix6

Issues given major_emphas_is in submissions_ . I

Issue· Number of submitters

Economy . 24 · Infrastructure ..21 •· Environment/ Agriculture . 17

Employment 13

Immigration . 8

Community Development · 7

Transport 5

Leisure /Recreation 5

·Out of the 128 submissions received the issues listed above were given major emphasis by submitters. · · · .· 49

Appendix 7

Summary of responses

. ·Option. % Respondents

SuppOrt for:· OPTION ·1 : Compact Melbo~rne " 12

OPTION 2 : Twin Cities· 3· OPTION 3 :New Towns 0 OPTION 4: Regional Centres 32

· Other proposals: Regional Centres other than those. ·proposed · . . 9 Options 1 and 4 combined 9 Options 1 anci 2 combined 5 Options 1, i and 4 combined 7 • Other Combinations 10 Unstated 13 50

Appendix8

!he Public Consult~tion Projec·t Team

The public consultation report was prepared with the co-operation of Julie Hallyburton, Lisa Shadforth and Krystian Seibert

· During the public consultation process the contribution ari.d assistance of the following people is acknowledged: "

Jan Allen Rudy .{

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