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IPlANNU'!G & EPA UBRARY Transport Strategy

April, 1991

Prepared by : Metropolitan Corridors Transport Group

In Association with: Public Transport Corporation Vic Roads Metropolitan South-East Region Vic Roads Major Planning Studies Department of Planning and Housing City of Berwick Shire of Cranboume 711. 4099 00100327 Shire of Pakenham,, 452 sou South Eastern growth area : transport strategy

... --~---~J Transport Strategy -Development for the South Eastern Growth Area

Summary

I. INTRODUCTION The Directions also include the introduction of a new system of 'Local Structure Plans' ,to ensure orderly development, This document sets out details of the transport strategy which must be prepared before or in conjunction with a developed for the South-Eastern Growth Areas, in the context planning scheme amendment. of the recent release of a State Government 15 year plan to house up to 500,000 people in new style Melbourne fringe The "Growth Area Plans" form part of the Directions and suburbs. contain detailed criteria and plans addressing matters such as limits to urban development within the growth areas, staging This transport strategy was developed after extensive consul­ of development, population targets, guidelines for commu­ tation with Transport agencies, the Department of Planning nity planning and requirements for activity centres, employ­ and Housing, local municipalities and communities. ment areas, transport, environment and open space.

2. METROPOLITAN GROWTH AREAS The Transport Directions, which form part of the overall Minister's Directions, were developed after extensive consul­ The State Government's 1987 Metropolitan Policy, "Shaping tation with the transport agencies and the then Department of Melbourne's Future", provides the basis for the management Planning and Urban Growth. of the future growth and development of metropolitan Mel­ bourne over the next 15 yeatS. TItis Policy provides for t,hc channelling of most of the future outward growth into the ~. S()UTH-EASTERN GROWTH AREA ( three priority areas ofWerribee in the west, Plenty Valley in the north, and South-Eastern (Berwick-Pakenham­ III Preferred Land Use Development Strategy Cranboume) in the east The preferred land use development option for the South­ Transport's role, in supporting the Metropolitan Policy, is to Eastern Growth Area is shown in Figure 3. This development develop safe, effective and economic transport systems for . form provides for a total Growth Area population of approxi­ the growth areas that will provide equitable access to oppor­ mately 400,000 people. tunities, services and facilities in an environment designed to meet the needs of all members of the community. This South-Eastern population comprises: Existing population (as at 1986) 110,000 The Planning Stage Reached Reserved Living zoned land 148,000 Corridor/new urban areas 146,000 The then Department of Planning and Urban Growth released strategic "Growth Area Plans" for the Werribee and South­ These figures allow for higher residential densities than Eastern Growth Areas on 23 November 1990. previous development.

These strategic plans redefine the extent of the urban growth areas by expanding the corridor zonings established 20 years IS The Transport Strategy ago. The proposed Transport Strategy for the South-Eastern Growth To properly outline the preferred concept for these two Area is shown in Figure 1. Growth Areas, the then Minister for Planning and Urban Growth issued 'Minister's Directions' to Planning Authori­ Planning for the corridor provides for initial residential ties under Section 12 of the Planning and Environment Act development in the Cranboume area, followed by a sequential 1987. easterly extension from existing developed areas.

The Minister's Directions contain the framework for future The Transport Strategy recognises the importance of public growth and criteria to be considered by planning authorities transport in supporting successful ·development within the when preparing amendments to the relevant planning schemes. Growth Area.

- 1 - Initial development in the Cranbourne area is preferred in An integrated design incorporating the heavy rail, activity order that: centres and modal interchanges (including commuter car o journeys to work are kept as short as possible; parking) has the potential to capture the public tranSport o job opportunities in Frankston and Braeside are real­ advantage of intense activity without being restricted by a ised; congested road network. o existing roads to the south and east of Cranbourne are utilised; MetPlan proposes major commuter car parking facilities at o excessive use of the South-Eastern Arterial is avoided; Hallam and Pakenham. o the Princes Freeway!Highway corridor con- tinues to function for the benefit of longer distance, especially The Road System commodity, travel (Lauobe Valley, East Gippsland, The road system is based on priority to public tranpsort, high interstate); occupancy vehicles, commercial vehicles, bicyles and com­ o roads, including those suitable for bus routing, are munity operated services. developed as part of subdivisions in the area. The road system within the Growth Area has been developed Public Transport to generally follow, and expand on, the existing road network. In most cases, the proposed arterial road upgradings can be Bus Operations accommodated within existing road reservations. In other Development of the Transport Strategy has sought to integrate cases, the municipalities are gradually implementing reserva­ the road system and urban design features of the Growth Area tion widenings or building setbacks as development proposals to facilitate bus operations. The resultant road system (com­ are being prepared. prising both arterial roads and local traffic routes) is shown in Figure 1. Development of the road system has taken into account the The proposed containment of urban growth, with scope for importance of access to the remainder of the meuopolitan higher residential densities, offers good opportunities for area. Alternative access links to the west to relieve future developing bus routes with strong attractors such as rail pressure on the Princes Highway/Freeway corridor, and to the stations (with increased commuter car parking) and major north, are proposed as traffic demand warrants. These links activity centres as terminals. to the west include the Dingley Route, Thompson and Ballarto Roads, a Pound Road connection to a deviated Abbotts Road B uses servicing the Growth Area would integrate with the rail and Greens Road. To the north, major road links include the and. MetLink systems between major activity centres. Scoresby Route, Belgrave-Hallam Road, Narre Warren North Road and Healesville-Koo Wee Rup Road. Heavy Rail Capacity enhancement of the existing heavy rail system was Road connections to employment opportunities in the areas of proposed in MetPlan. Frankston and Hastings (including port facilities) are pro­ vided· by existing roads capable of being upgraded, such as Infrastructure improvements on thePakenharillineare impor­ Cranbourne-Frankston Road and Dandenong-Hastings Road. tant in the overall context of urban growth. The timing of any works is impOrtant in meeting the accessibility needs of the The Transport strategy also designates an "investigation growing community, whilst also seeking to relieve pressure area" to further identify possible road links for north-south on the Princes Highway/Freeway corridor. In the short to traffic between Berwick and the Lilydale area via Lysterficld medium term, such works could include re-signalling and the RoadlDorset Road. introduction of double deck trains. As the staging of urban growth extends easterly towards Current Public Transport Corporation investigations regard­ Pakenham in accordance with the preferred land use plan, the ing the upgrading of the Cranbourne line indicate that a development of the Hallam Section of the Princes Freeway population catchment of 70-80,000 people within three kilo­ will increase in importance. Although construction of this metres of rail stations along the rail corridor would be link is not included on the current VIC ROADS 10 year works necessary to justify examining the option of electrification program, roadworks are now underway on constructing a against other options, such as an upgraded diesel service or third lane 011 the! Princes Highway, west of the Berwick bus unly service. These options will be examined against a Bypass. Development of the Princes Freeway to the east of background ofchanging travel habits and higher costs of fuel. Beaconsfield is also proposed, but implementation is not envisaged until the upgraded Princes Highway is operating at Operational constraints on the Pakenham and Frankston group of lines are currently being experienced as a result of capacity. capacity/signalling constraints. These constraints will im­ pact on the ability of the rail system to cater for urban development in the Growth Area.

- 2 - Legend

New Urban Development Existing Major Road Reservations o Activity Centre Freeway ~ Investigation Area Primary Arterial

Existing Urban Zone Secondary Arterial

Local Traffic Route Zoned for Development (Potential Bus Routes)

Road Link Development - Requires Investigation

o 1 2 J 5 km South Eastern Growth Area Scale ;-ow L;;;;;;)-o-l

WS,NETS Transport Network 4. TRANSPORT AND GROWTH AREA DEVELOPMENT FORM

Historically, our urban fonn has been shaped by many factors, S80,OOOper annum to operate andS120,OOO to buy. Cheaper, with transport being one of the more significant but often less smaller, special purpose buses may be practical if substantial recognised in the land use planning process. However, numbers were involved. Developers may be able to face up with transport's revealed high cost for infrastructure and to the operating cost if the immediate hurdle of the bus services provision (transport represents in the order of60% of purchase was overcome with special financing for the local the total physical infrastructure costs), planning for the growth bus operator. areas has provided the opportunity for transpOrt to have a greater influence in shaping urban development and resultant The road system, and in particular the arterial road network, travel patterns rather than responding on a demand basis. can influence decisions concerning the location of major land use developments by providing good accessibility to a variety The Ministerial Directions include provision for significantly of opportunities and activities. increased and expanded contributions by developers to fund infrastructure and community services, including local and The road system should service employmentareas and freight arterial roads, pedestrian and bicycle routes, rail and bus movement corridors, concentrate through traffic (particularly services and'links to the rest of the metropolitan area. trucks) on the arterial road network in order to improve the amenity of residential areas, and facilitate the efficient move­ ment of buses. III Planning for Integrated Transport Services Urban development should be staged to extend from existing It is important that transport services are integrated with land areas to give continuity to the development of the arterial road use development patterns, as the major detenninants of trip network, whilst at the same time facilitating public transport length include residential densities, activity clustering and the loadings (especially buses) throughout a route. relative locations of residences and activities.

The Transport Strategies emphasise the need to: IIJ An Overview , 0 provide higher density residential development in close proximity to railway stations, bus routes and activity The transport infrastructure costs favour the South-Eastern centres; Growth Area because road and rail provision is substantially o cluster activities at both neighbourhood and regional in place. Plenty Valley is constrained by geography, and levels to enhance accessibility, particularly by public reduced growth increases the average costs. Werribee is transport; and isolated and struggling to keep pace with provision for the o encourage maximisation of employment self-contain­ existing population. ment in the growth areas. Consideration of the total transport costs, including: Development of the road system has adopted where possible o public transport and road operating/maintenance costs; the Public Transport Corporation requirements as contained o private costs; and in the document "Guidelines for Accommodating Buses in o social costs of travel (air and noise pollution, disrup- Established and Future Urban Areas". Particular emphasis tion). has been placed on the guideline that 90% of residential lots could reverse this assessment. The South-Eastern Growth be within 400 metres walking distance of a bus route. Area is likely to have substantially longer journeys to work (30 kilometres compared with Werribee 21 kilometres). The Incorporation of these potential bus routes within the Trans­ private costs associated with such travel would result in less port Strategy is important in achieving an overall bus network money available for government services, and less money that is both direct and regular, whilst also ensuring connectiv­ available for wealth producing investment. It may be prefer­ ity and continuity as individual Local Structure Plans are able to defer the spread to the south-east by putting as much prepared as staged urban growth proceeds. Areas of higher growth into Werribee as is feasible. residential density can also be planned having regard to these potential bus routes. Development of the Transport Strategies has made allowance in the travel estimates for progressive cungesliull (lOad pric­ The new developing areas take several years to establish ing, demand management) that modifies travel behaviour in travel demands sufficient to justify bus services. The devel­ favour of socially acceptable public transport and spreading oper has an interest in early provision of public transport the peak period. Such peak spreading is occurring. with services, while he is selling land. Moreover, early provision resultant more efficient use of existing transport infrastruc­ of public transport reinforces socially desirable travel habits ture (both road and public transport) and the deferral of and reduces the longer tenn need for road expenditure. investment in additional infrastructure capacity.

Typical cases suggest that six(6) buses are justified eventuall y to service an area of 20,000 people. Each bus costs about

- 4 - · S. IMPLEMENTATION .

The consultation process undertaken throughout the develop­ spent ttavelling to work and reduces the amenity of the ment of both the Transport Sttategy and the overall Depart­ urban environment. ment of Planning and Housing's land use sttategy was de­ Having regard to the revealed high transport infrastructure signed to gain the acceptance and active support of the costs associated with growth area development, the ques­ community. tion should be asked "Is continued outward growth what we Implementation of the Transport Sttategy will form part of a should be planning for?". co-ordinated approach to the provision of key infrastructure and services to support development in the Growth Areas. Developer Contributions - General Establishment of the new infrastructure and services will depend on demand, level of commitment from the develop­ In announcing the Growth Area Plans, the then Minister for ment industry, and availability of funds. Planning and Urban Growth expressed the Victorian Gov­ ernment's fmn commitment to ensuring that the physical and human services necessary for high quality urban envi­ IIIFinanciallmplications ronments in the growth areas are provided and funded in a timely, efficient and equitable way. The overall transport cost for metropolitan-wide infrastruc­ ture provision associated with outer urban land use develop­ Inadequate development contributions to the costs of serv­ ment is significant. ices and facilities for growing communities at the time land is developed, rising community expectations regarding the The studies have shown that: quality and timing of provision of these services, and other o transport accounts for over 60% of physi~ infrastruc­ factors suggest a need to review existing arrangements for ture costs for the Growth Areas, comprising in the order development contributions as a source of funding for urban of $25,000 to $30,000 per block. The annual operating infrastructure. and maini.enance costs are additional to these, further increasing the demands on infrastructure dqllars. With a view to improving the existing arrangements, the o existing funding arrangements and developer contribu­ then Department of Planning and Urban Growth has re­ tions only provide up to $10,000 per block, ie. one third leased a Discussion Paper entitled "Development Contribu­ (113) of the costs involved with transport infrastructure tions", November 1990 as part of a consultative process (with no developer contribution currently being pro- leading ultimately to legislative amendments. vided for public transport). - This discussion paper does not address all options for public Significant public funds are therefore being used to subsidise and private sector involvement in infrastructure provision, outer urban growth. but focuses narrowly upon development contributions at the time land is developed for Urban purposes that are payable: Transport development. both road and public transpor~ in the o for infrastructure provided by public sector agencies; Werribee, South-Eastern and Plenty Valley Growth Areas, and based only on current levels of funding, will not enable the o under legislative and administtative arrangements necessary infrastructure to be provided to support the pro­ broadly applicable to all forms of land development posed levels of urban development. at any location. As an example of current (1990f)I) funding levels, VIC The main issues addressed in the discussion paper in devel­ ROADS allocations for arterial road funding for the City of oping a framework for development contributions include: Werribee amounts to $1.8 million, of which $0.6 million is o betterment margin: the measurement in practice of required for asset preservation. Substantial shortfall exists the 'betterment margin' and, related to this, the between these available funds and the total costs required for implications of development contributions or better­ providing arterial road infrastructure to meet the likely popu­ ment taxes for housing affordability; lation growth over the next 10 years, which are estimated to o nexus: the extent of the 'nexus' that should be be in the order of $7 to $10 million Per year (of which established between the impacts of land development developer contributions for arterial roads under present ar­ upon infrastructure requirements and the level of rangements would be very small). development contributions to given infrastructure items; and Significant congestion and reduced levels of service will be collection mechanisms: the collection mechanisms to experienced on the transport system both within the Growth o be adopted, including their relationship to existing Area and in abutting municipalities, especially on the road development contributions and arrangements for network, unless other means of funding the necessary trans­ collection and disbursement in respect of infrastruc­ port infrastructure and services are established. ture provided by the different tiers of government. Together with the high infrastructure cost. transport has a vital The development contributions will apply equally to devel­ impact on development and economic wellbeing. Urban opers of land for both residential and commercial purposes. congestion delays the distribution ofgoods, increases the time

- 5 - Developer Contributions - Transport The Land Release Program, which takes into account the urban development proposals for the growth areas, should be As part of the developer contributions issue, the Ministry of used as part of the process, by the transport agencies, of Transport has established an 'Urban Development -Transport translating the transport Sb'ategy proposals into forward look Infrastructure Funding Working Group' , with representatives agency works. from the Transport agencies and the Departments of Treasury and Planning and Housing, to examine and develop method­ ology, options, guidelines and mechanisms for: III Transport Services Programming o recovery of the costs of transport infrastructure required to support urban development; and The transport studies to date for the three priority growth areas o involvement of the private sector in the funding and (plenty Valley, Werribee and South-Eastern) have set the provision of transport facilities and services. scene for the next 30 years or so in terms of transport sb'ategies to support urban development in the metropolitan area. The transport facilities are tojnclude local and arterial roads, pedestrian and bicycle routes, rail and bus services, especially It is now appropriate to translate the transport Sb'ategy propos­ in initial stages of development, and links to the rest ot the als into forward look agency works within both the immediate metropolitan area. and the IO to 20 year time frames. The growth area projects need to be seen in the context of other worthwhile metropoli­ tan .wide transport projects, especially for the road network. III LDnd Use/Transport Integration At a strategic level, within the 10 to 20 year time frame, it will Agency Responsibilities be necessary to address: o possible directions and scales of urban development, Ongoing management procedures will be an important ele­ and the strategic trarisport services required to support ment in the implementation of the Growth Area Transport such development Sb'ategies. It is important that an integrated approach be o appropriate metropolitan urban transport linkages and adopted between the transport agencies, other government services agencies responsible for infrastructure and service provision, o ways of including economic and social implications of and the responsible planning authorities (Department of various levels of transport services Planning and Housing and local government). o direction for VIC ROADS and Public Transport Corporation programs in planning for integrated The Transport Sb'ategies have developed a series of Action transport services. Plans - or key projects, investigations and other actions - . which, when implemented by the nominated lead agency, will form the basis of Transport's role in supporting Growth Area 11'1 Overall Co-ordination and Monitoring development. Each lead agency will need to assess its required input and establish internal arrangements to ensure The implementation of the Growth Area Transport Sb'ategies that its responsibilities are met. needs to be co-ordinated and monitored on a broad level. As is the case with Plenty Valley, it is proposed that Transport Local Structure Plans Co-ordination Committees be established for the purpose of A key step in transforming the Growth Area Plans, incorpo­ overall co-ordination and monitoring of Transport Sb'ategies. rating the Transport Strategies, into practical guides for The Transport Co-ordination Committees would report to the individual landowners and developers will be the preparation Growth Area Liaison Committees convened by the Depart­ of Local Structure Plans. ment of Planning and Housing 7 these Liaison Committees Transport agencies will need to liaise closely with other being responsible for the overall co-ordination ofgrowth area government agencies, municipalities and developers to en­ planning and implementation. sure that the Local Structure Plans not only reflect the transport principles established in the Growth Area Plans, but also develop standards for enhancing the safety, operation and amenity of the arterial and res~dential road networks. These Local Structure Plans are also seen as providing opportunities tor determining developer contributions for, amongst other things, transport infrastructure and services.

Metropolitan Services Co-ordination System (MSCS)

The co-ordination and timing of implementing transport infrastructure and services, as contained in the Transport Sb'ategy, should be linked with the MSCS process and its Land Release Program. For further information contact: Alan Collins (860 2902)

- 6 - I South Eastern Growth Area

... Transport· Strategy TABLE OF CONTENTS

Page C~R1-BACKGROUND 1

1.1 Metropolitan Planning Objectives 1 1.2 The South Eastern Growth Area 1 13 Development of a Transport Strategy 1 1.4 Transport Objectives 2 15 The Strategy Process 2

CHAPTER 2 - ISSUES AND CONCERNS 4

2.1 Development Form 4 2.2 Access and Amenity 4 23 Public Transport 6 2.4 The Road System 6 25 Pedestrians and Bicyclists 7 2.6 The Environment 7 2.7 Metropolitan Area Access 7 2.8 Funding 8 2.9 Implementation 8 2.10 Strategic Objectives 8

CHAPTER 3 - LAND USE ALTERNATIVES 10

3.1 Development of Land Use Alternatives 10 3.2 Concept 1 - Linear 10 33 Concept 2 - Cellular 10 3.4 Concept 3 - New Settlement 10 3.5 Concept 4 - Containment 11 3.6 Transport and Land Use Development 11

CHAPTER 4 - TRAVEL ESTIMATES 14

4.1 Existing Conditions 14 Existing Travel 14 Road System 18 Public Transport 18 4.2 Population and Employment Projections 18 4.3 Future Travel Patterns 19 4.4 Networks for Consideration 20 4.5 Travel Demand Estimates 20 Metropolitan Area Access 21 Transport Strategy 21

CHAPTER 5 - EVALUATION 22

5.1 Evaluation and Decision Making 22 5.2 Evaluation Framework 22 53 Evaluation of Land Use Concepts 23 5.4 Transport Strategy Development 24 Page CHAPTER 6 - DEVELOPMENT OF THE STRATEGY ------_ 25

6.1 Preferred Land Use Development Strategy 25 Planning Scheme Amendment Process 26 6.2 Public Transport 26 MetPlan 26 Buses 27 Heavy Rail 28 Light Rail 28 Commuter Car Parking 29 Public Transport Costs 29 6.3 Road System 30 Arterial Road Network 33 Road System Costs 34 Typical Road Cross Sections 34 Road Management 34 Land Use/Transport Interaction 35 6.4 Community Transport 36 6.5 Pedestrians and Bicyclists 37 6.6 Staged Implementation 38 Comparative Corridor Costs 39 Accessibility 40 6.7 Activity Centres 40 Modal Interchange 40 Heavy Rail 40 Buses 40 Road System 41 6.8 Metropolitan Area Access 41 Land Use/Transport Interaction 41 Public Transport Actions 42 Road Actions 42

CHAPTER 7 - ACTION PLANS 44

7.1 Basis of Action Plans 44 7.2 Action Plans 44 Development Form 44 Access and Amenity 45 Public Transport 45 The Road System 45 Pedestrian and Bicyclists 46 The Environment 46 Metropolitan Area Access 46 Funding 46 Implementation 47

CHAPTER 8 - IMPLEMENTATION 48

8.1 Financial Implications 48 Developer Contributions - General 48 Developer Contributions - Transport 49 Funding Sources 49 8.2 Land Use/Transport Integration 49 Agency Responsibility 49 Local Structure Plans 50 8.3 Transport Services Programming 50 8.4 Overall Co-ordination and Monitoring 51 Page APPENDIX 1 - LAND USE ALTERNATIVES Concept 1 - Linear 52 Concept 2 - Cellular 53 Concept 3 - New Settlement 54 Concept 4 • Containment 55

APPENDIX 2 • TRAVEL TIME CONTOURS 56

APPENDIX 3 - TRAVEL DEMAND ESTIMATES 58

APPENDIX 4 - EXTRACT OF MINISTER'S DIRECTION ON TRANSPORT 63

APPENDIX 5 - SUBDIVISION lAYOUT FOR BUS OPERATION 64

"·f' Berwick, Pakenham and Cranbourne in the south-east, and Werribee in the west, as outlined in the Metropolitan Policy (Figure 1.1 refers).

As shown in Figure 1.1, the South Eastern CHAPTER 1 Growth Area covers part of the municipalities of Berwick, Pakenham and Cranbourne. It consists BACKGROUND of two ·corridors·, one from Dandenong to Cranbourne and the other from Dandenong to Bunyip.

The Cranbourne portion extends from Hampton Park to the Cranbourne Township, generally 1.1 Metropolitan Planning Objectives following the South Gippsland Highway.

The Government's 1987 Metropolitan Policy, The Bunyip portion covers a strip about 44 Shaping Melbourne's Future, provides the basis kilometres long, beginning at the established areas for the management of the future growth and of Endeavour Hills, Doveton and Hallam, and development of metropolitan Melbourne over the following the route of the Princes Highway. next 15 years.

An important aspect of this policy is improved FIGURE 1.1 Metropolitan Growth Areas access to employment, retailing and community facilities. The policy also provides for the management of future outward growth within .0- dermed corridors. Office, commercial and retail Sultb"'1. ~ development is to be managed within a hierarchy of activity centres, the principal ones being District Centres. New development will be encouraged in areas capable of taking maximum advantage of existing and proposed transport routes.

Improvements to accessibility and transport infrastructure are essential elements of the Metropolitan Policy. Transport provides people with access to activities and opportunities, together with a means of achieving more basic goals. Transport strategies and objectives, therefore, are closely aligned with the State hi,lift; 0 • ..,.10p"'.'" - Corridor Bound.,,. Government's Economic and Social Justice -_. Polnliar Co,,~or 8ound." Strategies and Metropolitan Policy.

1.2 The South Eastern Growth Area

Twenty years ago the South Eastern Growth Area 1.3 Development of a Transport Strategy (Berwick, Pakenham and Cranbourne) was identified as a potential area for future The South Eastern Growth Area. will develop metropolitan development. It was one of the rapidly in the next 20 years. 'corridors' the Melbourne and Metropolitan Board of Works marked out for Melbourne's Development of a multi-modal Transport Strategy outward growth. Now that the Lilydale corridor to provide a safe, economic and effective is almost fully developed, and because of transport system to support the growth area is limitations on development in other corridors, crucial for its success. A good public transport most outward growth will be channelled into the service in particular, is an integral component of major growth areas of Plenty Valley to the north,

Page 1 any major land use development, as is the • to provide the framework for transport provision of equitable access to opportunities both planning and set priorities for within and external to the growth area. programming, funding and delivering transport infrastructure and services; Changes in land use will result in changes in travel patterns and demands. . A Transport • to meet the needs of the community Strategy can accommodate these changed transport needs, whilst also influencing the type and location of land use development to make 1.4· Transport Objectives best use of transport facilities. The development of a Transport Strategy for the The South Eastern Growth Area has significant South Eastern Growth Area seeks to provide an environmental areas (flora and fauna) and natural efficient and effective transport infrastructure to features (particularly to the north). There is a support land use development in the corridor. need therefore, to preserve and integrate these environmental areas into the overall planning The broad goals which determine the theme of the corridor. A transport strategy can development of transport policies and strategies incorporate environmental management measures, include: to minimise any environmental impact, by helping to provide for the efficient and effective • Access: Provide a variety of services and integration of compatible land uses as part of the facilities which give people access to a wide overall corridor development. range of activities and opportunities and facilitate the movement of goods in ways that The development of transport strategy proposals are safe, convenient, pleasant to use and value for the South Eastern Growth Area has taken into for money. account previous studies which provide the overall metropolitan strategic framework in relation to • Equity: Ensure that the benefits and costs of the development of the public transport network services and facilities are distributed fairly and and services and the arterial road network. They that particular account be taken of the needs are the Metropolitan Public Transport Industry of people who have little or no choice about Plan (MetPlan), the Metropolitan Arterial Road their mode of transport. Access Study (METRAS) , the National Roads Strategy - Victoria (NATROV). The South • Support for Other Policy Areas: Ensure that Eastern Growth Area Transport Strategy builds transport policies and strategies support the on these strategies in developing detailed goals of other policy areas, in proposals for the corridor. particular economic development, employment, land use, environmental amenity The reasons for developing a Transport Strategy and energy use. for the South Eastern Growth Area are, therefore: • Efficiency: Ensure maximum efficiency and effectiveness of services. • to support the objectives of the Government's Economic and Social Justice Although the Transport Strategy focuses on the Strategies and Metropolitan Policy; South Eastern Growth Area, parts of the Strategy also relate to the deVelopment of proposals to • to ensure an integrated strategic maximise access to the remainder of the approach to land use and transport metropolitan area, particularly to the west and to planning; the north. • to support and stimulate corridor development; 1.5 The Strategy Process

• to develop a multi-modal transport strategy Planning Procedures that will iDtegrate all transport modes; To ensure that the growth of the South Eastern Growth Area is efficiently staged and the

Page 2 provision of infrastructure, transport and human programming, funding and delivering services is co-ordinated with residential transport facilities and services. development, the former Department of Planning and Urban Growth (DPUG) now called the Working Group Department of Planning and Housing has introduced procedures that will involve A multi-disciplinary, multi-agency Working preparation of Local Structure Plans for the area, Group, the Metropolitan Corridors Transport working with local government, service agencies, Group (MCTG) was established by the Ministry community groups and the development industry. of Transport to assist the former Department of Planning and Urban Growth in the transport These planning procedures have been introduced aspects of metropolitan growth area development. by the former Department for Planning and Urban Growth for the development of growth The Working Group comprised officers from the areas, including the South Eastern Growth Area Roads Corporation and the Public Transport to address the issues of planning and Corporation. environmental investigations, public consultations and implementation measures such as planning Communication schemes, area development programs and special funding. An important element in the Transport Strategy process, together with the overall planning The main steps in the planning procedures are: process, was to ensure adequate communication between the planners and the local community, • preliminary investigations (conservation, or those interested in the area. Tl?is was heritage, transport, land capability ); considered essential so that the community could have an opportunity for an input into the • preparation of strategic long term options; development of the strategy and were kept informed of the progress in planning' for the • extensive public consultation (information growth area. papers, workshops, public submissions); This communication incorporated the following • detailed investigations (flora, fauna, measures: archaeology, transport, employment, infrastructure, pollution ); • public workshops/displays and seminars were held on specific issues such as access and • preparation of a Growth Area Plan, staging amenity, the environment, transport and development and funding; human services;

• rezoning and land release; • release of information bulletins to keep the community, and those interested in the area, • provision of infrastructure and management informed of the progress of the planning arrangements. process;

Transport Planning Process • advertising of workshops/displays and seminars and the availability of information The process of developing a Transport Strategy bulletins were included in local and regional comprises two phases; newspapers; and

Phase A - assess the transport implications of the • public comment was invited throughout the vanous land use development planning process. alternatives;and

Phase B - develop a multi-modal transport strategy which will integrate transport modes, support/stimulate (corridor) development, provide the framework for planning, and set priorities for

Page 3 the highest importance. In addition to other benefits, the creation of jobs in the South Eastern Growth Area will assist in constraining travel demand and improve transport efficiency. The provision of an attractive transport system CHAPTER 2 can, in itself, be a contributing factor in encouraging the location of employment ISSUES AND CONCERNS opportunities. With transport representing about 50 - 60% of total infrastructure costs, an appropriate land use arrangement can achieve significant savings.

The South Eastern Growth Area (Berwick, Development ofa transport infrastructure and Pakenham and Cranbourne) will develop rapidly the provision of appropriate trausport services over the next 20 years, with land use and are integral cOmponents of any major land use transport infrastructure and services being development. inextricably linked. To understand the scope of transport's role in this development, the Aspects of development that are likely to have Government has worked with local government, the greatest impact on the Growth Area are service agencies and community groups through listed below. public workshops and seminars, information bulletins and personal contact to identify key • transport is the most important cost and transport issues and concerns. services factor in delivering the land use strategy; These issues and concerns encompass a broad range of matters including the needs and wants • employment is the single most important of individuals, implications for the rest of land use attribute affecting transport; Melbourne, social, environmental, equity and land use concerns, and operational and resource • the creation of jobs within the South considerations of Agencies and other bodies Eastern Growth Area will improve transport responsible for implementation. efficiency and reduce the need for transport to other parts of Melbourne; The major broad issues and concerns are discussed in Section 2.1 to 2.9 below. From • the viability and cost -effectiveness of these issues and concerns were identified the transport services is heavily dependent on the Strategic Objectives for the development of a location, timing and density of land use Transport Strategy for the South Eastern development; Growth Area. These Objectives are stated in Section 2.10 of this report. • act.tVltJes should be clustered at both neighbourhood and regional levels to 2.1 Development Form enhance accessibility, particularly by public transport; Transport services provide the means by which people move between activities. If trip lengths • an attractive transport system can improve are short and traffic volumes are high, both the image of an area, encourage orderly road and public transport systems are cheaper residential development and create to construct and their operation is more employment opportunities. effective and efficient. The major determinants of trip length and traffic volume are the land 2.2 Access and Amenity use parameters of residential density, activity clustering and the relative locations of The purpose of a transport system is to provide residences and activities. a variety of services and facilities which give people access to a wide range of activities and The activity of greatest impact is employment, opportunities. and the location of jobs relative to home is of

Page 4 A measure of the effectiveness of the transport • there are north-south travel demands on the system is the time taken to travel from one road and public transport system as well as place to another. Another measure is the east-west demands; number of places served. By combining these two measures, and expressing them as the • adequate access to a wide range of number of opportunities available within a given community facilities and services should be time, measures known as accessibility have been provided; derived. This can be applied to all, or selected, activities. • there is a need to provide for social and recreational linkages northerly to the Of particular importance is accessibility to jobs. Belgrave/Lilydale area and southerly to the In comparing one transport system to another, Western Port region; we can measure the number of jobs (or other activities) that can be reached within a given • the transport system should provide for travel time. people with disabilities, including wheel chair accessibility in the street, to buildings, and As indicated in Section 2.1 - Development Form for public and private transport; - it was noted that operation of the transport system was more efficient with higher residential • there is a need to provide special transport densities close to activities, particularly jobs. systems for people with special transport These same conditions are also those which needs, such as taxi vouchers and maxi taxis. provide the best accessibility. It therefore follows that the greater the number of local 2.3 Public Transport employment opportunities, the better will be accessibility. Good public transport service is an integral component of any major land use development. Not all South Eastern Growth Area residents To improve people's access to employment, will fmd local employment or local activities to retailing and community facilities, development satisfy their needs. As a result, transport needs to be encouraged in areas with high connections should be sought and developed to accessibility to railway lines and other public reach external opportunities in the shortest time transport routes. There is also a need to ensure possible. that public transport facilities and services are in place when required in areas of new In considering the importance of accessibility, a development. related issue is the impact of traffic on the amenity of residential areas. In order to Public transport is of particular importance achieve a satisfactory level for both accessibility during peak periods. Increased patronage has and amenity, an integrated design approach is the potential to reduce car travel and commuter required. One example of this is the provision parking problems, improve freight movements, of adequate bypass routes to discourage through provide a safer mode of transport and be less freight traffic in residential areas. damaging to the environment.

Some of the main issues and concerns include: To be attractive, the public transport system must address the mobility needs of all members • both public and private transport systems of the community with efficient services and should be in place at an early stage of co-ordinated timetables. development to encourage desired access patterns and modes of transport; In recognising the important role of public transport, the following issues and concerns • improved transport links to employment were identified: opportunities within the corridor, inner suburbs, CAD and south-eastern suburbs are • upgrading of the heavy rail system would needed; play an important part in meeting the transport needs in the South Eastern Growth Area;

Page 5 • a road hierarchy needs to be developed so • modal interchanges and co-ordinated that short and medium term works can be services are important to attract patronage; carried out within the framework of a long • adequate car parking is required at railway term strategy for management of the road stations and modal interchanges; system;

• the use of smaller buses and demand • "no access" arterial roads should be responsive public transport has the provided in residential areas to avoid potential for serving local trips; problems along collector roads with abutting residential development; • bus services need to be in place at an early stage to encourage a public transport based • there is a need to reserve land now for road travel routine; purposes;

• community transport services need to be • adequate routes bypassing the major developed in consultation with the local residential areas need to Pe provided for communities; and through traffic, particularly freight.

• public transport routes to employment and 2.5 Pedestrians and Bicyclists other activities and opportunities are important. In planning a transport infrastructure, the needs of pedestrians and bicyclists must be considered. 2.4 The Road System Walking is the most fundamental mode of Changes in land use result in changes in travel transport - everyone is a pedestrian at some patterns and demandc;. The road system, and in time. Of particular importance is the provision particular the arterial road network, can of public transport facilities within walking influence decisions concerning the location of distance of residential areas. Attractive areas major land use developments by providing good also encourage more walking trips to accessibility to a variety of activities and neighbourhood activities and facilities, whilst opportunities. The road system should also walking paths should provide connectivity to service employment areas and freight movement both active and passive open space and corridors, concentrate through traffic recreation areas. (particularly trucks) on the major arterial road network in order to improve the amenity of Bicycles also play an important transport role, residential areas, and facilitate the efficient particularly for older children and adults without movement of buses. driving licences. In addition, the bicycle is a popular discretionary choice for many others, However, it is not only the changing travel particularly for local and recreation trips. There patterns associated with changed land uses that is a need therefore, to provide safe bicycle need to be provided for. Existing demands also parking facilities, particularly at public transport require servicing, with a major concern being nodes and public areas such as shopping the ever increasing levels of traffic congestion centres, libraries, community services and particularly to the west of the growth area. recreational facilities. Safe, continuous routes are also required. In addition to the existing road conditions, a number of issues relating to the future road The main issues and concerns identified include: system for the South Eastern Growth Area include: • development of safe, pleasant and functional walk and cycle paths to connect • the importance of east-west road access to neighbourhood centres, schools, activity employment opportunities and areas such as centres, community facilities and social and Clayton, Braeside, Moorabbin etc; recreational opportunities;

Page 6 • development of the road system should • the build up of air pollution from motor facilitate the movement of bicycles; vehicles in low lying areas;

• provision of separate bicycle paths are • any new or upgrading of the road network be required, where possible, for increased undertaken with sensitivity to protect the safety; and areas flora and fauna values;

• continuity of bicycle networks. 2.7 Metropolitan Area Access

2.6 The Environment Access between the South Eastern Growth Area and the remainder of the metropolitan area was The landscape and cultural heritage of the seen as a major issue in ensuring the successful South Eastern Growth Area must be considered development of the "corridor". when planning for new development. Areas of open space and characteristics of the rural Major road improvements on routes to the west environment should be retained in any urban and north-west of the growth area are critical to development. The question of how to its orderly development. The provision for these harmoniously develop a series of physical forms movements will increase accessibility to major related to the Growth Area without destroying employment opportunities and cater for social its character applies equally to land use design and recreational linkages to the and transport planning. Major roads in BelgravejLilydale area. Accessibility to the particular can be developed as. boulevards and south and the Western Port region is also of parkways in harmony with the environment. The importance. opportunity should also be taken to use transportation reservations as buffer zones to In addition to road access, attractive public conservation areas. transport services also have the potential to play an important role in providing access to the Transport planning can incorporate remainder of the metropolitan area. environmental management measures to minimise any abutting environmental impact in The main issues and concerns that have been the provision of a transport infrastructure. highlighted include:

Environmental issues and concerns, which relate • the need for improved transport access to the to natural and heritage features of the area, north of Berwick, particularly for the motor include: vehicle;

• the need to take into account the flora, • the need for improved transport access to the fauna, landscape, and heritage attributes of west and the north west, where major the Growth Area in designing and locating sources of employment opportunities are transport facilities; located;

• the use of transport reservations as buffer • the importance of the Princes Freeway, zones to conservation areas within the including the timing of its development, was Growth Area; highlighted; and

• major roads should be developed in harmony • development of recreational links to the with the physical and environmental south and to some extent to the north (as characteristics of the area; well as for some employment) were considered important. • road reservations should be of sufficient width to cater for landscaping and noise attenuation measures;

Page 7 2.8 Funding Major land use development proposals must also be assessed in the context (If the transport The major cost component in sel'VlClDg strategy to ensure that the transport system can development in the South Eastern Growth Area adequately service them. is the transport infrastructure. Funding, therefore, is the key to development if the In summary, the main issues include: expected "corridor" growth rates are to be achieved. • the need for a co-ordinated approach to land use and transport planning and development; Funding issues can be described as follows: • the need to monitor and review the • municipalities consider that funding for transport strategy to respond to future transport infrastructure, both within the changes in land uses and transport "corridor" and for 'regional links, should not demands; be at the expense of existing programs; • the possible roles of development authorities, • priorities in Government agency funding is local government and the community in required to ensure adequate funding for the managing development in the growth area. provision of transport infrastructure and services (to suit stage development); 2.10' Strategic Objectives .• opportunities for private sector funding· contributions towards the provision of The development and implementation of the transport infrastructure requires South Eastern Growth Area Transport Strategy investigation; involves consideration of a variety of issues and concerns as discussed previously. • the staging of land and transport development requires co-ordination to suit Seven Strategic Objectives have been identified funding constraints. from these issues and concerns to form the framework for the major action plans.

2.9 Implementation The Strategic Objectives for the South Eastern Growth Area Transport Strategy are: The State Government's Metropolitan Policy provides for the establishment of a Metropolitan 1. Development of a safe, effective and Services Co-ordination System (MSCS) to assist economic transport system that will provide in managing the future development of equitable access to opportunities, services Melbourne. As a result, the overall and facilities for all members of 'the co-ordination of development and service community, at a level of service comparable provision within the South Eastern Growth Area to other developing areas. in the broad context, will be undertaken within the MSCS structure. 2. Development of a transport system that supports and stimulates corridor growth, and There is also a need to consider the ongoing complements Government transport management requirements for the planning and strategies such as MetPlan, METRAS and implementation of transport infrastructure and NATROV. services. It is important that an integrated approach be adopted to enable the 3. Development of public transport to maximise co-ordination of land use and transport planning its use as a socially acceptable travel mode. and development. In addition, there is a continuing need to monitor and review the 4. Development of a road network to effectively transport strategy for the South Eastern Growth and safely provide for a reasonable level of Area in line with changes in land uses and road access. transport demands.

PageS 5. Development of a framework within which the local street network can be safely and efficiently designed.

6. Development of a transport infrastructure that is sensitive to the environment and has a high level of residential amenity.

7. Development of ongoing management procedures for the planning and implementation of transport infrastructure and. services in co-ordination with land Use development.

These seven objectives are consistent with the State Government's transport policy objectives which, amon~t other things, seeks to promote equity in accessibility, encourage a greater share of trips by public transport and moderate the growth in private vehicle travel (particularly for commuting), make efficient use of the existing transport infrastructure, protect social and environmental amenity and facilitate the efficient movement of freight.

Page 9 Total Growth Area popUlation is in the order of 360,000 to 420,000 people.

3.3 Concept 2 - Cellular

Concept 2 (as shown in Appendix 1) presents a CHAPTER 3 cellular pattern of development. Expansion from the existing metropolitan area would be by a LAND USE ALTERNATIVES series of enlarged towns and neighbourhoods centred on existing settlements in the area. Significant growth is proposed in Pakenham.

All new towns or neighbourhoods are separated by non-urban land or major open space.

3.1 Development of Land Use This concept provides for an additional population Alternatives of between 290,000 and 300,000 people.

As a first step towards a structure plan for the As for Concept 1, this is in addition to the South Eastern Growth Area the former existing population. Total Growth Area population Department of Planning and Urban Growth is in the order of 400,000 to 410,000 people. prepared four possible development concepts along the "corridor", based on its constraints and advantages. These concepts then acted as a basis 3.4 Concept 3 - New Settlement for extensive public discussion prior to the preparation of a fmal structure plan. Concept 3 (as shown in Appendix 1) unlike Concepts 1 and 2, uses only part of the Growth In the Growth Area, the population is expected to Area, with a substantially new self-contained city rise to 270,000 by the year 2003, representing a centred on Garfield and extending to Tynong in three fold increase in the present population. At the west, Bunyip to the east, Cannibal Hill to the current development rates it is estimated that north and Lone Pine Road to the south. there is enough appropriately zoned land to cater for this level of growth for the next eight (8) to A large area of low density living is provided to ten (10) years. The current planning exercise is to the north of this city, and east and west of propose development within the Growth Area to Cannibal Hill. accommodate additional populations of between 250,000 and 350,000 people by the year 2010 and Growth of the existing metropolitan .area is beyond. limited to Cardinia Creek and the Beaconsfield area, with limited expansion southerly from 3.2 Concept 1 - Linear Berwick and Beaconsfield and easterly from' Cranboume. Concept 1 (as shown in Appendix 1) presents a linear pattern of growth. Except for those areas This concept provides for an additional popUlation that are environmentally sensitive, growth expands of between 280,000 and 340,000 people, with the from the existing metropolitan area following the new city accommodating between 100,000 and Princes Highway and the Gippsland Railway 125,000 people. through Berwick to Bunyip in the east, and the South Gippsland Highway through Hampton Park As for Concept 1, this is in addition to the to Cranboume in the south. existing population. Total Growth area popUlation is in the order of 390,000 to 4S0,OOO people. This concept provides for an additional population of between 250,000 and 310,000 people.

This population increase is in addition to the existing growth area population of 110,000 people.

Page 10 3.5 Concept 4 • Containment

Concept 4 (as shown in Appendix 1) allows .. expansion of the existing metropolitan area to reach only as far as Pakenham, with new limited development in areas east of Cranbourne, and at Beaconsfield, Officer, and Narre Warren. Significant growth is proposed at Pakenham.

This concept presents a containment pattern of growth with major new development limited to the western portion of the Growth Area.

This concept provides for an additional population of between 290,000 and 320,000 people.

As for Concept 1, this is in addition to the existing population. Total Growth Area population is in the order of 400,000 to 430,000 people.

Table 3.1 summarises the implications for some of the more important transport related elements for each concept.

3.6 Transport and Land Use Development

The viability and cost effectiveness of transport services is heavily dependent on the location, timing and density of land use development. Transport is also the most important cost and services factor in delivering the land use strategy, whilst employment is the single most important land use attribute affecting transport.

Following development of the various land use options, it was then necessary to evaluate the transport implications of each option with respect to:

• public transport requirements; • road network requirements; • overall operational feasibility.

The evaluation of the transport implications of the various land use options is discussed in more detail in Chapter 5 of this report.

Page 11 ~ hi ....;...

B...EMENT (X)NCEPT 1 ~ (X)NCEPT 2 (X)NCEPT 3 CONCEPT 4 a 6,933,000 SOUTH EASTERN IMPACTS 9,115,000 8,843,000 6,623,000 ~ Trip Km of travel Trip KIn 0' travel .:! Trip KIn o' travet Trip Km 0' travel g, t;' EC ONOMIC IFINANC IAl a. IMPACTS W 0) f'ubDo Transport SM 167 -Infrastructure SM 172 SM201 SM240 -Operating SM 26 pa SM 27pa SM 26pa SM 30pa SM 22pa SM 23 po j .. Revenue· SM 31 po SM 19 po 65'1(, ..... Cost Recovery 85'1(, 119'1(, 63'1(, (; .. eClst per Lot S 1735/lot S 1552/l01 S 1879/lo1 S 2368/lo1

(D)_ds SM 2036 -Infrastructure SM 2230 SM2J90 1M 2000 1617 lane km .. Maintenance 1557 lane km 1933 lane km 1530 lane km S 21150) lot .. Cost per lot S 21128/lol S 22346/l01 119741/lol

"tI OPERATIONAl. PERfORMANCE " RaD Incruud rab capactty and Improved travel Increased raD capachy and Improved lIam Increased fal capactty requtred to provide Focus on exlstlnQ rat Uno wCI res,"" In the ~ times nteded due to focus on existing feD times needed thr~ tuD length of a 'asl and renable seroAce to Pak U\e new need for Increased capacity to Pallenham. Ilnk throughout tuIJ length a. couldor. ~ corridor. Restrlctedrancatchment through senlement to the. metropoL'tan area, Maxtmlsea catchment opportunftles along open space areas. Lowest cost per 10L espectally the CBO: High cost recovery due rail Une. 'ncludes electrification of the to Pakenham to Wallagul raU patronage. Clanbourne faU line. "Bus Not conducive to the development of Hot conductve for strong bus routes. Good Internal bus access to ·seMc:es and _rtunrty strong bua routes. Routes woutd generaD), Containment has lhe 'or more Routes would traverse op.en space, facWtles essential to the new 5enlement densely poplAated areas to sul! bus tend to dupUCBle. and compete with the duplicate and compete wtth the raU Une. long 'eeder bus routes to raU stations and operallons, although lengthy bus routes to rail Une. 8U5 routes to Unk homes and Bus routes to link homes In ea-:h cell wllh major acUvlly centres created the raU system and activity cenlles are actMty centres. raliacUvtt)' centres. created. ,~ • Road ~ Travel demand focused on the Prtnces Travel demand focused on the Prtnces MaJor anemallve access routes to the Contalnment reduces the length the Highway. Atten\lltlve east-west access 0' HIghway. especlalty east 0' Nal Nat Ooon. west requtred, IncIudInQ • bypass the road network requited. AlternaUve ea$t­ routes required. including development 0' 0' where individual ceUs are linked 10 new settlement Latrobe Valley traMc. west and north-south routes to the the proposed Prince. Freeway. Upgrading 'or HIghway ani),. Ahernatlve eas"wes. Unks Good road netWOlk required 'or bus metropOlitan area are Important A good at north south foutes ts also required. required west of Pakenham (Includes operatlons to raD stations. Hew routes to road netWOtk Is needed bus operation. least trip kilometres a. ttavel. 'ot proposed Prlnc.s Fwy). Upgrading 0' the north of the settlement requUed. Low trip kUomeUes of travel. north-south routes also required.

EMPLOYMENT Corridor employment Is malnfy based Corrtcfor employment tocusedon lndustl1al Employment 'ocused or""'" main actM\y Continued urban development places around Actlvtty Centres and Oandenong. and commerctal areas to the ¥rest of, and centre/laU station In the new settlement malOl population close to externat lob External employment mainly In OekJelgn­ tncludlng Pakenham. To the east. lesser Good access to local )aba, plus Ilnks 10 opporlunilies In Oailleigh-F,snkston­ Frankston-Oandenong triangle and cenusl Jobs at actlYlly centres. External Jobs 85 In the east (eg Latrobe VaUey). local )cbs ohy, Oandenong area and the CBO. Shone, Ulp Concept 1. Considerable trip kBometres of essential to minimise travel to the west lengths to externaJ Jobs. travel to external Jobs. Employment west 01 Pakenham similar to Concepts 1 and 2.

~~, ~ hi w ;....

ACTMTY CENTRES The maJor ActM1)" Centr" at Fountain Focus on maJor centres In the western Focus on maJor Clarftetd town centre. but Focus on Fountain Bate/Narre Watren 85 Oate/Narre Warren with a raU ,tatlon part 0' tho couldOf. Hierarchy 0' mlnor requires reliance on hierarchy of other a maJor regional centre. plus a hle,archy of . modal Interchanoe. LON) tllps from the centles auppOnlng other township ceOs, ~ centres to the west In the early staoes as 6econda,y and 10caJ centres. As wtth the ci' esstern end 0' the cor,ldor to this maJOf Publlc trsnsport (bus and fall) locus on lacUllIes are developed. Good bus eccess othe, concepts. good pubUc transport c centre. To the eas.. a hierarchy 01 township cells. to Ihe new town centre. Unks are needed to centres. Including g, aecondaryand local cenUes. C'anbourne to other major centres.

EtMRONIAENTAl. IMPACTS Potenttat Impact at road network on Unear The ceUutar concept recoonlsea open Generates most trip kilometres of travel. Contalnment ,esufls In 6hofter car trips open space Ilnks along the waterways, apace and conservation needs. Road wUh reslAtant Greenhouse-aft quality and Improved pubOc transport patronage which are also of conservation and nelWOfks tor bus Ilnk$ between ceUs Impacts. Potential Impact of road network and accesslbOlty. This mlNmlses alt a,chaeologlcul value. Impacts on open space and stream servtno the new senlement on tlot'8/launa. poUutJon and noise eJlPOsure. Reduced protection areas. InCfeased air pottutlon areas to the north and tlood 81e&s to the 'oad network needs easl ot Pakenham and noise exposure due to high ttlp south. minimises open space Impacts. kUometres of Iravel.

Reduced accesslbUhy ancIlncreased travel COMMUt.ITY/SOCIAI.. Umhed aoelal end relaD servtces. and Jobs Good Internal eccess to II wide range of Contatnment produces shorter t,lps and costs to major se,\ltces and 'acWUes at woutd focus on the township centre of Jobs. services and faCUlties ere Imponant less total lIBvel. with closer acceu 10 Harre Warren/Fountaln Gate Dlstr1ct each ceO. People lorced to travel to other in the new senlement. Local employment eJCIerntll employment. II has bener access Centre for residents at the eastern end 0' cenlres lor mOle malOf servtces. resulting Is e6sentlal due 10 high trayel costs. to a wider fange at services and tacOllles the conldor. Good access to lower order In high travel costs. feeder bus network to reU stallon Is due to u transpon focus on centres. actMty centres and services from aleas Important. ~ alound townshfp!>.

~ METROPOlITAN/ w REGIONAL IMPACTS • No 01 ell1.lI18IlIIps • Av Trip len~lh 208.081 259.018 240.362 215.342 26.6 Km 30.1 Km 31.4 Km 28.2 KIn

Focus on .",.11olI ran link 10 caD r.sults'" .Need rab capachy Improvements west of External pubOc. transport access from the Concentration of populatJon places added need .or capacity Improvements west 0' 08OOeoooo· UPoradlng at east-west and new centre achteved via the eaJsUng raD press... e on the capacity at the ,oad and Dandenong. Attelna1lve east-west and north-south roed routes to caler tOl travel netwOl'k.. Transport Unks required to major ,all systems. C,anbourne raU electrlftcaUon nonh·south road routes needed. plus demand 10 Job locaUons In the Oaklelgh­ towns to the east. Extra capachy on the leads to benet public transport access. Implementation 01 the HaOam aectlon 0' Dandenono-Ffankaton area. Princes HlQhway required. plus new major Alternallve east-west and north-south,oad the Princes Freeway. Implementation of the Hanam section of anelnaltve east-west route for through routes a,e needed 10 leUeve the Princes the Princes Freews)l requlu:d. tlattlc. Highway.

Conunun, 01 public Iransport demand I. ContlnuUy of 8us services to raU network STAGING :JF Succes6fiA development ot the new Contlnuhy 0' bus se,vlces to the raU possible by orderly land release extending Is possible by ordelly release of &and_ This selllernent depends on eatty p'ovlsloo ot nelW01k Is possible by OIde,l,. land release IMPlEMEUTATION trom ekl511ng areas, ahhough the Uneat Islmportantln smaner town ceDs. a~ I~ the e good internat bus network. plus a '8st eJCIendlnghom exJ,llngaress. Suits stelged concept 15 not weD 6uhed to sUong bus development 01 the road network to sutt and reliable ser\ltce to the west. OJderty davelopment ot ,oad Infrastructure. but rOU1es. Also suits pfo'v'lslon 01 load bus operations. &and lelease Is needed. to WI l.Ius places pressure on e"lemw ,oad DIlks. lnfl8structure. operations. Thele will be Initial Ea,ly raO upg'8Cl1ng 15 lequfred. dependence on nearby towns.

i? TABLE 4.1 Employment Origin and Destination

HOME

BERWICK CRANBOURNE PAKENHAM % % % CHAPTER 4 Berwick 18.1 3.6 15.4 Cranbourne 3.7 27.7 3.9 Oandenong 18.8 13.1 9.0 Knox 2.1 1.3 3.0 TRAVEL ESTIMATES Melbourne 6.9 4.6 4.4 Moorabbln 4.1 4.7 1.6 Oaklelgh 7.9 5.0 3.5 Pakenham 0.6 0.2 16.8 Springvale 6.1 4.5 2.3 Waverley 5.9 3.5 3.4

4.1 Existing Cond~tions Existing Travel The South Eastern Growth Area covers part of the municipalities of Berwick, Cranbourne and People travel for different reasons. Travel to and Pakenham. It consists of two land corridors, one from work amounts to 30% of all trips from Dandenong to Cranbourne and the other (metropolitan average). Education is also a from Dandenong to Bunyip. . significant trip generator, representing 18% of all trips, 25% of which is by car and 40% by public The Cranbourne portion extends from Hampton transport. In the South Eastern Growth Area Park to the Cranbourne township, generally however, the existing transport system encourages following the South Gippsland Highway. a very high use of private motor vehicles. Refer to Figure 4.1 below. The Bunyip portion covers a strip of about 44 kilometres long, beginning at the established areas A picture of existing journey to work travel of Endeavour Hills, Doveton and Hallam, patterns in the South Eastern Growth Area, following the route of the Princes Highway. At obtained from the 1986 Australian Bureau of Narre Warren the corridor is about 16 kilometres Statistics Census data, is summarised as follows: wide, narrowing to about 6 kilometres at Berwick and only about 3 kilometres at Bunyip. • Figure 4.1 provides details of the transport mode used by people to travel to The a"rowth Area presently supports a population work,including the percentage changes in J of approximately 110,000 people. mode between 1981 and 1986. AGURE 4.1 Mode of Transport • Table 4.1 and Figure SOUTH EASTERN - 1986 JOURNEY TO WORK 4.2 indicates the major % change 1981 t. 1986 shown ab ... bars destinations of work trips to Ili5 t.4ale 90 and from the growth area. w ------~ rem ale 0 80 0 ------~ 70 It can be seen from this >- CD 60 table that a considerable W number of work trips are <:) 50 ~ generated to areas outside I- 40 Z W JO the Growth Area. (J IX w 20 A- Of the employment 10 opportunities within the 0 growth area, approximately 30% of these jobs are occupied by local residents. TRAIN MODE OF TRANSPORT

Page 14 :!I c:0 6l ...~ ...~ c:0 ~ ~ ~ 0 ~ ~ Port Port "0en

"tI Phillip Phillip II> (JQ 0 Bay ~ Bay

1986 1986 Journey to Work Journey to Work O.,.IInllion : Origin I Plklnhlm, Crlnbourne, Berwick Plkenhlm, Cranbourne, Berwick

--250 JourneYI to work --250 JourneYI to work South Eastern Growth Area o , :z 3"4 51.. Scale r--w L;;;;;;;;J-ot 1986/87 24 hour volumes AGURE45EOsnNGBUSRO~

3 4 54- _0 Scale W

Legend -clU,- Bus Routes Destinotions ond appro •. weekday frequencies Shown betow

791 F'ronlcston-Crontlourne 'lio Lan9warrin (~O mi'l.) 792 Cronbourno-Oandenono (30 min.) South Eastern (792) 792 ... Homp' .... Porte ( •••kend.) 193 Hompton Pork-Oond.nan9 vio Hall em Rwy.Sln. (30 min.) 794 Cronboumo-Hallom R_y,Stn• ..to Hampton Poril (mom...... 4O-»nin.) Growth Area (794) Ctanboume-F'ountoin Cat. ,,",0 Hampton Pan (du,,,O doy 1-2 hourly) 795 Worneet-Crcnbourne wio ToorOCSin (itrequJar) 796 Cronboume-Oyde '

Page 17 spines and a network of bus routes. The Berwick­ Road System Pakenham rail line in general undergoes an incremental change in· the level of service at The existing road network and estimated 1988 Pakenham. To the west of Pakenham there are daily traffic volumes on roads within, and abutting 20-40 minute services linking with the suburban the growth area are shown in Figure 4.3. network, whilst to the east, there are eight (8) trains per day each way servicing Warragul. An example of the distribution of traffic on the . road system throughout the day is represented Patronage on the Berwick-Pakenham line is graphically in Figure 4.4. This distribution, which currently experiencing an annual growth rate of is typical of the major arterial roads within the approximately 1.8%. corridor, represents data obtained at Princes Highway East (west of Richardson Street, Narre Operational difficulties are currently being Warren). It can be clearly seen that peak period experienced on the Pakenham and. Frankston traffic flows are spread over several hours, with lines, as a result of capacity/signalling constraints. some roads flowing at capacity for nearly two hours. The Leongatha line currently provides Cranbourne with a country passenger service of four (4) trips per day (2 each way), but the main . HGURE 4.4 Hourly Volume Distribution public transport service is provided by buses.

Hourly Traffic VoilITI8 Distribution Existing bus routes are shown in Figure 45, .. P_ HWI.y EMt 1_ 01 _,_111) together with the frequency of service. ~r------~+-----~--+D~ Generally Cranbourne is well served by cross J=t-----t; town bus links connecting to Frankston (route 791), Dandenong (route 792), and Berwick (route 11,5CX)+-__, 840), plus a network of internal services. Berwick j 1~·+---­ and Pakenham are mainly serviced by route 826, ll.(XX)t--~ generally along the Princes Highway, to j Southland, via Dandenong. Frequencies vary between 30-60 minutes during weekdays.

Information on public transport travel tinie plots to central Melbourne are shown in Appendix 2.

Information on car travel time plots to central 4.2 Population and Employment Melbourne are shown in Appendix 2 . Projections

The Growth Area is currently served by the major Population estimates for development in the highway routes of the Princes Highway and the South Eastern Growth Area were taken from the South Gippsland Highway and a supporting former Department of Planning and Urban network of rural type roads. However, as the Growth forecasts, projecting an increase of an growth area continues to expand the highway additional population of between 250,000 and routes which perform a mixed function in catering 3SO,OOO people by the year 2010 and beyond for for both local traffic and intra state transport~ will the four various concepts (refer to Chapter 3). be placed under considerable pressure, requiring major upgrading of the road network, particularly Of these 250,000 to 3SO,OOO extra people, to the west. approximately SO,OOO were expected to be located in the Pakenham / Beaconsfield region, with the Public Transport remainder to be accommodated in the Berwick / Cranbourne area. The new settlement concept The South Eastern Growth Area is served by two was planned to accommodate approximately rail lines along the Pakenham and Cranbourne 100,000 to 125,000 people

Page 18 Employment is a crucial factor in new residential fully developed for thirty years or more so travel development. In each of the three municipalities behaviour in the area will be radically different in the South Eastern Growth Area, a significant from today. proportion of the workforce have jobs in their own municipality. This provides a valuable base The residents of Melbourne have exhibited a on which to increase the level of employment in tendency over the years to increasing travel the area as the availability of a source of labour propensity. That is to say they tend to travel increases, thus encouraging economic growth. further. If this tendency is projected thirty years then the people in Pakenham could be expected The employment estimates were determined by to take up jobs in areas to the west of the city. projecting the former Department of Planning Urban form and travel conditions are expected to and Urban Growth's 2001 job estimates to the alter this tendency, with people more than likely year 2021, to match the corridor population taking up local opportunities instead. Travel estimates for a similar period. These employment estimates are based on the travel propensity estimates were adjusted to reflect developing prevailing in 1976. trends ' such as a' decreasing workforce participation rate ( due to the aging of the The amount of road capacity is also restraining population) and the changing of ratios of jobs per peak hour travel and consequently travel workers in local government areas ( reflecting the behaviour. The peak period is currently spreading advantages of some areas with respect to greater to more than one and a half hours in both the job opportunities). morning and evening peak periods. For example, Plenty Valley residents have re-organised their To this end, two patterns of employment travel around the limited road capacity and have opportunity were used for the travel demand spread their activity times more than elsewhere in estimation. These were a ·Centralised Job Melbourne. Time of day travel choices seem to Opportunity" and a ·Suburbanised Job rank more with traditional approaches, namely Opportunity", the latter scenario being to quantify more public transport travel, shorter trips and the impacts of encouraging more local jobs in the travel suppression. The travel estimates for the region. South Eastern Growth Area are based on a four hour peak period by 2021 (this also applies to the These travel estimates were calculated to assess other growth areas). the transport implications of each land use concept and guide the selection of the concept to Restrictions on travel can change the nature of be developed for further investigation. the city. The distribution of jobs may move away from the central' concentration to suburban These travel estimates are or a strategic nature locations. Whilst this allows for shorter local trips, only, and are not intended ror detailed design the ability to make longer trips by public transport purposes. is reduced and the cross-town trips are significantly longer (hence the two sets of job 4.3 Future Travel Patterns distribution evaluations).

The estimation of future travel demand and In terms of travel by public transport, there are patterns were based on journey to work trips many reasons why people can be expected to use associated with the generation of these trips for it more in the future, and about as many as to the different land use concepts and transport why they will use it less. The spread of the city, 'infrastructure. Journey to work trips represent the both in residential terms and in terms of jobs, primary trip purpose during the morning peak means that the strong radial travel market for the period. rail system is being eroded. The ability of bus services to cope with a multitude of origins and Transport is generally considered to be a derived destinations is restricted. On the other hand demand, it arises from the need to change from however the economic and social costs of car one activity location to another. It has little travel can be expected to restrict car use. On intrinsic merit in itself. Transport influences balance the basic future share of travel modes is peoples' travel behaviour and shapes the urban assumed to be the same as now. form. The South Eastern Growth Area will not be

Page 19 As travel estimates have been of a strategic • a 1986 situation as a check on the nature only there still continues to be a need to reasonableness of the estimates and as a base improve on these travel estimates, especially to for assessment; allow for the interactions between the various Growth AreaS themselves. • a base case which represents the future situation (committed urban zoned land) without the growth area development; 4.4 Networks for Consideration • the preferred land use distribution. Separate road and public transport networks were developed for each of the four land use concepts As noted previously, these estimates were investigated. I prepared for both the centralised and suburbanised job distnoution scenarios. These networks are shown in Appendix 1. Appendix 3 shows the travel estimate plots for the 4.5 Travel Demand Estimates following:

Travel demand was estimated by the "Gravity • 1986 existing situation; Model" technique, using only journey to work • the four growth area land use concepts; travel for the year 2021 (a thirty (30) year • 2021 Base Case planning horizon) • the preferred land use option

Estimating future conditions by its very nature These travel estimate plots represent trips requires assumptions. In general it is assumed originating only from the growth area. that the future will not be dissimilar to the past. A few obvious changes can be tested, such as As travel demand may be modified by higher petrol price and better public transport. encouraging more local jobs and so aIlowing shorter journeys, Appendix 3 shows the 2021 Base Road infrastructure provision is unlikely to be and the Preferred Option for both the Centralised sufficient to maintain todays travel times and and the Suburbanised job scenarios. Estimates of travel behaviour is expected to modify accordingly. travel for a greater degree of suburban jobs indicate a reduction in growth area work trips by Allowance has been made in the travel estimates only an average of about one and a half (1.5) for progressive congestion (road pricing demand kilometres. The reason why the reduction.is not management) that modifies travel behaviour in greater is because, whilst there are shorter local favour of socially acceptable public transport trips journeys, there are' fewer job opportunities and the spreading of the peak period from one . available in the central area which thus requires and a half hours to four hours. This spreading of longer journeys to other scattered suburbs. the load is presently occurring. The existing transport system for the South Eastern Growth These travel estimates show a concentration of Area can cope with this spatial and temporal travel to the west of Dandenong. Much of this spreading of up to about a population level of travel is expected to be by public transport, 400,000. Further population growth, with however there are limits on the suburban rail increased concentration, is likely to be beyond the system. No substantial road construction is easy behaviour modifications and will most likely envisaged as yet, although road reservations exist curtail growth beyond this level. for both the Scoresby and Dingley Routes.

Seven sets of land use distributions have been The prospect of double-deck passenger trains on used as the basis of travel estimates, these the Pakenham line allows a significant capacity include: improvement for travel in the growth area. The Public Transport Corporation continues' to show • four concepts placed on exhibition by the interest in this proposal and is investigating the former DPUG for public comment and implications and the interaction with other assessment; growth areas.

Page 20 Metropolitan Area Access

Road access to the South Eastern Growth Area is a major issue and needs to be addressed. The -. .'1.'" " existing road pattern to the west can generally be upgraded to provide the necessary road infrastructure. To the north however, there are limited opportunities for major road improvements.

In general, the transport implications of growth area development is tied to the location of jobs for workers, since journey to work represents the largest regular travel demand. As a result, the demand for work trips outside the growth area can be minimised by the location of more jobs within the growth area. This then reduces both the congestion on the road network to the west of the growth area and the need for new or upgraded road links.

Attractive public transport services also have the potential to play an important part in servicing the travel demand, whilst reducing traffic volumes on the road network.

Transport Strategy

Based on the travel demand estimates discussed in this chapter, later sections of this report will detail the development of a transport strategy to support urban growth within the growth area.

Page 21 The evaluation methodology for the South Eastern Growth Area Transport Strategy aims to facilitate decision making to support the two PLANNING & EPA phase planning process of: LIBRARY A. assessing the transport implications of the CHAPTERS various land use development alternatives; and EVALUATION B. developing a multi-modal transport strategy which will support growth area development.

5.2 Evaluation Framework

5.1 Evaluation and Decision Making The evaluation framework for the Transport Strategy represents the interaction between the transport proposals for the various land use Evaluation is the process of identifying, measw'ing concepts, contributitig and affected groups of and especially comparing the effects of alternative players and evaluation criteria. This framework is plans for a project so that a decision can be made set out in Figure 5.1. to determine the 'best' course of action - i.e. the solution that will best fulfu the total needs of the Within this framework, the evaluation factors community it serves - economic, social or represent the various criteria which are used as environmental. the basis for comparing the various land use concepts. These factors include: Evaluation links analysis, planning and design with decision making. Although there is no uniform or • South Eastern impacts standard technique in use for evaluating transport Economic and (mancial considerations strategies for complete urban development • Operational performance corridors, the objectives of accessibility, efficiency, • Environmental impacts effectiveness and equity provide the basis for a • • Community/social considerations strategic framework. • Metropolitan and Regional impacts • Staging of implementation • Likelihood of implementation

Additional factors TABLE 5.1 Evaluation Parameters taken into account in evaluating and CONCEPT 1 2 3 4 developing a transport strategy included Public Transport accessibility, safety • Infrastructure Costs $167M SI72M S201M S240M and the consequent • Operating Costs S26M pa S27M pa $26M pa $3OMpa impacts on the • Revenue $22Mpa S23M pa $JIM pa S19M pa metropolitan area. Roads • Infrastructure Costs S2036M S2230M S2390M S2000M It should be noted • Maintenance 1617 Ian 1557 Ian 1933 Ian 1530 Ian that this evaluation (lane Ian of road to be maintained) framework can only South Eastern Impacts provide a broad • Total trip kilometres of travel 6,933,000 9,115,000 8,843,000 6,623,000 strategic overview of the various land use Metropolitan/Regional Impacts concepts from a transport perspective. • No of external trips 208,081 259,016 240,362 215,342 • Trip length (Ian) 28.6 30.1 31.4 26.2 The fmal evaluation and selection of a preferred development

Page 22 concept must include other considerations, such pollution and use of resources because of the as economic, employment, environmental and lesser propensity to travel. social and other considerations. ~ ,: This, concept has better acce,ss to a wider 5.3 Evaluation of Land Use Concepts range qf services and facilities due to a transport focus on aC,tiVity centres The four land use concepts evaluated in this chapter, were those exhibited as part of the • This Concept, with its higher population consultation process held during late 1989 as densities, allows the consideration of described in Chapter 3 of this report. electrifying the Cranbourne rail line. This is reflected in higher public transport costs. The evaluation of these four concepts is based on the factors outlined above and the details as The transport system must support the State summarised in Table 5.1. A more detailed Government's Metropolitan Policy and Economic summary on the evaluation factor framework for and Social Justice Strategies. The development of the four options considered can be found in Table an efficient metropolitan transport infrastructure 3.1. is a vital factor in the overall well being of the Victorian and national economies. Having regard to the principles of the evaluation criteria, a land use option along the lines of The evolution of the transport system for each Concept 4 is considered the most appropriate in concept was developed within the framework of terms of trarisport. Land use development along the MetPlan, METRAS!Wd NATROV strategies. these lines would maximise the transport infrastructure within realistic social, environmental The Containment Concept in particular is seen as and fmancial constraints, whilst still recognising supporting these strategies and the Government's the need to maintain existing services. aim for increased economic growth, by facilitating the efficient movement of freight betWeen central In general terms Concept 4 (with possible Melbourne, adjacent industrial areas and variations) is seen as having the following interstate and international export markets. This advantages: is achieved by:

• Higher population densities can be achieved • development of the Princes Freeway by the containment option (Concept 4), which /Highway corridor for La Trobe Valley, gives better scope for developing a good and East Gippsland and interstate travel; efficient bus network. • development of transport links to • The Containment option maxImises industrial centres of Braeside, Clayton etc employment opportunities at both Pakenham and at Officer. • development of transport links to regional areas including Frankston, • The Containment option is well suited to the Westernport,Dandenong and Ringwood. progressive and orderly extension of the road network from the existing residential areas. A key element in the evaluation process relates to the probability of a concept being acceptable in • The Containment option is the cheapest in regard to current Government policy, planning terms of total road costs and cost per lot. provisions and government and private sector funding. • This concept also has the shortest average trip length on the transport network, whilst Whilst the proposed transport infrastructure for generating the second lowest total vehicle the Containment Concept can be seen as kilometres of travel, being only marginally supporting these economic goals, the likelihood of greater than Concept 1, the Linear concept. implementation is heavily dependent upon the availability of funds, in particular the availability • This concept has less environmental impact in of funds through the expansion of private sector terms of air quality, exposure to noise funding opportunities.

Page 23 FIGURE 5.1 Evaluation Framework

III Q) III 0 qfJ c 0 0- South Eastern Impacts Q) -u:l :J 0'1 0 Economic/financial Considerations « > L 1:) Operational Performance ~ ~ c -= >- "0 0 1:) L "0 E.nvlronmentallmpacts E ~ c: C III «) c 0 .&.) Community/Social ConSiderations L. « :l 0 "0 0)0 > ." ..f c:: t> Metropolitan/Regional Impacts 0 a.. ~ :l .&.) ~ .u ~ ~ Staging of Implementation C 0 c :J L ILl 0 0 0 .0 Likelihood of ImplementatIOn L E ~ 0 L c .&.) 1:) L >-. Q) 0 ~ c: t7:valuatlon Factors L... > 0 0 1:) 0 C ~ 0 Q) .oJ 0

5.4 Transport Strategy Development South Eastern Growth Area that has resulted from this consultation process. This preferred The then Department of Planning and Urban urban strategy incorporates the essential elements Growth's public consultation process, that of the Concept 4 plan, both in terms of land use commenced in November 1989, initiated and transport, but also includes some features of investigations into the future development of the the other concepts. South Eastern Growth Area. In conjunction with this consultation process, The remainder of this report is concerned with detailed studies and existing State and local the development, and staging, of a Transport Government policies provided the basis for the Strategy that would be suitable to support urban development of a Growth Area Plan. growth in the corridor.

The four land use options evaluated above were developed by the then Department of Planning and Urban Growth in an attempt to identify and examine some of the possible elements that may be included in the fmal plan. They were important only as ideas to initiate discussion of the issues involved, including the transport implications of development types.

Chapter 6 of this report discusses briefly the preferred land use development strategy for the

Page 24 • journeys to work are kept as short as possible;

• job opportunities in the Frankston and Braeside areas are realised;

CHAPTER 6 • existing roads in and around the Cranbourne area are utilised;

DEVELOPMENT OF THE • excessive use of the South Eastern Arterial is STRATEGY avoided;

the Princes Freeway/Highway corridor ";.. ". ; .....: . ". :". . . • continues to function for the benefit of longer distance .travel (especially commodity-Latrobe 6.1 Preferred Land Use Development Valley, East Gippsland, interstate travel etc) Strategy • roads, including those suitable for bus routes, The preferred land use development strategy for can be developed in the early stages as part of the South Eastern Growth Area, as shown in subdivisions in the area. Figure 6.1, has resulted from detailed investigations of the corridor's constraints and Good access and adequate transport are crucial opportunities, together with an extensive public for future development within the growth area. consultation process. This development form The requirements of transport, and in particular recognises the important role of the South public transport, were important in the acceptance Eastern Growth Area within the future economic, of this preferred land use option. These physical and social structure of metropolitan requirements included the need to: Melbourne. • provide for higher density residential The former Department of Planning and Urban development to be located in close proximity Growth's current rezoning proposals, as to railway stations, bus routes and activity incorporated in the South Eastern Growth Area centres; Plan 1990, provides for a total population of just over 400,000 people in the growth area. • encourage residential zones to extend from existing areas and to be progressively The development of a transport strategy for the developed to facilitate public transport South Eastern Growth Area has been based on loadings throughout a route; this population, which includes the currently zoned residential living areas, catering for • encourage the clustering of activities at both approximately 148,000 people, the existing neighbourhood and regional levels to enhance population of approximately 110,000 and an accessibility, particularly by public transport; additional population of 146,000 people, being part of this rezoning proposal. • encourage maximisation of employment self-containment in the growth area. Planning for the growth area provides for initial residential development in the Cranbourne area, Whilst encouraging higher residential densities followed by an easterly extension from existing near public transport routes, it is also important developed areas in the Berwick area. This will that a diversified dwelling mix is achieved to enable the progressive release of land for better accommodate the changing demographic development to facilitate provision of road and character of our communities. Both higher public transport infrastructure and maximise densities and more diversified residential public transport loadings throughout the growth developments could contribute to the slowing of area. the urban sprawl and associated demands for expensive infrastructure provision. Initial development in the Cranbourne area is preferred in order that:

Page 25 Planning Scheme Amendment Process 6.2 Public Transport

The former Department of Planning and Urban The provision of good public transport services Growth released strategic "Growth Area Plans" within, and to, the South Eastern Growth Area is for the South Eastern and Werribee Growth crucial. Areas on 23 November 1990. The principles in developing the public transport These strategic plans redefme the extent of the component of the Strategy include: urban growth areas by expanding the corridor zonings established 20 years ago. • promoting public transport for work trips to the central area and other major regional To properly outline the preferred concept for employment centres by: these two Growth Areas, the then Minister for Planning and Urban Growth issued "Minister's integrating feeder bus services with heavy Directions" to Planning Authorities under Section rail services 12 of the Planning and Environment Act 1987. providing parking facilities at modal interchanges and other significant pick-Up The Minister's Directions contain the framework points for future growth and criteria to be considered by providing service patterns and planning authorities when preparing amendments frequencies to reflect customer demand to the relevant planning schemes. and consistent with service standards in the metropolitan area. The Directions also include the introduction of a new system of "Local Structure Plans" which must • clustering of employment opportunities close be prepared before or in conjunction with a to readily available public transport. This is planning scheme amendment. particularly the case with the proposed District Centre at Narre Warren/Fountain The "Growth Area Plans" form part of the Gate and the Activity Centres at Berwick, Directions and contain detailed criteria and plans Officer, Pakenham and Cranbourne; addressing matters such as limits to urban development within the growth areas, staging of • staging of urban development to give development, population targets, guidelines for continuity of public transport demand; community planning and the requirements for activity centres, employment areas, transport, • developing a public transport network, t~g environment and open space. into account the proposals included in MetPlan; The Transport Directions, which form part of the overall Minister's Directions, were developed after • meeting Public Transport Corporation (PTC) extensive consultation with the transport agencies, guidelines that 90% of residential lots be local Councils and the former Department of within 400 metres of a bus route, or 1,000 Planning and Urban Growth. metres of a heavy rail station, except in agreed lower density areas. These Directions include prOVISIOn for significantly increased and expanded contributions • developing community transport services to by developers to fund infrastructure and meet community needs. community services, including local and arterial roads, pedestrian and bicycle routes, rail and bus The proposed public transport system for the services and links to the rest of the metropolitan growth area is shown in Figure 6.1. area. MetPlan The Transport Directions, which form part of the overall Minister's Directions, are included in Government announcements on MetPlan, the Appendix 4 of this report. Metropolitan Public Transport Industry Plan, indicate commitments to the enhancement of existing public transport systems. The capacity of

Page 26 ------

Legend ~ ~ New Urban Development ~~~in~~e~ions C')- c:::: Activity Centre Freeway - ~ f"l W• Investig otion Area ---- Primary Arterial Existing Urban Zone Secondary Arter-ial Local Trafflc Routes ?' Zoned for Development @ (Potential Bus Routes) .... Rood Unk Development Requires Investigation

o

..'" ~ w z ;,; E o z .!1 ~ ~ u

l'.. III i South Eastern Growth Area oo o .5 I 1.5 2 2.5 krn Scale !-oW Wa-! Transport Network the Pakenham line is to be increased by signalling operations. A road system, compnslDg both refmements, which will reduce the headway arterial roads and local traffic routes that provides between trains, and the ultimate provision of for both road traffic safety and residential double deck trains. amenity, has been designed to enable the efficient and effective operation of the bus network. The existing service to Cranbourne will be progressively improved, amalgamated by buses in Buses servicing the growth area would supplement the early years, but with a view to eventual the rail and MetLink systems. In general, feeder electrification, provided adequate development bus routes would operate on the arterial road occurs in the catchment. network to collect people from their residential area and link them to major shopping centres and Cross-town public. transport proVISIon is to be then the rail system. Moreover, local bus routes enhanced by a system of MetLink buses. These will travel within the residential areas between the buses will connect between the major Activity neighbourhood centres, school sites and Centres and the heavy rail network. Other bus recreational facilities. routes will be implemented at the time of new urban development so that public transport travel Potential bus routes on a network of Local Traffic habits are encouraged. Routes have been developed as shown in Figure 6.1 for costing purposes. These routes, which Public transport provision is to include the needs were developed for efficient bus operations, have of people with disabilities. Travel needs will be been adopted where possible using the PTC met by extended hours of service in evenings and requirements as contained in the document at weekends. Special arrangements will still be "Guidelines for Accommodating Buses in necessary for special needs such as facilitating Established and Future Urban Areas". provision of community transport. Incorporation of these potential bus routes within Taxi arrangements can supplement regular the Transport Strategy are important in achieving scheduled public transport, such as the an overall bus network that is both direct and Multi-Purpose Taxi Program which provides 50% regular, whilst also ensuring connectivity and fare discounts and special vehicles (or Maxi Taxis) continuity as individual Local Structure Plans are for those with disabilities. prepared as staged urban growth proceeds.

Bicycle access to rail stations is to be encouraged, The general road layout/urban design principles, such as by the provision of secure storage and interactions, have been adopted where arrangements for bicycles. possible and is represented in Figure 6.2. These are further discussed in Section 6.3 of this report. Implementation of the MetPlan System Wide Improvement Initiatives will be included as part of FIGURE 6.2 Potential Bus Routes the development of a public transport system for the growth area. Such initiatives include improved reliability, development of interchanges, passenger information systems, security, cleanliness and bicycle facilities.

Each MetPlan project will be subject to detailed costjbenefit analysis and particular projects would be implemented in order of priority determined by greatest need. Timing of implementation would be geared to cost reduction proposals and availability of funds in particular budget cycles.

Buses

Development of the Transport Strategy to support the South Eastern Growth Area has recognised the importance of designing urban areas for bus

Page 27 As urban development proceeds the existing bus Infrastructure improvements on the Pakenham system would require continual review. A line and the provision of additional infrastructure redesign of the bus system would need to have. on the Cranbourne line could, subject to particular regard to reliability and co-ordination costjbenefit analysis, be implemented as with other services. Reliability is particularly residential development proceeds between important in sparse areas where service Dandenong and Pakenham and also in the frequencies are low and personal safety concerns Cranbourne area. are high. The PTC has indicated that a population The new developing areas take several years to catchment of at least 80,000 people, within 3 develop travel demands sufficient to economically kilometres of ~ rail station, would be required, justify bus services. The developers have an before electrification of the Cranbourne line interest in early provision of public transport would be examined. As part of this investigation services, whilst selling land. Moreover, early the possible future development of a rail station provision of public transport reinforces socially near the Berwick - Cranbourne Road ( between desirable travel habits and reduces the longer Cranbourne and the site of Clyde station) would term need for road expenditure. be included.

Typical cases suggest that six (6) buses are Investigation of future developments between justified eventually to service an area of Dandenong and the Cranbourne area could lead approximately 20,000 people. Each bus costs to other new stations being considered. about S80,OOO per annum to operate and from $140,000 to purchase. Cheaper,smaller,special The current dual electrified track to Warragul purpose buses may be practicable if substantial provides the opportunity to upgrade passenger numbers are involved. Developers therefore may services in the longer term if warranted by be able to provide the operating cost if the development patterns. immediate hurdle of the bus purchase was overcome with special financing for the local As further development occurs, there will be a operator. case for extra public transport services at night and at weekends. Heavy Rail Light Rail Capacity enhancement of the existing heavy rail to the Activity Centres along the Pakenham line is A Light Rail service between Berwick and included as proposed in MetPlan, with additional Cranbourne has been included in the costing services to Cranbourne. analysis. Whilst it is recognised that its feasibility is somewhat doubtful as a stand alone system not An integrated design incorporating the heavy rail, connected to the remainder of the network, it Activity Centre and commuter car park (including could proceed if patronage loadings warranted its bus interchange facilities) has the potential to implementation. The arterial road system capture the public transport advantage of intense proposes generally 40 metre road reservations, activity without being restricted by congested road which can be capable of accommodating such a traffic. facility. Refer to Figure 6.3.

FIGURE 6.3 Typical Road Cross Section with provision for Light Rail

I .t 6.0m r 3. 15m .f-.JQ~"-""-'f-. 3 • l~m_ -t 6.0m .," (ABSOLUTE MIN) MEDIAN

6 LANE DIVIDED WITH liGHT RAil IN CENTRAL MEDIAN §f ~ "" ,QIQ, El fbl;J

Page 28 .. :-....:.-:"::-:...: .. :-.... ".: ...:~ :v'-., .. .,. .•... N ..... • !"'",,,. ", .. \ \\ ,: ',.• ,' .,... :.:- ...::-;." ..; ...... , '. t. , .... , •••••••••• , • .:~ ••• ~ •• I'~I).'.~ • .-.. \':-\:.::>~» .. ):: .. lo!:~:e..... :.~ •• .".••••..•• \ •• '.:... ':':=;:.. : Commuter Car Parking The electrification from Dandenong to Cranbourne was costed on the basis of an To ensure the attractiveness of public transport, eventual population of 80,000 within the rail adequate car parking facilities are required at rail catchment. Various rail developments are possible stations and any other significant pick up points. which would enhance the system progressively.

These requirements are recognised in MetPlan. An upgraded South Eastern main line (Pakenham line) has been included in the costing, together Aside from the general provisions, major with a share of system works required to commuter parking facilities are proposed at overcome various bottle-necks. The line is well Hallam and at Pakenham. placed with respect to potential urban areas. The costing distinguishes between Dandenong to Pakenharil and Pakenham to Warragul, since most Public Transport Costs new development is planned to the west of Pakenham. Preliminary cost estimates (1990 costs) have been prepared for the public transport proposals aDd A stand alone Light Rail system has been are shown in Table 6.1. These proposals have included in the costing between the Narre been analysed on a similar basis to the MetPlan Warren/Fountain Gate District Centre and projects. The expected cost recovery percentage Cranbourne on the basis that the sub-regions have was estimated for each proposal from the significant centres with overlapping catchments. In operating costs and revenue estimates. The the short term it could be an inter-sub-regional Public Transport Corporation aims towards a bus route. Such a facility would help tie dispersed 50% cost recovery. activity together and give a structure to development. The analysis of the proposals was undertaken for total growth area development, and does not Bus routes were estimated on an essentially local reflect any future changes in modal split. The feeder to rail basis with a role in local circulation. costing undertaken is as per MetPlan, a simplified Some explicit routes were considered ie. Carrum, version of the Met Costing Model, updated to Fern Tree Gully, on the basis of commuting current costs. patterns.

Additional patronage attracted from the congestion of the road system has not been 6.3 Road System included, nor have the effects of service level improvements been assessed. The road system, and in particular the arterial road network, can influence decisions concerning

TABLE 6.1 Public Transport C.nsts

COSTS $M REVENUE OPERATING %COSTS Fixed Vehicle $M COSTS $M RECOVERY

RAIL Dandenong to Cranbourne Ele.ctrlflcatlon 26 46 5.44 4.01 136 Dandenong to Pakenham 13 46 12.47 5.64 221 Pakenham to Warragul 3 26 2.84 5.81 50

UGHTRAIL Berwick to Cranbourne 16 12 0.47 0.93 50

BUS Internal Bus 12 10 4.71 9.4 50 Berwick to Fern Tree Gully 1 0.8 0.54 1.09 50 Berwick to Carrum 1 1 0.70 1.24 56

TOTAL 72 142 27 28 97

Page 29 the location of major land use developments by The resultant road system has been developed to providing good accessibility to a variety of manage traffic demand to the west and north of opportunities and activities. the growth area, in particular towards the Clayton, Braeside and Moorabbin areas and to The road system should also service employment the central areas of Melbourne, as well as areas and freight movement corridors, concentrate providing good internal linkages and suitable through traffic (particularly trucks) on the connectivity to the east and south. arterial road network in order to improve the amenity of residential areas, and facilitate the The proposed development of the major road efficient movement of buses. network within the growth area has generally followed and· expanded on the existing road The principles in developing the road system pattern. In most cases the upgrading of the road component of the Transport Strategy included the network can be accommodated within existing need to: road reservations. Along some routes, respective Councils are gradually implementing reservation • establish a functional road classification plan widenings or imposing building setbacks as for the growth area to effectively manage the development proposals are being prepared. road network; External road linkages to the growth area also • develop an arterial road network located and require development in order to maximise the spaced at typically not more than 1.6 total transport infrastructure within the corridor. kilometres apart, at an early stage to provide an adequate level of service for local and Of particular importance, is the need to provide regionally generated traffic; for the development of high standard access roads to the west and to the north as traffic demand • manage access to and circulation within the warrants including the development of the growth area to: Scoresby and Dingley routes. - minimise high vehicle speeds and through traffic in residential areas The Transport Strategy also designates an - promote efficient movement of buses "investigation area" to the north of Narre Warren. - reduce the impact of heavy vehicles in This designation particularly provides for the residential areas investigation of road network development to the - facilitate bicy~le movements; north ofthe growth area to assist in catering for future increased north-south traffic movements • develop and locate the arterial road network between Berwick and the Croydon/Lilydale areas having regard to environmental impacts; and beyond. A future road link connecting the proposed Berwick North-South Bypass to • stage urban development to extend from Lysterfield Road is considered to have merit. existing areas, to give continuity to the development of the arterial road network; Westerly links external to the growth area that are' proposed as part of the transport strategy • match into the existing and planned arterial comprise Thompson Road, Ballarto Road, road network as much as possible. Abbotts Road Deviation, Greens Road and the Dingley Route. Development and timing of these routes will be dependant on the rate of urban Arterial Road Network growth and the availability of funds.

The future travel demand estimates provide a The transport strategy also considers a possible strategic overview of the major directions of travel southerly realignment of the Princes Freeway, generated from within the growth area, and are between the Berwick Bypass and Nar Nar Goon. shuwn in Appendix 3. The examination of this will be undertaken by the Roads Corporation, giving consideration to the The proposed road system for the South Eastern social viability of urban growth south of Officer Growth Area, to cater for this travel demand, is and Pakenham. shown in Figure 6.1.

Page 30 The future travel demand estimates, in The Pakenham section between the Berwick highlighting the major directions of travel, did not Bypass and Nar Nar Goon is not proposed for indicate a strong demand for the south-west construction until the Princes Highway is direction. However, transport routes in this operating at capacity. This section has also been direction form important recreational and social highlighted for investigation to assess a possible links, that have adequate capacity at this stage to change in alignment taking into account the new meet the growth area's longer term demands. urban form proposed south of Officer and Pakenham. The main elements of the road system are as follows: Thompson Road - It is proposed to develop this road link as a primary" 6 lane divided arterial. It Scoresby Route • This route is currently proposed will form an important east-west arterial road as a long term project, protected in the Planning link between the bayside suburbs and the growth Scheme. Rapid development of the South Eastern area. Provision for a total 40 metre reservation Growth Area is expected to place severe pressure between Frankston and the Berwick-Cranbourne on the existing road network, particularly for Road, has been made in the appropriate Planning north- south traffic movements. Staged Schemes along most of its length. Its extension development of this route would seem easterly is dependant on the proposed urban appropriate, particularly for an early bypass of development form south of Officer. Dandenong. Dandenong-Hastings Road - This present 2 lane Dingley Route - A Planning Scheme reservation facility is ultimately proposed as a 6 lane divided has been maintained for this route between the primary arterial from the South Gippsland South Gippsland Highway and South Road. Freeway to the Frankston-Cranbourne Road. A 4 Development of this route will provide an lane facility southerly to the Tyabb-Tooradin important link between the growth area and the Road is proposed. At this stage the necessary employment areas of Moorabbin, Oakleigh and wideniogs are included in the Cranbourne and Clayton. Some local councils are anxious for an Hastings planning schemes, with the reservation early implementation of this route between width being up to 70 metres in places. Springvale Road and South Road; however VIC ROADS has indicated that at this stage the This major arterial forms an important link for section is only likely to be constructed beyond a both commuter and heavy vehicle traffic between ten year time frame. The section east of the growth area and Hastings/Westemport. Springvale Road has not been the subject of any recent assessment. Cranbourne-Frankston Road - It is proposed to develop this road as a 6 lane primary arterial Princes Freeway - It is ultimately proposed to between Frankston and Ballarto Road. East of develop this Freeway as a 6 lane facility to Nar Ballarto Road i.e. through the Cranbourne Nar Goon, with a 4 lane cross section eastwards township it is anticipated that the road link will to the Warragul Bypass. The reservation is reduce in importance in lieu of Ballarto Road protected in the appropriate Planning Schemes, which will perform the major through function. and much of the land has already been acquired The link through the township will therefore by VIC ROADS. This road facility will have a key become a secondary arterial, with possibly 4 lanes role in catering for both through traffic between and on street parking. Melbourne and LaTrobe Valley/East Gippsland etc. and traffic generated as a result of the urban South Gippsland Highway - This highway is the growth in the region. main arterial road link between Melbourne and South Gippsland and is proposed as a 6 lane The City of Berwick is anxious for the early divided facility between Dandenong and implementation of the Hallam section of the Cranbourne. The highway is mostly constructed to Freeway (between the South Eastern Arterial and 4 lane divided cross section, with the current Berwick), however it is not on VIC ROADS duplication works between Cranbourne and the current 10 year construction program. Focus on Bass Highway nearly complete. The existing single initial urban development is being centred on the carriageway between the Princes Highway and Cranbourne area and road developments there Pound Road is currently being duplicated. The should precede the construction of this route. section within the Cranbourne township is

Page 31 currently a 6 lane divided facility which would indications to date suggest that the development . revert to secondary road status once the proposed of this route is feasible to Heatherton Road. Cranbourne Bypass is constructed. Extension of this route northwards from Cranboume Bypass - This bypass is proposed to Heatherton Road, possibly linking to Lysterfield be developed as a 4 lane divided primary arterial. Road, has been highlighted as an "investigation The reservation for this route is protected in the area". The extension of this route would provide planning scheme and was based on providing a a major link between the growth area and freeway facility with grade separated interchanges. Boronia, Lilydale etc. It is now proposed that the bypass will be an at­ grade facility with no abutting access, except at Berwick-Cranboume Road - This route is cross roads. Only the railway crossing would be proposed as a 4 lane secondary arterial. Both the grade separated. Berwick and Cranbourne councils are implementing a 20 widening of this road, between Most of the land required for this project is Berwick and Cranbourne. The Cranbourne owned by VIC ROADS. This proposal is currently council is also actively pursuing the development not in VIC ROADS 10 year construction of Clyde-Five Ways Road to Baxter-Tooradin program. However in light of initial urban Road, thus providing a southerly extension of this development in the growth area to be centred in transport link between the growth area and the the Cranbourne area, the timing of this project Westernport area. may need to be reviewed. The proposed widening of Sladen Road (Berwick­ Princes Highway - The highway between Cranbourne Road within the township), may not Dandenong and Traralgon is currently one of the at this stage require upgrading if Ballarto Road is busiest rural highways in the state. The highway is developed to it's full potential. being progressively developed as a dual carriageway facility in the short term, with Ballarto Road - It is proposed to develop this eventual upgrading to freeway standards east of route ultimately to a 6 lane divided arterial Nar Nar Goon to Longwarry. between Frankston and the South Gippsland Highway, with a 4 lane facility being proposed Currently the Highway is being widened to 6 lanes eastwards to Clyde-Five Ways Road. In keeping between the Berwick Bypass and Belgrave-Hallam with the future importance of the road link, it is Road. As highway traffic increases this facility will essential to eliminate the present discontinuity be upgraded to 6 lanes east of the Berwick between the South Gippsland Highway and Bypass. In the longer term an easterly extension Dandenong-Hastings Road. This· section of of the freeway will be considered. Through the roadway comes under the control of the Berwick township upgrading the highway beyond Cranbourne council, who are supportive in the existing is not viable nor desirable. developing this link. A satisfactory alignment needs to be developed that would be acceptable Proposed Berwick North-South Bypass - The to the abutting developments, namely the development of this partial new route would form Cranbourne Trotting Track to the north and the an important north-south link between the South Royal Botanic Gardens to the south. Gippsland Highway and areas to the north of Heatherton Road. The route is proposed to follow When fully developed this route will provide an Cranbourne-Narre Warren Road/Pound important link to the Frankston area as well as Road/and a new section generally along the SEC providing a southerly bypass of the Cranbourne transmission line corridor. It is proposed that the township. development of this route will be contained in a 40 metre reservation. Shrives/Pound/Abbotts Roads -It is proposed to develop this route as a 4 lane secondary arterial. Its development along the existing road network westwards from Narre Warren. Development of is being protected by the relevant planning this route will relieve some congestion on the schemes, whilst the new section being proposed to Greens Road/South Gippsland Highway route Heatherton Road still requires detailed and will form a medium term bypass link around examination as to its cross section, alignment and Dandenong to the west of the growth area, using possible other termination points. Preliminary O'Shea/Greaves/Pound/Abbotts/Bangholme/

Page 32 Perry/Chandler Roads. link, that would provide direct access between Berwick/Cranbourne and the Belgrave area and The municipalities of Berwick and Cranbourne beyond. This route is already becoming an have made arrangements for the protection of the important link for Belgrave area residents Pound Road/Abbotts Road part of this route, by accessing the Narre Warren/Fountain Gate applying appropriate widening or building District Centre. It is proposed to develop this setbacks in any new subdivisional developments. route to a 4 lane standard (possibly with some West of the South Gippsland Highway the route capacity increases near the District Centre), is to be constructed by developer contributions however north of Heatherton Road there is and connected to the present Abbotts Road limited scope for improving the alignment or alignment. The eventual linking of this road to capacity due to environmental considerations. A Bangholme Road has been recognised as being 4 lane undivided cross section is envisaged as desirable by Cranbourne and Springvale Councils. being feasible. This section of the route will be even more important as a north-south link if the Healesville-Koo Wee Rup Road - A 4 lane proposed Berwick North-South Route connecting development of this route is possible for to Lysterfield Road cannot be developed. substantial lengths of this increasingly important primary arterial. A downgrading of this route is Belgrave-Hallam Road/Evans Road - It is proposed through the Pakenham township and proposed to develop this road as a 4 lane between the Princes Highway and Army Road, in secondary arterial route. Provision has been made lieu of a new route (Pakenham Bypass) east of in subdivisions within the Shire of Cranbourne Army Road which is now part of Pakenham's planning scheme to widen this road to 40 metres, Draft Outline Development Plan. Detailed between the Princes Highway and the South investigation is still required to develop this route Gippsland Highway. On either side of this section northwards connecting back into its existing the reservation is only 20 metres. To provide the alignment, as is possible further upgrading of the continuity of this route planning provisions should route to Cockatoo. Environmental constraints include additional widening. would more than likely preclude major development.

Greaves Road/O'Shea Road - It is proposed to develop this link as a 4 lane secondary arterial which is to be extended easterly and connected to TABLE 6.2 Road Costs the Princes Freeway with full interchange facilities. This will only occur once the freeway is TOTAL ROAD NETWORK COSTS ($M) extended and the routes full potential will not be (excluding Scoresby & Dingley Routes) realised until then. At present this 2 lane road is FREEWAY 493 contained within a 20 metre reservation and does PRIMARY ARTERIAL 395 not extend beyond Soldiers Road. A 40 metre SECONDARY ARTERIAL 174 SUB-ARTERIAL (Potential Bus Routes) 400 reservation to the Princes Freeway has been set LOCAL ROADS 689 aside in the Planning Scheme. TOTAL ROAD COSTS 2151 COST PER LOT ($) 23411 O'Grady Road/Centre Road - This proposed SCORESBY FREEWAY 596 secondary arterial is to be developed to a 4 lane DINGLEY FREEWAY 82 standard and would form a logical extension of the Dingley Route. It would help dissipate east­ INTERNAL ARTERIAL ROAD COSTS ($M) west traffic in the Hampton Park area and would also assist in relieving traffic on the Princes BERWICK 253 Highway as a direct result of the Narre CRANBOURNE 231 PAKENHAM 382 WarrenjFountain Gate District Centre traffic OTHER 4 generation. Investigations are required for its SUBTOTAL 869 connection to the Dingley Route. SUB-ARTERIAL (Potential Bus Routes) 400 LOCAL ROADS 670 Narre Warreo-Cranboume Road The development of this route between Pound Road TOTAL INTERNAL ROAD COSTS 1959 COST PER LOT ($) 21314 and Belgrave is proposed as secondary arterial

Page 33 Road System Costs Typical Road Cross Sections

Table 6.2 details the preliminary cost estimates Examples of some typical road cross sections that (1990 costs) for the road network proposal as could be developed within a 40 metre road shown in Figure 6;1 of this report. reservation are shown in Figure 6.4.

The costing summary shows the total cost to In developing these cross sections, it is important develop the road network for the growth area that the planning of subdivisions include' the including important external road linkages provision for the environmental protection of (excluding the development of the Scoresby and residential areas abutting arterial roads, such as Dingley Routes). The table also shows a break setting aside sufficient land within the subdivision down of costs at a municipal level, within the for sound mounds and screen plantings. This area growth area (Adjacent municipalities incur some could also be developed to provide bicycle paths costs to complete a particular route). clear of the arterial road pavement.

In general the costs developed for the major Road Management arterials (including Freeways) have been calculated on a unit rate per kilometre, with The effective management of the proposed road additional allowances made for difficult terrain network in the South Eastern Growth Area, and and bridge structures. The local roads were costed its interaction with land use management and on a unit rate per lot. planning, can be achieved by developing a functional road classification scheme. This functional classification will establish a framework that enables the road network strategies to

FIGURE 6.4 Typical Road Cross Sections

4 LANE DIVIDED WITH PARKING LANE AND MINIMUM MEDIAN I . I 3 , 3 Sm .t 6.4m " L6.2m (HIN) Ie 3 X 3.5m J 6.4m "Ie

6 LANE DIVIDED WITH MINIMUM MEDIAN .I I " B.7m ~2f 2 , 3.Sm ,6.2m IHINI , 2 , 3.Sm Ff B.7m , HE DIAN '

~ J. SOUND ATTENUATION PROVISION 4 LANE DIVIDED WITH MINIMUM MEDIAN ~~tietil@ ~ AND/OR LANDSCAPING

" 7.0m t 4.Sm t 3.Sm 0(' 10.0m INDHI " 3.Sm 0/' 4.Sm ? 7.0m ,... MEDIAN

4 LANE DIVIDED WITH WIDE HEDIAN AND PROVISION FOR BICYCLE LANE

TYPICAL CROSS SECTIONS FOR 40m ROAD RESERVATION

NOT TO SCALE

Page 34 enhance access. to, and within, the growth area, The details of how a particular road is managed whilst also protecting local environments and will depend upon the sensitivity of abutting land residential amenity. use (particularly in existing developed areas), public transport services and the need to cater for The document "Planning Safer Subdivisions" as road functions other than traffic movement (eg. prepared by the Loder & Bayly Consulting parking). Group, 1990, and distributed by VIC ROADS, has developed such a functional classification and The Traffic Oriented Routes should be developed management framework. The framework that best where possible as limited access roadways, satisfies the need for longer distance road incorporating plantation reserves or service roads movement at relatively high speeds with little and parking bans. interruption, and the need for safe and pleasant residential streets and access, is one that causes a To ensure the design of safe and effective local major division between traffic oriented routes and street networks, particularly for buses, the PTC access oriented routes. publication "Guidelines for Accommodating Buses in Established and Future Urban Areas" should The functional classification and management be adopted by the planning and transport framework comprises the following: authorities.

Traffic Oriented Routes Land UsefTransport Interaction

• Arterial Roads: These roads carry most of The road system as included in the Transport the long distance trips and are designed for Strategy has been prepared to guide future relatively high speed with infrequent planning and development in the growth area, and interruptions and abut residential areas. to form the basis for the provision of road reservations in the preparation of Local Structure It is considered that this framework should Plans and Planning Scheme Amendments. accommodate both primary and secondary roads in terms of classification and The Transport Directions (issued by the then management approach (refer to Table 6.3). Minister for Planning and Urban Growth) as Freeways would form another classification in discussed in Section 6.1, and detailed in Appendix terms of their fully access controlled function. 4, have been prepared to assist in this integration process. • Local traffic routes: These routes, which subdivide residential areas, do not have residential access and are designed for a traffic function, which because of limited trip length on them, can operate at lower speed FIGURE 65 Possible Alternative Urban Layout . and with more frequent interruptions ie. crossing of pedestrians.

Access Oriented Routes

• These routes serve the function of residential allotment access and general people movement. The aim is to keep the volumes on these routes to generally below 500 veh/day, and almost always to below 1,000 veh/day.

Residential frontages are confIned to these routes.

A general management approach is dermed for traffic oriented routes as shown in Table 6.3. .., 1...;:<=-- _____ 1 milo II6CS -..I

Page 35 TABLE 6.3 Traffic Oriented Road Definitions

CATEGORY DEFINITION MANAGEMENT APPROACH

Prtmary Arterial Roads which are required to provide a network 01 Management strategies facilitate the movement 01 principle traffic routes whose maln functlons are to traffic. The traffic capacity and connectivity 01 the cater lor major traffic movements and longer distance Primary Arterial road network are Important lactors. trips wtthln the metropolitan area. Where pos.slble. these roads should be limited access. whilst also recognising the need 01 existing roads to cater lor road functions other than traffic movement

Secondary Arterial Roads which supplement PrImary arterials to provide Secondary arterials are managed to provide lor major a comprehensive network whose function Is to cater traffic movements to a level determined by lor major traffic movements. particularly during peak consideration 01 abutting land uses and roadway periods. but with greater regard to the needs 01 characteristics. Some will have a relatively high traffic adjacent land uses. service functlon with tolerant abutting land use while others will carry lower volumes through more sensitive areas.

lDcaITraIIIc Route Roads which lorm the principal network lor traffic Management 01 the local Traffic Routes should movements and provide the means 01 servicing the principally be directed at distributing traffic from the local access oriented routes (local roads) wtthln the arterials to destinations wtthln the residential areas residential areas. and to facilitate the movement 01 local traffic and public transport wtthln the urban areas. Pedestrian movements and amenity are 01 Importance.

The functional road classification framework as current operation of six (6) buses. discussed above, in providing a clear distinction between traffic oriented and access oriented For the one-mile grid, 400 square metre routes, enables residential cells to be created residential lots are required along the bus routes which are free of problems associated with traffic in order to achieve 90% of all lots within 400 intrusion and within which there is no need for metres of a potential bus route. The average mixed function collector roads. Bus routes can density of this development is nearly 50% higher therefore be accommodated on the Local Traffic than normal densities in Melbourne (Appendix 5 Routes within an overall road network to meet refers) The land away from the bus routes can PTC guidelines (refer to section 6.2 for details). contain larger sized residential lots ( up to approximately 1200 square metres) together with Experience indicates that bus operations are other such uses as primary schools, select normally supportable for suburbs with 20,000 institutions, sports ovals, golf courses, training people. Six (6) buses can eventually be justified to tracks and parks. service such an area, delivering primarily a local service (to schools and shops) and a feeder Appendix 5 details the investigations into service to rail stations. variations from the standard subdivision design for bus operations. Figure 6.2 previously described the general road layout/urban design principles for planning bus The principles shown in Figures 6.2 and 6.5 are routes for new greenfields residential areas at one schematic only and need to be further developed kilometre spacing (reference; PTC Guidelines for to suit the particular characteristics of a site as Accommodating Buses in Established and Future part of the overall Local Structure Plan process. Urban Areas). 6.4 Community Transport In many parts of the South Eastern Growth Area however the ·one mile grid" predominates. The Community transport plays an important role in sketch in Figure 6.5 shows one possible alternative providing equitable access to opportunities, layout that fulfils the PTC guidelines as previously services and facilities for various people and discussed. It seems possible to meet these groups whose needs are not catered for guidelines with only two (2) buses circulating adequately by regular public transport. through an area of 20,000 people, with improved efficiencies and economies compared to the

Page 36 The existing and upgraded heavy rail and bus • co-ordination of community bus services run systems will continue to be the main form of by local municipalities with the PTC network. public transport in this region. New services will be required in developing areas, and in particular • design of vehicles suitable for wheelchair bus services in new areas remote from heavy rail. access. Within this context, community transport will play an important role in providing services to various The PTC will support community groups and people and groups whose needs are not catered local Councils who wish to develop their own for adequately by mainstream public transport. transport solutions to local mobility problems by offering advice on how to proceed and by the Community transport services should be linking up of individual groups where possible to integrated with the public transport system. allow the most efficient use of resources. These services, which need to be· flexible and responsive, can perform a vital role in catering for the various needs of residents in the developing 6.5 Pedestrians and Bicyclists growth area. In particular, access will be required to human services, community and recreation The Transport Strategy recognises the importance facilities, shopping centres and modal of planning for the needs of pedestrians and interchanges (to connect to the rail system) in bicyclists. abutting established suburbs whilst similar facilities, and public transport services, are being Pedestrians developed in the newer residential areas. With approximately 40% of the population not In developing these services, it is important that having access to a car on demand, walking community consultation and involvement is becomes an important mode of transport. included to establish local and community needs, Improvements to the pedestrian environment, and that these needs are monitored on an ongoing therefore, will help to enhance accessibility and basis to ensure that the services are kept up to encourage pedestrians to walk more short date. distance trips. Attractive pedestrian paths connecting residential areas to well served public The eXlStmg Multi-Purpose Taxi Program transport routes will encourage a greater use of (Maxi-Taxi) will be available within the growth trains, and buses. The implication of this on trip area as development occurs. This program, volumes can be significant, especially for car established in 1983, assists in the mobility of journey to work trips. people denied access to public transport as a result of a permanent disability. Safe and attractive pedestrian paths that link residential areas with public transport routes Other services that require further investigation should be developed with the objective of meeting for possible future application within the South PTC requirements that residents be within: Eastern Growth Area include a number of MetPlan proposals such as: • 400 metres of a bus route; or • 1000 metres of a heavy rail station . • demand-responsive (or dial-a-ride) bus services in areas where low demand does not There is also a need to provide safe and attractive justify a conventional fixed route service. pedestrian paths to public areas such as shopping Routes can run between two fIXed points and centres, libraries, community services and deviate as necessary en-route to pick-up and recreational facilities. As people reliant on walk drop passengers. trips generally choose to combine the purpose of their trips (eg. shopping/library/social), the • use of smaller vehicles for demand-responsive clustering of activities is therefore important. services. Access to school is another significant walk trip, • use of taxis to provide night services in and if designed properly, pedestrian paths have designated zones around major stations and the potential to reduce the need for parents to interchanges using share-ride or PTC tickets. chauffer children to local schools.

Page 37 The former DPUG's pedestrian guidelines should in the Cranboume area, followed by a progressive be taken into account to ensure that the design of easterly expansion from the existing urban all new works considers connectivity, amenity and development in the Berwick area. safety measures for pedestrians. The timing of implementation of transport Bicyclists infrastructure and services is important in providing a variety of services and facilities, at an Urban growth within the South Eastern Growth early stage of development, which give people Area provides the opportunity to plan and access to a wide range of activities and implement a network of bicycle paths throughout opportunities. In particular, regular public the corridor. transport services should be provided at an early stage of development to encourage new residents This planning should be undertaken within the to develop a public transport travel routine. context of the Victorian Bicycle Strategy (draft) 1990. This strategy provides a 10 year strategic The proposed staging of public transport provides framework for the development of bicycle for bus services being more extensive in the initial programs and facilities across Victoria. It reflects stages of urban development. the philosophy that bicycling is an important part of transport that needs to be incorporated into The proposed staged implementation of the the normal planning process. Through the State transport infrastructure and services is as shown Bicycle . Committee, and this strategy, in Table 6.4. The preliminary cost estimates for municipalities will be encouraged to prepare the staged provision of transport infrastructure Local Area Strategic Bicycle Plans. and services, as included in Table 6.4, corresponds with the anticipated total land use development. Even a small shift from private car to bicycle, or bicycle/rail, could make a contribution to easing The staging takes into account that the road congestion. Bicycling is encouraged because Cranbourne area is to be given first priority for it makes little demand on materials, energy development within the growth area. It does not resources, or the environment, and contributes to however preclude development of transport links the health of the rider. in other parts of the South Eastern Growth Area, i.e. the stage development of the Hallam section The safety of cycling on arterial roads needs to be of the Princes Freeway, due to increasing improved as cyclists generally will continue to use congestion as currently zoned residential land is them unless the alternatives are more direct and taken up for development. quicker. Provision for bicycles on arterial roads involves attention to design detail, rather than Preliminary cost estimates for total transport special facilities. infrastructure and services are outlined in Tables 6.1 and 6.2 and summarised below. MetPlan, in recognising that bicycles are an important means of access to rail stations, Heavy Rail $160 M includes the provision of additional secure bicycle Light Rail $28M lockers, whilst also undertaking to explore other Bus $26M ways of providing bicycle storage facilities. Total Public Transport $214 M Consideration is also to be given to the provision of storage facilities at key locations on bus routes. Freeway $493 M Primary Arterial Roads $395 M Secondary Arterial Roads $174 M 6.6 Staged Implementation Sub-Arterial Roads $4OOM Local Roads $689 M It is important that the provision of transport Total Roads $2151 M infrastructure and services is co-ordinated with land use development within the growth area. TOTAL $2365 M

As outlined previously the staged development of Notes: the South Eastern Growth Area will initially occur 1. Estimates for public transport include infrastructure and vehicles.

Page 38 2.Prunary arterial road costs include • social costs of travel (air and noise pollution, allowance for development of major external congestion and disruption), links. 3. Costs are preliminary, and are subject to could reverse this assessment. The South Eastern more detailed investigation. Growth Area is however expected to have 4. The Dingley and Scoresby Routes are not substantially longer journeys to work (30 included in the above estimates. kilometres compared with Werribee 21 kilometres) in the future. The private costs The staged implementation of these proposals are associated with such travel would result in less indicative only and will require further money being available for government services, investigation and revision as urban development and less money available for wealth producing proceeds. investment. It may be preferable to defer the spread to the south east by putting as much Comparative Corridor Costs growth into Werribee as is feasible.

The transport investigations undertaken for the Accessibility three priority growth areas to date suggest that the transport infrastructure costs favour the South The accessibility of the South Eastern Growth Eastern Growth Area because most of the road Area was compared with that of the other two and rail provisions are substantially in place. growth areas of Plenty Valley and Werribee. This Plenty Valley is constrained by geography, and evaluation of accessibility was based on a reduced growth therefore increases the average measure of "centrality". The measure of centrality costs. Werribee is isolated and struggling to keep is based on the travel time at which all jobs can pace with provision for the existing population. be considered to be located away from a particular location (analogous to travel time to the Consideration of the total transport costs, CBD). including: • public transport and road operating and On this basis, the inner parts of the South Eastern maintenance costs, Growth Area compares better than the Werribee • private costs, and

TABLE 6.4 Transport Staging Costs ($M 1990 costs)

STAGE STAGE 1 STAGE 2 STAGE 3 STAGE 4 TOTAL

PUBUC TRANSPORT FIXED VEH FIXED VEH FIXED VEH FIXED VEH FIXED VEH

RAIL Dand'g to Cran'bne(elec} 25.5 15.0 30.5 26 46 Dandenong to Pakenham 13.2 15.0 15.0 15.5 13 46 Pakenham to Warragul 2.B B.6 B.6 B.B 3 26

UGHT RAIL Berwick to Cranbourne 15.9 11.9 16 12

BUS Internal bus 3.1 2.6 3.1 2.6 3.1 2.6 3.1 2.6 12 10 Berwick to Fern T'Gully 1.0 O.B 1 1 Berwick to Carrum 1.1 1.0 1 1

TOTAL 17.3 3.4 32.6 27.2 3.1 41.2 19.0 69.3 72 142

ROAD NETWORK (excluding Dingley & Scoresby)

FREEWAY 31 62 202 19B 493 PRIMARY ARTERIALS 95 85 105 110 395 SECONDARY ARTERIALS 40 41 47 46 174 SUB ARTERIALS(bus routes} 100 100 100 100 400 LOCAL ROADS 172 173 172 172 6B9

TOTAL 43B 461 626 626 2151

Page 39 Growth Area, for car travel, whilst the more public transport accessibility to all activities and easterly parts do not i.e. have longer journeys to services. Modal interchanges have the potential to work. capture the public transport advantage of intense activity without being frustrated by congested road Relative Centrality Measures are shown below. traffic.

• North Hoppers -centrality = 37 min Development of stations will incorporate MetPlan Crossing (Werribee) initiatives to integrate rail stations into the local • Pakenham -centrality =·45 min community by providing a variety of facilities for • East Officer -centrality = 37 min travellers (such as a Met shop, bus shelters, • Lyndhurst -centrality = 26 min station landscaping and convenience shops).

Heavy Rail 6.7 Activity Centres MetPlan provides for the expansion of services to Development of the South Eastern Growth Area all Activity Centres located along the Pakenham includes the provision of a District Centre at and Cranboume rail lines. Narre WarrenjFountain Gate and various Activity Centres throughout the growth area. These Buses Centres will form a focal point for retail, commercial facilities, community services, Civic The modal interchanges within the primary and Centre (at· the District Centre), social and secondary Activity Centres will provide bus entertainment facilities, as well as providing for facilities, includin.g sufficient area for bus turning employment and stimulating new development in movements. the area. The Activity Centre buses would service local Activity Centres have been principally located areas arid adjacent municipalities. along the Princes and South Gippsland Highways as shown in Figure 6.1. Some of these Activity At present, the MetLink system of buses as Centres in part already exist and will be further proposed in MetPlan would provide a network of expanded as urban development progresses. long-distance cross-town bus links only between District Centres, other regional· employment As part of the interaction between land use and centres and major modal interchanges. transport planning, the Activity Centres provide a clustering of employment opportunities close to Road System readily available public transport. Planning of the road network also recognises the functional In planning the major road network, recognition differences within the Centres and promotes a has been given to the environment of Activity safe traffic environment by directing through Centres by directing away from the heart of the traffic away from the heart of these Centres. Centres the through traffic component. The primary and secondary Activity Centres are Some of the important transport elements located adjacent to major road facilities i.e. the developed as part of the planning for the Activity Princes and the South Gippsland Highways, Centres include: however the development of suitable bypasses at some Activity Centres is included in the strategy. Modal Interchange These include :

Modal interchanges are proposed principally at • Cranbourne Bypass - This proposed route will Activity Centres located along the rail lines, With I'l'Uviue an easLerly bypass uf Lhe Cranbourne other centres being serviced by buses. These will Activity Centre primarily for South Gippsland encompass heavy rail (where applicable), buses Highway through traffic. and commuter car parking. • Ballarto Road - The development of this link The modal interchange location within the between Dandenong-Hastings Road and the Primary and Secondary Centres will ensure good South Gippsland Highway will provide a southerly bypass of the Cranbourne Activity Centre for

Page 40 traffic between the South Gippsland Highway and more jobs within the corridor. This will then the Frankston and Braeside areas, particularly for reduce the demands on the road network with a heavy vehicle movements. subsequent reduction in the need to upgrade the arterial road network linking to the growth area. • Berwick North-South Bypass - A suitable development of this route will provide a bypass of These work trips, which cause most of the the Narre Warren/Fountain Gate District Centre, weekday, peak period traffic congestion on the as well as providing a major north-south road link roads, also form the bulk of the public transport between the South Gippsland Highway and the patronage loadings. Boronia/Lilydale area. At present, a large proportion of the workforce The next stage of Activity Centre planning will living in the corridor travel to jobs located mainly involve the preparation of Local Structure Plans in the west as shown on Figure 4.2 and Table 4.1. for each of the centres. These plans, taking into account the Transport Strategy for the growth It is important to maximise a full range of area, will further derme transport requirements employment opportunities within the growth area, for the Centres, including public transport together with the early provision of such infrastructure and road alignments. opportunities. Unless these employment opportunities can be created, both within the growth area and to some extent in the adjacent 6.8 Metropolitan Area Access suburbs, urban development in the South Eastern Growth Area will suffer restrained activity and The proposed levels of urban development within economic growth. the South Eastern Growth Area will generate ".~ substantially increal\ed levels of travel demand Industry must be encouraged to take advaDtage of both to the west and to the north of the' growth the potential workforce base and the proximity of area. This will place a considerable strain on the the growth area to the transport links of the existing transport network, especially the main Princes Highway/Freeway to the Latrobe'Valley, arterial road linkages that connect to the the South Gippsland Highway link to Gippsland, remainder of the metropolitan area. the link to the Westernport/Hastings area and adjacent links with existing and expanding industry The proposed public transport system, particularly in the Braeside, Dingley, Clayton and Frankston the rail network, has the capacity to accommodate areas. Such initiatives, together with an attractive more of the corridor travel demand especially to residential environment in the South Eastern the north-west i.e. CAD based trips, as congestion Growth Area should achieve successful on the road network increases. Westward development. orientated trips by public transport will be accommodated by the bus network. Public Transport Actions

Road access to the South Eastern Growth Area The South Eastern Growth Area urban form is from the north has limited opportunities for conducive to being served by public transport. major road improvements or development of new routes. To the west, the development of major The public transport proposals as shown on road links by upgrading existing links will provide Figure 6.1 represent a major commitment to a reasonable network to satisfy the expected travel support urban growth, cater for travel demand demand. within the growth area and enhance accessibility to the South Eastern region. Land Use / Transport Interaction Some of these actions that focus on access to the In general, the transport implications of the remainder of the metropolitan area mainly growth area's development is tied to the location include possible additional track between South of jobs for workers, since journey to work Yarra and Dandenong together with increasing represents the largest regular travel demand. As capacity by the use of double deck trains, and the a result, the demand for work trips outside the extension of the electrification to Cranbourne. growth area can be minimised by the location of

Page 41 Other actions to expand the prOVISion of additional traffic generated by urban development, commuter car parking spaces at rail stations and the ability to cater for all the estimated traffic enhance the provision of cross town public demand will need to be consistent with social, transport by a system of MetLink buses would environmental and fmancial considerations. further facilitate greater levels of service to the South Eastern Growth Area. The implementation of demand management measures will have an important role in servicing In seeking to maximise public transport the total transport travel demand generated from patronage, and therefore reduce future road the growth area. Demand management would be congestion and associated environmental and targeted at: social impacts, careful consideration needs to be given to the staged development of the increased • public transport taking a greater share of trips public transport services and system capacity. as previously discussed;

. Staged development of public transport, in the • taking advantage of other employment short term, should focus on an expanded bus opportunities within and to the south and east system to quickly extend into new residential of the growth area; areas and develop public transport routines. • implementation of stringent traffic Road Actions management measures on the arterial road network to the west of the growth area to The road actions as described below have been maximise capacity opportunities; developed having regard to the importance of public transport in contributing to the successful • work trip departure times being adjusted to development of the growth area. suit road conditions. Flexible working hours· could help to achieve this result; The primary role of the· external arterial road network to the South Eastern Growth Area is to • the lengthening of peak periods as a result of cater for westerly and northerly traffic movements road congestion, leading to the possibility of not able to be effectively serviced by public trip deferment to other times of the day. transport. These focus on the Dingley Route, Greens Road, Thompson Road, Ballarto Road (b) Network Capacity Improvements and the Shrives Road/Abbotts Road route to the west and the Scoresby Route, proposed Berwick The actions required to improve the road network North -South Bypass, Narre Warren-Cranbourne and its traffic capacity include: Road and Healesville-Koo Wee Rup Road to the north. Access to the Westernport/Hastings area • Traffic management measures such as via Dandenong-Hastings Road and Clyde-Five intersection capacity improvements, Ways Road is also of importance. Progressive installation of traffic signals and the linking of development of the Princes Freeway is also a signals along primary routes. Performance major focus in catering for through traffic monitoring of signalised intersections and between Melbourne and East Gippsland. clearway operations are also required;

In a similar context as the public transport actions • Implementation of land use controls at major the development of external road linkages to the intersections to ensure that any longer term remainder of the metropolitan area have been redevelopment proposals are compatible with proposed having regard to the anticipated long the traffic functions and operations of the term travel demand generated to and from the abutting roads; Growth Area. These road actions include the following: • Continuation of ongoing two-lane two-way road traffic performance monitoring (a) Demand Management programs, particularly on routes to the west and north of the growth area; Although improving existing arterial road network capacity to the west and north of the growth area • Improvements to level crossings on major will be a key action in providing for some of the arterial roads to reduce traffic delays due to

Page 42 increased train frequency on the Pakenham • Dingley Route and Cranbourne lines; The development of the Dingley Route to Springvale Road and to employment centres in • Gradual upgrading of the existing arterial Dingley, Croydon and Moorabbin, is seen as a road network in line with the Transport medium term development option. This route Strategy and as demand requires. would need to be developed once the existing westerly links of Greens Road, Abbotts Road (c) New Road Developments Deviation and the Princes Highway through Dandenong are at capacity. It's development In addition to the public transport actions, would only be viable once the section between demand management measures, network capacity Springvale Road and Warrigal Road was improvements, and gradual arterial road constructed. upgradings, new links to improve road access to and through the growth area require development. • Princes Freeway Some of these proposals include projects that The development of this route is seen as being have been a long term commitment or are gradually upgraded in line with the residential programmed within the short to medium time expansion of the South Eastern Growth Area. It frame. is intended to begin further development of this route once the Princes Highway is at full capacity. These new road developments, providing external The inner sections i.e. Hallam section should be linkages for the South Eastern Growth Area, a first priority. complement the staged urban development proposals within the growth area. These roadway proposals include the following :-

• Scoresby Route The Scoresby Route is seen as being able to provide some of the road capacity for the expected north-south travel demand. Whilst the overall staging of this particular route is seen as longer term, elements of the -route near Dandenong will be required at an earlier stage as a bypass of Dandenong to relieve the anticipated congestion problem around the District Centre. This is particularly so given that the Growth Area's urban development staging will concentrate on the Cranbourne area in the initial stage.

• Berwick North South Bypass Th~ propus~d d~veIopment of the Berwick North South Bypass is also intended to provide additional external capacity in the northerly direction, whilst also serving as an internal road link. Its longer term potential as a strategic link to CroydonjFerntree Gully /Lilydale and beyond is dependent on developing a suitable connection between the Princes Highway and Wellington Road. Again part of this route near Narre Warren will require early development providing a bypass of the Narre WarrenjFountain Gate District Centre if the District Centre progresses at the rate -currently proposed.

Page 43 7.2 Action Plans

DEVELOPMENT FORM

• Planning authorities, through the preparation CHAPTER 7 of local structure plans and planning scheme amendments, must ensure:- ACTION PLANS - provision of a variety of housing types, including an indication of areas or sites intended for medium density, mUltiple­ dwelling developments; 7.1 Basis of Action Plans - areas or sites for medium density housing The Action Plans contained in this section of the are located near major public transport report have been developed in response to the key modes and major activity centres; issues and concerns identified in Section 2 and support the Strategic Objectives also outlined in - a minimum density of 15 dwelling units per Section 2. The actions vary in scope and detail. hectare in residential areas ( this Some only require procedural changes involving requirement includes medium density minimal cost whilst others, such as major public development sites); transport or road projects, involve long planning and implementation periods and high costs. Some - planning for residential areas adopt the projects are already well defmed whilst others subdivision design principles contained in require investigation and the development and the Residential Development Provisions for. assessment of options. Victoria 1988;

Each action has identified a lead agency, or lead - preparation of a "fmance plan " for the agencies, who will be responsible for the initiation funding and provision of , amongst other of the action and co-ordination and monitoring of things, transport infrastructure and services. its implementation. The lead agency has been Lead Agency: DP&H, Councils selected on the basis that it is in the best position to fulfll this role even though others may have an • Planning authorities liaise with the Transport equal or even greater interest in the action. In agencies in the preparation of Local Structure general, the lead agency has been nominated from Plans and planning scheme amendments to one of the following organisations: ensure the co-ordination of land use and transport planning in developing areas, Roads Corporation (RC) including incorporation of the various elements Public Transport Corporation (PTC) of the South Eastern Growth Area Transport Ministry of Transport (MoT) Strategy. Department of Planning and Housing (DP&H) Lead Agency: DP&H, Councils City of Berwick Shire of Pakenham • Planning authorities through the Metropolitan Shire of Cranbourne Services Co-ordination System develop and implement procedures to monitor urban Arrangements for the overall co-ordination and growth, employment growth and location, and monitoring of the implementation of the the siting of activities to ensure the timely Transport Strategy are detailed in Chapter 8 of provision of transport infrastructure and this report. maximum use of public transport within the growth area. Lead Agency: DP&H, Councils

Page 44 ACCESS AND AMENI1Y the local councils, including the co-ordination of these services within the PTC network • Transport and Planning agencies implement Lead Agency: Councils the guidelines established in the document "Planning Safer Subdivisions" as prepared by • Implement the MetPlan System Wide the Loder & Bayly Consulting Group, 1990, in Improvement Initiatives in the Growth Area as planning road systems that take into account economic circumstances permit. . accessibility and amenity of residential areas. Lead Agency: YfC Lead Agency: DP&H, Councils, RC THE ROAD SYSTEM PUBLIC TRANSPORT • Implement further detailed investigation to • Develop and proceed with implementation fully assess the potential for development of plans for infrastructure modifications necessary the following arterial roads: to permit the level of service adopted in MetPlan to be provided between Dandenong (i) the linking and widening of Ballarto Road and Pakenbam. west of the South Gippsland Highway; Lead Agency: YfC (ii) the construction of a new north-south route • Develop and proceed with implementation west of Tinks Road to provide a bypass of plans for the infrastructure and rolling stock to the Narre Warren/Fountain Gate District provide increased services between Dandenong Centre and a strategic transport link to the and Cranbourne. Ringwood/Lilydale area; Lead Agency: YfC (iii) the examination of the current reservation .. Develop and proceed with implementation for the Princes Freeway east of Berwick to plans for the additional infrastructure needed take into consideration the new urban areas between Melbourne and Dandenong to allow proposed south of Officer and Pakenham; MetPlan service levels to be ultimately provided to both Pakenham and Cranbourne. (iv) the examination of an easterly extension of Lead Agency: YfC Thompson Road. Lead Agency: RC, Councils • Planning and Transport agencies to implement the Public Transport Corporation guidelines • Planning and Transport authorities adopt the for accommodating buses in established and road network proposals (Figure 6.1) as an input future urban areas in preparing Local to the preparation of Local Structure Plans and Structure Plans and planning scheme planning scheme amendments, as urban amendments. development proceeds. Lead Agency: YfC Lead Agency: DP&H, RC, Councils

• Develop a bus operating strategy for the • Plan and develop the arterial road network Growth Area, including the potential for bus (including the external access roads) as limited priority lanes within the existing and future access roadways within a functional road network. classification and management framework that Lead Agency: YfC provides for Traffic Oriented Routes and Access Oriented Routes. The limited access • Investigate the early introduction of bus Traffic Oriented Routes should incorporate services into new developing areas through plantation reserves or contiguous private streets developer funding of bu£ operating 006t5; with no provision for parking. possibly with smaller, cheaper, special purpose Lead Agency: RC, Councils buses. Lead Agency: YfC • Transport authorities provide for the mobility • Investigate and implement proposals for the and safety of bicyclists by improving design and provision of community transport, operated by road maintenance practices, and implement

Page 45 relevant recommendations of the Victorian • Planning and Transport authorities develop Bicycle Strategy. procedures to ensure the planning of Lead Agency: RC, Councils subdivisions includes prOVISIOn for the environmental protection of residential areas • Transport authorities to adopt the methods abutting arterial roads and other major employed by the DP&H in the planning for, transport routes, through the setting aside of and control of, off street parking. sufficient land within subdivisions for Lead Agency: RC, Councils landscaping and noise attenuation measures. ego a 10 metre miriimum width plantation reserve PEDESTRIANS AND BICYCLISTS Lead Agency: PTC, RC, Councils

• Prepare strategic bicycle plans for those METROPOLITAN AREA ACCESS municipalities within the South Eastern Growth Area and develop programs for the • Transport authorities develop measures to implementation of these plans. optimise road access between the South Lead Agencies: Councils, RC Eastern Growth Area and the remainder of the metropolitan area, within realistic social, • Provide secure bicycle parking facilities by environmental and fmancial constraints. developing a program for installation at public Lead Agency: RC, Councils transport nodes in accordance with the PTC's report "Bicycle Facilities at Railway Stations" FUNDING and at Activity Centres and on-street locations. Lead Agency: PTC, RC, Councils • Responsible agencies to assess Transport Strategy actions against competing metropolitan • Funds allocated for roadworks and maintenance wide projects to establish funding priorities in to include those funds required for bicycle forward programs to support the. staged works recommended in a strategic bicycle plan, provision of transport infrastructure. and where they coincide with the roadworks. services to suit growth area development. Such Lead Agencies: RC forward programs should complement the Metropolitan Services Co-Ordination System • Improve mobility and safety for bicyclists by (MSCS) Land Release Program. adopting the initiatives of the Victorian Bicycle Lead Agency: All Agencies identified in Action Strategy 1990 ( currently a draft document for Plans public comment) Lead Agency: RC ,Councils • Planning and Transport authorities, together with other infrastructure and service authorities, • Transport and Planning authorities to develop investigate the full range of alternative improved procedures for the provision of measures for supplementing public funding for pedestrian facilities, incorporating DP&H infrastructure and service facilities, including pedestrian guidelines. transport, in preparing a Developer Lead Agencies: DP&H, Councils, RC, PTC Contribution Strategy for Victoria. Lead Agency: DP&H THE ENVIRONMENT • Transport agencies develop methodology, • Transport authorities to identify and protect options, guidelines and mechanisms for: significant flora, fauna, landscape and heritage recovery of the costs of transport features in the Growth Area in planning and infrastructure required to support urban implementing the Transport Strategy. development; Lead Agency: PTC, RC, Councils involvement of the private sector in the funding and provision of transport facilities • Develop and implement a program to preserve and services. and enhance existing vegetation within road and rail reservations. The transport facilities to include local and Lead Agency: PTC, RC, Councils arterial roads, pedestrian and bicycle routes, rail and bus services, especially in the initial

Page 46 stages of development, and links to the rest of the metropolitan area. Lead Agency: MoT, RC, PTC

IMPLEMENTATION

• Transport authorities to examine transport services programming in order to translate the Transport Strategy proposals into forward look agency works, within the context of other worthwhile metropolitan wide projects, for both the immediate and 10 to 20 year time frames Lead Agency: RC, PTC~ Councils

• Lead agencies to develop internal procedures to initiate and co-ordinate the planning and implementation activities associated with a particular action for which they are responsible. Lead Agency: All Agencies identified in Action Plans

• Establish a South Eastern Growth Area Transport Strategy Co-ordination Committee. Lead Agency: RC

Page 47 contributions only provide up to $10,000 per block in terms of costs involved with transport infrastructure (with no developer contribution currently being provided for public transport). CHAPTER 8 Significant public funds are therefore being used to subsidise outer urban growth.

IMPLEMENTATION Transport development, both road and public transport, in the Werribee, South-Eastern and ,

...... ::.:". '. .... :." :'.' : .,:,' . Plenty Valley Growth Areas, based only on current levels of funding, will not enable the necessary infrastructure to be provided to support The success of the South Eastern Growth Area the proposed levels of urban development. Transport Strategy will depend on three factors: During the current (1990/91) fmancial year, VIC • broad acceptance of the Strategy ROADS allocations for arterial road funding for • implementation of the Action Plans the three councils in the area (Berwick, • the flexibility of the Strategy to adapt to Cranboume, Pakenbam) amounts to $10.6 million, change. of which $4.5 million is required for asset preservation. Substantial shortfall therefore eXists The consultation process undertaken throughout between these available funds and the total costs the development of both the Transport Strategy required for providing arterial road infrastructure and the overall Department of Planning and to meet the likely population growth over the next Housing's land use strategy was designed to gain 10 years, which are estimated to be in the order the acceptance and active support of the of $10 million per year (of which developer community. contributions for arterial roads under present arrangements would be very small). Implementation of the Transport Strategy will form part of a co-ordinated approach to the Unless other means for funding the necessary provision of key infrastructure and services to transport infrastructure and services are support development in the Growth Area. established, significant congestion and reduced Establishment of the new infrastructure and levels of service will be experienced on the services will depend on demand, level of transport system both within the Growth Area commitment from the development industry, and and in abutting municipalities. This particularly availability of funds. applies to the road network.

This section provides a view of the fmancial Developer Contributions - General implications of the Transport Strategy, together with the overall co-ordination requirements for In announcing the Growth' Area Plans, the then the implein,e,ntation of the Strategy. Minister for Planning and Urban Growth expressed the Victorian Government's firm 8.1 Financial Implications commitment to ensuring that the physical and human services necessary for high qualitY urban The overall transport cost for metropolitan-wide environments in the growth areas are provided infrastructure provision associated with outer and funded in a timely, efficient and equitable urban land uSe development is significant. This way. study has shown ~at: Inadequate development contributions to the costs • transport accounts for approximately 50 - 60% of services and facilities for growing communities of physical infrastructure costs for the outer at'the time land is developed, rising community urban development areas, comprising in the expectations regarding the quality and timing of order of $24,000 per block in the South provision of these services, and other factors Eastern Growth Area; suggest a need to review existing arrangements for development contributions as a source of funding • existing funding arrangements and developer for urban infrastructure. '

Page 48 With a view to improving the existing Developer Contributions • Transport arrangements, the then Department of Planning and Urban Growth has released a Discussion As part of the developer contributions issue, the Paper entitled "Development Contributions", Ministry of Transport has established an 'Urban November 1990 as part of a consultative process Development • Transport Infrastructure Funding leading ultimately to legislative amendments. Working Group', with r~presentatives from the Transport agencies and the Departments of This discussion paper does not address all options Treasury and Planning and Housing, to examine for public and private sector _involvement in and develop methodology, options, guidelines and infrastructure provision, but focuses narrowly mechanisms for: upon development contributions at the time land is developed for urban purposes that are payable: • recovery of the costs of transport infrastructure required to support urban development; and • for infrastructure provided by public sector agencies; and • involvement of the private sector in the funding and provision of transport facilities • under legislative and administrative and services. arrangements broadly applicable to all forms of land development at any location. The transport facilities are to include local and arterial roads, pedestrian and bicycle routes, rail The main issues addressed in the discussion paper and bus services, especially in initial stages of in developing a framework for development development, and links to the rest of the contributions include: metropolitan area.

• betterment margin: the measurement in Funding Sources practice of the 'betterment margin' and, related to this, the implications of development Funds for the implementation of the Transport contributions or betterment taxes for housing Strategy will come from a variety of sources afford ability; including the Roads Corporation, Public Transport Corporation, Department of Planning • nexus: the extent of the 'nexus' that should be and Housing, Local Government, private established between the impacts of land investment and developer contribution. development upon infrastructure requirements and the level of development contributions to Projects funded through State Government agency given infrastructure items; and programs are generally done so on a needs basis. The Transport Strategy actions, therefore, will be •. collection mechanisms: the collection assessed against competing projects to determine mechanisms to be adopted, including their funding priorities. relationship to existing development contributions and arrangements for collection and disbursement in respect of infrastructure 8.2 Land UsejTransport Integration provided by the different tiers of government. Agency Responsibilities The development contributions will apply equally to developers of land for both residential and Ongoing management procedures will be an commercial purposes. important element in the implementation of the Transport Strategy for the South Eastern Growth In addition to the release of the Discussion Paper, Area. It is important that an integrated approach a State Government Ministerial Task Force has be adopted between the transport agencies, other been established (convened by the Treasurer) to government agencies responsible for infrastructure addreSs private sector funding, and provision, of and service provision, and the responsible .public infrastructure, including the preparation of planning authorities (Department of Planning and guidelines. Housing and local government).

Page 49 In Chapter 7 a number of agencies which will take The MSCS role is to integrate the plans of a leading role in the implementation of the individual agencies and consider them in the Transport Strategy are identified. A commitment context of overall metropolitan development, both to this lead agency role, therefore, will need to be as it is now and as it is expected to change. developed within the transport agencies if the successful implementation of the actions is to be Key working groups established by the MSCS achieved. Each agency will need to assess its include: required input and establish internal arrangements to ensure that its responsibilities are met. • Physical infrastructure • Human services The lead agency nominated for each action in • Local government. Chapter 7 has been selected on the basis 'that it is in the best position to initiate and co-ordinate the The co-ordination and timing of implementing planning and implementation activities associated transport infrastructure and services, as contained with a particular action. in the Transport Strategy, should be linked with the MSCS process and its Land Release Program. Local Structure Plans The Land Release Program, which takes into A key step to transforming the South Eastern account the urban development proposals for the Growth Area Plan, incorporating the Transport growth areas, should be used as part of the Strategy, into a practical guide for individual process, by the transport agencies, of translating landowners and developers will be the preparation the transport strategy proposals into forward look of Local Structure Plans. agency works.

Transport agencies will need to liaise closely with other government agencies, the Councils of 8.3 Transport Services Programming Berwick, Cranboume, Pakenham and developers to ensure that the Local Structure Plans not only The transport studies to date for the three priority reflect the transport principles established in the growth areas (Plenty Valley, Werribee and South­ Growth Area Plan, but also develop standards for Eastern) have set the scene for the next 30 years enhancing the safety, operation and amenity of or so in terms of transport strategies to support the arterial and residential road networks. urban development in the metropolitan area.

These Local Structure Plans are also seen as It is now appropriate to translate the transport providing opportunities for determining developer strategy proposals into forward look agency works contributions for, amongst other things, transport within both the immediate and the 10 to 20 year infrastructure and services. time frames. The growth area projects need to be seen in the context of other worthwhile Metropolitan Services Co-ordination System metropolitan wide transport projects, especially for the road network. As part of the Government's Metropolitan Policy, a Metropolitan Services Co-ordination System At a strategic level, within the 10 to 20 year time (MSCS) was established to assist in the frame, it will be necessary to address: implementation of this policy, including development of metropolitan growth areas such as • possible directions and scales of urban the South Eastern. development, and the strategic transport services required to support such development; The MSCS operates on an annual cycle of monitoring development, forecasting demand and • appropriate metropolitan urban transport co-ordinating the provision of infrastructure with linkages and services; the rezoning of land for residential use. This information provides the basis for the Land • ways of including economic and social Release Program which aims to stabilise land implications of various levels of transport prices by maintaining a balance between supply services; and and demand.

Page 50 • direction for VIC ROADS and Public Transport Corporation programs in planning for integrated transport services.

8.4 Overall C.o-ordination and Monitoring

As previously indicated, the nominated lead agencies are responsible for implementing individual actions. However, the implementation of the Transport Strategy needs to be . co-ordinated and monitored on a broad level.

A South Eastern Growth Area Transport Co-ordination Committee will be established for this purpose. This Committee will :

• continually review, and modify where necessary, the Strategy to respond to future change in land uses and transport demands.

• assess the transport implications of major land use development proposals and their effects on the Strategy.

• advise on priorities for forward agency programs to ensure adequate funding for the provision of transport infrastructure and services.

• develop funding strategies and the setting aside of land for transport reservations.

The day to day management of the planning and implementation of the action plans would be the responsibility of the lead agency.

The active support of local business and the community is also important to the success of future development. To this extent, it is important that the Committee establish and maintain consultation procedures to inform of, and seek comment on, all ongoing aspects of growth area development.

The Transport Co-ordination Committee would report to the Department of Planning and Housing convened South Eastern Growth Area Liaison Committee - this Liaison Committee being responsible for the overall co-ordination of growth· area planning and implementation.

Page 51 APPENDIX 1 Legend

.;::. New Urban Development

Acti¥ity Centre freeway

Invest;gotton Area Primary Arterial

~ E.;sting Urban Zone Secondary Arterial Sub-Arterial ~ Zoned for Development ~. (Potential Bus Routes)

,0:

:t;,0

~:

.:.~

South Eastern Growth Area o , 2 .J 4 5" .... Scale~ Concept 1 Transport Network Legend

New Urban Development

o Activity Centre freeway Primory Arterial

~ Exi.ting Urban Zane Sec on dory Artericl Sub- Arterial @ Zoned for Development (Potential Bus Routes)

.j. ., South Eastern Growth Area

o , I 3 4 6~ Scale ~ Concept 2 Transport Network Legend .~

New Llrban Oevelopment ~~~in~e~e~:tions .- 0 Activity Centre -- freeway W Investlgotion Area Primary Arterial ~ Eltisting Urban Zone Secondary Arterial Sub-Arterial Zoned for Development //// (Potenlial Bus Routes)

:0:'

:-" "tI :- I» -- (JQ 0 ~ j

~:

~.

South Eastern Growth Area o , Z :J 4 5'- Scale ~H~Wi;;;;;Z~W~H~ Concept 3 Transport Network Legend

New Urban Development

o Activity Centre Freeway E5;!) Investigation Areo Primary Arterial

# Existing Urban Zone Secondary Arterial Sub-Arterial //// Zoned for Development ~" (Potential Bus Routes)

":"

' ....'

..: .. ~

South Eastern Growth Area o , 2 3 4 6'_ Scale ~~ Concept 4 Transport Network =: APPENDIX 2 Travel Time Contours to CBD Morning Peak Period

Whit tlesea

Melton

PORT PHILLIP BAY Cranbourne

Page 56 Travel Time Contours to CBD PublicTransport

St

Ringwood

Werribee Waverley

PORT PHILLIP Berwick, BAY

Note: Contours are based on public transport time tables.

Page 57 APPENDIX 3 1986 BASE

Number of Trips 83,410 Average Trip Length 21.8 km

LINEAR CONCEPT (Centralised Jobs)

Number of Trips 208,081 Average Trip Length 28.6 km

Page 58 CELLULAR CONCEPT (Centralised Jobs)

Number of Trips 259,016 Average Trip Length 30.1 km

NEW SETTLEMENT CONCEPT (Centralised Jobs)

Number of Trips 240,362 Average Trip Length 31.4 km

Page 59 CONTAINMENT CONCEPT (Centralised Jobs)

Number of Trips 215,342 Average trip Length 26.2 km

Page 60 2021 BASE (Centralised Jobs)

Number of Trips 133,059 Average Trip Length 22.5 km

PREFERRED CONCEPT (Centralised Jobs)

Number of Trips 191,811 . Average Trip Length 24.8 km

Page 61 2021 BASE (Suburban Jobs)

Number of Trips 133,093 Average Trip Length 21.2 km

PREFERRED CONCEPT (Suburban Jobs)

Number of Trips 191,807 Average Trip Length 23.5 km

Page 62 APPENDIX 4 EXTRACT OF MINISTER'S guidelines for accommodating buses in DIRECTION ON TRANSPORT established and future urban areas are to be followed. (Buses will be initially used to establish transport demand and routing.) Planning scheme amendments and local structure 8.4 Road System. In preparing planning scheme plans must be consistent with the transport amendments and local structure plans: framework shown in Figure 8. • a functional road hierarchy with 8.1 Planning scheme amendments and local appropriate abutting land use controls structure plans must support and promote must be included; the integration of land use and transport • clear linkages must be provided to systems. This integration will require minimise travel time and trip length; consideration of all land-based transport • roads and other transportation routes types, both private (motorised, cycling and must be located to mlDlmlse walking) and public (fIXed rail, buses, taxis environmental impacts on sensitive and community transport) on the basis of the areas; transport framework shown in Figure 8. • regard must be given to the report (Specific proposals in this plan are subject to Planning for Safer Subdivisions more detailed evaluation and financial distributed by the Roads Corporation of assessment) Victoria; • opportunities are to be provided to 8.2 Planning scheme amendments and local improve road links northerly towards structure plans must incorporate the the Lilydale Growth Area and westerly requirements of the Roads Corporation of towards the Frankston Growth Area. Victoria, the Public Transport Corporation, the Minister of Transport and the municipal 8.5 Pedestrian and Bicycle Movement System. council. Transport assets, which include Planning scheme amendments and local reservations and infrastructure, should be structure plans must: preserved. . • provide for a pedestrian and bicycle Development must be progressively phased network connecting major destination to provide an evolving, connected transport points and public transport facilities; system. Disjointed development must be • provide subdivision and road design avoided or mitigated by contribution to suitable for safe of bicycles and transport provisions. pedestrians.

8.3 Public Transport System. In preparing planning scheme amendments and local structure plans:

• adequate measures must be taken to include public transport requirements; • full advantage is to be taken of the existing rail facilities along the Pakenham line and an improved level of service along the Cranbourne line; • the road layout must maintain . continuity and connection, and provide the potential for direct and regular bus routes; • not less than 90 per cent of dwellings are to be within 400 metres walking distance of a potential bus route; • the Public Transport Corporation

Page 63 APPENDIX 5 The spacing of routes at 1609 metres is of SUBDIVISION LAYOUT FOR BUS particular interest because it corresponds to the OPERATION one-mile grid of roads prevalent in Melbourne. The sketch attached shows one possible layout that fulflls the criteria and can be operated with OVERVIEW just two buses as before. The average density of development is 3910 people per square kilometre The Australian Model Code for Residential which is nearly 50% higher than normal densitie~ Development suggests that: in Melbourne. The land away from the bus routes 'not less than 90 per cent of dwellings should be can contain larger sized lots (up to 1218 square within 400 metres from a proposed bus route'. metres) and other uses such as:

Such a criteria can be met by many arrangements: (1) primary schools; some are explored below. (2) select institutions; (3) sports ovals; (4) golf course; STANDARD DESIGN (5) training track; (6) parks. Experience indicates that bus operations are normally supportable for suburbs with 20,000 people. Six (6) buses are typically required to RESULTS operate in such an area, delivering primarily a local service (to schools and shops) and a feeder The results show that operating the standard service to a rail station. design with higher densities cuts the public transport operating cost proportionately, without A calculation confirms that given ideal conditions, loss of service. At a bit under 400 square metre as few as two (2) buses could give a reasonable lot sizes, one bus could cover the area at the same operation, with three parallel routes covering the frequency as before and with the same peak hour area at a spacing of 888 metres (90% within 400 loading: the route length is substantially shorter. metres .. ) and an average lot size of 700 square People would experience less travel time. No metres. The routes would extend 2.78 kilometres allowance has been made for some passengers and could be covered at half hourly intervals using choosing to walk instead of ride: these should be two buses on a 16.7 kilometre per hour scheduled offset against more people choosing to ride than speed. The average peak hour loading on a bus drive because of the superior transit. would be just under 30, which is a reasonable design condition in the circumstances. This ideal Increasing the spacing of routes leaves the basic layout can form a standard against which to assess characteristic unchanged: there is just more space other layouts.

VARIATIONS FROM THE STANDARD DESIGN

Lowor thon Variations from the standard design are assessed don lit)'. )IOOOm2 below. The variables are: §~ (a) lot size (300,400, 500, 600, 700 800); O~ (b) route spacing (888, 1000, 1609); (c) number ofroutes (2 or 3); /IIIIf/-- (d) number of directions of routes (1 or 2).

Tables of results of the various combinations of variables are attached. The computer program generating these results is also attached.

Page 64 in between. The one-mile spacing requires 400 RESULT DETAILS AND PROGRAM square metre lots along the bus routes in order for the overall density to be about the same as > 90 % of all lots within 400 metres of a potential bus route before. WTSEU90N 02,26-'99' 17:05:" Bus routes In , dlrectlon/s 3 bus routes In basic direction Decreasing the number of routes (from 3 to 2) '9" lots wtthln 400 metres per route concentrates the loads and requires 3 buses (if the Extent of route 2,6 km '6.7 kph schedule speed requires one bus for an hourly service 30 ' passenger design condition is to be 59 peak hour loading per route maintained). This has the advantage of operating Assuming design loading of 30 passengers 2 buses for standard 10K 700sqm area on an improved frequency (20-minute service). Bus spacing (metres (0 to end)- 666 Basic ratio- 0.90' Density ratio- '.000 Av lot sIZe w/l (sq m)- 300 400 500 600 700 600 Operating routes in two (orthogonal) directions Internal lot size <- 300 400 500 600 700 600 makes more use of the available land but Population In square - 4952 37'4 2971 2476 2'22 '657 People/sqkm - 6260 47'0 3766 3'40 269' 2355 complicates the calculations. There is overlap in KIn of each route -",9 '.59 '.99 2.39 2.79 3.'6 bus-route catchments: buses must run over People/bus-km - 279' 2093 '675 '396 "96 '047 Buses per 10K people - 0.64 '.'2 '.40 '.69 '.97 2.25 sections without additional revenue. A simple Bus spacing (metres (0 to end))- '000 regime was estimated where the basic linear route Basic ratio- 0.600 Density ratio- 2.250 Av lot size w/l (sq m)- 300 400 500 600 700 600 just deviated at each square and went down the Internal lot size <- 675 900 "25 '350 '575 '600 square the minimum distance to cover the higher Population In square - 5562 4'67 3349 279' 2392 2093 People/sqkm - 5562 4'87 3349 279' 2392 2093 density lots along the arterial road. The advantage KIn of each route -",9 '.59 '.99 2.39 2.79 3.'6 of additional choice of route and flexibility in People/bus-km - 279' 2093 '675 1396 , '96 '047 Buses per 10K people - 0.64 ",2 '.40 '.69 '.97 2.25 operation would be foregone in favour of keeping Bus spacing (metres (0 to end))- '609 the operating cost to a minimum. The only Basic ratio- 0.497 Density ratlo- 9. '0' Av lot sIZe w/l (sq m)- 300 400 500 600 700 600 scheme that appeared reasonable under these Internal lot size <- 2730 3640 455' 546' 637' 726' circumstances was the one sketched. Population In square - 6962 6736 5369 449' 3649 3366 People/sqkm - 3469 2602 2062 '735 '467 '30' Km of each route - '.'9 '.59 '.99 2.39 2.79 3.'6 People/bus-km - 279' 2093 '675 '396 "96 '047 Buses per 10K people - 0.84 ",2 '.40 '.69 '.97 2.25 CONCLUSIONS Bus spacing (metres (0 to end))- 0

Two conclusions emerge:

> 90 % of all lots within 400 metres of a potential bus route (A) parallel bus routes are likely to be most WTSEU90N 02-26-'99' 17:05:'4 Bus routes In 2 dlrectlon/s efficient; 3 bus routes In basic direction '9" lots within 400 metres per route Extent of route 2.6 km (B) practical schemes meeting the criteria are '6.7 kph schedule speed requires one bus for an hourly service possible with bus routes confmed to a one-mile 59 peak hour loading per route Assuming design loading of 30 passengers grid of arterial roads. 2 buses for standard 10K 700sqm area Bus spaCing (metres (0 to end))- 666 Basic ratlo- 0.990 Density ratio- '.000 Av lot size w/l (sq m)- 300 400 500 600 700 600 Internal lot size <- 300 400 500 600 700 600 Population In square - 4952 37'4 297' 2476 2'22 '657 People/sqkm - 6280 47'0 3766 3'40 269' 2355 Km of each route -'.73 2.3' 2.69 3.47 4.04 4.62 People/bus-km - '924 '443 "54 962 624 72' Report by William Taylor Buses per 10K people - '.22 '.63 2.04 2.45 2.65 3.26 Public Transport Corporation Bus spaCing (metres (0 to end))- '000 Basic ratio- 0.960 Density ratio- , .000 Av lot size w/l (sq m)- 300 400 500 600 700 800 Internal lot size <- 300 400 500 600 700 600 Population In square - 6260 4710 3766 3'40 269' 2355 People/sqkm - 6260 4710 3766 3'40 269' 2355 Km of each route - '.62 2.'6 2.70 3.24 3.76 4.32 People/bus-ilm - 2059 '544 '235 '030 662 n2 !uses lJer 10K people. 'i:14 1.:;:.1 1.90 2.:.19 2.67 3.05 Bus spacing (metres (0 to end)- '609 Basic ratio- 0.747 Density ratio- 3.045 Av lot size w/l (sq m)- 300 400 500 600 700 600 Intemallot sIZe <- 9'4 '2'6 '523 '627 2'32 2436 Population In square - '3496 '0'23 B099 6749 5765 5062 People/sqkm - 52'4 39'0 3'26 2607 2234 '955 Km of each route - '.39 '.66 2.32 2.76 3.25 3.71 People/bus-km - 2395 1796 '437 "97 '026 696 Buses per 10K people - 0.96 '.3' '.64 '.96 2.29 2.62 Bus spacing (metres (0 to end»- 0

Page 65 > 90 % of all lots within 400 metres of a potential bus route > 90 % of all lots within 400 metres of a potential bus route WTSEU90N 02-28-1991 17:05:16 WTSEU90N 02-28-1991 17:05:19 Bus routes In 1 dlrectlon/s Bus routes In 2 dlrectlon/s 2 bus routes In basic direction 2 bus routes In basic direction 2866 lots within 400 metres per route 2866 lots within 400 metres per route Extent of route 4.2 km Extent of route 4.2 km 16.7 kph schedule speed requires one bus lor an hourly service 16.7 kph schedule speed requires one bus for an hourly service 89 peak hour loading per route 89 peak hour loading per route Assuming design loading 01 30 passengers Assuming design loading of 30 passengers 3 buses lor standard 20K 700sqm area 3 buses for standard 20K 700sqm area Bus spacing (metres (0 to end))- 888 Bus spacing (metres (0 to end))- 888 Basic ratio- 0.901 Density ratio- 1.000 Basic ratio- 0.990 Density ratio- 1.000 Av lot size w/l (sq m)- 300 400 500 600 700 BOO Av lot size w/l (sq m)- 300 400 500 600 700 800 Internal lot size <- 300 400 500 600 700 BOO Internal lot size <- 300 400 500 600 700 800 Population In square - 4952 3714 2971 2476 2122 1857 Population In square - 4952 3714 2971 2476 2122 1857 People/sqkm - 6280 4710 3768 3140 2691 2355 People/sqkm - 6280 4710 3768 3140 2691 2355 Km of each route - 1.79 2.39 2.99 3.58 4.18 4.78 Km of each route - 2.60 3.47 4.33 5.20 6.06 6.93 People/bus-km - 2791 2093 1675 1396 1196 1047 People/bus-km - 1924 1443 1154 962 824 721 Buses per 20K people - 1.26 1.69 2.11 2.53 2.95 3.37 Buses per 20K people - 1.83 2.45 3.06 3.67 4.28 4.89 Bus spacing (metres (0 to end))- 1000 Bus spacing (metres (0 to end))- 1000 Basic ratio- O.BOO Density ratio- 2.250 Basic ratio- 0.960 Density ratio- 1.000 Av lot size w/l (sq m)- 300 400 500 600 700 BOO Av lot size w/l (sq m)- 300 400 500 600 700 eoo Internal lot size <- 675 900 1125 1350 1575 1800 Internal lot size <- 300 400 500 600 700 800 Population In square - 5582 4187 3349 2791 2392 2093 Population In square - 62BO 4710 3766' 3140 2691 2355 People/sqkm - 5582 4187 3349 2791 2392 2OS3 People/sqkm - 62BO 4710 3768 3140 2691 2355 Km of each route - 1.79 2.39 2.99 3.58 4.18 4.78 Km of each route - 2.43 3.24 4.05 4.66 5.67 6.48 People/bus-km - 2791 2093 1675 1396 1196 1047 People/bus-km - 2059 1544 1235 1030 882 n2 Buses per 20K people - 1.26 1.69 2.11 2.53 2.95 3.37 Buses per 20K people - 1.71 2.29 2.B6 3.43 4.00 4.57 Bus spacing (metres (0 to end))- 1609 Bus spacing (metres (0 to end))- 1609 Basic ratio- 0.497 Density ratio- 9.101 Basic ratio- 0.747 Density ratio- 3.045 Av lot size w/l (sq m)- 300 400 500 600 700 eoo Av lot size w/l (sq m)- 300 400 500 600 700 BOO Internal lot size <- 2730 3640 4551 5461 6371 7281 Internal lot size <- 914 121B 1523 1827 2132 2436 Population In square - 8982 6736 5389 4491 3849 3368 Population In square - 13498 10123 8OS9 6749 57B5 5062 People/sqkm - 3469 2602 2082 1735 1487 1301 People/sqkm - 5214 3910 312B 2607 2234 1955 Km of each route - 1_79 2.39 2.99 3.58 4.18A.7,8 'Km of each route - 2.OS 2.7B 3.48 4.18 4.B7 5.57 People/bus-km - 2791 2093 1675 1396 1196 1047 People/bus-km - 2395 1796 1437 1197 1026 89B Buses per 20K people ,- 1.26 1_69 2.11 2.53 2.~ 3.37 .. Buses per 20K people - 1.47 1.96 2.46 2.95 3.44 3.93 Bus spacing (metres (0 to end))- 0 " Bus spacing (metres (0 to end))- 0

100 DS-'WTSEU90N ":REM 8N90 " +_ 104 OPEN "1",1,'WTSEU90N.lN":INPUT "1,HS:INPUT "1,HS:INPUT "1,P,C,PH 105 PRINT ">";100*P;''% 01 all lots wlthln";C;" metres 01 a potential bus route":PRINT D$;DATES;" "TIMES 106 DIM 1(6),N(6),D(6),G(6),E(6),N1(6),EA(6) 107 INPUT "1,BR:PRINT "Bus routes In ";8R;" dlrectlon/s" 108 INPUT "1,RS:PRINT RS;" bus routes In basic direction" 10S GOSUB 3OO:PRINT USING """""";BS;:PRINT" buses lor standard 20K 700sqm are,a" 110 INPUT "1,S:PRINT "Bus spacing (metres (0 to end))-";S 111 IF 5-0 THEN 198 112 A-S*S 115 W-2*(S*C+(BR-1)*(S-2*C)*C) 120 K-W/A 125 R-1 :IF K

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