Melbourne Docklands Draft Strategy For Redevelopment: Copy 2

MELBOURNE DOCKLANDS
DRAFT STRATEGY FOR REDEVELOPMENT
:,·
November 1991
711.5
099451
DOC
draft
strategy DOCKLANDS
TASK FORCE
copy 2
ERRATUM
Page 56, Revised Evaluation table, Option 4 should
read minus $Um and minus $19m.
Revised Financial Evaluation

(Net Present Value)
Strategic Options Evaluation Revised Evaluation
Option 1 $127m $1llm

Option 2 $74m $52m
Option 3 $66rn $40m
Option 4 - $Urn -$19m
711 .5 8559012
099451 DOC Melbourne docklands :
draft strategy draft strategy for
copy 2 redevelopment
Melbourne Docklands - Draft Strategy !or Redevefopment
J
Table of Contents ·
·( <
Executive Summary 1
l Section One
\\ 1.1
1.2
Introduction
Policy Context
11
14 i
Section Two
J
~! 2.1 Docklands Site Description '---- 22
r
·. 2.2 Docklands Authority 23
2.3 The Consultation Framework 26
2.4 Major Consultation and Research Input . 31
2.4.1 Urban Policy and Priorities 31
2.4.2 The Port 34
!
2.4.3 Housing 36
J.
2.4.4 Open Space 39
2.4.5 Other Land Uses 42
2.4.6 Urban Design ·49
,-,l
2.4.7 Heritage 51
2.4.8 Environment 5?--
2A.9 Transport 58
2.4.10 Staging .70
2.4.11 Finance and Investment· 72
I.
<
Section Three
3.1 Strategic Issues: Discussion 77
3.1.1 Docklands in the Broader Planning and 77
Development Context
;I
3.1.2 Metropolitan Traffic and its Implications for Docklands 81
3.1.3 Deciding Among Land Uses 85
3.1.4 Staging 87
3.1.5 Heritage 94
. ' 3.1.6 Implementation 95
Section Four
A Strategy for Docklands 99

4.1 Principles for Docklands Redevelopment 100
·~o; ·· ..
Melbo.urne Docklands - Draft Strategy for Redevelopment.
4.2 TPe Draft Strategy 103

4.2.1 Land Uses 103
4.2.2 Jnfrastructure 108
4.2.3 The-Character 118
4.3 The Phases of Development 121

4.3.1 First Actions: Raising Community Awarenes 121
4.3.2 Possibilities in the Next Decade: The Start 124
of DeV,elopment ,
~ \~
- <.,
4.4 Next Steps of Public Comment on Docklands 128
Appendix One
List of Submissions 131
Appendix Two
List of Working Papers and Related Documents · · 137
Appendix Three ,
February Newspaper _Insert~ 143
List of Figures
Number Title
1. Docklands within central Melbourne · 4

2. Existing Land lJses ~ .12
3. Docklands: The-Si~ 21
4. Open Space Wetlands at Moonee Ponds Creek Estuary: a new park for inner Melbourne 40
5. Retail, Tourism and Entertainment on Central Pier 45
6. Comparison of Western Bypass Extension Options 82
7. Webb Dock Rail Line Route Options 84
8. The Port of Melbourne 88
9. Land Release Areas 89
10. The Strategy: Land Use 104
Melbourne Docklands - Draft Strategy for Redevelopment
11. Residential . 105

12. Open Space 105
13. · Entertainment, Leisure and Tourism 106
14. Office 107
15. Retail 107
16. Education and Research 108
17. Industry 108
18. The Strategy: Access and Movement 109
19. Proposed Road Network 113
20. Tram Services 114
·21. Places of Heritage Significance 119
22. Views to Western Bypass Bridge 120
23. ·Landmark Sites and View Corridors/Key Sites 120
24. Suggested Maximum Building Heights ·121
25. First Actions 122
26. Possibilities in the Next Decade 123
27. Possible Developments in the Next Decade 125
. ~ - ·.':.
Executive Summary
This report Melbourne Docklands: Draft The significance of this section of the report lies in
Strategy for Redevelopment has been derived establishing a public record of input, and outlining
from three critical and related inputs: the Task the ideas, concerns and perspectives which in
Force's understanding of the current policy context various ways have been absorbed into Task Force
at all levels; research and other work carried out by thinking.
or on behalf of the Task Force; and the public Section Three focusses on the key strategic
consultation processes carried out earlier this year, issues to emerge from this previous body of
based around the Task Force's first report information. The Task Force has concentrated on
Melbourne Docklands: Strategic Options. This those issues which are both complex and central to
report presents the Draft Strategy for further public the development of a Strategy. The degree of
discussion. community concern expressed was also a
consideration in identifying strategic issues.
Structure of the Report The strategic issues identified in this way are:
Much of the report attempts to describe the way in •Docklands and its place in the broader planning
which the ideas expressed in the Draft Strategy debate;
developed. • metropolitan traffic implications for Docklands;
Section One focusses on the overall policy • what land uses are possible at Docklands and how
context in which planning for Docklands is being decisions can be made appropriately;
undertaken.
• the timing of land release and the catalysts for
Section Two provides a detailed account of the development;
major issues raised with the Task Force during the
public consultation undertaken earlier this year. As • the role which heritage could or should play in the
well as attempting to accurately represent the wide character and design of Docklands;
range of views expressed to the Task Force, this • implementation.
section also presents expert and other advice
Some of these may remain unresolved for some
received by the Task Force which is relevant to the
time, while others can be dealt with more readily.
issue being discussed.
This section sets out to analyse and discuss these
While a great deal of information was gleaned issues, recognising that current policies and
from the consultation, the Task Force found it was intentions may well change during the 20-30 years
possible to organise the consultation feedback over which Docklands wiU be developed.
around several themes:
Section Four outlines the Draft Strategy itself
• Urban Policies and Priorities and includes draft principles to guide development
•The Port at Docklands.
•Housing
•Open Space
• Other Land Uses
• Urban Design
•Heritage
• Environment
•Transport
•Staging
•Finance and Investment
2 Melbourne Docklands - Draft Strategy for Redevelopment
Principles for Development

The public consultation has yielded a wealth of
insights and, on various important issues, a
reasonable degree of consensus. When assessed also
in the context of other research and policy analysis,
and in the light of key assumptions and Government
objectives, it is possible to identify a set of principles
which could govern future planning and
redevelopment of Docklands.
Six principles have been identified to date. While
they are listed separately, it is important to
appreciate the links from one to another. The Docklands could extend the ring of open space around Melbourne
principles proposed here are intended to be the

subject of further public debate and discussion. • developments in Docklands should seek to
contribute to its surrounding communities
1. Public Access beneficially;
There is something special about Docklands that
• the future planning of Docklands will need to
belongs to everyone. It should offer an enriched
enjoy a consonance with wider metropolitan
residential, recreational and working environment
planning and infrastructure investment across the
for future generations of Victorians. This is not just
metropolitan area.
a question of physical access. It will also mean
looking at ways (such as through housing policy) 3. Carefully Managed Diversity
which enable access to residential, work and leisure Its central location, proximity to the waterfront and
opportunities. The wider public's access to excellent transport infrastructure make Docklands
Docklands should be actively supported in a variety an ideal location for carefully managed mixed
of planning and design strategies by: activity - economic, social and cultural. This
• creating public space and opening up the principle can operate in a number of ways, by:
waterfront to Melbourne, providing for land uses •providing for a mix of land uses which include
which encourage the use of water and water activities that meet economic as well as other
frontages and continuous public access; improving social and cultural policies;
access to the Yarra River upstream by ensuring
that roads, railways and bridges enable the • recognising the importance of the working Port of
continued use of the river; Melbourne to the Victorian economy;
• development of an interconnected system of streets •providing a range of housing opportunities;
and open spaces which enhance pedestrian • capturing and maintaining the architectural and
movement and bicycle access; urban design values which have contributed to
• providing housing opportunity which genuinely Melbourne's reputation as one of the world's great
enables a range of housing type and price. Victorian cities.
2. The Wider Integration of Docklands 4. Sustaining Heritage Values

Planning There are significant heritage values associated with
The Docklands should not be planned for in isolation the Docklands site which should be captured and
retained in future planning and development of its
from the rest of the State. This principle of wider
mixed uses. There needs to be a recognition of:
integration can be addressed in a number of ways:
• the character of Docklands as a maritime and
• as a new part of inner Melbourne, there will need
freight centre; its significance in terms of colonial
to be a linking of Docklands with the existing CAD
public sector infrastructure investment; and its
and surrounding municipalities; there should be
social history;
new activities and opportunities for residents from
these municipalities; • the Yarra which is the central feature in the
original siting of Melbourne and has played a
Melbourne Docklands - Draft Strategy for Redevelopment 3
primary role in the history of Docklands; 6. Maintaining Good Public

• Koorie interests. Processes
5. A Capacity for Careful Innovation The existence of good public processes is critical to
the future planning and redevelopment of
The vision of Docklands which sees it contributing to Docklands. Such processes involve more than
economic prosperity as well as enriching the formal consultation methods and techniques. They
residential, recreational and working environment of refer instead to the ways in which the various ideas,
people will, in an important sense, be predicated on interests, perspectives and concerns in the wider
the capacity to innovate, to entertain new ideas and public realm can be reflected and accounted for
to test out carefully the various possibilities. This consciously and accurately in Docklands planning
capacity for innovation is potentially relevant in a and redevelopment. While this will be largely a
number of important ways, such as in the approach responsibility of the Docklands Authority, it must be
taken to: recognised that other private and public sector
• housing policy and the issue of equity and agencies will also play roles in developing and
affordability. This may well suggest innovative implementing proposals at Docklands. At a
financial proposals which assist a range of income minimum, it will be important to maintain two key
groups to access medium density housing; conditions over the period of Docklands
• urban design and construction so as to incorporate redevelopment:
energy and water conservation and waste • ongoing working relationships with all interested
management goals; and relevant parties, including those drawn from
• new technology; the private sector, community-based
organisations, State and local government
• development of a vibrant character based on mixes instrumentalities and professional organisations;
of uses in a more "European" style than is typical
of Australian cities. • coherence and continuity in consultation programs
which accompany specific proposals at Docklands.
These Principles serve to encapsulate a vision for
Docklands. It is the intention of the Draft Strategy
to achieve consonance with these Principles and to
present a vision which may be achieved through
land use, a range of infrastructure proposals and the
achievement of a particular character. These are set
out in the following pages .
Docklands should provide a range of housing opportunities

Docklands Within Central Melbourne
1 0 5 10
·-~-~-~J~~--~~----.~--_,.~---.......i~--------~--~-------·
scale of kilometres north
Docklands with in central Melbourne

Draft Strategy for Redevelopme nt
5
Melbourne Docklands -
Draft Strategy
The future of Docklands is the vision of Melbourne
enriched by the waterfront, adding new vitality to
the central city. Docklands would be a place which is
different and distinct from the Central Activities
District. Yet it would contribute to the vigor of our
city by providing a mix of activities that attract
people to the centre of Melbourne - to live and to
work, for leisure and for tourism. Docklands would
add a new dimension to Melbourne's character.
The strategy for Docklands outlined in this
document takes a very flexible approach. Land at Docklands - a unique waterfront site on the edge of the Central Activities
Docklands will become available for new uses over District
several decades. Clearly, it is not appropriate for Open Space
the Task Force to determine in detail the best use
for ]and that is not available for ten or twenty years. Central Melbourne is already partially ringed by
many fine parks. The water itself is open space and
Nevertheless, a number of key features emerge incJudes Victoria Harbour and the Yarra River and
from the Draft Strategy. These features would its banks.
define Docklands once it is fully redeveloped.
The area around the mouth of the Moonee Ponds
The key features are described below and fa)] into Creek could be developed as a major wetlands and
three main groups: the former gasworks site could be developed as
1.land use - the range of activities that another major park, possibly of a more traditional or
would take place at formal nature.
Docklands;
2.infrastructure - the physical and social Walking and bike paths could provide continuous
services required to access to the waterfront and link major areas of
support new activities, for parkland in and around Docklands.
example, roads; Smaller parks, plazas and squares could be
3.character - the unique or significant scattered throughout the area.
characteristics of Docklands. Entertainme nt, Leisure and Tourism
1. Land Use Development at Docklands wiJl give Melbourne a
Docklands will incorporate a range of new land uses. magnificent new waterfront which has enormous
The most significant land uses and possible sites are potential for activities related to entertainment ,
summarised below. It should be noted, however, that leisure and tourism.
many sites are appropriate to more than one ]and North Wharf, Central Pier and several of the
use and, indeed, that a more mixed development existing port and rail buildings would be suitable
than is typical of Melbourne suburbs may emerge. locations for these activities. Tourist development
Housing would also be appropriate dose to a redeveloped
Spencer Street station (Transport Interchange) and
Docklands could provide housing for many
an exhibition/entertainment area with a casino could
thousands of people, especially if medium to high
be developed adjacent to the World Trade Centre.
density housing is built. Housing should be
targetted to the widest possible market and include Commercial
a minimum of 10 per cent public housing. Some commercial development including both office
Primary sites for housing are: and retail activities would be appropriate. A key
location is the area adjacent to the redeveloped
•along South Wharf; Spencer Street station (Transport Interchange).
• on the south side of Victoria Dock; Commercial development could also provide a buffer
• adjacent to the proposed campus area overlooking on majot·arterial roads.
Victoria Dock;
• set back from the Footscray Road arterial.
Education and Research Roads

A new campus area and associated facilities could be Through-traffic should be directed away from
well-situated at Docklands. An appropriate site has Docklands via extension of the proposed Western
been identified on the north side of Victoria Dock Bypass. Footscray Road would be converted to a
extending to the estuary ofMoonee Ponds Creek. boulevard and a new north-south road, referred to as
Industry Docklands Road, constructed adjacent to the rail
corrider.
Transport and freight industry are already active at
Docklands. Some areas, for example, next to East-west access is also necessary, both for
Footscray Road and Appleton Dock Road and in the transport reasons and to open the city up to the
south near the West Gate Freeway, will remain- waterfront. Collins and La Trobe Streets could be
industrial. Research-based industry could be located extended into Docklands.
in proximity to the campus area. Other Services
2. Infrastructure Development at Docklands would allow more
Transport efficient use to be made of existing infrastructure
and investment in inner Melbourne. For example,
Public Transport providers of human services consider that, in most
Movement in and around Docklands should be cases, a new population at Docklands could be
dominated by use of public transport - trains, trams, catered for without substantial new investment.
buses and, perhaps, water taxis and ferries. Local schools, hospitals and health centres have
Docklands should also be a place that is comfortable adequate capacity. It should also be noted that the
to cycle and walk around and be accessible for people range and quality of services available in inner
with disabilities. Melbourne are excellent, especially when compared
Transport Interchange with fringe areas.
The redevelopment of Spencer Street station Other physical services can be readily supplied at
provides an outstanding opportunity for the no penalty compared with supply in fringe areas.
integration of different transport modes which 3. Character
service the city, the metropolitan area and the whole
State of Victoria. It should include a new coach Vitality
terminal and retail and office facilities and provide Docklands would be a place where thousands of
easy connections between inter and intra-state and people live and to which many more come for work,
suburban rail services, buses, trams and taxis. study or for recreation and pleasure. Docklands
Another key facility could be a terminus for the would be a place of social diversity. It would develop
proposed Rapid Transit Link from Melbourne a lively, bustling character.
Airport. Maritime
The best location would be on a Collins Street Docklands will adjoin a major functioning port and
frontage. is itself a waterfront area. Maritime activities would
therefore be a feature of the area and contribute
strongly to its own character and that of central
Melbourne.
Heritage
The heritage of the port should be reflected in the
design and buildings of Docklands. Important
historic buildings and structures should be
rejuvenated and recycled for new uses.
Human Scale
Docklands will be a place to which people are
attracted because of the variety of activities which
take place there. It should also be designed and
Movement dominated by public transport

built on a human scale, that is, at a scale with which These will be held on:
people feel comfortable and can understand. - Tuesday 10 December from 7.30pm to 10.00pm,
Environment at the Assembly Room, Footscray Town Hall, cnr
The urban design of Docklands should reflect Hyde and Napier Streets, Footscray.
advanced practice in minimising pollution and - Wednesday 11 December from 7.30pm to
greenhouse gases, managing waste, conserving 10.00pm, at the Liardet Community Centre, cnr
energy and water and protecting and enhancing Nott and Liardet Streets, Port Melbourne.
varieties of flora and fauna. Significant, varied - Thursday 12 December from 4pm to 6.30pm
areas of open space would also be a feature. Melbourne Water (MMBW) Theatrette, 625 Little
Collins Street Melbourne.
Next Steps of Public At each of these public seminars, the Task Force
and Docklands Consultation Steering Group are
Comment on Docklands particularly interested in people's contributions to
The release of the Draft Strategy heralds the the main parts of the Draft Strategy, notably:
commencement of the second phase of public
• the presentation of public input (its accuracy and
consultation. Whereas the first phase canvassed a
comprehensiveness);
wide range of ideas and concerns and explored in
relatively general terms several options for • the appropriateness of the proposed set of
Docklands, this second phase provides the principles for Docklands redevelopment;
opportunity for public comment on the progress of • the identification and discussion of strategic
the Task Force to date in developing a strategy for issues;
Docklands.
• the Draft Strategy's more specific treatment of
This second stage will also provide an opportunity, land uses, infrastructure and character as they
where appropriate, for the Docklands Authority to relate to the future of Docklands.
become well-versed in the background, current
Beyond these agenda items, there will be of course
public response and matters relating to the
other matters relating to the finalisation of a
finalisation of a strategy for Docklands.
Docklands Strategy which people may wish to raise.
The Approach People seeking to submit written responses in any
The second phase of consultation will have three form would need to do so by 31December,1991.
parts: For further information and/or further copies of
(i) A press launch to announce the public release the Draft Strategy report, please contact:
of the Draft Strategy and provide a broad Docklands Task Force
outline of its main components; 11th Floor
(ii) Soon after the launch, a major public meeting 176 Wellington Parade
to which all participants thus far (and East Melbourne VIC 3002
new ones) will be invited to attend. The focus Ph: (03) 651 7895
will be on outlining the Draft Strategy; Fax: (03) 651 7890
describing the main lines of its development
since the earlier consultation; and providing
an opportunity for initial responses.
This will be held on Thursday 28 November
from 7pm to lOpm at the Royal Exhibition
Conference Centre (Mirrored Building) Nicholson
Street, Carlton.
(iii) Several localised public meetings for which
participants will have a choice of dates and
locations. The aim of these will be to provide
opportunities for closer and more detailed
discussion of the Draft Strategy.
0 "
0
1.1 Introduction
This report Melbourne Docklands: Draft The Strategy presented is not a detailed blueprint
Strategy for Redevelopment derives from three for development. Unlike the Strategic Options
critical and related inputs: the Task Force's report, it does not nominate what land use should go
understanding of the current policy context at all exactly where (although some locations are clearly
levels of Government; research and other work well suited to particular uses and are described as
carried out by or on behalf of the Task Force; and such). Rather, an approach has been adopted which
the public consultation processes carried out earlier recognises that development of Docklands will occur
this year, based around the Task Force's first report in a complex environment. This involves
Melbourne Docklands: Strategic Options. The identification of the key issues affecting
Draft Strategy has been shaped by the ideas, development and of the key decisions that will face
suggestions and concerns expressed by the the Government and the Docklands Authority,
community. particularly in the short term. Alternative land uses
The Draft Strategy is a consultation document. and the criteria that might be used to decide
It will be the subject of further public comment over between competing land uses are described, as are a
the next two months or so. It is expected that the set of principles which have emerged from the work
final strategy will be completed early in 1992.- carried out to date and can be used to inform
decision making about Docklands in the future.
This Draft Strategy is a quite different document Where the Task Force has developed a preferred
from Melbourne Docklands: Strategic Options.. alternative, in terms of infrastructure provision,
That report presented four development options for land use or some other matter, the arguments for
Docklands, aimed at stimulating public debate and this preference are provided.
discussion. Those options each contained a
reasonably detailed road network and suggested Importantly, there are a number of key issues
specific sites for different land uses, for example affecting the development of Docklands that are as
housing, open space and mixed use development. yet unresolved. Some issues may take several years
to resolve and new issues will also emerge over time.
The Draft Strategy places less emphasis on It is important to recognise that a high degree of
providing a physical plan for different land uses. complexity will continue to be a hallmark of
Whilst some directions for dominant land uses are Docklands development and to ensure that the
identified, many locations within Docklands are planning framework is flexible enough to
suitable for a range of uses and it may also be accommodate a more complicated chronology.
possible that a more mixed style of development is
appropriate at Docklands than is generally found in The process from which this report emerged is
Melbourne. Further, the fact that land at Docklands described in detail in Section 2.3, "The Consultation
will gradually become available over several decades Framework". Accompanying this process are a
means that it is not appropriate to be prescriptive number of key assumptions which guided the work
now about the best use for parcels ofland that may of the Task Force. These are set out below and are
not be available for ten, twenty or even thirty years. followed by the objectives for development of
Docklands provided to the Task Force by
The Draft Strategy, however, continues to be fairly Government. A discussion of the policy context
specific about road infrastructure, although more relevant to Docklands is then provided.
emphasis is placed on alternatives. Decisions about
the road network will have significant impact on
what sort of development proceeds, in what location
and at what time; significant amounts of money and
long lead'times are also involved and it is
appropriate therefore to give detailed consideration
to issues of transport infrastructure.
Key Assumptions
The following assumptions have guided the
development of this Draft Strategy. They have been
tested in the public consultation-phase, examined
through specific research, discussed in relation to
strategic issues and, finally, reflected in particular
ways in the outline of a Draft Strategy. The
assumptions are:
1. That there is redundant port and rail land
The Task Force has assumed that there is
redundant land in the Spencer Street rail yards and
that, over time, the Port will vacate facilities located
within Docklands boundaries. The issue considered
by the Task Force is therefore when, not if, land will
be available. Nevertheless, negotiations will
continue with the Port of Melbourne Authority
(PMA) about particular sites, notably land at the
mouth of Moonee Ponds Creek, which at this stage
the PMA argues it wishes to retain.
2. That the Port is important to the Victorian
economy and that the Port can relocate and
maintain or improve, productivity Existing Land Uses
The Port of Melbourne is of critical importance to

the Victorian economy. To impede attempts to today may not be appropriate in a future
improve efficiency by unnecessarily constraining the environment. Also, a particular parcel ofland may
Port would be as undesirable as the other extreme of be appropriate for a number ofland uses. A
failing to capitalise on the potential ofland which significant degree of flexibility must therefore be
might be transformed from port to other purposes. provided to ensure the best possible development
The timing of land release is clearly important in occurs.
this regard. 5. That the private sector has a vital role in
3. That the long term nature of land release providing funding for development
implies a staged approach Given the current economic and policy climate,
The Task Force has assumed that no land will be governments at all levels are likely to experience
released for redevelopment until the end of the strong competing demands on limited funds for some
economic life of the current facility has been reached time to come. Timing of Government expenditure
or leases have expired. This means that land will be will also be a significant issue. The Victorian
released gradually over a period of several decades Government has stated that significant investment
and that development will necessarily proceed in in infrastructure will be required to facilitate and
stages, according to land availability. Other issues encourage the development of Docklands and that it
affecting development, for example, the ultimate is neither possible nor appropriate for the Victorian
location of a casino, are currently unresolved. The Government to be the sole provider of this
way these issues unfold over time will have a direct investment. The Government has issued investment
impact on the nature and timing of different stages guidelines for infrastructure projects which could be
of development. privately funded either in full or in part
4. That flexibility is needed to accommodate
unforeseen developments
The long term nature of development also means
that opportunities will arise over time that cannot
be foreseen today. Proposals that appear rational
6. That the economic significance of Authority has publicly called for a permanent long-
possible new land uses is one important term solution to problems at Coode Island.
criterion for determining the balance of uses
to be established.
Government Objectives
Docklands is an area that, because of its The following objectives for development of
Docklands were provided to the Task Force by the
waterfront location, its proximity to the Central
Activities District (CAD) and other inner urban Government and have been used to guide
infrastructure and its role as a transport hub, o{fers development of the Draft Strategy.
significant economic opportunities. Whilst there is a • To use the opportunity provided by the waterfront
range of other, possible uses for the area that also location to increase the efficiency of existing land
benefit from its inherent qualities, economic uses and encourage new land uses and other
significance must be considered in evaluating the activities that:
mix of uses established. strengthen Melbourne's role as a prime
7. That land that is available early should be commercial, financial and research centre by
developed in ways which assist in facilitating major new developments in an
demonstrating what can be achieved at attractive waterfront environment, with
Docklands. strong links to institutions and activities in
Docklands consists of large tracts of waterfront other parts of the city, throughout Victoria
and beyond; ·
land immediately adjacent to the CAD. It is
therefore of intrinsic value and importance to develop transport and other infrastructure
Melbourne and should not be allowed to become which improves the competitive position of
derelict or underutilised. In this context, whilst the Melbourne and of Victoria as a whole;
entire area will only become available over several house a large, new population in central
decades, it is important to use land that is available Melbourne; and
early to build awareness of the overall importance of
the area. The fact that land is entirely in public attract people to central Melbourne for.
ownership underscores the importance of developing business, residence and leisure.
the area responsibly. • To ensure that any development:
a. That the waterfront will be opened up to is the outcome of an intensive and flexible
provide public access. public consultation program;
Docklands contains a large area of waterfront is of the highest possible urban and
which could bring great benefits to Melbourne in environmental quality;
terms of tourism and recreation and leisure for allows for growth in the Central Activities
Melburnians. The entire area is in public ownership District (CAD) in a way which preserves and
and development must ensure that the waterfront is enhances the unique character of the existing
publicly accessible. city;
9. That a long-term solution will be provided maximises benefits available through release
for problems associated with storage of bulk of under-utilised Government land to finance
liquids and chemicals at Coode Island basic infrastructure; and
The future of Coode Island has been the subject of
is properly integrated into existing
consideration by both the Port of Melbourne
neighbourhoods.
Authority and the Ministerial Task Force on
Hazardous Chemicals. Following major fires at
Coode Island in August, the Government has
established a Review Panel to determine the best
long-term solution to problems associated with
storage of bulk liquids and chemicals at this site.
The Task Force's work will take into account the
recommendations of the Review Panel when
available. The Chairperson of the Docklands
1.2 POLICY CONTEXT

Analysis of the policy context in which planning
for the development of Docklands is now occurring
reinforces the view of a complex, changing and, to
some degree, uncertain environment. Nevertheless,
policies at the Federal, State and municipal level do
provide focus and direction for a number of key
issues.
Government policy is expressed in many forms. It
is not restricted to policy documents but is also
found in press releases, speeches and statements to Docklands is part of a nationally significant transport hub
Parliament. Policy sets out clearly a Government's
views about particular issues or topics.
It is therefore important to adopt an approach
There is a great body of policy which could be seen which analyses policy in terms of issues, directions
as having some bearing on Docklands: economic and and conflicts, rather than looking for a detailed
urban policies including changing trends in "prescription" for development. A brief analysis of
Federal/State financial arrangements and Loan some of the major issues and directions is provided
Council borrowing restrictions, the emphasis on below.
improving the trade-exposed sectors of the economy,
micro-economic reform of transport infrastructure Economic Policy
and a growing awareness of the need to make better The need to restructure the Australian economy
use of existing urban infrastructure and halt the has been a key theme of recent years and a number
spread of cities. These are some of the key policy of aspects of economic policy have implications for
parameters which influence the way planning for Docklands.
Docklands is being carried out. Policies aimed at improving the performance of the
It must also be understood that the implications of trade-exposed sectors of the economy have led to a
various policies for Docklands are different. Some focus on the need to reform transport infrastructure.
policies set a broad context whilst other have direct Changes in waterfront and rail operations have
and specific implications. For example, policies resulted in identification of redundant facilities
related to micro-economic reform of transport which are available for redevelopment. Specific
infrastructure are basically of contextual importance initiatives, such as the National Rail Freight
to Docklands, whilst policies related to urban Initiative which provides for an integrated national
consolidation have direct implications, particularly rail freight system, play an important contextual
in terms ofland use. role. Similarly, waterfront reform emphasises the
It is also evident that there is no single body of need to improve efficiencies from port infrastructure
policy that provides a consistent framework for the and has led many to argue that further investment
sort of complex decision-making Docklands requires. by the Port of Melbourne, particularly in facilities at
On the question ofland use, for example, current Victoria Dock, is inefficient because of insufficient
policy supports a variety of competing uses at berth and terminal area, greater steaming and
Docklands. The policy context, not surprisingly, turnaround times and poorer transport links than in
reflects a complex world. The challenge is to other parts of the Port.
understand the broad directions and make informed At the same time, Docklands is part of a nationally
assessments as to the relative weighting appropriate significant transport hub and the requirements of
in particular circumstances. freight movement especially must remain of
Further, there is an inherent tension between paramount importance to planning for Docklands.
what today's policies might suggest and the fact that Docklands' role as a transport hub and its
parts of Docklands will not be available for proximity to other major infrastructure including
redevelopment for many years. It is clearly difficult the CAD and the academic and research facilities in
to predict the priorities Government policies at all Carlton and Parkville also suggest that certain
levels might set in ten, twenty or thirty years. industries could benefit from locating at Docklands.
Transport, communications, research, education, spread, significant penalties have been incurred in
t.ourism and leisure industries are some uses that terms of the cost of providing infrastructure,
would complement the physical characteristics of the environmental damage, particularly related t.o
site. Further, these are industries in which transport, and social inequality, in terms of access t.o
significant potential for growth and contribution t.o services and employment and social isolation. One
export earnings and employment have been important way of addressing these problems is t.o
identified. Nevertheless, a balance will need t.o be encourage higher residential densities in areas that
struck between the extent t.o which such industries are already supplied with infrastructure and
are encouraged t.o locate at Docklands, and the extent services. Docklands is clearly important in this
t.o which land is provided for other socially desirable context and work carried out on behalf of the Task
purposes such as open space and housing. Force suggests that there may be considerable
Another key trend of recent years has been the savings in infrastructure costs associated with
tightening of Government budgets and stringent development of housing at Docklands compared with
restrictions on Government borrowings at all levels. the urban fringe.
This situation is not envisaged t.o change for some The National Housing Strategy, which is currently
time, while demand for Government expenditure, assessing the current and future housing needs of
particularly on the urban fringe, continues t.o grow. Australians, also places great emphasis on the social
This means that large amounts of Government justice implications of unequal access t.o transport,
money are not likely t.o be readily available t.o fund services and t.o affordable housing. Indeed,
development, particularly for infrastructure, at development at Docklands has the potential t.o
Docklands. contribute t.o a host of social policy objectives which
It is clear that the private sect.or will be required t.o relate t.o providing access t.o housing, services,
take a strong role in the funding of development. transport, other infrastructure and employment. Its
The Vict.orian Government has stated that central location is fundamental in this regard.
development at Docklands must be demand-led and At the State level, the Department of Planning and
has announced general guidelines, which have Housing is developing an urban development
specific application t.o Docklands, for infrastructure strategy for Victoria. In the next forty years,
projects which could be privately funded in full or in Vict.oria's population is expected t.o grow by 1.5
part. million. The discussion paper Urban Development
Options for Victoria provided alternative scenarios
Urban and Social Policy for meeting this demand and sought public response
There is a number of broad trends in current urban t.o the ideas proposed. A draft strategy is expected in
and social policy which have implications for late 1991. This work will provide an important
Docklands. The Better Cities Program, announced in context t.o the development of Docklands and is likely
the last Federal budget, is based on a recognition of t.o supJ'.)ort development for reasons of urban
the importance of more effectively utilising existing consolidation. Nevertheless, Docklands will be just
urban infrastructure for environmental and social, as one factor affecting the broad development of
well as economic reasons. It is a three year program Melbourne and Vict.oria in the coming decades.
focussing on demonstration projects in medium
It is also important t.o recognise that arguments
density housing, provision of linking public transport
can be found within the current policy environment
and the generation of geographically-related job
t.o support a range of land uses at Docklands. The
opportunities. Allocation of funds will be considered
economic potential of the area is discussed above and
at a special Premiers' Conference in November and it
provision of housing is clearly a popular objective.
is underst.ood that emphasis will be placed on
There is also considerable support for the creation of
restructuring existing outer suburbs and new growth
open space. A range of clear policy directions, most
areas. Whether or not Docklands is a candidate for
recently expressed in the Open Space 2000 program,
funding under the Better Cities Program, the
supports provision of significant and varied areas of
rationale for the program provides support for the
open space at Docklands. Recreation and t.ourism
development of Docklands.
facilities and retail and commercial development are
Broadly speaking, the Better Cities Program is also consistent with current urban policies for central
based on the recognition that as our cities have Melbourne .. Whilst Docklands is a large site that can
l
'
accommodate a range of uses, achieving the most Docklands also provides an opportunity for
appropriate mix of uses will require careful innovative development, particularly in terms of
management over a lengthy period. minimising energy consumption of new buildings
Another dilemma is the extent to which and encouraging lifestyles that consume less energy
aspirations to preserve the heritage of the area, as and create less pollution. There is also a range of
expressed through a range oflegislation and specific policies dealing with issues such as
Government policy, should dictate development minimisation and management of pollution in all its
options. forms, management of contaminated soil and the
siting of new land uses away from activities that are
Finally, the way development decisions are made seen as noxious or-dangerous. In most instances
will be an important hallmark of the degree to which specific guidelines for dealing with such matters
Docklands meets social justice policy objectives. already exist. Nevertheless, development of new
Provision of greater access to public decision-making technologies and practices continues and Docklands
processes has been recognised by governments at all can also be seen as an opportunity to set new
levels as something increasingly expected by the standards for environmental management.
communities they govern and as contributing to · Therefore, the policy context for these more specific
more effective decision-making. The way the issues will remain dynamic.
concerns and aspirations of the community are
perceived to inform development at Docklands may Conclusion
thus become one of the measures of its success. The policy framework that surrounds Docklands is
complex. The challenge is to appreciate the dynamic
Environmental Policy
nature of our environment, to recognise the focus
It is being recognised increasingly that and direction provided by the current policy climate
environmental issues cut across all aspects of life and to analyse carefully those situations in which
and thus, in some senses, environmental policy conflict and complexity inevitably occur.
cannot be discussed separately from economic, urban
or social policy. Arguments in favour of urban It is possible to argue that current thinking about
consolidation, for example, rely greatly on the the need to better utilise existing infrastructure, for
adverse impacts of continuing current patterns of a variety of economic, social and environmental
car usage and clearing new tracts ofland for reasons, supports development of Docklands. At the
development. same time, the importance of Docklands' traditional
transport activities has not diminished and a range
The need to give priority to public over private of new land uses would seem to be appropriate to the
transport and to minimise car travel is one which site. Careful analysis ~nd good public processes will
has gained considerable recent attention and is a be required over a lengthy period to ensure that an
specific objective of the Central Area Transport appropriate mix ofland uses is established and the
Strategy (CATS). Another policy priority is to direct timing and funding of major infrastructure are
through-traffic away from the CAD. It is appropriately managed.
appropriate that Docklands be planned in such a
way as to encourage maximum use of public In this context, it is not appropriate to attempt to
transport by expanding and improving existing provide a detailed "prescription" for development. A
public transport infrastructure. more strategic approach, which identifies and
analyses key decisions and opportunities is required.
There is, however, a number of more specific
environmental issues that have implications for Structure of the Report
Docklands. Provision of open space in a variety of Against this background, the Draft Strategy is
forms is recognised as a priority because of the organised in the following way.
important economic and social, as well as
Section Two provides a description of the
environmental, benefits it brings. Provision of open
Docklands area and the newly established
space and traffic management are also important
Docklands Authority. The consultation framework
devices in the quest to minimise contribution to
is then outlined and is accompanied by a detailed
"greenhouse" gases.
presentation of the major consultation and research
input.
Section Three is then devoted to discussion of a

number of strategic issues deemed by the Task Force
to be of particular relevance and importance to the
development of a strategy for Docklands.
The Draft Strategy (Section Four) consists of a set
of principles to guide the future; a presentation of
the main elements with respect to land use,
infrastructure and the character of Docklands; and,
finally, an outline of some first actions which might
be considered. The document concludes with a
description of the next stage of public comment.
t
E:Z"'Z --=~::z:
=
OiI!lm~
l}l!mumJJm]~~ ~
~l! I ( fl;:g)
~filD!! (ffi
~~~
~~~~'8
I
I
,j
!
'
Melbourne Docklands ~ Draft Strategy for Redevelopment 21
. Docklands : The Site
scale ol kilometres
I·
north
Docklands: The Site

22 Melbourne Docklands - Draft Strategy for Redevelopment.
2.1 Docklands Site Description

Area Much of Docklands lies on land currently used for
port activities. The Port is the largest container port in
Docklands consists of about 300 hectares ofland and the southern hemisphere and is Australia's major
water at the western edge of the CAD. The area is general cargo port. The Port plays a significant role in
bounded by Spencer Street to the east, Footscray Road Victoria's economy in terms of trade, transport and
to the north and Lorimer Street to the south. employment.
The Strategic Options report considered Docklands in The Port of Melbourne Authority (PMA) is
the context of a wider area (the Greater Docklands responsible for providing berths and facilities for the
Study Area) to ensure full account was taken of the movement of cargo through the Port. Private op~rators
relationship of Docklands to surrounding areas. use these facilities, providing their own labour and
However the focus for development, and thus of the technology to load, unload and transport both overseas
Draft Strategy, is the area referred to as Docklands. (It and coastal trade cargo.
was called the Core Area in the Strategic Options
The eastern part of Docklands is occupied by railway
report).
land currently operated by the Public. Tiansport .
It should be noted also that the area discussed in this Corporation (PTC). Some of the area is redundant or
document is slightly larger than that designated under underutilised for rail purposes. The PTC has already
the Docklands Authority Act. commenced clearing part of the "Melbourne Yard" by
The entire area, with the sole exception of the former pulling up track.
railways administration building in Spencer Street, is . __ Further east is Spencer Street railway station where
publicly owned. country Victorian and interstate passenger services
terminate and connections can be made to suburban
passenger services including the underground Loop.
History Spencer Street station is linked by the rail viaduct from
Historically, much of Docklands was low-lying Flinders Street station at the south and by various
swamp bisected by the meandering lower reaches of the lines to the north to the South Dynon Container
Yarra River. The site of the original settlement of Terminal, the Dynon Freight Terminal and to northern
Melbourne was the point where a natural weir and western suburbs via North Melbourne.
separated tidal salt water from fresh river water, and a The Webb Dock Rail Line is a broad gauge line that
mooring basin in front of the former Customs House in connects Webb Dock to the South Dynon Container
Flinders Street was Melbourne's first harbour. Terminal. Its current alignment takes it along the
As trade and shipping grew, wharves developed on south bank of the Yarra, through the Melbourne Yard
both sides of the Yarra downstream of the growing and across Moonee Ponds Creek into South Dynon. ·
town. Although new settlements sprang up at
Williamstown and Footscray, the intervening,
unattractive land remained undeveloped. Today, the Roads
poor soil conditions and the pattern of early Docklands is serviced by a sparse skeleton of arterial
developl!lEtnt are reflected in the low intensity of use of roads which, while adequate for current activities, is
the land and the predominant activities of port, rail incomplete in terms of providing for proper road access
and associated businesses. Docklands is characterised . to and past the area, particularly in the north-south
by its very flat topography, a legacy of its swampy direction.
estuarine nature, with only slight rises towards North
On the north side of the Yarra, primary arterials
Melbourne, Kensington and Footscray. The highest
Dynon Road and Footscray Road provide the only east-
ground in Docklands is at the edge of the CAD, near to
west through and access routes. Both are major freight
the Flagstaff Gardens. Here, on a hill some thirty-five
routes, and Footscray Road is an over-dimensional
metres above sea level, signals were sent during
vehicle route. Some 35 per cent ofFootscray Road
Melbourne's early years to ships moored at
traffic is heavy vehicles. Dudley Street, in West
Williamstown.
Melbourne, is another major outlet from Docklands.
South of the Yarra River, the only east-west through-
Current Land Use route is the West Gate Freeway which links the
The major land use in Docklands is freight and Geelong Road and south-western suburbs to Port
transport, particularly port, rail freight terminals and Melbourne, from where arterial roads distribute traffic
associated private freight handling and shipping to the CAD and southern and eastern suburbs.
agents.
2.2 Docklan ds Authorit y ·

• to investigate infrastructure options and prepare
and implement plans for infrastructure co-
ordination;
• to take, support or promote measures to encourage
people to live and work in the area;
• to take, support or promote measures to create in
the area an attractive environment;
• to encourage appropriate public involvement in
that development;
• to promote, assist in and co-ordinate the economic,
cultural and social development of the docklands
area;
• to facilitate and, with the consent of the Minister
When the Premier launched the Strategic Options administering the Port of Melbourne Authority Act
report in December 1990, a Discussion Paper on 1958, plan and implement the reorganization of
proposed legislation to establish a Docklands port facilities;
Authority, together with a Draft Bill, were also • to facilitate and, with the eonsent of the Minister
publicly released. Since then legislation has been administering the Transport Act 1983, plan and
passed in Parliament and the Docklands Authority implement the reorganization of transport
Board established in early June, 1991. The Board is facilities;
chaired by Mr Eric Mayer, former Chief Executive of • to promote tourism to the docklands area;
the National Mutual Life Association of Australia,
and its membership embraces the finance and • to perform any other functions conferred on it by
development sectors, as well as academia, the union or under this or any other Act.
movement and the Port of Melbourne Authority. It The area designated as Docklands for the purpose
is expected that the Docklands Authority will be of the Act is fixed. The area is smaller than the area
fully operational before the end of 1991 once a chief discussed in this report in that it excludes the south
executive and appropriate staff are appointed. bank of the Yarra and its boundary to the north-
The Docklands Authority is charged with the west falls on the east side of Moonee Ponds Creek.
objective "to promote, encourage and facilitate The Governor-in-Council may reduce the
development of the Docklands area ....",while giving boundaries of the Docklands are!! but it would
full recognition to Government objectives, policies require an amendment to the legislation to expand
and plans for the operation of the Port of Melbourne. them.
The Docklands Authority Act also provides the The Authority is a public authority under the
Authority with the following functions: terms of the Planning and Environment Act 1987.
• to develop the docklands area; This means that the Minister administering that Act
may specify the Docklands Authority as the
• to promote and encourage the involvement of the responsible planning authority for the Docklands. It
private sector in that development; may , therefore, develop and implement a planning
• to oversee and co-ordinate the development by scheme for the area.
others of the docklands area;
• to investigate development options and prepare
and implement development strategies;
\
24 Melbourne Docklands - Draft Strategy for Redevelopment.·
All the elements of development at Docklands are Mr Mayer has also indicated that a major
elements for which the Authority will be parkland and open space would be part of the casino
accountable. Ultimately, it will be the Authority development at Docklands. The casino would be set
which will implement the Docklands Strategy. back from the banks of the Yarra to ensure public
Since its inception the Docklands Authority access to the waterfront.
Chairperson, Mr Eric Mayer, has released a number In relation to the recent fires at Coode Island, Mr
of public statements, principally in relation to the Mayer supports the clean-up of the area and has
siting of a casino in Docklands. Mr Mayer has called for a permanent long-term solution to the
stated his belief that Docklands is the only logically issue.
appropriate site for the casino, primarily because the
substantial traffic generated by the casino could not
be handled by any other site within the CAD. In
addition, Mr Mayer believes that a Docklands casino
will be a major stimulus to commencement of
Docklands development and will provide immediate
benefit to the community in terms of sale of public
land.
Docklands Milestones
November 1988 Melbourne's submission t.o the Australian Olympic Federation proposes
Docklands as the site for an Olympic Village.
August 1989 Ministry for Planning and Environment releases Melbourne's Docklands: A
Strategic Planning Framework for public consultation.
February 1990 Docklands Task Force established, reporting to the then Minister for Industry,
Technology and Resources, the Hon. David White, MLC.
May 1990 Victorian Government Major Projects Unit publishes Progress Report -
Melbourne Docklands.
Committee for Melbourne publishes Melbourne Docklands, the Victorian
proposal to establish the Multifunction Polis (MFP) at Docklands.
December 1990 Docklands Task Force report Melbourne Docklands: Strategic Options
released for public consultation.
Major Projects Unit releases draft legislation to establish Docklands Authority
for public consultation.
Victorian Government appoints Docklands Consultation Steering Group to
guide consultation activities.
May 1991 First phase of public consultation on Strategic Options report completed.
Legislation to establish Docklands Authority passed by Vict.orian Parliament.
June 1991 Docklands Authority Board appointed.
November 1991 Docklands Task Force report Melbourne Docklands: Draft Strategy for
Redevelopment released for second phase of public consultation.
Since its inception in February 1990, the

Docklands Task Force has had the responsibility of
preparing a long-term strategy for Docklands. In
particular, it was charged with co-ordinating
previous work undertaken by a number of different
Government agencies, as well as consulting with the
community on proposed developments and uses for
the site.
To assist in its efforts, the Government in
December 1990 announced the appointment of the
Docklands Consultation Steering Group (DCSG).
The DCSG reports directly to the Minister for
Manufacturing and Industry Development, The Hon.
David White, MLC.
The Terms of Reference of the DCSG are to:
• advise the Minister and the Task Force on all
major aspects of the design and implementation of L -R Dimity Reed, Lawrie Wilson, John Fowler, Tony Dalton, Helen Gow,
Des Gunn.
an extensive and high quality consultation
program; The membership of the DCSG reflects a wide
• participate, along with key Task Force personnel, range of skills in social policy, urban planning and
in all major consultation sessions conducted by the public consultation. The Group is comprised of Mr
Task Force and, where practical, participate in John Fowler (Chairperson), Mr Tony Dalton, Ms
other consultative arrangements relevant to Helen Gow, Mr Des Gunn, Ms Dimity Reed and Mr
Docklands; Lawrie Wilson.
• advise the Task Force on the merging of public The appointment of the DCSG was announced at
consultation input with the research and policy the same time as the Task Force's report
work relevant to planning for Docklands; Melbourne Docklands: Strategic Options was
released. This heralded the start of a two-stage
• ensure that the broad effects of proposals on the process of consultation.
physical, social, economic and cultural
environment are addressed in the preparation of The first stage of consultation was aimed at
future development proposals by the Task Force; eliciting a wide range of ideas and responses about
possibilities for Docklands. The Strategic Options
• consider any issues raised in public comments report built on work carried out in relation to
received on the draft Docklands Authority Bill and various proposals for Docklands (for example, the
Discussion Paper and report to the Minister on Olympics and the Committee for Melbourne's
those and any other relevant matter; proposal for the Multifunction Polis). It was also
• following public release of the draft Docklands based on work carried out by the Task Force during
Strategy (stage 2 of the consultation process), 1990 and on discussions with a range of groups and
report in writing to the Minister. This may individuals. Discussions were held with local
involve the holding of a public enquiry, including councils and associations, developers, urban
the hearing of submissions. planning bodies, social issues groups, .
environmentalists and a wide range of expertise ..
within Government agencies and the private sector
was tapped to help formulate issues and assist in
developing and presenting options.
The information contained in the Strategic Four public meetings were held to present the
Options report (and supporting working papers and Strategic Options report and to provide
consultants' reports) and, in particular, the four opportunities for general discussion and comment
options the report presented, were intended to help (City; Footscray; Port Melbourne; Glen Waverley).
stimulate and inform debate. A range of activities It should be noted that public meetings were
was arranged to encourage people to contribute to deliberately scheduled at a variety of times of the
this initial phase of consultation. day and locations to provide people access to at least
one meeting.
Consultation Activities The same format was adopted at each of the
In terms of processes in which people could meetings. The chairperson of the DCSG chaired all
contribute their ideas and views about Docklands, these public meetings with members of the Task
the Docklands Consultation Steering Group and the Force outlining the consultation process, the
Task Force agreed on a program which included Strategic Options report and finally providing a
public meetings aimed at presenting the Strategic financial evaluation.
Options report and providing opportunities for General discussion, largely in a question and
general discussion, comment and feedback; public answer format, followed. Discussion at all meetings
forums, each focussed on key topics of relevance to was recorded by a hansard reporter and transcripts
Docklands, to allow more detailed exploration of are available at the Task Force's office. Over the
significant issues; consultation sessions at which four meetings, approximately 240 people were in
groups and individuals could meet with the Task attendance and contributed their ideas and
Force and the DCSG to present their views in responses to the Strategic Options report.
person; and, calls for written submissions to be Six public forums, each focussing on key topics of
received by the end of May. relevance to planning for Docklands, were held at
During 1990 the Task Force began calling for the Exhibition Buildings in Carlton during March
people to register on a mailing list if they were and April. The meetings were again chaired by the
interested in being informed about planning for DCSG Chairperson and were addressed by a range
Docklands. To date, approximately 1,700 people and of speakers, including people from the Task Force
organisations are registered on that list. and people with views different from those
Newsletters, reports and other information are expressed in the Strategic Options report or with
mailed out as they become available. particular expertise to contribute. The forum
Following the release of the Strategic Options program is presented in Figure 1 below.
report in December 1990, a four page insert was
published in the Herald/Sun and The Age in
February 1991 (see Appendix 3). The insert
summarised the report and provided extensive detail
about consultation arrangements over the coming
months. The consultation program was also widely
advertised in ethnic media and emphasised the Task
Force's willingness to make translation services
available upon request.
Advertising of particular events followed in local
and metropolitan media and through use of the
newsletter and other mailouts.
Press briefings also occurred and a number of
radio and press interviews were carried out to assist Public meeting at Port Melbourne Community Centre
in raising awareness of the consultation processes
underway.
28 Melbourne Docklands - Draft Strategy tor Redevelopment
Wednesday 13 March Discussion at all the forums was again recorded by

Land Use and Housing Authority a hansard reporter and transcripts are available at
Matt Ainsaar (Task Force) the Task Force's office. Over the six forums,
Terry Burke (Swinburne Institute) approximately 250 people attended.
Jim Holdsworth (Task Force) A wide range of consultation times was advertised
Michael McGrath (Melbourne City Concil) at which people could make appointments to meet
Andrew Mahar (Inner Urban Regional Housing Concil) with the Task Force and the DCSG to make
submissions or discuss particular issues in person.
Tuesday 19 March Six verbal submissions were made.
The Proposed Docklands Authority As well, written submissions were invited. In all,
Dr Tony Ward (Major Projects Unit) 87 submissions were received from different groups
Ewan Ogilvy (Social Justice Coalition) and individuals, as listed in Appendix 1. These
Alan Williams (Building Owners and Managers Association) covered an extremely diverse range of topics and
Peter Tesdorpf (Inner Metropolitan Regional Association) views.
Wednesday 20 March Task Force Initiatives

The Port and Micro-Economic Reform
As the issues emerged from the consultation process,
Chas Collison (Victorian Trades Hall Council)
the Task Force adopted a variety of mechanisms to
Ian Hunt (Task Force)
clarify and test responses in key areas. These
Leigh Mackay (Port of Melbourne Authority)
consisted of:
David Wilson (Consultant)
- establishing a Transport Working Group
comprising representatives of the Public Transport
Wednesday 27 March Corporation, the Ministry of Transport, Vic Roads,
New Transport Options for Docklands the Port of Melbourne Authority and the Task
Ian Hunt (Task Force) Force. The Group has been responsible for
Ray Walford (Public Transport Users Association) providing a co-ordinated response to transport-
Chris Malan (Public Transport Corporation) -related issues raised. The Group also prepared
Bob Evans (VicRoads) the transport framework for the Draft Strategy. It
Peter Greig (VicRoads) will continue to advise the Task Force as the
Strategy is finalised;
- establishing an urban design panel of
Monday 8 April architects, planners and landscape
Environment, Heritage and UrbanDeslgn architects, chaired by Professor David
Geoff Carr (Consultant) Yencken of Melbourne University, to discuss
Jim Holdsworth (Task Force) significant planning and urban design
Elery Hamilton - Smith (Phillip Institute) issues;
Meredith Gould (Architect) - holding detailed discussions on housing issues
Steve Whitford (Royal Australian Institute of Architects) with a range of individuals and organisations,
including:
Thursday 18th April •officers of the Melbourne, South Melbourne and
Docklands Economic Forum Port Melbourne Councils,
Harry Van Moorst (Victorian University of Technology) •the Housing Industry Association,
Dan Kolomanski (Consultant)
Dr Peter Brain (Nati~nal Institute of Economic and Industry •Associate Professor Terry Burke of Swinburne
Research) Institute of Technology,
Geoff Frankish (Task Force) •Jennings Industries;
- commissioning, in conjunction with the Historic
Buildings Council, a major study into the heritage
of the Docklands area. The study was completed
in July 1991. This and subsequent work was involvement of individual companies and
overseen by a steering committee which also representative groups. A market survey of investor
included representation from the National Trust interest was proposed to be carried out by the then
and the City of Melbourne; Docklands Advisory Board. This issue may now be
- establishing a working group to provide advice on taken up by the Docklands Authority which has
those activities which could happen in the short- superseded the Docklands Advisory Board.
term to open public access to and stimulate Despite these limitations in the involvement of the
interest in Docklands. The Group consisted of the private sector, the DCSG advised the Minister
following agencies: formally that it was completely satisfied with the
•City of Melbourne range of interests and views represented by
participants in the first phase of consultation.
•Department of Planning and Housing
•Melbourne and Metropolitan Board of Works Co-ordination with other
(now Melbourne Water)
•Port of Melbourne Authority; consultation processes
- obtaining advice on a number of environmental At the commencement of consultation over
and recreationaVopen space issues from a range of Docklands in December 1990, it was clear that there
experts in this field and also having valuable were other c0nsultation processes underway or
research carried out under supervision by Ms Rosy planned, that had an impact more or less directly on
Costa, a final year Recreation Studies student Docklands.
from Phillip Institute; In order to minimise public confusion and to
- holding detailed and wide-ranging discussions ensure relevant information was shared between
with other State Government agencies and Local agencies, the Task Force established a Consultation
Government; Co-ordination Committee. Agencies represented on
that Committee, which meets on a monthly basis,
- holding discussions with the Wurundjeri Tribe include the Port of Melbourne Authority (PMA), City
Land and Compensation Cultural Heritage of Melbourne, the secretariat of the Ministerial Task
Council and the Office of Aboriginal Affairs on Force on the Management of Hazardous Chemicals,
Koorie interests; the Ministry of Transport and the Task Force. The .
- holding discussions with a range of groups Coode Island Review Panel has now been invited to
representing people with disabilities. join this Committee as has Melbourne Water.
Briefings and discussions were also provided on The key consultation processes with which the
request to a range of organisations including the Committee is concerned are:
Building Owners and Managers Association
(BOMA), the Certified Practising Accountants The Victorian Ports Land Use Plan
(Gippsland Division), the Committee of Six Mayors, The three Victorian Ports are currently preparing
the Victorian Council of the Arts, the Flemington the Victorian Ports Land Use Plan, the objective of
Association, the Moonee Ponds Creek Association which is to ensure that appropriate port land is ·
and others. available to meet Victoria's long-term trade needs.
The plan will be a strategic document establishing a
Through the different consultation activities
framework for future development over the next 20
arranged by the Task Foree, a wide range of groups
years.
and individuals contributed their thoughts and ideas
about the development of Docklands. Private It should also be noted that the PMA has had a
citizens, professional associations, community close involvement with the work of the Task Force
groups, unions, State and Local Government on a continuing basis. The Task Force is liaising
agencies and others were all represented. It was, closely with the PMA to ensure that the Task Force's
however, suggested during the consultation that outputs are consistent with those of the PMA.
more information about the interests and opinions of
the private sector was required. There was limited
participation by the private sector in the
consultation process, despite efforts to encourage the
The Ministerial Task Force on the Transport

Management of Hazardous The Victorian Transport agencies have been
Chemicals involved in developing a framework for integrated
This Ministerial Task Force was established to transport and land use planning. As part of this
develop long-term policies for the future process these agencies have been holding discussions
management of the chemical industry in Victoria. A with the community on a variety of issues, some of
broadly based Consultative Committee was formed which have wider implications than Docklands.
to provide balanced and representative views on These include:
issues and meets regularly with the Ministerial - the Central Area Transport Strategy (CATS)
Task Force which comprises eight Ministers and is - the Traffic in Melbourne Study
chaired by the Hon Neil Pope, MP, Minister for
Labour. - the Victorian Transport Strategy
- Eastern Corridor transport issues
Coode Island Review Panel
The Coode Island Review Panel has been established - Very Fast Train
to recommend to Government by 2December1991 - ticketing systems for metropolitan transport
an immediate Action Plan to minimise the risks - safe travel on public transport
associated with the existing Coode Island facility. It
is also required to make recommendations to - graffiti and vandalism issues
Government by 31 March 1992 on the longer-term - review of private bus services in Melbourne.
storage of hazardous materials at Port facilities.
Melbourne Strategy Plan Review Conclusion
A draft report on the outcome of the 1990-91 Since the release of the Strategic Options report and
Strategy Plan Review has been prepared by the City the completion of the first phase of consultation,
of Melbourne. transcripts of the views expressed at public
Council has adopted the goals and objectives meetings, public forums and at consultation
included in the draft report on Strategic sessions, the written submissions and the ideas
Directions and Priorities and approved the expressed in other discussion inititated by the Task
publication of the implementation mechanisms Force, have all contributed to the development of
proopsed in it. this Draft Strategy.
It is expected that the Strategic Directions and In conjunction with the consultation, the Task
-Priorities report will be the basis of discussion Force carried out or commissioned further research
- -between the City of Melbourne and the State which also assisted in developing ideas for the Draft
-·-Government with a view to ultimate endorsement by Strategy. A list of the key working papers produced
both parties. is provided in Appendix 2.
This report traces that process and is now
intended to be the principal resource for a further
period of public consultation. As in the first phase, a
program of consultation activities will be agreed
with the Docklands Consultation Steering Group to
assist people to respond to the Task Force's work to
date. At the close of this second period of
consultation, a final Strategy will be prepared for
submission to the Government early in 1992.
2.4 Major Consultatio n and Research

The development of the Draft Strategy grew largely views expressed by participants and does not include
out of a merging of information and views arising any commentary of the Task Force itself except in
from public consultation data with research and the case where there is a clear error or factually
policy work undertaken by the Task Force. This incorrect statement from the consultation. This is
section now presents the major input to the Task noted in the text.
Force's thinking over the last year or so. A set of
themes emerging from the consultation is firstly
identified. Each of these is detailed and
2.4.1 Urban Policy and
accompanied by a description of relevant research Priorities
undertaken by the Task Force as well as a synthesis
The large landholdings and waterfront aspect of
of the consultation and research input with related
Docklands together with its location between the
policy.
central city and the port, at the focal point of the
In analysing public consultation input, the Task transport and distribution network, give it
Force drew upon two important principles: tremendous development potential. However, the
- to report accurately and comprehensively the scale, pattern and pace of development at Docklands
nature and detail of people's contributions; must be related to an understanding of its
relationship with other important elements of the
- to present consultation data in ways which would metropolitan area and of its future role within the
enable people to recognise and trace their own context of Victoria's longer term development
particular contributions through to the
development of policy, proposed strategies and Early in 1991, the Department of Planning and
recommendations. Housing published a paper on Urban Development
Options for Victoria. In this paper alternative
The task of developing a Draft Strategy for the scenarios for future urban development were
Docklands has elicited an enormous range of views presented. These were:
and issues and in analysing these, the Task Force
found it was possible to organise the consultation !)Compact Melbourne: containing metropolitan
feedback around several themes: Melbourne in established suburbs and designated
priority growth areas. ·
- Urban Policies and Priorities
2)Twin Cities: creating a second major metropolitan
- The Port focus in the south-east, (for instance at
- Housing Dandenong), or the north-west with good access to
- Open Space Melbourne Airport.
- Other Land Uses 3)New Towns: this concept was based on three new
towns, each of about 100,000-300,000 people, on
- Urban Design the edge of metropolitan Melbourne. Together
- Heritage with Geelong, they would form a ring of urban
- Environment centres about 60-90km from the central city.
- Transport 4)Regional Centres: this concept was based on
diverting a substantial proportion of future
- Staging population growth to the six major regional
- Finance and Investment. centres - Geelong, Ballarat, Bendigo, Shepparton,
Of necessity, this treatment of consultation input Wodonga and the Latrobe Valley towns.
is a lengthy process. The Task Force makes no This was intended as a discussion paper and it did
apology for this because its importance lies in not suggest any prescriptive pattern. It pointed out
establishing a public record of input, and outlining that the existing inertia and investment in the
the ideas, concerns and perspectives which in metropolitan area is such that the bulk of future
various ways have been absorbed into Task Force growth is likely to continue to focus on Melbourne.
thinking. It then posed the question whether it was seen by
It should be noted that the purpose of the the community as a good thing in terms of the
following summary is to include the key issues and resultant urban sprawl and if not what alternatives
can be considered and how could those alternatives
be made to work without simply calling for more

Government money and subsidy. Responses to this
discussion paper are still being considered and a
draft preferred strategy is not expected until the end
of 1991.
In relation to urban policy, the current focus on
micro-economic reform has been extended in its area
of interest to take in issues to do with the provision
of urban infrastructure. The Better Cities Program
was announced in the recent Federal budget. It is a
three year program not only focussing on
demonstration projects in medium density housing,
but also looking at the provision of linking public A residential emphasis at Docklands is preferred by many
transport and the generation of geographically
related job opportunities in areas. Allocation of of Technology in a paper presented at the public
funds will be considered after the special Premiers' forum claimed that to develop Docklands
Conference in November and it is understood that particularly is confirmation of the economic primacy
emphasis will be placed on restructuring existing of the central city, in Melbourne and Victoria. The
outer suburbs and new growth areas. attraction of commercial and industrial development
The Strategic Options report recognised the urban on the urban fringe or to provincial cities would be
policy context within which strategic planning for difficult, he said, if such development was competing
Docklands was occurring. It also recognised the with a central city location which may be subsidised.
range of urban development projects - both public A greater emphasis on residential and relocation
and private sector-driven - which had commenced or uses may be more appropriate. The suggestion was
were under consideration. The report did not made also that Docklands should be put on hold for
attempt to state a case for Docklands in any two or three years until we assess the sort of urban
comparative sense particularly as the Urban future we want for Victoria. Otherwise, there was
Development Options for Victoria paper was not the risk of"the cart driving the horse", a project
available when the Strategic Options Report was driving the future urban form for Victoria. This
released. particular issue was taken up also in the submission
from the City of South Melbourne. The wish to see a
The major issues to emerge from the consultation holistic approach to planning in Victoria was
' process focussed on the purpose of a Docklands articulated also by Prof Graham Brawn of
project in the urban policy context. There was Melbourne University at another public forum:
debate particularly about:
.... you are the biggest ball game in town at the
• Docklands and its relation to the ideas expressed moment and you are not presenting us with trade-
in the discussion paper mentioned above; offs between what goes on here and then what does
• the relationship of Docklands to the Central not go on somewhere else in the city. This large
Activities District (CAD); chunk of land ... does not seem to be giving us that
• the impact of Docklands on other inner opportunity to look at Melbourne ... in total.
metropolitan development; The issue of the relationship of Docklands to the
• the comparative costs of infrastructure provision Melbourne CAD is perhaps, a sub-set of where
at Docklands and, on the one hand, other inner Docklands fits in the broader picture. The
urban housing projects and, on the other, the proposition that Docklands should be a continuation
urban fringe. of the CAD, which is implicit in the City of
Melbourne's construct of Docklands as the "safety
These issues emerged early in the process during a valve" for the city, raises this issue in a particular
public forum on "Land Use and Housing". They way. There was much adverse comment, however,
were to be taken up in a number of subsequent about the high component of commercial/office
submissions. Terry Burke, Associate Professor in development in Option 1 of the Strategic Options
Social and Political Studies at Swinburne Institute report.
Representatives of BOMA and AMP Property immediately contiguous to Docklands. It looked at

Investments among a range of groups and the long-run expenditure for both Local and State
individuals spoke of the over-supply of office and Governments.
retail space in the CAD as a cause of concern about Conclusions drawn from this study were that cost
Option 1. savings are dependent on the population and
The impact of Docklands on other inner urban dwelling densities achieved at Docklands, as well as
development was another related issue, in the sense the specific locations selected for housing
that some members of the community saw the need development. The study estimated that the public
for wider metropolitan planning. For example, the sector cost of developing residential land could be up
City of South Melbourne referred directly to the to 30% less at Docklands than on the urban fringe.
Southbank project, concluding that An analysis of the long-run average costs oflocal
"The re-development of Docklands with government indicated that inner and middle councils
"unspecified incentives" may significantly affect other spend considerably more per capita than outer
inner urban redevelopment projects ... and possibly fringe municipalities. This trend however, appears
result in urban blight." to be related to size of population rather than to
The Sandridge City Development Corporation location. There is evidence to suggest that there
focussed on the "substantial detriment" presented by would be substantial recurrent cost benefits to inner
Docklands to the successful outcome of the and middle councils in increasing their population.
Sandridge site. The redevelopment of the Jolimont In particular, per capita outlays on "general public
railyards and infill projects in Richmond were others services" are likely to be reduced with large
cited as potentially affected by progress with increases in population. Docklands and its
Docklands. surrounds comprise a significant opportunity in this
regard.
The issue of costs in developing inner urban areas
as against providing infrastructure on the urban The study also indicated that State Government
fringe has been the subject of debate quite outside capital expenditure over the past five years has been
the current discussion of Docklands. But the heavily concentrated in the inner and middle areas.
Docklands consultation saw the issue raised in a Much of this expenditure relates to the provision of
number of forms. The City ofWerribee resolved that facilities for the wider metropolitan population.
it would not support Docklands proposals which Whilst it is difficult to quantify the benefit, there is
would see government expenditure priorities no doubt that the residential population of
channelled away from the Growth Areas. Docklands would be able to take advantage of these
facilities.
"In order for this growth to be successfully
managed and to guarantee quality of life for future Substantial upgrading of physical infrastructure
residents," Council submitted, "Governments must be will be required at Docklands. However, much of
able to provide some necessary physical and social the physical infrastructure needs are generated by
infrastructure". Docklands was seen, therefore, as the commercial office component of the
competing with the Werribee Growth Area for public redevelopment strategy rather than the residential
sector investment. component. Existing human services around the
Docklands would be capable of supporting the
A speaker at the "Economic Development" public residential and working population of Docklands
forum expressed the view that ideas about urban with minimal additional recurrent or capital
consolidation were being perverted in relation to expenditure. Moreover the long term viability of
Docklands: that Docklands was really about some of the existing facilities would be enhanced by
centralising and concentrating economic activities the redevelopment.
for the benefit of the private sector.
On the urban consolidation issue, the Task Force Overall, a strong feeling emerged from the
commissioned a study by Urban Projects Pty Ltd on consultation that Docklands needs to be
Co~parative Costs of Residential planned In the context of other broader
Development at Docklands and The Urban metropolltan planning Issues. In particular,
Fringe. The study examined earlier relevant the relatlonshlp of Docklands to the CAD and
reports and analysed the actual expenditure to other Inner metropolitan developments will
incurred on residential development in those areas require special attention.
While concerns were raised about the

potential of Docklands to draw resources away
from other Inner urban housing projects and
from the urban fringe, research carried out by
the Task Force suggests that the public sector
cost of developing residential land at
Docklands could be slgnlflcantly less than on
the urban fringe. Further, development at
Docklands has the potential to make more
efficient use of existing Infrastructure and
services In the Inner area.
2.4.2 The Port

The significance of Docklands to urban policy also
raises the issue of the Port's role, in relation to its
current uses of Docklands land, and to proposed new
uses ofland no longer required or appropriate for
port and transport operations.
The availability ofredundant port and rail The Port of Melbourne
facilities for urban redevelopment has been
acknowledged by Government policy documents in
Olympic facilities as well as substantial increases in
recent years. Recognition of the opportunities
available at Docklands were heightened by bids for trade growth.
the Olympics and the Multifunction Polis. In 1987 An options paper which identified seven land use
Government economic policy and urban policy options for the Port of Melbourne was released for
documents identified Docklands as an opportunity public comment in May 1991. Three options entail
for redevelopment. reinvestment by the PMA within Docklands and
three involve complete withdrawal from Docklands.
Melbourne Docklands: A Stra t.egic Planning
A seventh also involves complete withdrawal from
Framework released in 1989 stated that "the
Docklands and the construction of a new container
consolidation of port activities further down the
berth at Appleton G. This conflicts with proposals
Yarra River and the redundancy of some rail yards in
for open space in the mouth of the Moonee Ponds
the Docklands Precinct provide the potential for
Creek. The PMA is currently analysing comments
redeveloping a large area of waterside land around
and preparing a draft strategy which is expected to
Victoria Dock, creating a new urban area on the
be released for public comment later this year. The
city's western edge". This document also noted that
final strategy will be completed in 1992.
the Olympic Village proposal had brought forward
plans to consolidate some port activity downstream On the question of the construction of a new berth
and that the relocation of port facilities at South at Appleton G, consultants to the Task Force have
Victoria Dock and South Wharf would have been advised that Appleton G would not be required for
required. Discussion had commenced on the port operations in the foreseeable future and have
question of compensating the Port of Melbourne proposed two land use plans, each with different
Authority (PMA) where facilities were to be vacated assumptions, which would achieve this end. (Refer
before their economic lives had elapsed. also to Section 2.4.8, Open Space.) They have
recommended that the area of Appleton Dock
The Port is also engaged in its own planning
acijacent to Docklands be retained for "future
activity. The three Victorian port authorities are
development", either port or non-port.
preparing the Victorian Ports Land Use Plan, the
aim of which is "to ensure that appropriate port land The Melbourne Docklands: Strategic Options
is available to meet Victoria's long-term needs". The report was generally based on the premise that port
plan was to take into account the use of port land for land would become available for development as the
'
economic lives of facilities expire. This approach

means that the amount of compensation payable to
the PMA would be minimised.
$1,11,1111il:il:iiu111:i ctud i..vmments on the Port focussed
,---.-
on the following issues!
- the relationship of the planning exc:m:is~s ootw~~ll
t.hP. Port.c; T&1nil Use Plan and the Task Force's
Docklands StratE!gy;
- the payment of compensation to the PMA;
- the impact of a new river crossing on the eC<..-ess of
boats upstream;
- construction of Appleton G. Facilities at North Victoria Dock, Port of Melbourne
Comments about the relationship between the
Port and the Docklands planning exercises generally The Social Justice Coalition, questioned the reason
questioned the priority that should be awarded to for relocating operating docks before the end of their
each. A number of submissions argued that the useful lives and enquired as to the cost of
economic significance of the Port needed to be compensation.
recognised, while the cities of South Melbourne and In its submission, the PMA notes that the issue of
Melbourne argued that the two exercises should be the timing of development and compensation are
integrated. The Victorian Trades Hall Council closely related and states:
expressed a similar concern at the "Port and Micro-
Economic Reform" public forum that Docklands "As a general rule, the earlier the release date, the
planning was pre-empting that of the Port and that higher the compensation".
port planning should get priority. Similar comments A number of individuals and the Melbourne City
were made by the Waterside Workers Federation at Council were concerned about the impact of the
the public forum on New Transport options. Western Bypass bridge on maritime activity
"The crucial question,, (as seen by the union upstream. The Cruising Boat Owners Association
movement) "in the whole Docklands debate is should expressed concern that a new bridge might prevent
the boundary of the Port be determined by the tall-masted boats entering Victoria Dock and that
Docklands project or should the Docklands project this is an important facet of the boating heritage of
boundary be determined by the Port". Docklands. The Association's preference was for a
tunnel or an opening bridge. It was also concerned
Individual comments supported Docklands being that a new bridge would add to the visual clutter of
kept as a port and maintained that port facilities the area and suggested that any new crossing should
were more important than alternatives such as link into an existing crossing. The need for deep
media centres and questioned a develoment which water access was also emphasised especially, it was
may even impede the efficiency of the Port. One of argued, as these facilities cannot be relocated at
the speakers at the "Port and Micro-Economic places such as Williamstown or St Kilda.
Reform" forum, Dr David Wilson, argued that it
would be unwise to simply remove Victoria Dock Planning issues within the Port were raised by the
without replacing the structure downstream with an Joint Unions submission which made various
equivalent. "To do so would put at risk the future recommendations as to where investment should
development of the Victorian economy.,, occur within the Port. This aspect of the Unions'
submission falls outside the ambit of the Docklands
Strategy and should be considerd by the PMA in
preparation of its Land Use Plan.
In conclusion, planning for Docklands needs - determine and provide for an appropriate social
to capltallse on development opportunities mix;
Identified by Government policy, whlle - ensure a high level of integration with existing
recognising the economic significance of the residential areas;
Port, and should be coordinated with the
- provide for a staged development of residential
review of the Port's land use requirements
areas in response to demand; and
currently underway. Consideration also needs
to be given to the timing of Docklands - provide appropriate buffers between residential
development and Its lmpllcatlons In terms of development and port, road, rail and industrial
compensation and to the Impact of a new river uses.
crossing In terms of access to the river and
visual appearance.
2.4.3 Housing
Details of the Government policy context in which
the Task Force undertook work on residential
development are provided in the Task Force's
working paper "Residential Land Use". Some key
policies that guided the Task Force relate to
encouragement of housing and higher household
densities in established urban areas, provision of a
range of housing types and tenures and promotion of
principles of affordability and choice. The policy of
providing a minimum of 10% public housing on
Government land is also acknowledged.
The Strategic Options report placed considerable
emphasis on the provision of housing at Docklands.
Each option included a different amount of housing.
Option 3 had the strongest residential emphasis and
A minimum of 10% public housing should be provided at
proposed a population within the core area of up to Docklands
10,000 using approximately 50% of the land area for
housing. As well as the information provided in the
Housing was a topic which elicited considerable
report, the "Residential Land Use" working paper
interest. A wide range of organisations and
provided further detail about potential locations for
individuals expressed their enthusiasm for the
housing within the Greater Docklands Study Area,
creation of housing at Docklands. For example, the
policy considerations, potential population mix,
submission from the City of Footscray noted that
market conditions and implementation mechanisms.
"... residential emphasis is preferred ... ", the Collins
The Strategic Options report identified potential Street Baptist Church nominated housing as being
housing locations both within Docklands itself and of"prime importance" and the City of South
at a variety of sites within the Greater Docklands Melbourne argued that not enough emphasis had
Study Area. It was argued that, whatever strategy been placed on housing because only one third of
is finally adopted, the type and amount of housing floor area had been allocated to housing in Option 3,
provided will depend largely on the need to: the Option with the greatest residential emphasis
- provide an appropriate range of residential (although it has been pointed out previously that
densities, tenures and housing types; Option 3 devoted 50% ofland area to housing).
However, whilst many submissions, both verbal and
- ensure that new residential opportunities are written, acknowledged support for residential
socially, economically and physically viable; development, most added comments about the type
of housing seen as being most desirable.
Melbourne Docklands - Draft Strategy f_or Redevelopment 37
There were also a few contributions which queried the heritage value of the docks, the desire to
the appropriateness of providing any housing. The guarantee public access to the waterfront and
Joint Unions Working Paper and a submission from difficulties related to the overall financial viability of
the DANCE Group suggested that poor soil developing housing in this location, other land uses
conditions would render housing development so should be preferred at Victoria Dock.
expensive that it would be available only to high Strong views about providing a range of housing in
income groups. On this issue, consultants were terms of price, tenure and lifestyle emerged. The
commissioned by the Task Force to undertake a key issue related to the need for public and
study on the comparative building costs at affordable housing to be provided; social mix is a
Docklands. They found that while construction over related concern which appeared to arise, at least
part of the railyards would not prove a problem due partly, from a concern that Docklands would be
to the presence of basalt foundation, once developed purely for those on middle and upper
construction moved out of this area, there would be incomes. Support for housing at Docklands was
some cost penalties incurred, depending on the form based on grounds of social justice, efficient use of
of development. However, buildings of up to two existing infrastructure, environmental sustainability
storeys or greater than ten storeys would not incur a and a sense that Docklands could be an attractive
significant cost penalty relative to other parts of place to live. The creation of a new population at
Melbourne. It was estimated that buildings between Docklands was also seen as contributing to the life
two and ten storeys were estimated to bear penalties and vitality of inner Melbourne and slowing the
of up to 11%, whilst buildings over 20 storeys would decline of the inner urban population.
incur a cost penalty of 1.7%. Other work carried out
by the Task Force suggests that, particularly Many submissions emphasised the need to provide
compared with development on the urban fringe, affordable and public housing with an emphasis that
there are likely to be significant cost savings in equal proportions of public and private housing
infrastructure provision. should be built and that there should be as much
public housing as commercial development.
The Unions questioned whether housing was Particularly because land at Docklands is in public
appropriate in proximity to an operating port. The ownership, a special opportunity exists to provide
Hazardous Materials Action Group queried the public and affordable housing. It was proposed that
suitability of any development in proximity to Coode Docklands could be a model for development of new
Island. Coode Island is discussed_ elsewhere in this forms of public and affordable housing, available to
report (Section 2.4.8), but it should be noted that the all socio-economic groups. Providing a range of
Government has announced a complete review of all housing tenure was considered important in terms of
chemical storage operations at Coode Island. achieving objectives of affordability. The Inner
The use of Victoria Dock as a site for housing was Urban Regional Housing Council and others
questioned: by the unions because they believe there suggested specific mechanisms by which affordable
will be long-term port needs for Victoria Dock and by housing could be created which included developer
the North Melbourne Association which would levies and shared equity ownership schemes. That
prefer to see the area used for open space. The Government subsidies would be necessary to ensure
North Melbourne Association and others also affordable housing was also suggested.
queried the appropriateness oflocating housing Terry Burke of Swinburne Institute noted that
adjacent to the Western Bypass extension and "affordability" is difficult to define and discussion
port/industrial areas. The Task Force agrees with with officers at a number of the inner city councils
this point of view and no residential development is highlighted some of the practical difficulties in
proposed adjacent to this area ifthe Western Bypass delivering affordable housing.
proceeds.
Mr Burke also suggested that more thought
Further work has also led the Task Force to revise needed to be given to the concept of"social mix" and
recommendations that housing be provided on the how it might be achieved. Like affordability,
proposed Olympic Village site at Victoria Dock. In catering to a wide social mix was a concept that was
the absence of the Olympic imperative, analysis of broadly supported. Tenure and type of housing were
the proposed Olympic Village suggested that, given again recognised as important in this regard.
problems with soil contamination at part of the site, Specific reference was made to the need to cater for
A range of human services, including schools, can be provided
This view is supported by work of the Task Force

which found that whilst some existing physical
infrastructure will need to be relocated and other
services expanded, the physical and financial impact
is relatively insignificant and can be spread out over
many years (for more detail see the "Provision of
Housing needs to cater for diverse groups Physical Services Infrastructure" working
paper). In terms of social infrastructure, whilst the
diverse groups within the community including precise nature of a future Docklands population is
families, the elderly, students and single people. not clear at this stage and therefore precise needs
Also highlighted were the specific problems cannot be determined, most major service providers
associated with the decline in the availability of confirm that there is sufficient capacity in existing
rooming house accommodation and concerns were services to cater for the Docklands population.
voiced that Docklands would contribute further to
The Royal Australian Planning Institute and the
this decline. Australian Association of Planning Consultants
The submission from the City of Melbourne also discuss this concern in the context of integration
raised the question of providing a "critical mass" of with surrounding communities. The Collins Street
housing. The Council expressed concerns, echoed by Baptist Church noted, in particular, the physical
the Collins Street Baptist Church, that to be truly barriers around Docklands and the need for good
viable, residential communities need to be of a links to surrounding areas and the City of
certain minimum size to support adequate retail and Melbourne warned against the creation of isolated
community services. Others argued that small pockets of development. Other comments related to
communities like those in North and West the need to consider the impact of housing
Melbourne were viable and there was a need to development at Docklands on other inner urban
encourage more housing in those locations. housing projects, particularly in terms of timing.
Many commented on the need to ensure an The need to prevent Docklands remaining a
adequate range of services and facilities for construction zone after residential development had
residential communities, although some, like the commenced was also noted.
North Melbourne Association, argued that such Finally, a number of submissions including that of
services already exist in inner Melbourne and are, the Royal Australian Planning Institute and the
indeed, a justification for further housing Australian Association of Planning Consultants
development. highlighted the importance of achieving a high
standard of residential amenity, particularly in
terms of traffic impacts. The opportunity to relate
housing to the water, possibly through the use of
canals, was also noted.
/
39
Overall, there was considerable enthusiasm - minimise environmental impacts of urban

for provision of housing at Docklands. In development;
particular, people were keen to see a range of - protect and expand urban open space, in
housing, Including public and affordable particular ensuring that it is easily accessible to
housing. Those who felt housing was not all who live in cities;
appropriate were, motivated at least In part, by - increase the amount of continuous parkland for
concerns that housing would be expensive. recreation, landscape and conservation purposes;
Some discussion centred on the sultablllty of
particular sites for housing and the Task - encourage tree planting and retention of native
Force's research on the Olympic VIiiage vegetation throughout urban areas;
proposal suggests that, In the absence of the - preserve historic areas and structures;
Olympics, other land uses may be more
- improve the townscape quality of all urban areas;
appropriate at this location.
- protect and enhance urban waterways and
The need to provide adequate Infrastructure floodplains; and
and services for a new Docklands population
was also recognised. Research shows that a - reduce levels of air and noise pollution.
comprehensive range of human services are In meeting these objectives, the Government
available In close proximity to Docklands. In committed itself to protecting, rehabilitating.and
general, capacity exists within these services creating open spaces throughout Melbourne and
to accommodate a new population, however, other cities. Linking open spaces for walking and
physical Infrastructure upgrading wlll be cycling and ensuring equitable public access were
required. further means of achieving improvement in cities.
Broadly speaking, the views expressed In the There was also consideration of diversity through
consultation and the research carried out by support for community gardens, city farms, nature
the Task Force are consistent with pollcles at reserves, indigenous plantings in parks and in
the Federal, State and local level which supporting community initiatives to rehabilitate and
encourage urban consolidation. revegetate underused and derelict land.
The Open Space 2000 Program builds on the
Melbourne Open Space Plan of 1988. The program
is a means of implementing the earlier plan through
co-ordination of agencies responsible for the open
2.4.4 Open Space space environment and through specific iniatives.
The Victorian Government has emphasised the Those that are relevant in the Docklands context
significance of open space as a vital component in include identifying the missing links in open space
urban development. Protecting the corridors, and community involvement in developing
Environment: A Conservation Strategy for the Moonee Ponds Creek concept plan.
Victoria (June 1987) paid particular attention to All of the Strategic Options in the Docklands Task
protecting and enhancing urban open spaces and Force's first report allowed for varying degrees of
waterways in the interests of making cities liveable. open space and parkland. However, Option 4
Melbourne Open Space - the Metropolitan provided for the most extensive area - almost half of
Open Space Plan of 1988 focussed directly on this Docklands was proposed as open space.
issue. 1991 saw the launch of the Open Space 2000
program with its aim of building on the existing The issue of open space was taken up favourably
network of interconnected parks, trails, river by a large number of groups and individuals, though·
frontages and beaches - from Port Phillip Bay to the in a variety of ways. Some were concerned that
ranges. sufficient open ·space be provided for recreation and
leisure opportunities; others looked at the issue in
Protecting the Environment set out nine terms of the location of open space and accessibility
objectives for improving life in cities. These were to: at Docklands; while others offered ideas about the
- manage and contain urban development to detail which should be built into planning for open
conserve energy and other resources and increase space.
efficiency;
------------ ------------ ------------ -----· -· ----·
The provision of open space at Docklands is also Mr Hamilton-Smith proposed some guidelines for
linked into its attractiveness as a centre for leisure planning which included: the maximising of
recreation and leisure, for people to walk and to leisure values through sympathetic treatment of the
cycle and for potential tourism attractions. It is planning at the water's edge; creating a pedestrian
linked also to the issue of public access. environment in terms of noise reduction, local air
Several submissions indicated a preference for quality and interesting surfaces and landscapes; and
Option 4, including the City of Port Melbourne. finally concluding that "... open space provision is
Others indicated a preference for the residential central in making the most of the docklands area,"
emphasis of Option 3 to be accommodated with a and indeed that Docklands allows Melbourne to
greater degree of open space. The City of Footscray, make up for lost opportunities in providing adequate
for example, saw Docklands as ideally having a and well-designed open space for the city.
residential emphasis within an open space network, These ideas were taken further by Geoff Carr, an
with tourism attracted as a result. (This submission environmental consultant, who spoke at the same
also saw the provision of commercial development as public forum. Mr Carr noted that the existing
an extension of the CAD as being necessary to environment of Docklands has been highly modified
financial viability). over the last hundred years or so and that almost all
The key issues on open space to emerge from the of the original flora and fauna had been obliterated.
"Environment, Heritage and Urban Design" public He called for the identification and assessment of
forum had to do with recreation and leisure remnant vegetation and fauna as a first step in
opportunities and with flora and fauna policies. retaining the existing environmental values of the
Elery Hamilton-Smith (Phillip Institute of area. Addressing the issue of environmental
Technology), presented some invaluable thoughts on degradation would need to cover soil contamination,
"The Melbourne Docklands and Leisure Provision". water pollution, and waste. Cleaning up the
He noted that leisure planning must commence with waterway was, in particular, a high priority, given
the overall environment and the need to optimise that about 75 hectares of Docklands is water.
the values of available resources. In the case of Community input supports such a view and is
Docklands, "... the interface between land and water addressed in greater detail in the section on
is the most vitally important leisure resource". Going Pollution.
on to note that "Waterfront access is a scarce resource
in cities like ours ... ", he advocated that maximum
public access to the waterfront also be maintained.
the regional population. The Australian Institute of

Landscape Architects also saw the creation of a
major park at the western end of the city as best
enhancing public access to the waterfront. The
Department of Planning and Housing also
highlighted the desirability of creating a major open
space area, comparable in structure to the Fitzroy
Gardens, at the western end of the city. The Public
Transport Users Association proposed open space as
a way of differentiating Docklands more clearly from
the city west of Spencer Street.
The Australian Institute of Landscape Architects
An opportunity to extend the ring of open space around Melbourne also saw the location of open space and the
development of a Transport Interchange at Spencer
Docklands was seen by some as providing the west Street as the first priority in terms of staging, from
of Melbourne with an open space opportunity, as which the disposition ofroads, landmarks and
well as with the opportunity to complete the ring of building densities would follow. An International
parks around Melbourne for which the city is so Garden Festival at Docklands was supported
famous. Dr Geoff Mosley and others supported the strongly by the Institute, as a catalyst for futher
creation of the Ring Park and sought in particular development and as a means of establishing from an
an open space link between the southern end of early stage the character of the place.
Moonee Ponds Creek and open space along the
Yarra to the east. The City of Melbourne argued
that the ring of open space should be reflected in the
Strategy and were supported in this regard by the Overall, considerable support for the creation
Moonee Ponds Creek Association. of significant areas of open space at
Docklands was expressed during the
The Moonee Ponds Creek estuary is the only green consultation.
space existing in Docklands. This area was proposed
as a wetlands in all of the Strategic Options, In particular, opportunities to provide open
generating support from a variety of groups and space to the west of central Melbourne, and
individuals. Mr Carr referred to the wetlands for the creation of wetlands at the mouth of the
opportunity, at the estuary of the Moonee Ponds Moonee Ponds Creek emerged. Public access
Creek, noting that non-tidal wetlands are very easy to the waterfront was also acknowledged as
and very cheap to create and have great habitat crltlcal.
values. The Wurundjeri tribe specifically called for
the retention of the Moonee Ponds Creek estuary as
open space.
It was also suggested that physical and viable
link!'.! bet.ween the Yarra River, Port Phillip Bay,
Moonee Ponds l:reek and the Marihyrnong <!reek
need to be curnsi<lere<l iu Lhe sLrategy for Docklands.
In particular, the Board of Works emphasised the
significance of linkages between areas of open space
in providing pedestrian and cycling opportunities
around Docklands and its environs.
The issue of public access is clearly related to the
support for open space at Docklands. The
Department of Sport and Recreation noted the
importance of open space distribution, indicating A wetlands could be created at the mouth of the Moonee Ponds Creek
that open space should be located and geographically
distributed in a way which promotes accessibility for
However, the main concerns that emerged from

the con5ultation related to a 5en5e that extensive
office development , particularly high rise
development, was not appropriate at Docklands.
Few submissions supported extensive office
development at Docklands. Two submissions
favoured Option 1 which proposed the highest
density office development because they believed it
had the potential to stimulate what is at present a
depressed Melbow·ne business market. 'l'he Eitate
Electricity Commission of Victoria's submission saw
this option as stimulating State development, while
Open space with access to water
another view suggested Option 1 because it offered
the best financial return and required the least
Government support.
2.4.5 Other Land Uses Others were prepared to accept some office
Commercial development and proposed that it be limited to
Spencer Street, or mixed with other uses as an
Central Melbourne is recognised by the Stare
extension of the CAD to the water. Others, however,
Government as the primary retail and commercial
opposed any high rise development. Dr Kim Dovey
centre in the metropolitan area (Shaping
of Melbourne University suggested that a "cliff face"
Melbourne's Future, August 1987). This view is
~ creat.ed at Spencer Street, ie. prohibiting high
shared and supported by the City of Melbourne and
nse development beyond this point.
the need to strengthen the role of the central city
underpins policy at both the State and local level. Finally, a number of submissions argued that
office development was inappropriate given the
The Strategic Options report proposed varying
current oversupply of offices in the CAD. The City of
degrees of office development in each of the four
South Melbourne, the Royal Australian Planning
options. The report recognised that the current
Institute, Australian Association of Planning
oversupply of office space in the central city was
Consultants and others argued that there was no
likely to occur: "... a significant oversupply of office
demand for office development. Mr Alan Williams of
accommodation which may be initially eased but
the Building Owners and Managers Association
ul.timately extended, by existing buildings oo'ing
(BOMA) argued that no new sites for offices would
withdrawn from the market for refurbishment and
be required for another 50 years.
re-release. Various forecasts have estimated a
vacancy rate of between 13 per cent and 18 per cent The Task Force commissioned studies into the
until 1995." However, the report also noted that impact on building costs of the generally poor soil
after this period, a progressive reduction in vacancy conditions at Docklands. That work indicated that
rates was predicted as supply and demand realign. penalties in the range of 5-11% would apply to
buildings between two and ten storeys. Lesser
The City of Melbourne draft review of the City of
penalties would apply to taller buildings (1.5-2.5%
Melbourne Strategy Plan Strategic Directions
for buildings up to 20 storeys and 1.7% for high rise
and Priorities notes Council's overall support for
buildings) and that, over the longer term, demand
development at Docklands and, in particular,"... the
for new office development would emerge. The study
extension of central city uses within the area to
has been referred to previously in Section 2.4.3
Footscray Road (but not beyond)."
above.
A range of submissions supported some degree of
commercial development, largely on grounds of
p~o~ding se~ces to residents, economic viability,
VItahty and mterest to visitors.
The central city office precinct
The City of Melbourne believed that "central city"

uses could be extended, particularly within a defined
area of Spring Street, Flinders Street, Victoria
Street and Footscray Road. The Council saw the
timing of such expansion as significant, particularly
Lower scale commercial development
in terms of underutilised land in the existing CAD
and protection of existing central city and mixed use
areas. The Council also suggested that Docklands related enterprises. Such activity would seem
would be an attractive location for small-scale to be consistent with pollcles directed at
commercial uses which are presently locating in, or strengthening the role of central Melbourne as
seeking sites on, the fringe of the CAD. However, the primary retail and commercial centre.
some concern was expressed by the North There Is also consistency with aspirations to
Melbourne Association that commercial development strengthen the role of Melbourne In terms of
may "overwhelm" existing mixed use areas in North tourism and recreation.
and West Melbourne.
Recreation and Tourism
The provision of tourism and recreation facilities
The main concerns that emerged from the
in central Melbourne is recognised by both the State
consultation related to a sense that extensive
Government and the City of Melbourne as being
office development, particularly high rise
critical to the economic well-being and vitality of
development, was not appropriate at
both the inner and the wider metropolitan area.
Docklands. Reseach on soil conditions
Indicates that there Is a lesser cost penalty Tourist facilities here embrace exhibition activities
associated with high rise than with buildings of and recreation facilities and should be understood to
lower height and that, over the longer term, include cultural as well as sporting and other
demand for new office development will facilities.
emerge. The Strategic Options report noted that leisure
The existing policy framework tends to support and entertainment development require convenient
concentration of high rise office development access by both public and private transport and that
within the existing CAD, although City of car-parking areas are desirable. Development
Melbourne pollcles suggest lower scale requires concentration to form distinctive areas of
development would be appropriate on the CAD diverse but interrelated activities. Advantage
fringe, and that "central city" development should be taken of local assets such as views and
could extend to Footscray Road. physical features. Retail development can be a
complementary adjunct.
However, there seemed to be support for some
degree of commercial development at Tourism was not specifically discussed in the
Docklands, particularly In terms of retail, Strategic Options report but clearly access to the
tourism and leisure- transport, accommodation, business, retail and
Heritage Council suggested Koorie-based tourist

activities. Another submission proposed an
Aboriginal museum or cultural centre. Overall, a
sense oflinkage between recreation and tourism
emerged from the S\1bmi~~inn!! which di!!CU!!!!cd
these topics.
A number of submissions nevertheless dealt morP.
specifically with tourism and, overall, a sense that
many people saw Docklands as providing significant
opportunities for tourism development emerged.
Alan Williams of the Duilding Owners and
Managers Association saw tourism as a viable
Riverside tourism and recreation areas activity at Docklands, which would provide effective
linkages with existing or planned facilities, for
transport, accommodation, business, retail and example, with the Museum. Others, highlighted the
recreational facilities already existing in central importance of the waterfront and water-based
Melbourne provides strong opportunities upon which activities to development of tourist activities. A
tourism development at Docklands can build. "Darling Harbour" type development at Victoria
Dock was suggested. Also highlighted was the role
A number of submissions to the Task Force of the proposed Transport Interchange in bringing
stressed the overall importance of recreation and international visitors to Docklands. The Helicopter
leisure facilities. At the "Environment, Heritage Association of Australia suggested that construction
and Urban Design" forum, Elery Hamilton-Smith of a "Vertiport" would have important tourism
emphasised the wide range of personal, social and implications. The Australian Institute of Landscape
other benefits resulting from leisure, and argued Architects suggested an International Garden
that access to leisure was therefore an issue of social Festival.
justice. The economic significance ofleisure
activities was also highlighted. The submission Recreation Opportunities from Banana Alley to
from the Department of Sport and Recreation North Wharf, a working paper prepared for the Task
supported these views to the extent that it argued Force, recommended a series of initial actions to
that planning for recreation services should be an open Docklands to the public. It argued that "...
integral part of planning for Docklands and that given the current open space links and public access
issues of equity, special needs, empowerment and from Banana Alley to North Wharf, it seems the
conservation values needed to be considered. most appropriate area to encourage further public
access and participation." The paper recommended
Many individual submissions nominated beautification of the trail and provision of sign age
recreation and leisure as suitable land uses at and discussed opportunities for sale of food, boating
Docklands. Some people nominated particular sites facilities, market stalls and other facilities at an
as suitable for recreation facilities whilst other early date.
contributed ideas for development of parks, gardens
and other facilities. Access to the water and the
waterfront was emphasized in this context. These Overall, a strong sense of the Interrelation
ideas are pursued in more detail in the section between, and support for, develoment of
dealing with open space (Section 2.4.4). In tourism and recreation facllltles emerged from
particular, proposals to develop a wetlands park the consultation. This support Is consistent
around the Moonee Ponds Creek as part of the Open with State and local pollcles which recognise
Space 2000 program, and the implications for that the provision of such facllltles Is critical to
Docklands of open space policy are discussed. the economic well-being and vltallty of both
Inner Melbourne and the wider metropolitan
Cultural facilities were seen by some, including
area.
the Victorian Council for the Arts and the Office of
Aboriginal Affairs, as contributing to both the
recreation and tourism potential of Docklands. The
Wurundjeri Tribe Land and Compensation Cultural
!!.- - .• ·_.. '.

r - .
Retail, Tourism and Entertainment on Central Pier
Arts and Culture

The Government1s cultural policy recognises the
pervasive nature of our culture. It states that
"Cultural development is not just about fostering the
arts and artistic endeavour - essential as these
objectives are - it is also about promoting our
sporting, inteUectual and educational achievemen~;
and fw1da1mmlally our Koorie Culture and the
diversity of our ethnic communities."
A number of submissions raised issues to do with
the role that arts and cultural activities might play
at Docklands. ·The Victorian Council of the Arts
suggested a range of principles which they believe
should guide development and which include
recognition of Docklands as a water-based site,
including the historical import.anre of the docks,
recognition of Koorie heritage and creation of a
"people-oriented" environment.
The Council suggested that arts and cultural
activities could play a key part in shaping the Melbourne's cultural heritage
transformation of the Docklands in both the short
and long term. The Council included a range of
specific suggestions for activities that could assist in
promoting Docklands or that might be suitably
located there. AMP Property Investments also
suggested that cultural facilities be located at The notion of a casino at Docklands did not elicit a
Docklands. A number of other submissions strong response in the consultation process. Indeed,
highlighted the need for entertainment and tourist the pros and cons oflocating a casino anywhere in
activities which could be understood to embrace the Melbourne were not canvassed seriously. A few
existence of arts and cultural activities and facilities. individuals supported the casino and spoke about it
Both the Wurundjeri Tribe Land and in relation to where or when it might come in to
Compensation Cultural Heritage Council and the being. A few others on the other hand expressed
Office of Aboriginal Affairs recommended Koorie concerns about a casino's relationship with what
involvement in arts, tourism and cultural heritage they saw as conflicting forms of development,
activities. notably housing.
Several submissions tacitly shared the belief that
General support for the role arts and cultural a major casino at Docklands could precipitate
activities could play In shaping the character development there. One view proposed that the first
of Docklands emerged. Specific Interest In stage of development should commence in the area
ways Koorle culture could be Incorporated bounded by La Trobe Street, Spencer Street,
was also evident. These aspirations are Flinders Street and Footscray Road and include the
consistent with the Government's cultural casino, the Transport Interchange, upgrading the
policy. World Trade Centre and providing for retail, high
density commercial and some residential
development, and that this phase would be best
implemented by a joint venture which sought
Casino international tenders.
In February 1991, the Premier announced that a The remainder of comments about the casino had
major casino would be located at Docklands, as a to do with its appropriateness, largely in relation to
means of kick-starting development. The Premier residential development. The argument was
also noted that the Docklands consultation process crystallised at the Waverley public meeting by the
which had just commenced was to provide the means comment that
of more specifically nominating possible locations for
·a casino and that the Docklands Consultation "I'm presuming a casino will be a fairly substantial
Steering Group was to report through the Minister structure, bringing a lot of people into the area and it
for Manufacturing and Industry Development on doesn't seem consistent ... if you are planning to set
this issue. up a community of25,000 people . ... It doesn't seem
to gel to me to have that infiux of large numbers of
More recently, the Opposition has proposed that in people to the casino every night of the year."
calling for expressions of interest, the location of a
casino in Melbourne should not be confined at this In his paper on leisure provision for Docklands at
stage to Docklands. Expressions of interest have the "Environment, Heritage and Urban Design"
now been called for a casino which should be located public forum, Elery Hamilton-Smith cautioned that
within 3km of the GPO on either public or private "It saddens me that governments see them (casinos)
land. as so desirable when much more could and should be
done to provide much more positive alternatives in
The Strategic Options report was produced several recreation which would serve to enhance qualities
months before the Xavier Connor report on casinos like fun, health and learning. n
was released. The Report on Casinos covered a wide
range of administrative and legal matters which
were contingent on the Government's earlier Overall, however, the prospect of a casino
decision to establish an open casino. Hence, none of development at Docklands was not one which
the Strategic Options allowed for a casino, though generated a great deal of discussion. The
such a development was arguably feasible for all positive view which did emerge was that the
four. casino would be a very effective catalyst for
further development at Docklands.
l!ducatlon and Research

One of the Covemment objectives for Docklands is
the requirement to encourage new land uses and
other activities that:
- strengthen Melbourne's role as a prime
('Qmmerci::tl, finanri::il ::inrl rPsP::tr~h ~nt.TP hy
facilitating major new development in an
l:lLLrl:lcLivl:l Wl:lll:lrfruut l:luviruuml:lul, with alruu~
links to institutions and activities in other parts of
the city, throughout Victoria and beyond.
In a general sense, the Victorian Government's
economic policies are concentrated on improving the Docklands is near to leading research and education facilities
State's comparative economic position through:
- promoting trade and exports; research centres associated with the Strategic
Research Foundation showing some interest in a
- increased levels of training and increased Docklands location was noted, together with a
innovation, together with a sharper focus on campus of the Victoria University of Technology.
capturing and maintaining the benefits of such
innovation; The prospect of a post-secondary education
campus at Docklands first arose during the
- improving the efficiency of public enterprises - the development by the Committee for Melbourne of a
providers of electricity, gas and water. Docklands proposal for the MFP feasibility study.
Several recent State and Commonwealth At that time the Royal Melbourne Institute of
Government policy initiatives add to the context in Technology expressed interest in locating some of its
which Docklands should be discussed. The State post-graduate activities at Docklands, particularly
Government last year announced a major initiative since RMIT was negotiating an amalgamation with
in manufacturing with emphasis on value-added Footscray Institute of Technology and the Western
activities targetted towards enhanced trade and Institute as part of the Victoria University of
exports. At the federal level, the Government has Technology. Subsequently this amalgamation did
launched its Industry Policy, the centrepiece of not proceed. However, RMIT is now in the process of
which involves reduced protection in several key amalgamating with Phillip Insititute of Technology
sectors of manufacturing. and its plans for future campus development are
Over the period in which planning for Docklands clearly focussed to the north of the city.
has been under consideration, the proximity of Funding for educational facilities is a vexed issue
Docklands to the Knowledge Precinct of the at a time of severe financial restraint. To re-direct
Parkville and Carlton education and research resources away from existing programs towards a
facilities and to the South/Port Technology Precinct post-secondary campus at Docklands is clearly not a
has been recognised as strategically significant. The possibility in the short-term. There are, however,
Strategic Options report identified a large area of alternative models for the funding of post-secondary
Docklands in the vicinity of Victoria Dock North as a education and research involving the private sector
potential location for education and research which may be considered at an appropriate time in
facilities. the future. The possibility that institutions may co-
The location was seen as significant also because operate in specific projects, such as the
of the proximity to the CAD, its waterfront location, Commonwealth Government Collaborative Research
and its capacity for linking with communications Centre (CRC) program may foster, is one that may
and computing infrastructure. The possibility of be entertained at Docklands. The Strategic
Research Foundation model of private/public sector lags in research and development because the
investment in research is another model. private sector is dominated by foreign-owned
The other issue which is important here is that of multinationals, for which investment in Australia is
space. Institutional land uses require large amounts not profitable.
of space and, within the inner urban area, there are Seeing the proposals for Docklands as amounting
very few sites where these requirements can be to a new form of technology precinct, Mr Van Moorst
accommodated. Docklands is one of the few noted that overseas experience suggests such
locations where institutional uses could be planned. development does not enhance employment, and
The idea of a Docklands campus met with general indeed that it leads to polarisation of the workforce
favour. While it received the most heated debate in into an elite group of professionals and scientists on
the "Economic Development of Docklands" public the one hand and unskilled workers with poor
forum, it was noted also in some other public working conditions on the other. He concluded by
meetings, forums and submissions. pointing out that a campus at Docklands was
extraneous in view of the neighbouring Melbourne
A number responded to the idea of an educational University and RMIT and further, that there were
focus for Docklands enthusiastically. A resident of other infrastructure issues more deserving of
Templestowe noted in a submission that he could Government funding.
"... envisage an exciting environment, appealing to a
cross-section of ethnic and social groups." Alan Dr Peter Brain took up some of these ideas in a
Williams of BOMA, who presented a private sector rejoinder, particularly the "concern ... that
view of Docklands at the "Docklands Authority" (Docklands) will create wealth and jobs in the
public forum, while doubting the wisdom oflocating community and whether there are better alternatives
commercial and office development there, went on to or better ways of achieving these objectives".
say that Providing an analysis of the labour market over the
next decade and Australia's role in an increasingly
"If Government, both State and Federal, can in any competitive international market place, he
way afford it, the docklands offers perhaps the acknowledged that Victoria's "... main hope for the
most exciting possibility for a whole range of future basically rests in the ingenuity of its human
educational establishments both national and capital stock ... and its research and development
international. A home for the creators of the clever organisations to put a special imprint on design and
country and a base for scientific advancement." production, to embody some special character or
A student at the Waverley public meeting said advantage, import, product or service. n
that the presence of a campus at Docklands was "one He saw in the Docklands proposals an attempt to
thing that I'm really excited about ... ". He went on to create an environment attractive both to investors
say that "... you need to have housing, not so much because of the State's human resources and to
public housing but housing that's at least affordable skilled people to live and work. Research and
if we are going to have an institution there. We can't development integrated with production was critical,
just have masters and doctorates. You need to have and Docklands could create "integrated clusters"
undergraduates there as well to keep it steam-driven, built around education.
the cafes and restaurants, the whole community has
to be tied in." Subsequent discussions at the "Economic
Development" forum focussed on the potential
It was the concept of a campus as the focus for significance of Docklands as a generator of economic
attracting research and associated industry which activities. The Chairperson of the Knowledge
raised some controversy, however. Some, like Harry Precinct saw positive advantages in the location of
Van Moorst at the "Economic Development" forum Docklands close to the CAD and the Precinct, seeing
saw this as "... a sort of half-baked MFP proposal .... the nature of incremental growth possible as robust
There is a strong theme throughout the development in accommodating fast or slow growth in the
of the Docklands proposal and the acceptance of it in economy. Others asked for more specificity in terms
the community that somehow effective high tech of types and numbers of jobs which could be
development will be our economic salvation." He generated by Docklands and the types of economic
went on to argue that high technology does not activities which could or should be located there.
necessarily equate with high value; that Australia
r c:1.
I
In recent times, several institutions have raised - the Victorian tradition of formal and informal open
the possibility oflocating facilities at Docklands on a spaces particularly focussed on a river or
co-operative basis with other institutions and the ornamental lake.
private sector, primarily associated with post- Opportunities identified were:
graduate research and development. Both the
Victorian Post-Secondary Education Commission - the focal nature of Victoria Dock: the potential to
and the State Training Board have expressed enclose a body of water on three sides by higher
interest in continuing discussion about the ground or higher structures, forming an
development of a campus at Docklands, possibly of a amphitheatre of activity and interest;
multi-institutional nature. - the proximity of the CAD: the one chance for
Melbourne to develop an innovative and lively
There Is, then, a mix of views about an counterpoint to its business heart, one which will
education and research focus for Docklands. attract new residents, workers and students, as
The prlnclpal concerns about such a campus well as visitors from this city and others; and
have to do with priorities In Government - the expanse of open water so close to the city
spending on education and training In a centre: a unique attribute and one which can be
climate of flnanclal constraint. It would be capitalised on for the long-term benefit of
Important, therefore, to evaluate carefully the Victorians whether as a visual or active resource,
posslblllty of a multl·lnstltutlonal campus In but certainly as one which should add a new
conjunction with the private sector, dimension to the inner city.
particularly In the light of Docklands' strategic
location. The consultation comments on this issue generally
revolved around the need to look at alternative
scenarios to those offered in the Strategic Options
report and specific community comments on aspects
2.4.6 URBAN DESIGN of urban design.
Urban design embraces both the layout ofroads,
thoroughfares, open space and land parcels and the
three dimensional form of buildings and other
structures on those land parcels. Good urban design
will also address the detail ofland use, particularly
at street level, the role oflandscaping, tree planting
and. t.hf:' character oft.he environment.. The
ambience, the sense of place and the personal
response to being in a particular urban setting are
influenced by the quality of the urban design. The
process of urban development at Docklands should
recognise the need to preserve and enhance
important Melbourne features.
The Strategic Options report discussed a number A major Melbourne vista along Bourke Street
of urban design precedents influencing the
Docklands area. The precedents included:
- the rigid form of the CAD grid, particularly of the A number of concerns were raised about the
east-west streets; options being offered, in particular that they were
restrictive both in vision and choice. The Royal
- the traditional grid pattern of inner Melbourne, of Australian Institute of Architects (RAIA), the
streets with regular width and spacing and National Trust, AMP Investments, and the Royal
without a clear hierarchy; Australian Planning Institute submissions all took
- the vistas framed by buildings along major streets up this theme. One view suggested the report was
creating distant views, often to landmark restrictive in its offering of only one basic road
structures; and network which it considered offered no creative
appeal and no true link from the city to the water's
edge. The Australian Institute of Landscape Finally, urban design guidelines at Docklands
Architects (AILA) agreed that for good urban design should provide for easy access for the disabled. The
to be ensured priority should be given to the "Environment, Heritage and Urban Design" forum
Transport Interchange and location of open space. emphasised that there was the need for facilities to
In particular, the AILA described the options as be accessible to all and that disability access
coming guidelines should be recognised in all new
... from the same "suburban mentality" that says developments. This view was confirmed at a
you set out the roads first, then choose the land meeting the Task Force subsequently held with peak
uses and then allocate areas which can't be disability groups.
developed, (because of fiooding etc ...J to open Heritage values are also a strong influence on
space. This is the standard suburban residential urban design. This subject is covered under
planning approach aimed to maximise return but "Heritage" (2.4.7). Broadly speaking, whilst many
it usually produces open space of limited use and acknowledged the importance of incorporating
certainly produces uninspired vision. Docklands heritage into new development, there was
The need for an international design competition debate about the extent to which heritage concerns
was strongly advocated by the RAIA and the AILA. should constrain urban design.
Effectively the purpose of such a competition would As a result of consultation input the Docklands
be to ensure Docklands is designed and built as an Task Force invited a group of architects and
appropriate model for future development. At the planners to form an urban design panel under the
Waverley public meeting it was suggested that chairmanship of Prof. David Yencken of Melbourne
Docklands should be developed to take account of University. The group focussed on such issues as:
advanced technology and practice, particularly in - what role Docklands should play in the future
relation to energy efficiency, waste management, development of inner Melbourne;
communications infrastructure and management of
traffic and transport. Development at Docklands - the relationship between the CAD and Docklands;
should also contribute to Melbourne's open space - the staging of Docklands development;
network of parklands around the city by creating a - the relationship between Docklands and the Port;
park to the north and/or west of central Melbourne.
- achieving a sense of place for Docklands.
The wide range of comments received on urban
design issues indicated that for some, urban form Some of the issues to emerge from the group
and design were central factors in any Docklands included support for extending the grid and radial
redevelopment proposal. street pattern to the north-west into Docklands. The
role of the waterways and the possibility of
Specific issues raised with the Task Force included extending Victoria Harbour to the railyards were
the view that developers should be required to also raised.
contribute to development of open space and
recreational opportunities; that building heights In relation to urban design considerations at a
should be kept to a minimum and that view detailed level, the group commented favourably on
corridors be maintained: the opportunity presented to develop architectural
themes related t.o the iconography of the docks and
"One of the few joys in Melbourne are the large to create character by insisting on human scale,
street scape vistas which give a sense of dimension particularly at street level. It was agreed that
and direction. To foil this opportunity in the design rules needed to be clearly understood, to be
Docklands area by cutting the sight lines off from broad but applied firmly, particularly in relation to
the river front would, in my view, defeat one of the height limits. Design rules, however, should not be
aims of the project". too prescriptive in relation to detail.
The National Trust considered there were strong This group was also supportive of an international
urban design heritage arguments in favour of not design competition focussed around different
extending Melbourne's grid given the strong alternatives such as
distinction between the "tightly built up island
central grid" and the surroundings of parks, public infrastructure design
buildings and railway land providing an open space developing and testing design guidelines
character. alternative modelling of options.
Issues on which consensus emerged Included

the need to protect view corridors from the
CAD to the waterfront, the need to Incorporate
the heritage of the area Imaginatively, that
building heights be controlled and the
Importance of planning open space as an
Integral part of any development.
There were diverging views about extension of
the city grid and the extent to which heritage
priorities should dictate urban design
posslbllltles.
2.4. 7 HERITAGE
Government support for Vict.oria's heritage is
manifest in both the Planning and Environment Act
and the Historic Buildings Act.
Heritage provisions contained in these Acts are
administered by the Department of Planning and
Docklands' maritime heritage Housing, the Hist.oric Building Council and the
Department of Conservation and Environment.
Subsequent t.o the conclusion of the consultation Community-based organisations such as the
program, the City of Melbourne released a draft of National Trust also reflect the widespread
the review of the City of Melbourne Strategy Plan of community interest in and concern for heritage
1985. Entitled Strategic Directions and issues.
Priorities (July 1991), a number of general The Strategic Options report acknowledged that
principles for redevelopment of Docklands were the Docklands area contains a variety of places,
outlined, some of which addressed urban design structures and areas of heritage significance. It
considerations specifically, including: listed all those places included in the Register of
- the overall landscape theme should reinforce and Historic Buildings or Register of Government
build on maritime hist.ory and activity; Buildings, and acknowledged the significance of the
composite architectural and heritage value of the
- important views t.o the CAD should be preserved, North and West Melbourne Conservation Area.
for example from Docklands up Collins Street int.o
the heart of the city; The report recognised the dilemma posed by
heritage preservation on the one hand and
- open space provided in the development should redevelopment on the other. In association with the
make a major contribution t.o completing the ring Hist.oric Buildings Council, the Task Force co-
of parks around the CAD: connection between operated in a heritage study of Docklands which
areas of open space is essential, and consideration commenced early in April 1991.
could be given t.o use of North Wharf piers for
hard-edged open space. Undoubtedly, the main issue t.o emerge during the
consultation phase was the necessity for a
comprehensive heritage study of the Docklands area.
In conclusion, then, Issues related to urban Other issues raised included the pre-European
design attracted considerable attention during settlement heritage of the docklands, the adverse
the consultation and, In particular, a strong impact of development on the hist.orically significant
sense that the very best urban design should city grid, and effects on the cultural landscape.
be employed at Docklands.
There were a number of individuals and
organisations who called for a detailed heritage
study of Docklands. The City of Melbourne felt it
was needed "as a matter of urgency", whilst the

National Council of Women in Victoria was critical
that heritage issues had "not been properly
addressed" and that this should be rectified "prior to
a final strategy being prepared". The National Trust
submitted that all four strategic options quite
erroneously treated the area as if it contained
nothing of significance apart from a few registered
buildings.
As has been noted already, several submissions
expressed concern regarding extensiOn of the city
grid into Docklands, on the basis of its heritage Railway Shed No.2
significance. Dr Kim Dovey contended that there is
a case for maintaining a boundary at Spencer Street
because "(t)he grid edge is an historical artefact. It The purpose of the study was to:
defines, bounds, and articulates the city, it orients - identify, evaluate and document post-European
people within it and it preserves the memory of the contact buildings, areas or other places in the
city's history." The National Trust felt there were Study Area which are of cultural significance, and
strong urban design heritage reasons for not place them within the context of the history of
extending the existing grid which "is distinctive from Vict.oria; and
the surrounding area, at an angle to the rest of - make recommendations for the conservation and
Melbourne". The Trust felt that the CAD, with its management of identified places of cultural
feature of significant buildings terminating major signficance.
streets, is, and should remain" a very internal and
distinct historical entity". The final report of the consultants who carried out
the Study included a summary of major historical
In relation to aboriginal heritage, a spokesperson themes constituting the significance of the area; an
on behalf of the Wurundjeri Tribe Land and environmental history supported by a chronology of
Compensation Cultural Heritage Council submitted events in the history of the Port of Melbourne and
that the Wurundjeri Tribe, being the traditional the rail yards; and details of an intensive field
owners of the area encompassing the Docklands, survey of the area.
wished to see the open space retained, particularly
the undeveloped swampland along the Moonee In all, some 83 sites were identified and described,
Ponds Creek. The Office of Aboriginal Affairs made and recommendations for inclusion in the State and
a submission in support of the position taken by the National Estate Registers were made for 18 of them.
Wurundjeri Tribe. Another submission suggested Among the most significant of the recommendations
that the Docklands area be renamed in some was for the profile of Victoria Dock to be recognised
recognition and acknowledgement of our aboriginal as of international significance and placed on the
history and suggested that the traditional aboriginal register of the National Estate. A summary of this
name for the general area in which Docklands is extensive consultancy is available.(see Appendix 2)
located, Doutta Galla, was appropriate.
Docklands Heritage Study
A joint study of the heritage aspects of the
Docklands area began in April 1991 and was
completed in July 1991. A steering group was
established to oversee the project, with
representation from the Task Force, the Historic
Buildings Council, the Docklands Consultation
Steering Group, the Victorian Archaeological
Survey, the City of Melbourne and the National
Trust.
Docklands was advisable, given that there were

There was overall support for the
indications of a gradual global warming which may
Incorporation of the heritage of Docklands Into
result in higher water levels.
any new development. Further, herttage was
acknowledged as Incorporating more than The Maritime Unions commented upon the low-
lndlvldual bulldlngs and the need to lying nature of the South Wharf in particular and
accommodate Koorle Interests was received the potential impact of rising water levels brought
favourably.One Issue that attracted some about by the Greenhouse Effect on any residential
degree of controversy was whether or not the development. One view put to the Task Force was
city grid should be extended. that
The advice of the Heritage Study ... if Greenhouse warming causes the unexpected
commissioned by the Task Force, that Victoria sea-level rises, a billion dollars of Docklands
Dock be recognised as being of International investment will have to be protected from rising
significance Is Important In terms o.f the waters.
constraints this Imposes on urban design and A related issue raised was how Melbourne's future
land use posslbllltles In the area. travel needs would be accommodated given the
depletion of Australian oil reserves and global
Greenhouse warming which would affect vehicular
2.4.8 ENVIRONMEN T transport. It was proposed that urban transport
Greenhouse would undergo major changes by the turn of the
century and freight traffic, interstate freight and
Underlining the GOvernment's Greenhouse Strategy passenger travel would increasingly convert to rail
are two features which indicate the Government's and other public transport modes, thereby reducing
commitment to significantly reducing emissions of the need to build the proposed Western Bypass.
Greenhouse gases by 2005. These are first,
Government support for sustainable development MMBW flood level records indicate that the area is ·
and second for developing long-term economic flood prone due to its low-lying nature. This had
efficiency through cost-effective actions that will been referred to in discussions the Task Force held
reduce Greenhouse gas emissions. Priority for with the Wurundjeri community who indicated that
action is being given to those areas where new aboriginal stories of the area made reference to
growth is occurring and where there is the potential recurring great expanses of water appearing in the
for developing and planning a model, energy Docklands area. It should be noted, that originally
efficient urban area. Docklands offers such an the whole area north of the Yarra River was a
opportunity. swamp - Moonee Ponds Creek flowed into the
swamp and not into the Yarra as it does now.
In particular, the Government is committed to:
The appropriateness of redeveloping Docklands
- requiring development in major urban growth was questioned by some participants in the
areas to be designed with efficient public transport consultation, on the basis of concerns about the
in mind; this will mean a greater range of housing impact of rising sea levels due to the Greenhouse
densities and the co-location of various community Effect. The Sandridge development in Port
and commercial facilities; Melbourne and the planning for the new Museum of
- introducing a comprehensive program aimed at Victoria were examined to assess what allowances
increasing the energy efficiency of residential have been made regarding flooding and Greenhouse
buildings through the early establishment of Effect at those development sites. ·
energy standards for new dwellings and a house Of particular relevance is the approach taken at
energy rating scheme; Sandridge. The highest recorded sea level at the site
- c investigati~g ways of easing traffic congestion and is about one and a half metres above sea level. An
emissions in the inner Melbourne area. event of this severity or worse is estimated to occur
There was considerable public; interest in the only once in three hundred years. Since 1934 the
Greenhouse Effect. The issue was raised in relation sea level has reached one metre above average sea
to the future effect of increased traffic in the level on only one occasion.
Docklands area and whether siting the project at
Es ti mat.es of the rise in sea level due to the The Strat.egic Options report not.ed that parts of
Greenhouse Effect vary widely. However, it is the Docklands are list.ed on the EPA regist.er of
becoming commonly accept.ed that an increase in the contaminat.ed sit.es. However, a preliminary
range of 200-400mm might be evident over the next investigation conduct.ed on ground contamination of
80 years or so. Docklands revealed that contamination in the area
If the one in 300 year surge event were to occur in was generally of a manageable level with the
conjunction with the higher Greenhouse wat.er level exception of two former gasworks sit.es - one locat.ed
increase, the resulting still wat.er sea level would be at North Wharf and in the north east section of the
about two metres above current average conditions. railyards. The degree of clean-up effort required at
The minimum land level proposed at Sandridge is at either sit.e would depend on int.ended land uses. In
2.0m generally, with the Bay Foreshore at 2.5m. reference to the old Gasworks sit.e at North Wharf
Thus the development sit.e would not be inundat.ed the EPA stat.ed that if this sit.e were to be
at this level, while extensive areas of Port redeveloped for unrestrict.ed residential uses then it
Melbourne would be. would need to undergo an ext.ensive clean-up. On
the other hand, if the sit.e was to be redeveloped for
The level of existing wharf faces within Docklands open space or commercial/industrial use then
varies between 2.0 and 2.2m above average sea capping of the sit.e would be possible, provided no
level. If development land levels similar to movement of contaminants could occur.
Sandridge were adopt.ed in Docklands, and if the
int.egrity of the berth faces were maintained the Community concerns regarding contamination in
Greenhouse Effect is unlikely to be a proble~. the Docklands were generally centred upon the
impact of clean-up costs on the project and in
particular, concerns that Government, and in tum
the community, may face high clean-up costs in the
The appropriateness of redeveloping
process. Reference was made to the proposed
Docklands was questioned by some
Olympic Village where clean-up costs had been
participants In the consultation, on the basis
estimat.ed at $19-20m for the old Gasworks sit.e.
of concerns about the Impact of rising sea
Concerned parties were therefore keen to obtain
levels due to the Greenhouse Effect. Advice
further information on costings for the project as
provided to the Task Force suggests that
well as an indication of who would be responsible for
adequate provision can be made to
these costs. A proposition put to the Task Force was
accommodate Greenhouse Impacts and,
that developers should be asked to bear the costs
therefore, that the Greenhouse Effect Is
rather than the Government. The Gas and Fuel
unlikely to be a problem.
Corporation's submission addressed the issue of how
appropriat.e re-zoning of affect.ed areas could
Contamination minimise costs. In particular it discussed the old
The Environmental Prot.ection Authority (EPA) Gasworks sit.e at North Wharf, where coal
requirements for contaminated sit.es stat.e that gasification plants exist.ed, and recommended that
where sit.es adversely affect the surrounding the sit.e be developed as either open space/low level
environment (ie. through migration of contaminants commercial or industrial buildings. The Corporation
to ground wat.er or the migration of contaminat.ed also encouraged a full exploration of all options with
soil via surface wat.er runoff or wind blown dust) costs being document.ed and suggest.ed the Task
these must be cleaned up to avert any actual and Force circulat.e more scientific information on the
pot.ential effects. Furthermore, clean-up should issue.
preferably consist of the destruction or removal of The Social Justice Coalition similarly discussed
the pollutants, but may also consist of capping, that clean-up options for the Gasworks and argued that
is "contaminant fixation or isolation" if treatment is land use and development options, as proposed in
impractical. the Docklands consul.tants' reports, had been
The EPA further requires that existing and inadequat.ely developed. The Coalition believed
proposed future land uses must be taken into current clean-up cost estimations could leave the
account and therefore land must be left in a Government with a bill in excess of $20 million.
condition which is suitable for both its current and Given the current financial climat.e, there was a
int.ended uses. great.er need to substantiat.e spending scarce
Me Ibo urn e Dock I a.n d s - Draft Strategy for Rede v e Io pm en t 55
Concerns were expressed during the

consultation about the extent of site
contamination within Docklands and the
Impact of clean-up costs. Questions were also
raised about who should pay for any
decontamination required.
Advice provided to the Task Force suggests
that, at this stage, only two sites are known to
be seriously contaminated. The degree of
clean-up required for these sites wlll depend
on Intended land use. However, the EPA
advise that, for the old Gasworks site at North
Wharf, capping would be appropriate If open
space, commercial or Industrial uses were
adopted. Further advice suggests risks to
workers could be avoided If an approporlate
Health and Safety Plan were Implemented.
Site of the Old City West Gasworks at North Wharf
financial resources on redeveloping such a site and Coode Island

therefore there was Coode Island is an area of land adjacent to West
".. no urgency for the sites to be decontaminated. A Swanson Dock and is serviced from a berth at the
decision on the development of the sites can be mouth of the Maribyrnong River. It is located at the
delayed until economic conditions allow the site to western extremity of the Greater Docklands Study
be developed in ways that protect people from Area and provides storage facilities for chemicals,
exposure to chemicals. This may involve petrochemicals, petroleum and other bulk liquids
decontamination of the site as proposed by the such as vegetable oils.
consultants, but with costs being borne by The Strategic Options report recognised that both
developers rather than the Government." the PMA and a Ministerial Task Force on Hazardous
Subsequent advice received from the Victorian Chemicals were reviewing the location of Coode
Government Major Projects Unit (MPU) concerning Island and possible alternative sites.
the Gasworks site referred to a specific study of With regard to consultation comment, the close
ground water quality which had revealed no proximity ofCoode Island to Docklands was an issue
significant leaching of wastes or contaminants from of concern to the City of Melbourne, the Hazardous
the Gasworks site into the river. Field and Materials Action Group (HAZMAG), VIPAC
laboratory analyses undertaken by the Advice Engineers and Scientists Pty Ltd and the Victorian
Measurements and Control in Occupational Safety Trades Hall Council. These groups argued that
and Health (AMCOSH) organisation, revealed that development at Docklands was not appropriate
the risk of odour problems and health effects arising whilst risks associated with storage of bulk liquids
from volatile compounds was negligible while the at Coode Island remained.
site remained undisturbed. Furthermore, soil-gas
emissions of any discomfort and risks to workers Related concerns included the overall safety of
involved in a large scale disturbance of the site, for existing procedures for the storage, handling and
example, installing foundations and/or utility transport of chemicals around the city. HAZMAG
services, could be contained within acceptable limits argued that more information should be made public
by the implementation of an appropriate Health and about the nature of chemicals handled at the Port
Safety Plan. and at Coode Island. Questions were also raised
about the extent to which Coode Island is
contaminated and what its future role might be if
current storage activities ceased.
Following the recent fires at Coode Island, the centred upon the poor quality of the soil, its effects
Government has established the Coode Island upon types of construction and the need for
Review Panel to recommend to Government, firstly, extensive and costly foundations.
an immediate action plan to minimise risks The Task Force has undertaken further work in
associated with the existing facility, and secondly, the light of the study which compared building costs
longer-term options for the storage of hazardous to determine the impact of construction cost
materials at Port facilities. penalties on land sales revenue and therefore on the
As stated earlier in this report, the Task Force has net present value for each of the four options. The
established a Consultation Co-ordination Committee findings were that while the net present value is
which the Coode Island Review Panel has also been slightly reduced as a result of reducing revenue, the
invited to join. The Review Panel has also been options remain viable, with the exception of Option 4.
invited to participate in the forthcoming
Revised Financial Evaluation
consultation over this Draft Strategy.
(Net Present Value)
It should also be noted that the Port of Melbourne
Authority has indicated that, should existing Strategic Options Evaluation Revised Evaluation
facilities at Coode Island be removed, the area would
be retained for port activity. Option 1 $127m $Ulm
Option 2 $74m $52m
In conclusion, the existence of chemical Option 3 $66m $40m
storage facllltles was perceived as a threat to Option 4 $11mm $19m
development at Docklands by a number of
participants In the consultation. The CoOde
Island Review Panel has recently been Apart from lowering expectations ofland value,
established to recommend to Government other possible responses to the problem of poor soil
ways of resolving risks associated with this conditions include:
faclllty. - tailoring plot ratios (and in particular building
height) to ground conditions in order to minimise
Soil Conditions construction cost penalties; or
Docklands is largely made up of Coode Island Silt - providing maximum flexibility within the plot
overlying Silurian mudstone approximately 30-50 ratios to enable developers to adjust building form
metres below. The silt is masked by a shallow layer to ground conditions ifrequired..
of imported fill. This means that the.soil has
generally low load-bearing properties and high
settlement character. Deep piling is required for
buildings higher than a few storeys.
The study undertaken to compare costs of building A number of submissions suggeste.d that poor
at Docklands with other areas of Melbourne found soll conditions within Docklands would
that while construction over part of the railyards Impose serious cost penalties on
would not prove a problem due to the presence of development. Work commissioned by the
basalt foundations, once construction moved out of Task Force suggests that development
this area, there would be some cost penalties remains vlable, albelt to a more llmlted extent.
incurred for low-rise industrial, residential and
commercial space. Details are provided elsewhere in
Section 2.4.3.
A number of submissions including those from the
Victorian Trades Hall Council and the Debate and
Analysis of News, Comments and Events (DANCE)
Group, queried any form of development proceeding
given the nature of the soil. In particular, concerns
Current pollution problems concerning litter and

raw sewage from pleasure craft was also raised.
There were concerns that if these problems were not
dealt with in the near future, a large scale
development such as Docklands would exacerbate
the situation.
A relatively new issue to emerge related to the
increased use ofnightlighting. The Astronomical
Society of Victoria discussed how light pollution
actually increased environmental pollution through
uncontrolled outdoor lighting. The lighting of the
night sky through the use oflarge quantities of coal,
Cars and trucks - major polluters
oil and natural gas resulted in these fossil fuels
being burned up and thereby contributing to air and
Pollution water pollution. The Society considered the
The Government's approach to controlling Docklands provided an important opportunity to
environmental pollutants is based upon the "polluter establish an Outdoor Nightlighting Code, which
pays" principle. In addition to this, the Government could include standard lighting level
advocates land-use planning controls to minimise recommendations being modified so as to
people's exposure to noise and contaminants and accommodate needs of the surrounding
will continue to ·research the effects of contaminants environment. The Code could also recommend that
on local systems. The Government objective is to timers, sensors and energy efficient light dimming
safeguard the long-term health and well-being of services were fully utilised so that the right types of
humans, other species and ecosystems through light sources for particular tasks were being
minimising exposure to environmental employed.
contaminants, pollution and noise.
The Strategic Options report discussed the Overall, the key concerns regarding pollution
Docklands project as needing to be consistent with which emerged relate to the Impact of traffic
the Government's Conservation and Greenhouse on the environment and the need to clean up
Strategies. In particular,the report indicated the waterways. Light pollution was also raised.
attention should be given to waterways being The need for Docklands development to
protected and pollution minimised. conform to Government conservation and
A number of individuals and groups were Greenhouse policies was also recognised.
concerned with the physical effects of such a large
scale project on the Docklands environment. The
possible environmental problems raised by the
community included such issues as: acoustic
pollution generated by the proposed Western
Bypass; increased vehicle emissions; the visual
impact of the Western Bypass; and the possible
effects on water flow patterns as a result of new
structures being built in or near the water.
2.4.9 Transport Western Bypass

Up to 48,000 vehicles per day, about a third of which
The transport framework proposed in the Strategic
are trucks, currently use Footscray Road. This
Options report was based on the key elements of the
figure is expected to increase to 57,000 with the
Central Area Transport Strategy (CATS). These
development of Docklands. With the construction of
are:
the Western Bypass (WBP) between the
- pedestrian emphasis in the city heart; Tullamarine Freeway and Footscray Road, traffic is
- public transport to provide direct access into anticipated to increase to about 70,000 vehicles per
the CAD day.
- public transport and pedestrian facilities, not The Strategic Options report argued that it would
motor cars, to provide circulation in the CAD; be desirable to improve the Docklands waterfront
environment by removing through-traffic from
- road traffic to travel around rather than Footscray Road and from Docklands. It proposed an
through the city; extension of the Bypass from Footscray Road to the
- parking to favour !'etail and commercial West Gate Freeway, interchanging with the West
activities; Gate Freeway at Graham Street. Two alignments
- bicycle networks to give direct access to the city were explored: one over the Moonee Ponds Creek;
through linked networks. the other to the west of the creek through the area of
the proposed Appleton "G" berth.
The CATS also refers to the future possible
extension of the Western Bypass to the West Gate
Freeway.
The Urban Strategy (Shaping Melbourne's
Future, 1987), Metras (Melbourne's Arterial
Road Strategy, 1987) and NATROV (National
Roads Strategy Victoria, 1987) all recommend the
construction of the Western Bypass as a means of
connecting major traffic nodes, that is, the airport
and the port, and of diverting through traffic from
=-~
the CAD. Metras recommended that construction
~-=
commence within 10 years. It should be noted that
in the 1989 Environmental Effects Statement by
Trucks on Footsaay Road
VicRoads, the Western Bypass was to be linked to
the West Gate Freeway via Footscray Road.
Discussion of the comments made during the Options considered for crossing the river included
consultation process is arranged under the following a high level bridge, a low to medium level bridge and
general headings: a tunnel. The report concluded that the least-cost
- Western Bypass solution would be to construct a low to medium level
bridge after commercial port activities have been
- Road network relocated downstream.
- Public transport As the construction of the WBP extension is only
- Traffic impact likely to occur in the long term, the Strategic
- Webb Dock Rail Line Options report recommended the duplication of
Footscray Road, to the east of its current alignment,
- Traffic calming, pedestrians and bicycles to divert through-traffic from the waterfront in the
- Car parking short to medium term.
- Water transport. Community comment ranged the spectrum from
support for the WBP to opposition. Support came
Discussion begins with a background statement
from a number of individuals, from the City of
which summarises the issue as considered in the
Footscray and the North Melbourne Association.
Strategic Options report.
However, the North Melbourne Association's support what are essentially suburban roads. For example,
was conditional. The conditions were "it not being a the road link between Footscray Road and the West
traffic generator, ie it is a 4-lane arterial link with no Gate Freeway needs to be improved". The PMA's
potential for fu,ture expansion to 6 lanes, with position is'that ifthe WBP and extension were not
effective noise amelioration measures, with no on I off constructed then port freight traffic is likely to be
r:r.mps to the east at Spencer Street, with the severely affected with greater congestion on
retention of the Upfield fix,ed rail line and with Footscray Road.
associated traffic measures that it will effectively Writing in a publication for the Social Justice
downgrade the streets ofNorth and West Melbourne Coalition, Patrick Moriarty argued that linking the
to their recommended maximum traffic volumes". West Gate and Tullamarine Freeways by
The cities of Port Melbourne, South Melbourne constructing the WBP and its extension would
and Brunswick oppose the wBP and its extension. undermine the public transport commuter market
The southern municipalities are concerned about the and would increase car and truck travel in the inner
impact on traffic through the southern suburbs. suburbs.
Brunswick argued that no alternatives have been VicRoads argued that if the Western Bypass is
considered and that it is conceivable, given the constructed only to Footscray Road, that heavy
proposed changes in land use, that through-traffic travel demands are expected along the proposed
volumes would decrease. (This is unlikely as the Footscray Road duplication and Spencer and King
changes proposed include a greater intensity of land Streets. VicRoads is not certain that a staged
use). approach to addressing the problem of through-
The City of Melbourne stated that its previous traffic is required. They suggest that "it may
position had been to support the first stage of the therefore be necessary to work towards the fu,ll WBP
WBP (Tullamarine Freeway to Footscray Road) as a arrangements immediately".
truck route. However, the Council believed that Furthermore, VicRoads favoured an eastern
further consideration needed to be given to alignment for the WBP which is west ofMoonee
connections to the south and north-west and the Ponds Creek but east of Appleton G, as it would
broader regional planning of these corriders. have less impact on the PMA's proposals for
The Flemington Association opposes the WBP and Appleton Dock and would minimise impact on a
is concerned that the Strategic Options report number of other existing facilities. Currently they
referred to the WBP as a fait accompli or as the only are examining two options for traffic movements
viable alternative, and had not examined other between the WBP and Footscray and Dynon Roado,
measures for traffic control such as halting heavy which will allow industries south of the river and
transport at outer suburban freight depots and Webb Dock to link with freight infrastructure along
greater use of rail transport. Concerns were also Footscray and Dynon Roads.
expressed about the visual impact of the elevated VicRoads noted that bridge clearances need to be
structure. revised and advised that following the public forums
Visual impact was also referred to by a number of a clearance of llm has been used. The feasibility of
individuals and the Royal Australian Planning a tunnel with a channel depth of 5m is also being
Institute and the Australian Association of Planning examined.
Consultants. However, the planning associations' While the WBP as proposed in the Strategic
concern was a more general one - that careful Options report is generally an elevated structure,
consideration would need to be given to the impact VicRoads advised thatit would be possible to lower
the proposed transport infrastructure would have on it to a ground level for about 400m between
visual presentation of Docklands. Footscray Road the Moonee Ponds Creek. However,
Comments were also made on access to and from this would limit access to the area between the By-
the Port. Although not referring to the WBP Pass and the creek.
specifically, the Joint Unions Working Party Rei>ort In the report of the Transport Working Group,
argued that "Access from the Port to the major VicRoads argued: "VicRoads strongly believes that
freeways must also be improved not only to meet the strategy to construct the Western Bypass initially
fu,ture trade growth, but to get heavy trucks out of from the southern end of the Tullamarine Freeway to
Footscray Road, followed by an early extension to extensions to pass over. Flinders Street extension
West Gate Freeway, underpins the viability of the would be truncated at the Bypass, and interchanges
Docklands development. Effective removal of heavy would be constructed at Footscray Road, La Trobe
motor vehicle through-traffic from the Docklands Street and the West Gate Freeway. Charles Grimes
development cannot be achieved without the Bridge would need to be widened.
availability of the full Western Bypass". While this option would mean commercial port
The Transport Working Group argued that the operations could continue at Victoria Dock and
WBP will relieve traffic congestion in the areas of Appleton G could be constructed, it has been rejected
Kensington, North and West Melbourne, by the Transport Working Group, principally
particularly heavy truck traffic, and at at-grade because heavy traffic would be taken into the heart
intersections along Footscray Road. of Docklands, creating problems of noise and air
The primary objective of the WBP identified by the pollution, and because it would create a physical
Transport Working Group is "to relieve the heavy barrier to Docklands and the waterfront from the
movement of through and truck traffic from the core CAD. Through-traffic and Docklands access traffic
of the development so that the area is a safe, would be mixed together, and congestion would be
attractive and accessible place to live, work and apparent at both the La Trobe Street and West Gate
visit". Freeway interchanges after only a few years. Heavy
traffic would also flow directly in the South
The alignment for the WBP preferred by the Task Melbourne street system via Montague Street.
Force extends from the Tullamarine Freeway at
Flemington Bridge on the western side of the
Moonee Ponds Creek to the West Gate Freeway at
Graham Street. The alignment is only feasible
following the relocation of commercial port In conclusion, Government policy and advice
operations downstream of the required river from relevant agencies promote the diversion
crossing. The alignment can be adjusted to allow of through-traffic from Docklands. Community
the development of Appleton Dock G, but will comment Is not opposed to this notion,
intrude into the proposed open space along Moonee however, It Is spilt on whether the Western
Ponds Creek. Bypass should proceed. Opposition Is based
primarily on concerns about the Impact of
With respect to the river crossing, the Transport
traffic on surrounding suburbs, although
Working Group argued that a high level bridge with
comments were also made about the need to
52m clearance which would permit commercial consider alternatives to the Western Bypass.
shipping to continue at Victoria Dock cannot be
constructed due to steep grades on ramps.
Similarly, a deep tunnel (13.lm draught) would Road Network
result in unacceptably steep grades and the cost Three of the four options identified in the Strategic
would be prohibitive. A shallow tunnel which would Options report had the following road infrastructure:
allow for pleasure craft but not for commercial
shipping would have aesthetic benefits but is not - the duplication of Footscray Road to the east of its
current alignment through the redundant rail yards
favoured by the Transport Working Group because
to become the primary through-traffic route until
of its cost and operational reasons relating to delays
caused by breakdowns and the carriage of hazardous the extension of the Western Bypass from Footscray
goods (Footscray Road is a designated route for Road to the West Gate Freeway. Footscray Road
liquified gas products). These views are echoed by would be converted to a waterfront boulevard
carrying only local traffic;
consultants' advice to the Task Force (in the report,
Comparisons of Alternative River Crossings - Collins and La Trobe Streets could be extended
for the Western Bypass). over the passenger rail tracks to form at-grade
intersections with the Footscray Road
The Transport Working Group considered an
duplication and waterfront boulevard
alternative alignment for the WBP. This alignment
respectively;
would be east of Footscray Road adjacent to the rail
lines and would allow Collins and La Trobe Street - ramps at Footscray Road duplication and
Ln Ttobe Street would pr1,ivirl .... rli 1¥.d. A1'.t~l'il'i

into the north-west sector of the CAD;
a Transport Int4iri:hang~ wnnlil hP. lnr..flt.P.d with
fo:i11tage t.o Collins Street;
th~ WP.sb~rn Bypass would be extended
southwards from Foot.sr.ray Road across the
nver to a junction with the West fh1t.P. Fretiway
at Otaham Street. This could also serve as a
link for local traffic. This would occur after the
Port has been relocated from Victoria Dock;
- the Webb Dock Rail Line could cross the Yarra
River adjacent to the Westem Bypass
gxtQni;ion.
A fourth option had the fbllowi11g variations;
- Footscray &ad could retain its through.traffic
function until the Western Bypass extension is
constructed. A local north-south road could be
constructed within the Core Area.
The Strategic Options report also canvassed:
Traffic on Footscray Road is a major barriers to
- the extension of Dynon Road southwards to the development
Footscray Road duplication;
must be removed from its present location". Ms
- the extension of Hawke Street passing over Meredith Gould, speaking at the public forum on the
Footscray Road duplication and intersecting at- Environment, argued that from a heritage viewpoint
grade with Footscray Road boulevard. Footscray Road should be diverted under Spencer
Further variations were discussed to examine the Street railyards and Footscray Road could then
financial impacts of different infrastructure become a local road or removed completely. This
solutions: theme of undergrounding through-traffic adjacent t.o
- Footscray Road is constructed at-grade with the railway tracks came through in other
Collins, La Trobe and Lonsdale Streets submissions. Ms Gould proposed a "loop road"
bridging over the Footscray Road duplication which would connect Flinders Street extension and
and intersecting with the Footscray Road Lonsdale Street.
waterfront boulevard at-grade. A platform A number of submissions were concerned about
road is constructed above the duplication for the impact that a new north-south road or the
local access; Footscray Road duplication would have on the
- the construction of a cut and cover tunnel for amenity of Docklands - truck noise in particular was
Footscray Road as an arterial road, just east of mentioned as a potential problem. The Collins
its present alignment, and building a local Street Baptist Church suggested that "the cut and
access road at grade above it; cover tunnel appears to be the best solution to
minimising both the visible presence of large volumes
- construction of Collins Street at grade by of traffic in the area and the physical barrier between
relocating the tracks and platforms at Spencer the CAD and the new development in the core area".
Street Station to the west.
The cities of Port and South Melbourne were
The great bulk of comments focussed on Footscray concerned about a north-south road from Footscray
Road, Footscray Road duplication and the north- Road t.o Lorimer Street providing links between the
south road. There is support for moving through- port areas north and south of the Yarra - Port
traffic from Footscray Road and converting it t.o a Melbourne in fact opposed the proposal. Their
waterfront boulevard. The Australian Institute of concerns· are based on the implications for traffic in
Landscape Architects stated that "Footscray Road local streets in the southern suburbs.
The City of Melbourne supported the extension of La Trobe, Collins and Flinders Streets, and to
Dynon Road, the duplication of Footscray Road and provide the main access into Docklands from the
the integration of north-south linkages into a single south and west.
transportation corridor in principle. The proposed Docklands Road should be designed
Support for the Dynon Road extension also came to discourage through-traffic. The proposed
from the North Melbourne Association which, along Docklands Road and Footscray Road boulevard
with the City of Melbourne, questioned the need for would both experience heavy traffic demand
the extension of Hawke Street into Victoria Dock. following the construction of the WBP to Footscray
The City of Melbourne recommended that Dudley Road. This will continue until the Western Bypass
Street continue to provide access to this area . extension is built, when they would revert to their
instead. (This suggestion has been taken up by the access and local traffic functions.
Task Force). An individual contributer expressed Other links between Docklands and the CAD
opposition to changes in Footscray Road and Dynon should be provided by:
Road which would result in more traffic in West
Melbourne. - Dudley Street connecting into routes to the
north-east and east. Dudley Street will carry
With respect to the extension of CAD streets, the heavy traffic with the construction of the
Australian Institute of Landscape Architects argued Bypass which will only be relieved with the
that there was no need to extend Collins or Bourke extension of the Bypass;
Streets. The City of Melbourne supported the
extension of Flinders, La Trobe and Collins Streets, - La Trobe and Collins Street extensions. A full
however, the Council was concerned about the diamond interchange at La Trobe Street will
potential for increased through-traffic which may perform the function of motor vehicle traffic
result from the extension of La Trobe and Collins distributor for Docklands. It will carry
Streets. The Council also argued that "any extension significant traffic demands;
of Collins Street must be at grade". - Collins Street. Its contribution to road capacity
VicRoads argued that the proposed Footscray Road will not be great as it will be the second east-
duplication is inconsistent with its aims to west road carrying mixed tram and car traffic;
encourage the use of public transport' for trips to and - Flinders Street extension leading into the
around the CAD and to direct through-traffic away southern CAD and South Melbourne. Its
from the CAD. IfFootscray Road duplication is to capacity will be constrained by the existing
carry through-traffic until the connection of the Flinders Street/Spencer Street intersection
Western Bypass to the West Gate Freeway, it should which is already at capacity and the railway
be downgraded on completion of the connection. viaduct prevents physical improvements.
VicRoads stated that the adequacy of the proposed
external road network cannot be assessed until
future road capacity estimates and travel demand In conclusion, there was general support for
forecasts have been prepared. the road network proposals, particularly for
the need to remove heavy traffic away from the
The Transport Working Group proposed a "key waterfront and convert Footscray Road to a
access road", referred to as Docklands Road, to the boulevard. It was suggested that through-
east of Footscray Road following an alignment traffic could be accommodated In an
adjacent to the rail corridor. The road would be alignment adjacent to the rall corridor, where
grade-separated from Dudley and La Trobe Streets It could be constructed underground.
with northerly and southerly ramps at La Trobe
Street. The main function of the proposed Proposals to extend CAD streets attracted
Docklands Road will be to link both Footscray Road little comment with only one submission
west and Charles Grimes Bridge to the CAD via opposing the extension of Collins Street and
another suggesting that It should be at-grade.
Traffic Impacts
The Strategic Options report noted that traffic
impacts will vary with the intensity ofland use.
'l'raffic volumes are likely to be greater under Option
1 (which proposed intensive commercial
development) therefore, than Option 4 (which
focw;sed on open space). Traffic implications for
Option 1.3 are vP:ry simihir. ThP. Htral.t:.:ic OpLions
report concluded that the WBP could be extended
early to relieve traffic volumes on the Footscray
Road duplication, Spencer Street and King Street.
Footscray Road duplication will not be an adequate
alternative to the Western Bypass in the medium to The intersection of Flinders and Spencer Streets has limited capacity
long-term due to restrictions on the capacity of
intersections with the Flinders Street extension and
of Spencer Street with Flinders and Collins Streets. Estimates of traffic impacts provided by the
Transport Working Group show that with Docklands
Footscray Road duplication will significantly fully developed (over 20-30 years) traffic volumes in
reduce traffic volumes on the waterfront boulevard Port Melbourne, South Melbourne and St Kilda
and; with the WBP extension, traffic on the could increase by up to 14%, 4% and 1% respectively.
duplication will be similar to that currently on The construction of the Western Bypass and
Footscray Road but with fewer trucks. extension could add slightly to these figures,
Under Option 4, traffic on Footscray Road would particularly in Port Melbourne.
build up steadily until the WBP is constructed (there Comparisons of the traffic volume estimates
is no duplication of Footscray Road to attract indicate that around 10% of the additional trips
through-traffic in Option 4). generated by Docklands when fully developed will
Individuals and local councils commented on the have an origin or a destination in Port Melbourne,
traffic impacts of Docklands development proposals. South Melbourne or St Kilda.
Comments ranged from general concerns that The Transport Working Group concluded that
Docklands development would create more traffic to "the majority of traffic increase can be attributed to
specific concerns about traffic impacts on particular the Docklands development. The increase is more
areas, particularly North and West Melbourne and pronounced within the Port Melbourne area but
the southern suburbs. tends to dissipate towards the south where traffic has
Port Melbourne and South Melbourne Councils the opportunity to use a range of routes as it does
and the Foreshore Residents Association all now."
expressed concern about traffic impacts, with the With respect to North and West Melbourne,
City of South Melbourne commenting that traffic estimates provided in the Transport Working Group
volume estimates had not been provided, and the paper show that the full development of Docklands
Foreshore Residents Association arguing that traffic could result in a 10% increase in traffic in roads
from the western suburbs needs to be fed into the crossing Victoria Street from Peel Street to the west.
Nepean Highway or the South-Eastern Freeway. However, this will be mitigated by the construction
Utilising figures provided by VicRoads, the of the Western Bypass and its extension which could
Transport Working Group suggests in its Working mean that traffic on these roads decreased to two-
Paper that the full development of the whole of thirds of current levels.
Docklands will generate approximately 140,000
private vehicle trips per day, based on a 70:30 modal
split between public transport and private vehicles
of the total generated trips.
In conclusion, residents of surrounding In the CAD, of every 100 journeys, 45 are by public
suburbs were concerned about the Impact of transport and 55 are by private transport.
Docklands and the Western Bypass and The public forum on "New Transport Options for
extension on traffic volumes. As It develops, Docklands" provided the opportunity for more
Docklands wlll generate trips which will have detailed discussion, enabling the Task Force to begin
flow through effects In terms of traffic volumes to embellish what was essentially a sketch of public
In surrounding suburbs. The construction of transport objectives in the Strategic Options report.
the Western Bypass and extension wlll add Chris Malan of the Public Transport Corporation
slightly to traffic levels In southern suburbs, foreshadowed "an integrated and compatible
particularly Port Melbourne, but wlll also transport strategy for Docklands" emerging with the
provide substantial relief to traffic levels In Draft Strategy, going on to advocate the view that
North and West Melbourne. public transport should play an even greater role in
meeting needs than is currently the case throughout
the CAD. The significance of a redeveloped Spencer
Public Transport Street station as a Transport Interchange was also
As has been noted above, the transport policy mentioned.
context for the development of Docklands is the A representative of the Public Transport Users'
Central Area Transport Strategy (CATS) of March Association (PTUA), Mr Ray Walford, raised a
1991. CATS provides "a vision of central Melbourne number of key issues in relation to achieving a high
and its transport networks in the future." The proportion of public transport usage for Docklands,
mechanisms to support the strategy were noted as an approach which his organisation supported. A
... pedestrianisation of the city heart, impr redeveloped Spencer Street station was seen here as
ovements to public transport services and facilities, a key element in reaching this objective.
restrictions on the supply of long-term parking, The impact of transport planning on land use and
increasing car occupancies through measures such the need to ensure easy walking distance to high
as car parking, and co-ordinated land density central city office and commercial uses, from
use I transport planning. key transport nodes such as Spencer Street, was
(Central Area Transport Strategy, Victoria emphasised. On the other hand, residents would
Transport, March 1991) generally be prepared to walk for 10 minutes or so to
housing. It was pointed out also, however, that the
The Strategic Options report emphasised the
other end of the journey also needed consideration.
importance of efficient and effective public transport
"It is no good simply providing good facilities at one
systems to, from and within Docklands, minimising
end of the journey and lousy facilities at the other."
the use of private vehicles. The proximity of Spencer
Street as a major public transport hub was referred The conflict between aiming for high public
to, as was the possibility of extending existing tram transport patronage as a feature of Docklands and
and light rail services. The rationale for the report's providing easy accessibility for roads was a cause for
emphasis on providing for efficient road networks concern. "... a direct run in on the Western Bypass
was also explained in terms of these public transport would give quick, easy access to the area, and you
objectives, that is, the need for Docklands to would ask, why would (people from the northern and
accommodate trams, buses and taxis as alternatives western suburbs) bother to use the trains?"
to the car. Heavy rail services were not envisaged as The possibility of utilising other linkages to
appropriate. Docklands such as North Melbourne station and
In addition to more conventional modes of public enhancing connections to Carlton and North
transport, the prospect of introducing water taxis, Melbourne was also raised.
people movers and other escalator systems was Finally, the Western Bypass was noted as a
noted. An emphasis on public transport also concern in the context of the threat it posed to the
requires adequate provision for pedestrian and Upfield line. The opposition of the PTUA to any
bicycle movement for which Docklands is ideally downgrading of the line was emphasised with the
suited. preferred outcome of the Western Bypass going over
the top of the Upfield line.
Some also pointed to the significance of the Rapid

Transit Link to Melbourne Airport in bringing
international travellers to the heart of Docklands.
The role of the Transport Interchange was
highlighted as a focal point for the casino, the World
Trade and Congress Centres, and the high standard
hotels nearby.
Several submissions also mentioned the need to
consider the Interchange as catering for functions
which were not presently accommodated. The
Helicopter Association of Australia, for example, put
Spencer Street station forward the view that the central city needed to
house a vertiport and that this should be a
A representative ofVicRoads indicated that the possibility for the Transport Interchange. In ten
aim for a modal share of public versus private years time, it was pointed out, tilt rotor aircraft may
transport at Docklands should be 70:30 in favour of be doing the Melbourne-Sydney run and the
public transport. opportunity to land in the central city would prove a
big business and tourist attraction. This view was
The discussion that followed the presentation of
echoed by the Civil Aviation Authority.
papers was spirited, but positive. Some examples of
the possibilities which were raised by the Australian The City of Melbourne and several other
Electric Traction Association included a tram commentators questioned the proposal to locate the
extension from North Melbourne to the Flinders Transport Interchange on the Collins Street
Street routes, and extension of tram services into extension which would be constructed on a ramp
Docklands along the proposed La Trobe Street over the railyards. The City of Melbourne, for
extension, as well as a loop between the Flinders example, did not support the extension of Collins
Street Extension and Collins Street. Street other than at-grade. An alternative closer to
Bourke Street was proposed.
In general terms, the aim to increase public
transport patronage for Docklands was supported in Others identified the possibilities of Flinders
· the forum and in submissions. Certainly, a target of Street station and a site closer to North Melbourne
70% patronage was questioned as possibly too station as options which could be explored. In this
idealistic in the current climate, but the regard, however, the Public Transport Corporation
environmental impact of increasing use of private (PI'C) saw the siting of the Transport Interchange as
cars was roundly condemned. The Board of Works an integral part of the strategic planning for
even predicted the prospect of precincts in Docklands and indicated also that access for road-
Docklands entirely free of car traffic. based transport would be particularly difficult at
Flinders Street station.
The prospect of redeveloping the Spencer Street
station was greeted during consultation as an
exciting proposal. Several submissions, focusing on
possible staging for the wider Docklands
development, clearly favored an early start on the
Transport Interchange. Indeed the Task Force itself
had indicated in the Strategic Options report that
this was crucial in getting Docklands off the ground.
1
The prospect of the Transport Interchange as a

self-funding proposition was also raised, in response
to which the PTC pointed out that "It provides an
opportunity (for) not only a world class multi-modal
interchange facility, but at the same time ... a
commercial opportunity, be it office or retail, ... so we
are looking at it as a commercial development
package with no cost to the Government, ifpossible.n
The Transport Working Group suggested that
three precincts could be identified within Docklands,
each of which presented different opportunities and
requirements for public transport. These precincts
are:
- the Transport Interchange precinct, centred on
an area within easy walking distance of the
proposed Interchange at Spencer Street
Station, for which a public transport patronage
target of 70% of all trips was considered a
suitable aim;
A modern Transport Interchange
- the Yarra precinct, the area along the north
and south banks of the Yarra for which a 50%
public transport target was recommended; Government pollcy and Input during the
consultation process all point to the need to
- the Western precinct, north-west of Victoria
emphasise publlc transport as the major mode
Dock, for which a 50% public transport target
of travel to and within Docklands. A specific
was again recommended.
goal for the share of journeys by publlc
In proposing this approach, the Transport transport was discussed, but there was a view
Working Group recommended as a basic objective for that this was too ldeallstlc.
the Docklands transport strategy:
The central role of the development of Spencer
"a high capacity and quality public transport Street as a Transport Interchange emerged,
system, planned as an integral part of the urban with It being the focus for high density
form of Docklands. This means that high density development with Docklands linked by good
developments should be located adjacent to high pedestrian and road-based publlc transport
capacity transport modes while lower density networks.
developments are located further away to be
serviced by feeder and distribution services."
The Transport Interchange was considered to be
the focal point of public transport provision for
Docklands. Provision would need to be made also for
mixed traffic of trams, buses and motor vehicles to
move along the La Trobe, Collins and Flinders
Streets extensions. The Transport Working Group
also proposed specific measures to facilitate a high
level of pedestrian and bicycle movement around
Docklands.
Webb Dock Rail Line

The Webb Dock Rail Line connects Webb Dock to
the South Dynon Container Terminal. Its current
route cuts through the heart of Docklands.
Government policy is that the existing line will be
upgraded to dual guage so that containers bound for
Sydney will not have to be carted by road from Webb
Dock to Sont.h Dynon. The newly formed National
Rail CorporRt.ion may provide funding for this.
While the line is lightly used at present, traffic
will increase as Webb Dock is expanded, as trade Webb Dock Rail Line
grows and as a result of a modal shift to rail. The
extent to which the line creates a barrier dividing gradients. This issue was taken up particularly by
Docklands is therefore likely to increase with time. VicRoads in its submission which questioned the
Consideration of its ultimate route is, therefore, practicality of incorporating the Western Bypass
required from the point of view of its affect on extension bridge over the Yarra with a new rail
Docklands and the operations of the Port. bridge. VicRoads argued that rail access to a bridge
The solution to the problem of the rail line needs requires much flatter gradients; that a rail bridge
to be seen in conjunction with the solution to has different structural requirements; and that
problems of through-traffic. The Strategic Options there were problems in connecting the northern side
report proposed several possibilities, including a less of Lorimer Street to the alignment of the road
expensive realignment along Footscray Road and a bridge.
relocation to the west, incorporating a new river The Transport Working Group argued that rail
crossing. The precise route of such a realignment access between the South Dynon Container
was seen as dependent on port operations, the Terminal and Webb Dock should be maintained,
Western Bypass extension and proposed Docklands including provision for a standard gauge link. The
land uses. Transport Working Group acknowledged that this
Comment arising from the consultation process may require the staged relocation of the existing
served to confirm the longer-term significance of the Webb Dock rail link so that ultimately it will be
rail line to the efficiency of the port, particularly in located outside Docklands, immediately west of the
the context of the National Rail Freight Initiative. Western Bypass extension.
The public forum on "The Port and Micro-Economic
Reform", for example, raised issues to do with
increasing the share of rail freight compared with
the high percentage of container traffic currently In concluslon, the Webb Dock Rall Line will
carried by road and the impact of the future provide an Important llnk In the long term
expansion of Webb Dock. The importance of between the Port and the Container Terminal
introducing standard guage to the rail line was also which should be maintained. It Is likely,
stressed by several speakers at the forum. The however, to become more of a barrier with
Australian Electrical Association also suggested time and should be relocated, although further
dual use for the Webb Dock Rail Line, ie. freight and consideration Is required of the appropriate
commuter use. means of crossing the river In the proposed
There was also comment about the difficulty of alignment, le. In a corridor with the Western
providing a new river crossing for the rail line in Bypass extension.
view of the inability of freight trains to climb steep
Traffic Calming, Pedestrians and

Bicycles
Traffic calming is a t.erm which has recently gained
currency, but is perhaps not clearly understood. The
Task Force accepts the definition provided by Dr
Peter Newman of Murdoch University as follows:
"Traffic calming is the deliberate policy of slowing
down traffic in selected areas, giving priority to
pedestrians and cyclists on urban roads and in
general seeking to promote modes other than the
car". Towards a More Sustainable Canberra -
An Assessment of Canberra's Transport, Energy
and Land Use; Peter Newman and Jeff
Kenworthy, Institut.e for Science and Technology
Policy, Murdoch University).
The ideas expressed in Dr Newman's definition of
traffic calming are broadly consistent with those
expressed in the Central Area Transport Strategy
(CATS), described above. CATS recognised,
Pedestrian precincts
however, that to achieve the goal of reduced traffic
in the CAD, a number of initiatives are required. As
well as improved public transport services, provision However, a number of submissions, including one
must be made to direct through-traffic around the from VicRoads, referred specifically to the need to
CAD. minimise motor vehicle usage and to provide for
effective pedestrian and cycle movement. In
The Government's Bicycle Strategy sets out the particular, VicRoads and Bicycle Victoria referred to
Government's support for bicycle riding and its the need for bicycle rout.es to link up with existing
intention to include the bicycle as a normal part of routes and for bike access across the Yarra to be
the transport system. provided. It was also suggested that Docklands
The Strategic Options report emphasised the would be a popular place to cycle and that provision
importance of providing efficient and effective public for bikes be included in the design of all roads and
transport systems to, from and within Docklands to bridges. Bicycle Victoria also argued that
minimise the use of private vehicles and link appropriate facilities in terms of showers, change
Docklands into the existing public transport rooms and parking be provided and that bicycle and
network. It also noted that: "Provision for bicycles pedestrian access should be linked.
and pedestrians is vital both in terms of providing
Recreation Opportunities from Banana Alley
access to other modes of transport and as
to North Wharf, a working paper on initial actions
alternatives to other modes."
to open Docklands up to the public, recommends
Many submissions were received which discussed that immediate improvements to pedestrian and
traffic and transport issues and, in particular, the cycle access along this route be made, and that the
need to minimise the impact of the car, especially in area be beautified and appropriate signage provided.
residential areas. The importance of public
The Transport Working Group's report supports a
transport was also generally recognised. To some
high degree of public transport usage, in preference
extent 'all these submissions could be seen as
to the car, at Docklands. Its work also supports
supporti've of principles of traffic calming and use of
pedestrianisation and extensive bicycle networks.
alt.ernative modes of transport. The Flemington
Association was critical of the Strategic Options
report for not examining alternatives to the Western The main concerns that emerged from the
Bypass proposal, in particular "... other more current consultatlon related to the need to minimise
and environmentally aware measures for traffic the Impact of the car at Docklands, and to give
control ... ". priority to other forms of transpon lncludlng
publlc transpon, bicycles and walking.
Work undertaken by and for the Task Force - the needs of residents, workers and emergency
supports these aspirations whilst also and service vehicles;
recognising the need to carefully manage - whether free-standing parking stations should
through and freight traffic. Specific pollcles be permitted;
such as CATS and the Bicycle Strategy have
- location;
provided a helpful context for developing a
proposed transport network. - pricing".
In promoting Docklands as the preferred site for
the Casino, the Government has announced that
Car Parking parking for up to 4,000 cars could be required.
The transport sections of the Strategic Options
report focussed on the major infrastructure items in
a policy context of diverting through-traffic from the In conclusion, little consideration has been
CAD and maximising public transport travel for given to car parking but a car parking
journeys to and within Docklands. No explicit !Imitation policy Is favoured. A number of
reference was made to .car parking. factors to be considered In the development of
a detailed policy were suggested. These can
Very little comment was made on car parking in be readily merged Into the Docklands Draft
the consultation. Reference was made at the "New
Transport Options" forum to the fact that 45,000 car
spaces were to be provided at Docklands under the
Olympics scenario and the question was asked Water Transport
whether a similar number is to be provided under Water transport has not previously been a major
the Docklands Stategy. feature of life in Melbourne and therefore has not
The City of South Melbourne noted that car been the subject of Government policy consider11tion.
parking had not been addressed in any of the options However, there are speed restrictions along the
and suggested that it required additional Yarra which have been imposed in order to prevent
assessment. damage of the river bank due to wash. The
Strategic Options report does raise the notion of
The Transport Working Group's consideration of introducing water taxis to link activities located on
the issue focussed on principles. It has argued that the newly developed waterfrontages.
a car parking limitation policy should be applied in
Docklands, given policy objectives which favour the A number of submissions raised the issue of water
use of public transport. Car parking limitation transport and the opportunities it presented to
policies currently apply in the CAD and at enhance the Docklands''maritime character. Many
Southbank, though the policy applying at Southbank of the submissions focussed on the location and type
is less restrictive than that applying in the CAD. of water transport preferred. For example, one
suggestion was for a ferry terminal at Victoria
The Transport Working Group argued that Harbour, another for facilities for small to medium
development of a detailed car parking policy for cruise ships at North Wharf and that another cruise
Docklands should consider: ship berth be built (preventing construction of a
- the objective of maximising public transport major bridge downstream).
journeys for travel to and within Docklands and the The potential for developing tour cruises and the
CAD; need to link such cruises with existing facilities, eg. ·
the mix of land uses and appropriate car the Arts Centre, the Museum at Spotswood and the
parking standards for each use; Footscray Community Centre, was also mentioned ..
The Royal Australian Planning Institute and the
- impact on property development;
Australian Association of Planning Consultants
- the capacity for developments to "share" car suggested that boat trips could be used to build
parking; public awareness of the area.
- the need for short, medium and long-term car
parking;
General support for the use of waterways for

transport, panlcularly for leisure and tourism
emerged from the consuhatlon. Advice from
the Transport Working Group suggocto that,
bccouse of speed llmhs on the Yarra River,
there Is llmlted potential for commuter
transport. Tourism and recreation related
water transport Is, however, supported.
In conclusion, there appears to be
considerable potential for water transport
Charter Boats at Princes Wharf between tourist destinations. This would be
consistent with the maritime heritage of
The Transport Working Group noted that current Docklands.
speed restrictions along the Yarra (llkph) reduce
the usefulness of water transport to commuters,
unless for short trips in and around the immediate
Docklands area. Access time to reach the river from 2.4.10 Staging
much of the CAD is identified as another constraint.
The Transport Working Group therefore concluded The Government's commitment to the development
that: of Docklands has been evident since Docklands was
proposed as the site for the Olympic Village, should
"Water based transport will provide an attractive Melbourne host the 1996 Olympic Games. Since that
service mode for tourists having trip end time, a number of other projects, notably the
destinations close to the river. For example, trips to Multifunction Polis, have been proposed for
places such as Royal Botanical Gardens, Docklands.
Government House, Olympic Park, Sports and
Entertainment Centre, National Tennis Centre, Announcing the release of the Strategic Options
Victorian Arts Centre, World Trade Centre, and report in December 1990 the Premier commented
Victoria Dock from origins such as Eden on the that once a strategy for Docklands was developed,
Yarra, Docklands,and Flinders Street station. "... it will be up to the private sector to assume the
There will also be demand for river trips as a challenge." It has been assumed that Docklands
leisure activity in itself. would be developed incrementally, as port and rail
authorities vacate various sites and private sector
In the majority of cases these water-based transport demand is demonstrated. Basically, this meant that
activities will compete with other public transport land currently occupied by the port or rail
services and there will be little or no benefit authorities would not be released for development
generated beyond those for the actual users of the until facilities had reached the end of their economic
service. Hence it is appropriate that these be lives. Any faster program ofland release potentially
services operated at no cost to the community (ie. involves the payment of compensation to the PMA.
Government). Public sector involvement should This issue, and that of the relationship between
therefore be limited to the accommodation ofwater- Docklands and the PMA's long-term requirements,
based modes in planning and development of the is discussed in more detail earlier in Section 2.4.2 on
Docklands area and to the maintenance of the Port and in Strategic Issues, Section 3.1.1.
statutory requirements governing water-borne
transport". Earlier this year, legislation was passed by the
Parliament to establish a Docklands Authority to
manage development of Docklands.
A wide range of comments were made in relation suggested that development should spread out from
to the broad issue of staging of development at F1inders Street. Another view recommended that
Docklands. Two key areas are discussed elsewhere the first stage of development focus on opening up
in this report. Questions relating to the role of the the area between the existing city and Victoria Dock.
Port, the consequent timing of any development at Others saw building of the Transport Interchange as
Docklands and the need, if any, to pay compensation playing a key role in the successful development of
for early release of port facilities are discussed in Docklands. The Royal Australian Planning Institute
Section 3.1.4. Issues related to the need to co- and the Australian Association of Planning
ordinate development at Docklands are also Consultants argued strongly that the first stage of
discussed in Section 3.1.4. development should focus on opening the area to the
Other comments related to the overall importance public, with the objective of allowing people to visit
of staging and the need for a clear strategy for the site and develop an appreciation of its potential.
development. Some expressed views about the Further detail on the relationship between
overall timing of the project and whether there was Docklands and the future of the port and, in
a need for action to occur quickly or, at the other particular, the Victorian Ports Land Use Plan Study
extreme, whether development should be delayed. which is currently underway, has been provided in
Others put forward specific proposals for how Section 3.1.4. Nevertheless, it is worth noting here
development should be staged or nominated that the Task Force has adopted a "least cost"
strategic proposals they saw as being critical to the approach to development which means that land
overall success of Docklands. would not be released until:
The City of South Melbourne criticised the - the economic lives of port facilities have
Strategic Options report for not paying enough expired; or
attention to the issue of staging and a variety of - Port of Melbourne Authority (PMA) leases have
submissions including those from the Victorian expired.
Council of the Arts, the City ofWerribee and a
number of individuals emphasised the importance of The PMA advises that assets within Docklands
a staged approach. The Building Owners and have remaining economic lives which vary between
Managers Association and others highlighted the 0-30 years:
importance of providing certainty and predictability
for development. Asset Remaining Life End of Life
Others expressed views about the overall pace of (years)
development. Concerns about the state of the Central Pier 0
economy and competing demands on State finances, North Wharf 0
the role of the port and the need for broad
agreement about overall metropolitan planning Victoria Dock 2-4 15 2006
prompted some, including the Inner Urban Regional Victoria Dock 5-6 20 2011
Housing Council, the Victorian Trades Hall Council
South Wharf 14-16 10 2001
and Terry Burke of Swinburne Institute, to query
whether Docklands should be put on hold. Others South Wharf 17-19 10 2001
felt that development should commence quickly. South Wharf 21 5 1996
"... my greatest hope is that something is done and
Victoria Dock 16-17 30 2021
done soon." A more common view was one which
supported an incremental approach. The City of Victoria Dock 22-23 5 1996
Melbourne, the Public Transport Corporation, the Victoria Dock 24 20 2011
Royal Australian Planning Institute and the
Australian Association of Planning Consultants are Dudley St - Workshops
notable proponents of incremental development. and Slipway Complex 15 2006
A variety of submissions nominated particular
programs for development. The City of Melbourne Under this scenario, port activity would not be
totally removed from Docklands until around 2021.
It would be possible, however, for relocation to occur 2.4.11 Finance and

earlier, but, should acceleration be desired, then the
Port could reasonably expect financial assistance or Investment
compensation for construction of new facilities. Any In the current economic climate, it could be
compensation would need to be based on a full anticipated that issues to do with the financing of
analysis of capital costs and operational benefits. Docklands development would be uppermost in
The Government has also expressed a preference people's minds. "How much will it cost and who will
for Docklands to be the location of a casino which pay?" are relevant and necessary questions to ask
would assist in kick-starting development. about such an ambitious urban project. "Who will
Expressions of interest have been called recently to benefit?" is another.
establish a casino within three kilometres of the The Victorian Government has maintained from
Melbourne GPO. Further discussion of the casino is the outset that private sector investment is vital for
provided in Section 4.3. the Docklands project to proceed. This was
The Government is also proposing that a Rapid reinforced by the Minister for Manufacturing and
Transit Link (RTL) be established, linking Industry Development, the Hon. David White MLC,
Melbourne Airport and the Northern Region to the at the time the Docklands consultation process was
city at Spencer Street station. The RTL is proposed launched (Press Release, 19 February 1991). The
to be a modem, frequent, reliable and affordable Premier has also indicated that Docklands will need
transport system. to be market-driven (Press Release, 17 December
Finally, a paper prepared for the Task Force on 1990).
initial actions to open up Docklands to the public, The issue of financial feasibility is linked
Recreation Opportunities from Banana Alley inextricably with that of investor interest,
to North Wharf, recommended encouraging further particularly at a time when development is curtailed
public access and participation in this area at an and investor interest considered problematic. The
early stage. The Working Group on Initial Actions Task Force was first persuaded by the view that
has also recommended actions to increase bike and expressions of investor interest would be constrained
pedestrian access to the area, and general by the economic downturn and second, that the
beautification. consultation itself would assist in identifying more
specifically which land uses would prove most
attractive. That the long-term nature of the project
would accommodate highs and lows in the economic
The Importance of careful staging of cycle had been pointed out in the Strategic Options
development was clearly acknowledged In the report.
consultation. Particular emphasis was placed
on co-ordination with the port and with other The question of public versus private sector
Inner urban development projects. The need investment in infrastructure has been debated at
for certainty was also raised by some. length during the time that proposals for Docklands
have been in the public arena. Much discussion has
Other discussion, and further work carried out been generated particularly by the release in May
by the Task Force Identified key projects 1991 of the Infrastructure Investment
which wlll Include the casino, the Rapid Guidelines For Victoria by the Treasurer. Sub-
Transit Link and proposed redevelopment of titled "Public/Private sector partnership", the
Spencer Street station. Guidelines canvassed certain aspects of proposals
The need to provide greater public access to and procedures for new and replacement
the area was raised and Is addressed In the infrastructure generated by government policy,
Task Force paper Recreation Opportunities community need or existing asset or service
from Banana Alley to North Wharf. reliability and efficiency. They also gave some focus
to the Government's objective of seeing Docklands as
largely private-sector driven.
Melbourne Docklands - Draft Strategy- for Redevelopment 73
The Strategic Options report provided a summary discount rate, Options 1, 2 and 3 remained viable.
of a thorough financial evaluation of the four Using an 8 per cent rate, all Options had slightly
scenarios for Docklands. The detail was included in negative net present values.
Working Paper No.6 Financial Evaluation which Discussion of financial issues to do with
set out the methodology, assumptions and results of developing Docklands focussed on differing aspects,
evaluating the land use and infrastructure from questioning of the financial evaluation
development options for Docklands. methodology, to assertions of who would benefit
It should be borne in mind that one of the from development, to concerns about the desirability
objectives for Docklands specifies that development of providing more central city office accommodation.
should" ... maximise benefits available through In many cases, it must be pointed out, questions
release of under-utilised Government land to finance were raised which were clarified by direct reference
basic infrastructure". The financial feasibility to the Financial Evaluation working paper.
undertaken was concerned, therefore, with The approach to financial evaluation of the
comparing the benefits generated by sale ofland by Strategic Options generated a great deal of interest.
Government and the costs of making land available. For example, the issue of what items of
Benefits were measured in terms of revenue from infrastructure should be included was of some
land release, while costs were seen as associated concern and, in particular, the exclusion of the cost
primarily with infrastructure provision and of the Transport Interchange and the Western
relocation of services. Bypass extension from the calculations . The City of
In determining financial feasibility, the demand Melbourne expressed concerns about possible
for land was calculated on the basis of different implications for the Council in terms of funding
types and quantities of floor space taken up at infrastructure to accommodate Docklands. The Gas
certain intervals. On the supply side, the timing of and Fuel Corporation raised issues to do with
land release was seen as dependent on the funding relocation of existing works and any clean-
availability of roads, public transport and services. up required of contaminated sites. This issue is
Having calculated the likely costs and revenues over discussed in Section 2.4.8.
time, it was then possible to calculate the surplus There were also concerns that the report did not
funds available or funds which needed to be injected. allow adequate compensation to the Port of
A discounted cash flow methodology was applied Melbourne Authority (PMA) for the relocation of its
in which a real discount rate of 4 per cent per facilities at Docklands. The PMA raised the
annum (after allowance for inflation) was applied to question of what compensation ought to be payable
determine the amount of money that could be should earlier release dates be negotiated than those
generated by the project, in present day values. The which had been calculated on the basis of the
4 per cent discount rate is that applied by the economic lives of berths, normally thirty years.
Department of Treasury to public sector projects. The Social Justice Coalition, however, argued at
Allowance has therefore been made for the fact that one public meeting that the financial analysis should
costs and benefits received earlier have a higher have included the value of the land in its current
"present value" than the same costs and benefits state as an initial cost and that, in excluding this
received later. It was pointed out also that the cost, the net present value for each of the options
benefit of slowing down urban sprawl was to be had been over-stated. To obtain an independent
addressed in a separate Working Paper. assessment of the financial evaluation carried out by
The financial evaluation of the options indicated the Task Force, the advice of the Valuer-General
that with the exception of Option 4 (containing was sought on:
substantial amount of open space) all were viable. - the approach adopted in the financial analysis
The sensitivity of the options to a reduction in land and its underlying principles;
sales revenue of 10% and to a reduction in the cost of
infrastructure of 10%, was tested. The results of - the resultant land values;
this sensitivity analysis showed that Options 1, 2 - the validity of valuing the land in its current
and 3 remained viable. state.
In addition, the impact of using a higher real In reply, the Valuer-General reported that:
discount rate was also tested. Using a 6 per cent
1. The approach adopted by the Task Force in the
financial analysis and its underlying principles is He went on to say that the next generation of
souridly based. commercial development sites was assembled
already. Another speaker at the same forum argued
that the major purpose of Docklands "is the creation
2. Estimating the value of Docklands based upon of more central city real estate".
the current use is inappropriate because it fails to
take into account future uses and development This view in relation to central city types of
potential and associated infrastructure changes. development was common and the implications are
In addition, Docklands in its current state and use two-fold. First, Docklands is not seen currently as
would be unlikely to attract a purchaser and an extension of the CAD. Second, other forms of
obtain desired development. development may be more attractive to investors,
particularly housing and small scale office and
The Valuer-General further noted that: commercial development. The more general view
"Land values have been greatly affected by the that investor interest has not been demonstrated,
downturn in the property market and the frequently stated, will be addressed subsequently.
economic recession beyond a level which could The issue of who will benefit from a Docklands
have been foreseen in 1990 when the preparation redevelopm~nt was raised in various ways. At the
of the Strategic Options was undertaken. Further public forum on "Economic Development", for
more, this downturn was also greater than was example, Harry van Moorst of the Victoria
foreseen by this Office at that time. It is noted, University of Technology proposed that Docklands
however, that the Task Force's approach assumed was "another land grab", "dressed up in
that the first land sales would not occur until 1996 sophisticated garb". Further, that the profits from
by which time the current economic circumstances Docklands would go to interests overseas.
are likely to have changed."
A speaker from the Social Justice Coalition at a
This Office has investigated the output from the previous forum said that
Task Force by adopting a different methodology
which provided an estimate of the land value "For the community sector, a key test of the
based upon a hypothetical development (Strategic legitimacy of Government actions will be whether
Option 2) and various assumptions. additional choices are created for those who have
few ... a massive Government investment will
The Valuer-General has estimated that the create more affordable housing options, additional
present value ofland at Docklands is $395 million, recreational opportunities that are not limited to
assuming development is possible in accordance credit card consumers, and an expansion in the
with Option 2 and assuming that Government availability of long-term job opportunities."
provides certain infrastructure. When the cost of
infrastructure identified by the Valuer-General is
deducted, the net value of the land is $111 million Concerns relating to the methodology adopted
compared with $74 million estimated by the Task by the Task Force to evaluate financial viability
Forcein its most recent working paper on Financial of development were raised during the
Evaluation. consultation. Advice sought from the Valuer
In relation to the vexed question of investor General's office confirms the approach
interest, a representative of the Buildings Owners adopted by the Task Force. Other concerns
and Managers Association (BOMA) noted at the related to the need to demonstrate Investor
public forum on "The Docklands Authority" that Interest and questions as to who should
"The current oversupply in the Melbourne office benefit from development of Docklands.
market will effectively curtail any immediate interest
in the docklands."
..
3.1 Strategic Issues: Discussion

The earlier discussion of the policy context and of Future metropolitan growth
the range of consultation and research input There have been concerns expressed in the
concerning Docklands serves to raise a number of consultation that it is premature to commence
strategic issues. These issues will require further planning for Docklands now; that Docklands is too
consideration or resolution as planning and significant an area to consider in isolation from an
development of Docklands evolves. For our urban development framework for Victoria as a
purposes, the Task Force has identified those issues whole.
which are both helpful and relevant to the
development of the Draft Strategy although complex It is clear that Docklands must be positioned in
in their resolution. The degree of community the context of future metropolitan growth and longer
concerns which they generate on the one hand and, · term options for the development of Victoria's
on the other, the degree to which they are pivotal to overall settlement pattern. In reality, however, the
the implementation of a Docklands strategy are also quantum of development envisaged for Docklands
considerations in identifying strategic issues. will be marginal in relation to the amount of
development required to house and accommodate
The strategic issues identified in this way include: . employment opportunities for Victoria's future
- Docklands and its place in the broader population.
planning debate; For example, by the year 2031, an additional 1.5
- metropolitan traffic implications for Docklands; million people are likely to require housing in
- what land uses are possible at Docklands and Victoria. The Draft Strategy for Docklands suggests
how decisions can be made appropriately; an achievable population in the same timeframe of
about 8,000. This represents less than 1% of
- the timing ofland release and the obstacles to anticipated population growth. Docklands will
development; therefore have only a marginal influence on
- the role which heritage could or should play in accommodating Victoria's long term urban
the character and design of Docklands; development, whatever broad distributional strategy
is adopted. Nevertheless, Task Force research has
- implementation.
shown that the State Government has invested. a
Some of these may remain unresolved for some considerable amount of capital expenditure in
time, while others can be dealt with more readily. central Melbourne in recent years and it would be
This Section sets out to analyse and discuss these desirable to capitalise on this investment through
issues, recognising that current policies and the redevelopment of Docklands.
intentions may well change during the long time
It is important to gain an appreciation of the
period under consideration.
strategic implications for Docklands of likely long
term metropolitan and regional scenarios,
3.1.1 Docklands in the particularly those the Department of Planning and
Housing published earlier this year in the discussion
Broader Planning and paper,Urban Development Options for Victoria
Development Context (Department of Planning and Housing, 1991)
Docklands cannot be planned and developed in Historically, housing development in Melbourne
isolation from the broader metropolitan context. A has moved t.o the east and south, pursued by retail
major project like Docklands needs to be located and industrial operations and, more recently, by the
within the range of development scenarios possible suburbanisation of many office-based employment
for Victoria as a whole. Public investment in activities. This will no doubt continue and current
infrastructure at or for Docklands is perceived by metropolitan planning provides for significant
some to be a matter of priorities which might see development in the south-east growth corridor over
investment allocated better to existing suburbs or to the next 10-15 years.
the urban fringe.
However, there has also been substantial growth

in the west and north, particularly in areas such as
Werribee, Keilor, Sunshine and Melton. Also the
Urban Land Authority has commenced a major
development at Roxburgh Park in the Shire of Bulla.
This north-west growth is being supported by
significant infrastructure_investment such as the
western ring-road which, together with removal of
the West Gate Bridge toll and the increasing
importance of Melbourne International Airport in
Australia's economy provide strategic impetus to
development.
By contrast, in the medium term (beyond 15
years), the south-east faces significant constraints
owing to major environmental barriers (the
Dandenongs, Westernport, the Mornington
Peninsula), flood-prone land in the sensitive
Westernport catchment and prime agricultural land
to the east of Pakenham and around Warragul. In
broad strategic terms it seems likely therefore that, Medium density housing
in the medium to long-term, the predominant
growth opportunities will be to the north and west of
Melbourne thereby increasing the strategic already been witnessed in other industrialised
importance of Docklands, the CAD and the Port in a countries.
more central position which currently is not evident. Competition with Other Major
This is likely to remain true whatever degree of Projects
urban consolidation is achieved within existing built
up areas because increased densities will only have It has been suggested that Docklands will be a
a modest impact on the overall population growth competitor for investment and market interest with
anticipated in the next 40 years. other major projects. The concern has been
expressed that these projects may be disadvantaged
In developing options for long term urban growth by Docklands because of the interest and support
in Victoria, one scenario suggested a greater which Government has provided to it.
proportion of anticipated metropolitan growth
should go to regional centres. Consultation It has been previously stated that Docklands will
suggested that this was a popular option although it be largely funded by the private sector and
consequently, development will be private sector
must be noted that it was clearly stated that
achievement of such an option would very much rely driven. Therefore, in assessing market risks, the
on the ability of regional centres to attract such private sector will have regard to the current
growth. potential supply of competing property. Ultimately,
the private sector will determine which areas are
However in the dynamics between regional developed and when.
centres and the metropolitan area, the potential for
However, in exploring this issue further, the
increased commuting was also recognised even if
this was not seen as the most desirable basis for projected time-frames and target markets for these
competing developments need to be considered in
regional centre growth. In this context it must be
assessing the potential impact of Docklands. The
recognised that Geelong, Ballarat and, to a lesser
Task Force has assumed that major redevelopment
extent Bendigo would be better placed, further
of Docklands would not occur until the late 1990's, at
positioning Docklands in a central strategic role at
which time it is considered that the current
the focus of a commuting rail network and with the
oversupply of commercial floorspace will have been
potential to offer employment opportunities that
absorbed. By this time, it is expected that the
would not require further travel from the point of
Sandridge and Eastside (Jolimont Stage 1) projects
disembarkation. This pattern of development has
will be largely completed, and the remaining major public investment because it is integral to the
development opportunities at Southbank largely success of strategic objectives. For example, a joint
taken up. public/private venture for the proposed Transport
Finally, in assessing market impacts in the Interchange may be the single most effective
residential sector, a number of points need to be strategic investment in promoting improved
made. The annual supply of new housing in inner accessibility to key regional centres in one direction
Melbourne has not been high with an average of 500 and to employment opportunities around Docklands
dwellings per years constructed. It could be argued in the other. Resolution of such matters and
however, that demand has been constrained by the exploration of such opportunities in any detail will
lack of opportunity, or alternatively that the supply be for the Docklands Authority to pursue.
has been oonstrained by external forces such as In respect of infrastructure funds, the key issue
development oontrols or development approval facing Government is not therefore the relationship
processes. Furthermore, the residential market is between Docklands and the suburbs but the
highly segmented, but the size of the market at the distribution of oosts between public and private
upper end is very small. Most of the existing major sectors. The Government has already set out the
projects are targetting the upper end of the terms under which it seeks private sector
residential market. investment in infrastructure; it has set out the
terms for requiring development contributions for
Public/private infrastructure oommunity services and facilities in fringe growth
investment areas; agencies such as Melbourne Water are
It has also be.en suggested during the oonsultation requiring greater oost recovery ratios and the
that Docklands will be an unwarranted drain on Department of Planning and Housing is also
public investment that would be better spent on preparing a draft policy paper on infrastructure
much needed suburban and regional centre pricing policy which will explore the existing
infrastructure. The bulk of new infrastructure arrangements of cross- and hidden subsidies and
investment requirements is generated by the propose a number of options for reform.
distribution of population growth, however, there is The issue is therefore how can infrastructure,
no cheap answer. For example, significant wherever it is needed, be more appropriately funded.
development in the Plenty Growth Corridor is There is no evidence to suggest that pursuit of the
reliant upon completion of the Melbourne Water long-term development of Docklands will have a
trunk sewer; however, ifthe quantum of growth significant impact on public infrastructure
were to be redirected to the south-east growth investment in other geographical areas.
oorridor it would breach the threshold capacity of
existing sewerage services and require major capital Opportunity for Innovation
investment in a new sewerage works. As another In evaluating Docklands as part of the urban oontext
example, while sewerage and road infrastructure in Victoria we cannot lose sight of the opportunities
may be better positioned for medium-term growth in provided by its development. There was a view
the west, water supply is more expensive. In strenuously articulated in the oonsultation that
regional centres there is varying capacity in Docklands provides the opportunity for innovation in
infrastructure and services not only between centres urban development. Docklands, it was suggested,
but also between different types of utility and should be a model, given that it could be regarded as
service. It is, in fact, a problem with multiple a greenfields opportunity, with no resident
variables. population, with proximity to physical and
Against this background, the Government has oommunity infrastructure, and adjacent to the CAD.
taken the clear position that Docklands will be Docklands should add to the richness and diversity
privately funded, including the provision of of metropolitan Melbourne.
infrastructure. The Treasurer's Guidelines on Possible examples in which this view oould be
Infrastructure Investment are quite relevant to articulated include housing, particularly types of
Docklands. Opportunities may, however, emerge housing and the provision of a range of affordable
where a case can be put for some housing. It has been noted already that Docklands
represents a significant opportunity for urban
on the developer by the public sector. Controlling

and minimising these costs will be required to assist
in achieving affordability objective11.
Possible mechanisms to assist in achieving and
maintaining affordable housing at Docklands could
include:
more flexible development control provisions;
transfer of development rights;
density bonuses;
development levies and reduced profit margins;
Medium density row housing - fiscal mechanisms such as reduction of
property taxes.
consolidation; that dependent on population Docklands also provides the opportunity to
densities achieved and the specific location of consider a new approach to affordable housing,
residential development, the area could be possibly through a re-evaluation of public housing
considerably less expensive to develop than the provision. For example, there is the potential at
urban fringe. Docklands to think of public housing as available to
any who may need it, whether subsidised or not,
The provision of higher density housing would
responsive to changing household size and needs.
need to be considered a priority if Docklands were to
be developed in a manner consistent with the Furthermore, Docklands provides an opportunity
principles of urban consolidation. Currently, to explore different management and financing
dwelling densities in nearby suburbs average around structures for the provision of affordable housing,
55 dwellings per hectare. The work of the Task particularly for those with a limited capacity to pay.
Force has assumed dwelling densities of 67 Rental co-operatives, rental housing associations
dwellings per hectare at Docklands, as compared and equity bond financing, as suggested in the
with typical fringe development at 15 dwellings per National Housing Strategy, are possibilities which
hectare. might be considered.
To achieve high densities, a significant degree of Docklands may develop a character different from
flexibility in development controls is needed relating that existing in most parts of Melbourne. Rather
to: than developing precincts that are dominated by one
use, for example housing, as is found in typical
- density
Melbourne suburbs, some areas might contain a
- minimum lot sizes variety of uses. This is a more "European" model of
- building heights development which has attractions in terms of
providing vitality, higher dwelling densities and
- site coverage
safer environments.
- car parking, and
Other ideas which have emerged concern the
- private open space provision. opportunity provided by Docklands to be designed as
The opportunity also exists to provide new and an environmentally sustainable place. This is in
innovative types of housing and residential areas line with the City of Melbourne's vision of the
which ·could include multi-unit development, row environmentally sustainable city and was raised in
housing and townhouses. There is a need for more the Docklands consultation in relation to ensuring
"as of right" development, as well, to promote such that residential and other development incorporates
housing types rather than subjecting development to best practice in energy and waste management, site
lengthy permit processes. Development controls in planning to ensure maximum use of the natural
residential areas should reflect these objectives. environment, cogeneration systems, and passive
solar heating and cooling.
A key determinant of housing affordability, for
private sector housing, is the cost structure imposed
What emerges from this discussion is a quite clear

message. It is that the development of an area as
largP. smrl sieniflc-.smt to Victoria as Docklands must
mntinnP. to hP. sP.P.n as part of a wider urban context.
Docklands should not (YlmprnmisP. rlP.vP.lnpments
AIRAwhAre, but complement them. It should be
located oqunroly no n oignifioant element in th~
continuing debate over urban futures, their location
and form. Perhaps the potential that Docklands
offers may only be realised in this way.
3.1.2 Metropolit an Traffic

Truck traffic on Footscray Road
and its Implication s for
Docklands terminals and the south-eastern suburbs. Spencer
There are two transport related issues which derive Street and King Street would also be relieved of
from broader policy considerations, that is, from through-traffic. Under Melbourne's Arterial Road
metropolitan road policy and from policies Strategy (Metras), Footscray Road would function as
concerning rail freight. The issues concern through- the link between the Western Bypass and the West
traffic and the Webb Dock Rail Line. Gate Freeway. In solving a metropolitan level
traffic issue, Metras proposed that Footscray Road
Through-traffi c and Charles Grimes Bridge would become the
The Central Activities District has a traffic and through-route for traffic, although, at that time, the
environmental problem which is caused in large part redevelopment of Docklands had not been envisaged.
by the fact that the existing metropolitan road A prior question might be, what would happen if
network directs traffic travelling from one side of the the Western Bypass was not constructed? Current
city to the other through the CAD, rather than estimates put traffic movements on Footscray Road
around it. That is, the radial nature of the existing at about 48,000 vehicles per day of which
metropolitan road network results in large volumes approximately one third are trucks. By 2001, it is
of traffic in the CAD which are merely passing estimated that this figure will rise to 50,000 vehicles
through and have no actual business in the CAD. per day.
The need to address this problem has been the
subject of much public debate and has broad public Traffic projections undertaken by VicRoads as part
support. In proposing a development strategy for of the preparation of this Draft Strategy indicate
Docklands, the issue is how to manage increased that with Docklands fully developed, traffic volumes
volumes of through-traffic in a way which is on Footscray Road are likely to approach 57,000
environmentally sensitive and consistent with the vehicles per day, a 19% increase in traffic volume.
community's aspirations for the development of Traffic in east-west streets in the CAD could
Docklands. increase by around 50% and by 10% in North and
West Melbourne over 20-30 years. Footscray Road
In examining the issue at a metropolitan wide will remain the dominant north-south route in the
level, VicRoads proposed in 1987 that a Western area, and will, as the Port and rail infrastructure
Bypass be constructed from the Tullamarine are further developed, attract more and larger
Freeway to Footscray Road. This would allow trucks. Footscray Road will cut a swathe through
airport traffic to reach the CAD more quickly but, Docklands which increasingly alienates the
more importantly, would mean that through-traffic, waterfront from the CAD. Currently there is very
particularly heavy vehicles, could skirt the CAD little pedestrian activity across or along this section
rather than pass through it. Moreover, the suburbs ofFootscray Road, but as Docklands develops it will
of Flemington, Kensington and North Melbourne be an intimidating barrier to pedestrians. It would
would be relieved of heavy vehicles on local streets mean that residential development, for example,
seeking alternative routes from the congested end of could not be located on Footscray Road but would
the Tullamarine Freeway to the port, freight need to be buffered in some way, perhaps by an area
barrier between the city and the water and thus run
counter to one of the primary objectives of the
Docklands development. The need for an alternative
route for through-traffic is critical to the
achievement of the previously stated development
objectives for Docklands.
A number of solutions were considered in the
Strategic Options report. These are referred to in
Section 2.4.9. In summary they were:
a new bypass to the west of Docklands;
the duplication of Footscray Road (Docklands
Road) adjacent to the rail corridor which is
bridged by Collins, Lonsdale and La Trobe
Streets and intersects with Footscray Road
boulevard at-grade. A platform road could be
constructed above the duplication for local
access;
- the construction of a cut and cover tunnel for
Footscray Road as an arterial road, just east of
its present alignment, and building a local
access road at-grade above it.
Comparison of Western Bypass Extension Options
The duplication of Footscray Road means that the
problem of managing through-traffic is relocated
of commercial activity. Ideally, therefore, an within Docklands. Similarly, the "barrier" is shifted
alternative route for through-traffic should be from the waterfront to the rail corridor. The
provided so that the desired creation of a waterfront primary objective ofremoving through-traffic is not
environment adjacent to Victoria Dock is not met and direct impacts from noise and air pollution
jeopardised. within Docklands would increase with the projected
This "barrier" effect will be exacerbated by the increase in traffic congestion.
construction of the Western Bypass which will direct While the undergrounding of the Footscray Road
additional volumes of through-traffic into duplication or a cut and cover tunnel would both
Docklands: it is estimated that traffic in Docklands remove the "barrier" effect, they too have problems.
will increase 45% to 70,000 vehicles per day. In the The duplication would result in major traffic
CAD, the construction of the Western Bypass will problems at the intersections of Flinders and Dudley
produce an increase in traffic on east-west streets of Streets as large volumes of through-traffic would
around 59%, but a decline in Spencer and King conflict with high volumes of traffic to and from
Streets by 34% and 6% respectively. Opportunities Docklands and the CAD. A tunnel at Footscray
for the provision for residential, commercial, leisure Road would have the following disadvantages: the
and entertainment facilities in the area of Victoria capacity of the road network would be limited due to
Dock are not compatible with a road carrying 70,000 conflict of through-traffic and turning access traffic
vehicles per day, many of them trucks. The at Dudley Street and at Flinders Street; the portals
resultant impacts of noise and air pollution, of the tunnel and the ramps (some 250m long) may
congestion and access problems would be be unsightly and may create significant barriers
detrimental to the environment and could suppress north of Dudley Street and between Collins and
property values. Further, such volumes of traffic Flinders Streets; poor soil conditions would make
would reinforce the role of Footscray Road as a the construction of the tunnel difficult and
expensive; and restrictions may have to be placed on
the carrying of hazardous materials.
In order to allow commercial port operations to

continue in Victoria Dock a bridge for the Western
Bypass extension would need to be 52 metres in
height with approaches of considerable length. Such
a bridge would be similar in scale to the West Gate
Bridge, would have a considerable visual impact and
be extremely costly. A low level bridge of 11 metres
height would allow pleasure craft access upstream
but could not be constructed until commercial
shipping operations had ceased at Victoria Dock and
South Wharf. Such a bridge would have to be
constructed after port operations had ceased, as the
economic lives of facilities expire or after port
The Western Bypass extension could follow an alignment beside the
Moonee Ponds Creek operations were relocated downstream. An option is
to consider providing compensation to the PMA to
A further alternative would be to remove the locate their facilities downstream before the end of
through-traffic from Docklands altogether by their economic lives, allowing earlier construction of
constructing an extension to the Western Bypass the Western Bypass extension (Refer also Section
from Footscray Road through the current port area 2.4.9).
to the West Gate Freeway on the Graham Street
alignment. The "barrier" effect could be removed A tunnel would be technically difficult to construct
from Docklands, allowing a better integrated because of the soil conditions and the length of the
development and creating a more amenable access ramps. These problems are exacerbated if the
environment. Also no compromises would need to be tunnel is deep rather than shallow. A deep tunnel
made due to potential land use conflicts. would be more costly but could allow the
continuation of commercial shipping upstream
A benefit for road users would be the creation of a whereas a shallow tunnel would allow only pleasure
direct freeway-to-freeway connection. This raises craft. A tunnel would not have the visual impact of
the question of what happens at the eastern end of an elevated structure. However, the access ramps to
the West Gate Freeway: there were suggestions the tunnel could be unsightly. Restrictions may be
made during the consultation process that a link placed on the passage of vehicles carrying hazardous
should be constructed between the West Gate materials through a tunnel.
Freeway and the South-Eastern arterial.
The preferred solution to the through-traffic
A subordinate issue concerns the alignment of the problem is the construction of the Western Bypass
Western Bypass extension. Three alignments are extension to link with the West Gate Freeway in the
possible: two on the Western side of the Moonee most western alignment with a low level bridge.
Ponds Creek, one of which would preclude the PMA The implications of this for the release of port land
from the construction of a berth at Appleton G but and the timing of development is discussed in
would maximise the area available as open space; Section 3.1.4.
and, another which would allow the construction of
Appleton G, is closer to the Creek and would Webb Dock Rail Line
traverse the area available for development as open The issue is whether a rail freight line is compatible
space. A third alignment on the eastern side of the with proposals for Docklands development. If not,
Creek would diminish considerably the area where should it be relocated and when should
available for open space and would mean a sizeable relocation occur. Consideration of these issues is
reduction in the amount of developable land at complicated by the fact that in the short term, traffic
Victoria Dock North. on the line is likely to decline.
The Western Bypass extension would be an The centrepoint of the State's rail freight
elevated structure, although opportunity would exist distribution network is the South Dynon Container
to drop to ground level for a short distance south of Terminal north of Footscray Road to the west of
Footscray Road, and would involve a new river Docklands. Road access to the terminal is currently
crossing. Questions therefore arise about the nature by Dynon Road. Rail access between the Port and
of the river crossing and its visual impact. the railyards adjacent to the South Dynon Container
Terminal is via the Webb Dock Rail Line and a western side of Footscray Road to the Spencer Street
number of sidings into Swanson and Appleton railyards and then runs north to South Dynon.
Docks.Capacity at South Dynon is currently being Traffic on the line is currently modest at about one
upgraded as part of a strategy to increase train per day or 12,000 containers per annum. It is
significantly the railways' share of the interstate understood that the only international operator at
land transport market which is currently around 20 Webb Dock has expressed interest in consolidating
per cent. South Dynon will ultimately become the its operations to Swanson Dock where the other
largest intermodal container terminal in the international operators are located. This may mean
southern hemisphere with the most modem that traffic on the Webb Dock line may decline in the
handling equipment and computerized operations. short term. In the long term, however, traffic on the
As South Dynon approaches capacity, the need to line will increase with the development of Webb
develop an auxilliary container facility south of Dock, the growth in trade and in rail freight and the
Footscray Road will be examined. anticipated modal shift from road to rail for freight
It is planned that the South Dynon Container traffic. It is Government policy to provide a
Terminal will be taken over by the National Rail standard gauge link to Webb Dock in addition to the
Corporation which will be responsible for all current broad gauge link. This would eliminate the
interstate rail freight. It is expected that the need for Sydney bound containers to be transferred
National Rail Freight Initiative will see the from either the broad gauge or truck for the rail
railways' share of the interstate transport rise to 30 journey from South Dynon. It is estimated that a
per cent. Total freight volumes are expected to standard gauge link could result in an additional
increase also. 10,000 containers per year being carried on the
The Webb Dock Rail Line is a broad gauge link Webb Dock line. The proposal may be implemented
from Webb Dock to the railyards adjacent to the by the National Rail Corporation.
South Dynon Container Terminal. The current route In a Discussion Paper, Inquiry into Land
runs parallel to Lorimer Street, crosses the river at Transport Interfaces with Sea Ports, the House
the Charles Grimes Bridge and crosses from the of Representatives Standing Committee on
Webb Dock Rail Line Rout
Webb Dock Rail Line Route Options

Transport, Communications and Infrastructure The preferred alignment is for the Webb Dock line
states: to be located in a single transport corridor along
"... rail systems and Governments should be with the Western Bypass extension. However, since
cautious about making heavy investment in rail this alignment is only likely to be realised in the
infrastructure to cater for the container trade - long-term it would be desirable to remove the Webb
looking closely at the alternatives. For example, an Dock line from the centre of Docklands. The interim
efficient, dedicated freight road, may be a alignment could be the eastern side of the proposed
significantly more cost effective option for moving "Docklands Road".
containers from Webb Dock to be put on rail at When the standard gauge should be installed is
South Dynon Terminal, than retaining, or dual really a matter for the rail and port authorities.
gauging the existing railway line." Plans should be co-ordinated with proposals for the
Clearly the views of the National Rail Corporation relocation of the line.
on this matter will be important. Government policy
and the advice of the Transport Working Group
suggest that a rail link needs to be maintained.
3.1.3 Deciding among land
The arguments for moving the Webb Dock Rail uses
Line and through-traffic are similar: it creates a There is an issue of considerable strategic
barrier and the effect of this barrier will increase significance as to how and on what bases decisions
with time and its retention would be inconsistent about the most appropriate land uses and their
with environmental objectives for the development location will be made. Docklands represents about
of Docklands. 300 hectares ofland and waterways which is
relatively compact -compared, for example, with
Options for relocating the line are: London Docklands which snakes along 16 kilometres
- realignment to the western side of Footscray of the River Thames. It is significant in its size and
Road. However, this would not remove the in its proximity to the Central Activities District.
barrier effect created by the line; The size, compactness and central location may lend
- relocation to the west in a corridor with the themselves to many candidate land uses.
Western Bypass extension; The previous report of the Docklands Task Force
- relocation to the east of a proposed new north- Melbourne Docklands: Strategic Options, outlined a
south road to the east of Footscray Road, called series of physical and planning factors which would
"Docklands Road" .. have a bearing on the suitability for different land
uses. It is useful at this point to re-visit these
Relocation within the Western Bypass corridor can factors.
only occur if a low or medium level bridge were
constructed as the river crossing. Gradients on the
approaches to a tunnel or a high level bridge will be
too steep for freight trains which are incapable of
climbing gradients steeper than 1.5%. If a tunnel
was to be constructed for the Western Bypass
extension, either in the preferred alignment or in
the vicinity ofFootscray Road, an independent
solution would need to be found for the Webb Dock
line, probably to the east of the proposed "Docklands
Road".
Land Use Requirements Land Use Requirements

Marinas and - water frontage network
Moorings - minimum adverse effect - comprehensive
on major shipping infrastructure servicing
- low bridges may constrain Retail - high degree of passing
access traffic, both vehicular and
- some back-up land pedestrian
- adequate road access - good access to public
transport
Commercial and
Office - good exposure - good road access and
carparking agglomeration
- easy road access to provide a critical mass
- access to public transport of retailing
- good car parking Leisure and - convenient accessibility by
Entertainment public and private
- toleration of higher transport
building densities
- ready access to - carparking
telecommunications - concentration to form
infrastructure distinctive areas of diverse
but interrelated activities
- links to CAD
- retail can complementand
- links to other established capitalise on natural
commercial areas features eg. water, parks
- identity or image, based on Education and - convenient access to CAD
a theme Institutions - tranquil environment
- unique amenity - possibly within easy reach
- attractions eg. park or of open space
water frontage/outlook
- close to short-term
Industrial - good transport links - residential accommodation
- plentiful power and water - opportunity for future
- appropriate buffers to expansion and
other uses development
Residential . - amenity eg. water or park - well-serviced by public
outlook/frontage transport
- links to existing - access to advanced
neighbourhood a clean, telecommunications
safe environment infrastructure
- removed from heavy traffic Research and - possible co-location
and industry Development with industrial land uses
- minimal ground - convenient access to
contaminants educational and
- not adjacent to hazardous institutional activities
sites - access to advanced
telecommunications
- convenient access to
community services and Open Space - potential for development
facilities and shops into pleasant, spacious,
relaxed areas
- access to open space and
recreation - potential to take advantage
of views and vistas and
- good road access for natural features
private vehicles
- capacity for linkage with
- links to proximate arterial existing open space
network
Since the Strategic Options report was released indication of the form which evaluation might
and as a result of further work by the Task Force take, the example of commercial office development
and input from the consultation, it is now possible to could be used for illustrative purposes.
identify the candidate land uses more readily. They There is clear evidence that consumer demand and
are: investor interest in this form of development are
- Housing commensurately low. Further, that, when demand
- Open Space begins to rise, the perception that Docklands could
be an extension of the CAD is undesirable on
- Entertainment/leisure/tourism financial grounds and for reasons of urban form.
- Commercial/office development However, should demand improve, soil conditions,
- Education and research adjacent uses and proximity to existing
infrastructure, particularly roads, public transport
- Industry and communications, will dictate certain locations
- Retail. which have a high potential for commercial and
office development.
These particular land uses form a useful start in
developing a strategic planning approach, but they The area in and around Spencer Street station,
are only a start. For it is crucial to be able to particularly ifthe Transport Interchange were to go
determine a means of sifting them so as to achieve a ahead, would provide some continuity with the CAD.
fairly clear sense of dominant and/or preferred land The area would be relatively well-served by
uses. transport and soil conditions are good. While higher
buildings can be built elsewhere in Docklands only
The factors identified for assessing different land
with deep-piling techniques, this is not a problem in
uses in the Strategic Options report noted above are
the vicinity of Spencer Street. The limitation on
a beginning. To these can be added further criteria.
building height approaching the waterfront would
To begin with consumer demand is a very important
also tend to discourage high-rise office towers. This
variable which will determine not only which land
would tend to reinforce an argument in favour of
uses are to be preferred, but also what form
Spencer Street and environs for any high-rise
individual land uses might take. To this must be
commercial and office development.
linked investor interest which may not depend
necessarily on confirmed market demand. For
example, the demand for high and medium density
housing may not be established, but the weight of
3.1.4 Staging
Staging of the development at Docklands is one of
Government policy on urban consolidation may well
ihe most complicated issues with which the
gather sufficient momentum to influence the market
Docklands Authority and, indeed, the community,
over time.
must deal. Further, it is an issue which requires
Government policy itself is a highly important further debate and consideration, both during the
factor in land use decisions. The Victorian forthcoming period of public consultation and over
Government's preferred location for a casino at the decades that it will take for Docklands to be fully
Docklands is a specific example; its commitment to redeveloped.
the Open Space 2000 program is another. And
Nevertheless, it is important to make some
finally, at a site like Docklands, physical conditions
comments about the difficulties that will
need to be considered also including soil
undoubtedly be associated with development of
characteristics, contamination and existing use.
Docklands, if only as a trigger for further debate and
The previous discussion may lead us to form thought.
certain conclusions about land uses and the range of
locations possible in Docklands. This will be dealt
with more thoroughly in Section 4.2.1. But as an
The Port of Melbourne
Management of development at Docklands will be an extension of the CAD; if planned properly it will
a complex task. The site is an intrinsically provide new investment opportunities, not merely
significant one, being a large area of waterfront land competing ones.
on the edge of the CAD. It cannot be seen as an Furthermore, Docklands development will occur
"island" site, in that whatever happens at Docklands over a number of decades; the recession of 1990-1992
will have implications not only for immediately will be a trough in a series of economic highs and
surrounding areas but also for the identity of lows over that time. It also confers the benefit of
Melbourne. Docklands needs to be planned in the additional time to ensure that the planning
context of other known inner urban development undertaken is "right" in terms of community
initiatives; new initiatives will need to be planned in aspirations and viability.
the context of Docklands. The task is a difficult one,
the complexity of which is increased by the long time However, the economy is an external variable
frame over which development is likely to occur. which, though it needs to be understood, cannot be
managed by the Docklands Authority. Variables
A significant factor is the state of the economy. which could affect the timing of Docklands
There is pessimism in some circles about what can development which can be influenced by
be achieved at Docklands in the short to medium Government or by the Docklands Authority are: the
term. Commentators point to the state of the CAD release of port land, the future of Coode Island and
office market and argue that there is no demand for proposals to develop a Transport Interchange at
additional office space. They also argue that in a Spencer Street station and to construct a Rapid
recession, there are limited funds to invest in Transit Link (RTL) between Melbourne Airport and
development projects. Spencer Street. These are discussed in detail below.
While there is no doubt that the state of the
economy may have an effect on the pace of
development at Docklands, Docklands is more than
The consolidation of the Port downstream proVides

opportunities for improving the efficiency of the Port
and reinforcing its national primacy. It also·
provides unique opportunities to open up the
waterfront to public access, allowing the public to
experience or view a variety of marine activities in
the same way as occurs in other waterfront cities.
However, it is the timing of the PMA's withdrawal
from Victoria Dock and North and South Wharves
that is critical to the staging of development at
Docklands. The principal factors that could
The Port of Melbourne influence the timing of the PMA's withdrawal are:
- the economic life of facilities;
The Release of Land - the length of leases;
The Port of Melbourne is the largest container port
- the availability of compensation to the PMA to
in the southern hemisphere, handling some 700,000
vacate a facility prior to the expiry of its
containers in 1988/89 or 40% of all containers
economic life.
handled in Australia.
For example, the PMA advises that Central Pier
Its success as a port and the size of its business
and North Wharf are no longer economically viable.
are clearly linked to Victoria's role as the industrial
These areas are therefore available for development
heartland of the nation. The efficiency of the Port as
in the very short term.
a distribution centre will make an important
contribution to Victoria's ongoing economic On the other hand, 5-6 Victoria Dock has a
prosperity. remaining economic life of 20 years, however, the
lease expires in 5 or 50 years and the indication is
Land Release Areas
1 Central Pier ( 1991)

2 North Wharf (1991)
3 Footscray Rd I Dudley St (1992)
4 Railway Yards ( 1993)
5 Sudholz St ( 1996)
6 Appleton (1996)
7 South Wharf (2001)
8 Victoria Dock South 2-4 (2006)
9 Victoria Dock South 5,6 (2011)
10 Victoria Dock North (2020)
Land Release Areas

that the tenant may wish t.o relocate t.o Webb Dock. described below as Sudholz Street, Applet.on and
This area may therefore become available for Footscray Road/Dudley Street, it is the length of
development well before the economic lives of the leases which is pertinent. These dates could be
facilities expire, however, the PMA would probably brought forward if the Government was prepared to
require compensation for the remaining economic provide compensation to the PMA and/or the tenant.
life. The payment of compensation would clearly Each area is discussed below.
involve a cost t.o Government Area 1: Central Pier (Land available short·
A "least-cost" scenario would mean that areas are term)
released for development as the economic lives of The Central Pier of Victoria Dock and the two berths
facilities expire and leases expire so that the need immediately adjacent, parallel t.o Footscray Road,
for compensation payments is avoided. are generally in poor condition and have no
Under this "least cost" scenario individual berth's remaining economic life for commercial port
and back-up areas would become available for operations. The berths are used for mooring of
development between 0-30 years. However this could pleasure craft and some fishing vessels and the
result in haphazard uncoordinated development and sheds are used for storage and some minor maritime
may prejudice orderly development which could be activity. This area is available immediately for
detrimental both t.o port operations and Docklands redevelopment.
development. The area occupied by Sheds 6 and 7 in the strip of
By way of illustration, Vict.oria Dock 16-17 will not railway land on the east side of Footscray Road is
be available for development until 2021. However, also immediately available as the sheds are used
the neighbouring areas of Central Pier, land in the irregularly for st.orage.
north-west corner of Dudley and Footscray Roads Futher north, the area occupied by Sheds 8, 9 and
and adjoining berths on Vict.oria Dock, are all 10 on the corner of Footscray Road and Dudley
available for development within a year or two. An Street is potentially available immediately.
active port area could be surrounded by urban
development which may compromise those port Area 2: North Wharf (Land available short
operations or, conversely, affect the amenity of the term)
development. This area, forming part of the site proposed for the
Olympic Village, is available for development almost
An alternative approach which seeks to accelerate
immediately. The redevelopment of this area would
the PMA's departure from port facilities within
see the early extension of the river side bike and
Docklands prior to the expiry of their economic lives
pedestrian paths into the Docklands area.
would require the payment of compensation to the
PMA. However, compensation would need to be Area 3: Footscray Road/Dudley Street (Land
offset by operational bep.efits which would accrue. available by 1993)
Broader social or environmental objectives may This area is currently occupied by freight- related
warrant such an approach. For example, the businesses. Relocation offreight-related activities
efficient provision of engineering infrastructure could remove them some distance from the Port.
services may be jeopardised or compromised by the Initially, this area would suffer poor access and
adoption of the least cost option. amenity. Access would be restricted to Footscray
The "Land Release Areas" map indicates when Road and Dudley Street. This could be overcome
particular areas ofland will become available for substantially by providing a new road offFootscray
development using the least cost approach, based on Road into the north of the site. But the area would
information supplied by the PMA on the economic remain somewhat isolated due to the barrier effect of
lives of facilities and the length ofleases. In this Victoria Dock's northern berths which would
sense, the least cost approach represents a worst continue to operate south of Dudley Street.
case scenario in that the most distant date is used. Area 4: Railway Yards (Land available by
For example, the economic lives of facilities usually 1993)
exceeds the length ofleases so it is the date at which
The sidings to the south of Dudley Street and west
facilities are no longer economically viable which
of the suburban rail lines of Spencer Street Station
determines the timing ofland release. In the areas
are now largely redundant. In the south-west corner
Melbourne Docklands - Oral! Strategy for Redevelopment 91
of this area the only significant uses are Australian Dock is currently earmarked by the Port of
Paper Manafacturers' (APM) paper warehouse in Melbourne Authority for an extension of Appleton
Shed 4 and the Public Transport Corporation's fast Dock. This would involve dredging two new berths,
track and parcels facilities in Sheds 2 and 3. Both Appleton F and G, into the mouth of the Moonee
uses can be relocated, APM's lease expiring in Ponds Creek. The expiry ofleases means this land
October 1991. Shed 2 is historically significant. could become available for development in 1996.
To clear the western side of the Spencer Street Area 7: South Wharf (Land available by
Yards requires the relocation of fast track and 2001)
parcels facilities and the removal of the rail tracks. South Wharf was also planned to become part of the
This work can be completed by mid-1993, releasing Olympic Village, with its berths being replaced by
an area of approximately 20 hectares. The PTC has new facilities at Webb Dock and Appleton Dock. The
commenced clearing track from the Melbourne Yard. PMA would prefer to retain South Wharf for port
Constraints on early development in this area are purposes. The remaining useful life of the berths is
the possible new Docklands Road to the east of the 10 years.
present Footscray Road, and the sewer and gas main Area 8: Victoria Dock South 2-4 (Land
easement consequently required on the Footscray available by 2006)
Road and Johnson Street alignments. The timing of
the extension of any of east-west streets, such as Victoria Dock South was also intended as part of the
Collins Street, may impose a further constraint on Olympic Village site. To vacate Victoria Dock South
development in this area. Another constraint is the (2-6) for the Olympics, alternative berth locations
route of the Webb Dock Rail Line, currently running were identified at Webb Dock and Appleton Dock. ':"''
through the Spencer Street railyards. The options This area is currently a bulk cargo loading and
for the relocation of this line are discussed in Section unloading berth handling steel and scrap metals.
3.1.2. The remaining useful life of the berth is 15 years
(2006).
North of Sheds 8, 9 and 10, the railyard currently
used for assembling freight trains to and from the Area 9: Victoria Dock South 5 and 6 (Land
docks will be redundant once the spurs servicing the available by 2011)
docks are closed as part of improvements to the This area is currently a roll-on roll-off facility
South Dynon Container Terminal. This area occupied by Union Steamships for coastal and trans-
potentially extends as far as the south side of the Tasman trade shipping services. The berth has a
locomotive reversing loop and as far east as The remaining economic life of 20 years (2011). This
Hump, and could be available in 1993. area was also intended to be redeveloped as part of
The triangle of land bounded by Johnson Street, the Olympic Village, with relocation of these
Footscray Road and Flinders Street Extension is facilities to Webb Dock.
currently occupied by warehouses and open space Area 10: Victoria Dock North (Land
and, with the exception of one historic building, Available between 1996 and 2021)
could be made available immediately. Victoria Dock North comprises 3 berth areas, 16-17,
A narrow area fronting Spencer Street could be 19-21 and 22-24, and the adjacent back up land
made available by relocating Platform One and the south of Dudley Street.
coach terminal further west. Victoria Dock 16-17 is a modern commercial,
Area 5: Sudholz Street (Land available by general cargo and lift-on-lift-off container berth. It
1996) has an economic life of up to 30 years.
Land in this area has been occupied recently by one Victoria Dock 19-21 is currently used only for
new tenant and is unlikely to be available for mooring of the "Alma Doepel", and "Wattle" and non-
development prior to 1996 without payment of commercial fishing vessels and could be made
compensation. available for redevelopment immediately. However,
Area 6: Appleton (Land available by 1996)
given its dislocation from other sites, its
redevelopment for non-port uses may be better
The area south ofFootscray Road, north-west of delayed until neighbouring sites are developed.
Moonee Ponds Creek and east of existing Appleton
92 Melbourne Docklands - Draft S.trategy for Redevelopment
Victoria Dock 22-24 is closely associated with the August 1991 fire on Coode Island development at
new car import and export facility north of Dudley Docklands will be affected by Government action on
Street and new, adjacent paved car parking areas. the storage of hazardous materials at Coode Island.
The economic life of these facilities varies from 5 to The Coode Island Review Panel, established by the
10 years. Government following the fire, will report on 2
The remaining useful life of the berths in this area December 1991 on an immediate Action Plan to
varies from 0 to 30 years. Release of this land parcel minimise the risks associated with the existing
as the economic lives of facilities expire could result, facility.
therefore, in piecemeal development. Co-ordinated A second report by the Panel, due with the
release of this land however, at around 2010, rather Government by 31st March, 1992, is to advise on the
than 2020 would enable the optimum life to be longer term storage of hazardous chemicals at port
extracted from a number of berths. It would enable facilities including the identification of possible new
the redevelopment of berths 19-21 and their use for sites for bulk liquid port facilities.
a 20 year period and would help minimise the
compensation payable to the PMA for relinquishing It is expected therefore that the Panel will make
berths 16 and 17 prior to the expiry of their recommendations about the continued suitability, or
remaining useful lives. Alternatively, otherwise, of Coode Island as a storage area for
redevelopment of the whole area could wait until chemicals. Docklands development will be able to
2021 when the economic life of berths 16 and 17 proceed either in the context of the relocation of
expires. some or all of Coode Island's storage facilities or in
the context of a recommendation that certain
PMA workshops and slipway on Dudley Street chemicals could safely continue to be stored at Coode
have been upgraded recently at a cost of $10m. Island. It should be remembered that there are long
They have a remaining life of 15 years. established residential communities in closer
A number of areas within Docklands have not proximity to Coode Island than Docklands.
been referred to in this section. They are: the banks
of the Moonee· Ponds Creek which will remain as
open space, Spencer Street station and the railyards Catalysts for Development
and tracks required for ongoing operations and the There are a number of projects which individually or
area south of the Flinders Street Extension, in combination could give a significant "kick-start"
including the World Congress Centre and the World to development. One is the proposed casino. Its role
Trade Centre. · as a catalyst in Docklands development has been
In conclusion, it can be seen that if a least cost recognised by the Government, which has
approach was applied to the release ofland the nominated Docklands as its preferred site, and by
parcels released would not be contiguous. The the Authority which has identified a specific site
danger is that it coqld lead to piecemeal within the Spencer Street railyards and is
development. Also a couple of key sites, Victoria aggressively promoting it.
Dock 5-6 and 16-17 would not be available for The casino would be set back from the riverfront
development until 2011 and 2021 respectively. within a parkland environment. It would be a spur
There may be a case therefore, to accelerate the to development by attracting ancilliary uses such as
PMA's departure from these facilities in the hotel, convention and tourist facilities and by
interests of integrated development. It would bringing people into the Docklands area and can be
involve compensation to the PMA. This issue accommodated under the least cost land release
requires further exposition during the next round of scenario, thereby enabling construction to commence
consultation. in 1993.
Coode Island Another catalyst for development that has been
Docklands is some two kilometres from Coode identified is the proposed Transport Interchange at
Island, a distance consistent with buffer distances Spencer Street station, currently being considered
required by the EPA from petroleum refineries and by the Public Transport Corporation. The
twice the distance required from organic and development would incorporate:
inorganic chemicals. Nonetheless, following the - a new coach terminal
- retail and office facilities Infrastructure

- a terminus for the proposed Rapid Transit Link A significant issue in any major development such
from Melbourne Airport as Docklands concerns when infrastructure is built.
In the development of the London Docklands the
- a terminus for the Very Fast Train, should it
approach adopted was to get development going
proceed
first, with the consequence that the provision of
- existing metropolitan, country and interstate adequate transport infrastructure was not planned
rail services for and has followed development. In Australia, the
- taxis model has usually been to provide infrastructure,
particularly transport, ahead of development. This
- park and ride facility.
has the disadvantage of requiring large amounts of
Private sector investment would be sought for the capital well before a return can be made. However,
investment. It has been suggested that the it usually results in a better quality development.
Government might need to make a pre-commitment
The major infrastructure item in terms of cost will
to lease office space in order to attract investor
be the means for accommodating through-traffic,
interest.
that is, the Western Bypass and extension. Ideally,
Nonetheless, the location of the Transport this would be constructed as early as possible,
Interchange on an extension of Collins Street could however, as discussed in Section 3.1.2. this would
open up Docklands for development and help create involve a low-level bridge which would mean that
that link between the CAD and the water. It could port operations at Victoria Dock and South wharf
provide a stimulus to development on surrounding would need to be relocated ahead of schedule and
sites. hence, compensation would be payable. However,
The Rapid Transit Link (RTL) is intended to there may be benefits to the economy and to road-
provide a 15-20 minute journey between Melbourne users, in addition to the social and community
International Airport and Spencer Street station. benefits referred to in Section 3.1.4 which would
Domestic and international check-in facilities could justify this course of action . Through-traffic could
be provided at the Spencer Street terminus. Market continue to use Footscray Road through the
research undertaken jointly by the Federal Airports construction period.
Corporation and the Public Transport Corporation If however, port facilities were to be retained until
identified a substantial demand for a RTL between they are no longer economic (up to 2021), then the
Melbourne CAD and Melbourne Airport. A use of Footscray Road to carry through-traffic for an
commuter park and ride facility would increase the extended period would need to be reviewed. The
patronage estimates further. Significant revenue continual build up of traffic on Footscray Road over
from carriage of high value freight is anticipated. 30 years would be incompatible with the creation of
Support from the private sector is being sought to a pleasant waterfront environment for housing and
design, build and operate the RTL. Registrations of other people-oriented activities such as tourism and
interest, in accordance with the Treasurer's recreation. In this case it would be necessary to
Infrastructure Investment Guidelines released divert through-traffic from Footscray Road so that it
earlier this year, will be called for later in the year. could be converted into a waterfront boulevard.
The submission process will identify both the The proposed Docklands Road, to the east of
preferred route and technology and the Government Footscray Road following an alignment adjacent to
will seek community views in this regard. Spencer the railyards, could be a focus for through-traffic
Street could become a focal point for domestic and until the Western Bypass was extended to the West
international travellers and for a host ofrelated Gate Freeway. Footscray Road could then become a
tourist, retail and transport services. The RTL itself boulevard. However, construction of the proposed
could provide a catalyst for the Transport Docklands Road prior to the construction of the
Interchange as commercial development Western Bypass extension could entrench the role of
opportunities at the station will form part of the the Docklands Road as a route for through-traffic.
development brief.
The proposed Docklands Road would rise over
Dudley Street and pass under La Trobe with
3.1.5 Heritage
The heritage of Docklands needs to be addressed
here, partly to crystallise the depth of feeling certain
groups and individuals entertain for the value of
port an!l rail ~ct:ivities of the past and prcacnt.
However, in addition to that, heritage is a strategic
issue because it can have a significant impact on
shaµiug url.Jau design. This cannot be addressed
simply by incorporating maritime motifs into the
planning and design of the area ("putting portholes
in the houses" as one an:hi!P.d. c:hHnt1~l.erh;ed it), but
of integrating the values of these activities
The Mission to Seamen Building authentically with new uses.
The significance accorded to heritage buildings is
northerly and southerly ramps at La Trobe Street. becoming increasingly important. It is recognised
Intersections would be provided at Collins and that Melbourne's unique character is attributable in
Flinders Streets. Direct car access from buildings large part to the preservation of its Victorian and
onto the proposed Docklands Road should be avoided Edwardian building stock. But the notion that
to improve traffic safety and flow. The main places, such as redundant port or rail areas, have a
function of the Docklands Road would be to link both character deserving of preservation has not met so
Footscray Road west and the Charles Grimes bridge far with the same degree of recognition or approval.
to the CAD via La Trobe, Collins and Flinders Industrial history may be seen to be limited in its
Streets, and to provide the main access into the appeal to a knowledgeable few, although bodies like
,, Docklands from the south and east. The proposed the Historic Buildings Council and National Trust
are giving increasing attention to this area.
Docklands Road could also be developed as a
boulevard. Certainly it is the view of these groups that
This section has explored a number of factors Docklands is a special place in which recognition of
which will provide a stimulus to change or affect the the maritime and rail history should be incorporated
rate of change, the most significant of which is the in future development expertly and with integrity.
release ofland by the Port. Herein lies an issue The Heritage Study carried out as part of this
which warrants further public debate: whether the current strategic planning process has highlighted
PMA should vacate facilities as their economic lives structures and places which will need to be
expire, and thereby possibly leading to piecemeal considered during this consultation and
development, or whether they should be subsequently.
compensated to vacate facilities ahead of schedule Preservation and development on occasion may be
thereby reaping operational advantages and in conflict. In this case, the preservation of the land
facilitating an incremental and sequential approach profile of Victoria Dock which is a recommendation
to development - although imposing an additional
cost on development.
A related issue which merits further community
debate concerns the timing of the construction of the
Western Bypass and extension.
Development should not occur in isolated pockets,
but in a logical and incremental manner, possibly
commencing adjacent to the CAD near to the World
Trade Centre and Spencer Street station. Part of
the attraction of proposals for the casino, the
Transport Interchange and the Rapid Transit Link
is that they would be consistent with the logic of
such a sequence of development.
Maritime Character
of the Heritage Study, may be seen to be Guidelines. The staging of Docklands

uneconomic in terms of maintenance as well as to development requires co-ordinated effort between
hinder the more imaginative design concepts which the current land-holders - the Port of Melbourne
have been put forward already. These are matters Authority and Public Transport Corporation and the
which will require resolution over time, possibly on a Authority.
case by case basis. Local Government is a significant player also, for
Nevertheless, it can be argued that, in seeking a Docklands is part of the City of Melbourne and will
unique urban character for Docklands, the maritime be dependent on the direction which Council policies
character and flavour which currently exists are the and programs take. In addition, the cities of Port
most authentic, lively and rewarding to encourage. Melbourne an·d South Melbourne in particular will
In some ways, this character also presents the least remain concerned about the potential benefits and
degree of difficulty to bring into being. The conflict difficulties which Docklands will present.
will be to ensure that isolated monuments to the These examples are sufficient to highlight the
past are not retained for the sake of preservation complexity of accountabilities and historical
and in an alien context. relationships which will require careful negotiation.
It should be noted also that with Docklands This issue of public sector interest and involvement
development possible only on an incremental basis, in what is intended to be a private sector led project
the port and its neighbouring new land uses will will require careful thought for other reasons as
have to co-exist creatively for a long while into the well. These have to do, most notably, with the high
future. Indeed, the port will continue to be a part of aspirations for Docklands which emerged from the
the Docklands landscape indefinitely. public consultation. Given the broad sweep of
powers accorded to the Docklands Authority in
legislation, it will be doubly important to ensure
3.1.6 lmpementation that provision for public access to and involvement
The discussion so far holds particular implications in development is secured.
for the implementation of a Docklands Strategy, not Implementation issues also cover the financial
only for the Docklands Authority but also for other viability of Docklands. The Strategic Options report
departments and agencies of Government. It is clear presented the four development scenarios to a level
that an integrated planning effort will be necessary of detail which enabled financial evaluation with
to deliver a high quality development. relative precision. This Draft Strategy takes a more
Discussion about transport and traffic, for flexible approach, however, which is therefore more
example, points to the need for continuing input .difficult to subject to evaluation. Nevertheless, an
from the transport agencies of Government, such as evaluation has been carried out on one possible
the Transport Working Group which has contributed scenario for Docklands based on a mix of uses and
significantly to the work of the Docklands Task the infrastructure proposed. This evaluation is
Force. Decisions about a Western Bypass or an. contained in the working paper, Financial
extension of it will require careful co-ordination Evaluation. The results of the evaluation indicate
between the Authority and VicRoads, for example, that the Draft Strategy is financially sound and
not to ignore the Departments of Treasury and capable of accommodating variations in land use,
Finance. Questions concerning private investment building form and infrastructure provision.
in infrastructure will require input from an Inter-
Departmental Committee chaired by Treasury as
outined in the Government's Infrastructure
A Strategy for Docklands

The Task Force's first report Melbourne The Draft Strategy does not incorporate a highly
Docklands: Strategic Options has been the focus prescriptive master plan or detailed blueprint.
of much debate within the public sector and in the Rather a range of possibilities and solutions is
broader community. Exposing that report to public considered as a means to achieving a strategic
views and interests has sharpened some of the ideas approach for Docklands. In this long process, future
and highlighted ambiguities in others. Time has planners should seek to use the Strategy as a
also permitted some key elements to be revisited. resource and be guided by the Principles which are
The reader who has followed this evolution closely articulated.
will note certain key differences. Most notably, the There are three key parts to this presentation of
degree of definition evident in all of the four the Strategy. First, a set of principles is established.
strategic options.is less clear in this Draft Strategy. In the Task Force's view, these represent a
Planning for Docklands will take place over a long crystallising of thought about the Docklands -
period and its execution will be complex. through government objectives, public consultation
Prescribing land uses is therefore not sensible and the research and policy work undertaken by the
because it is not practical. A range of possibilities Task Force over the last year. The main elements of
will need to be considered for each part of Docklands the Strategy are then proposed according to land
before there can be any certainty. The possibilities uses, infrastructure and the character of Docklands.
are canvassed in the Draft Strategy which follows. A third part deals with the question of staging and
At the same time, it is the task of the planner to the sorts of initial actions which could be considered.
highlight those key issues which need to be resolved
and to present what appear currently to be preferred
solutions. That is why, after canvassing
alternatives, certain solutions to problems of roads
and traffic in particular are presented.
4.1 Principles for Docklands Development

A key to the future planning and redevelopment of improving access to the Yarra River upstream
Docklands is to establish a clear and strong set of by ensuring that roads, railways and bridges
principles which can serve as a motive force and enable the continued use of the river;
ultimate basis of actions in Docklands. - development of an interconnected system of
Principles which are transparently cosmetic or too streets and open spaces which enhance
general will have little relevance in guiding the pedestrian movement and bicycle access;
future. So they need to be well-grounded. - providing housing opportunity which genuinely
With care, an important outcome of public enables a range of housing type and price.
consultation is the ability to distil or crystallise
public thought on a matter. When this process of
distilling is merged rigorously with all other inputs, 2. The Wider Integration of
a very real basis for action can emerge. Docklands Planning
The public consultation has yielded a wealth of The Docklands should not be planned for in isolation
insights and, on various important issues, a from the rest of the State. This principle of wider
reasonable degree of consensus. When assessed also integration can be addressed in a number of ways:
in the context of other research and policy analysis
- as a new part of inner Melbourne, there will
carried out by the Docklands Task Force, and in the
need to be a linking of Docklands with the
light of key assumptions and government objectives
existing CAD and surrounding municipa1ities;
relating to Docklands, it is possible to identify a set
there should be new activities and
of principles which ought to govern the future
opportunities for residents from these
planning and redevelopment of Docklands.
municipalities;
The Draft Strategy represents an attempt to
- developments in Docklands should seek to
articulate these principles and show how they can be
contribute to its surrounding communities
carried into practice in the planning ofland uses,
beneficially;
the development of infrastructure and the creation
of an appropriate character or ethos for Docklands. - the future planning of Docklands will need to
enjoy a consonance with wider metropolitan
There are six principles and while listed
planning and infrastructure investment across
separately, it is important to appreciate the links
the metropolitan area
from one to the other. The principles proposed here
are, however, subject to the consultation process to
come and the Task Force will welcome public 3. Carefully Managed
comment on how to provide useful, publicly endorsed
principles to guide long-term development. Diversity
Its central location, proximity to the waterfront and
excellent transport infrastructure make Docklands
1. Public Access an ideal location for carefully managed mixed
There is something special about the Docklands site activity - economic, social and cultural. This
that belongs to everyone. It should offer an enriched principle can operate in a number of ways, by:
residential, recreational and working environment - providing for a mix ofland uses which strike a
for future generations of Victorians. This is not just balance between economic and other social and
a question of physical access. It will also mean cultural policies;
looking at ways (such as through housing policy)
which enable access to residential, work and leisure - recognising the importance of the working Port
opportunities. This wider public's access to of Melbourne to the Victorian economy;
Docklands should be actively supported in a variety - providing a range of housing opportunities;
of planning and design strategies by: - capturing and maintaining the architectural
- creating public space and opening up the and urban design values which have
waterfront to Melbourne. Providing for land contributed to Melbourne's reputation as one of
uses which encourage the use of water and the world's great Victorian cities.
water frontages and continuous public access;
Draft Strategy for Redevelopment 101
Melbourne Docklands -
4. Sustaining Heritage 6. Maintainin g Good Public

Values Processes
There are significant heritage values associated with The existence of good public processes is critical to
the Docklands site which should be identified, the future planning and redevelopment of
captured and retained in future planning and Docklands. Such processes involve more than
development of its mixed uses. There needs to be a formal consultation methods and techniques. They
recognition of: refer instead to the ways in which the various ideas,
interests, perspectives and concerns in the wider
- the character of Docklands as a maritime and
public realm can be reflected and accounted for
freight centre, its significance in terms of
consciously and accurately in Docklands planning
colonial public sector infrastructure investment
and redevelopment. While this will be largely a
and its social history;
responsibility of the Docklands Authority, it must be
- the Yarra River which is the central feature in recognised that other private and public sector
the original siting of Melbourne and has played agencies will also play roles in developing and
a primary role in the history of Docklands; implementing proposals at Docklands. At a
- Koorie interests. minimum, it will be important to maintain two key
conditions over the period of Docklands
redevelopment:
5. A Capacity for Careful - ongoing working relationships with all
Innovation interested and relevant parties, including those
The vision of Docklands which sees it contributing to drawn from the private sector, community-
economic prosperity as well as enriching the based organisations, State and local
residential, recreational and working environment of government instrumentalities and professional
people will, in an important sense, be predicated on organisations;
the capacity to innovate, to entertain new ideas and - coherence and continuity in consultation
to test out carefully the various possibilities. This programs which accompany specific proposals
capacity for innovation is potentially relevant in a at Docklands.
number of important ways, such as in the approach These principles serve to encapsulate a vision for
taken to: Docklands. It is the intention of the Draft Strategy
- housing policy and the issue of equity and to achieve consonance with these Principles and to
affordability. This may well suggest innovative present a vision which may be achieved through
financial proposals which assist a range of land use, a range of infrastructure proposals and the
income groups to have access to medium achievement of a particular character. These are set
density housing; out in the following pages.
- urban design and construction so as to
incorporate energy and water conservation and
waste management goals;
- new technology;
- development of a vibrant character based on
mixes of uses in a more "European" style than
is typical of Australian cities.
WP.t.lim1fa, formal parks, tho watcrwaya, networks of

pathways and smaller urban parks and plazas all
constitute part of the vision for Docklands.
Anot.her key component is the maintcnanct! uf
public access to the watf~rfmnt. throughout
Docklands. GuarantP.P.s of public access are
imporluut not only in terms of social justice, but also
in creating the best possible waterfront land uses.
Finally, the urban design of Docklands must be of
the highest possible quality. The character of the
area as a maritime and freight centrn throughout
Melbourne's history must be captured and retained.
Spencer Street Station This is not merely a matter of preserving heritage
structures but of incorporating the flavour of the
past into the developments of the future.
Vision To achieve such a vision for Docklands, there are
Docklands will be a new part of inner Melbourne. constraints which must be overcome. In particular,
Linking with the CAD and surrounding the transport issues that affect the area; the
municipalities, it has potential to enhance the city barriers that are created by the Spencer Street rail
by providing new uses and activities for an old area. yards and station; the Webb Dock Rail Line and the
Docklands can be integrated with and complement volume of traffic using Footscray Road must be dealt
surrounding areas. Not merely an extension of the with. The adverse effects of through-traffic must be
CAD, Docklands can relate to it as South Carlt.on minimised without merely transferring the problem
and East Melbourne do now. Not simply another t.o surrounding suburbs.
suburb, Docklands can provide new activities and
opportunities for residents of surrounding Movement in and around Docklands should be
communities. dominated by use of public transport - trains, trams,
buses and, perhaps, water taxis and ferries.
It is clear that many sites within Docklands are Docklands should also be a place that is comfortable
suitable for a range of uses. One feature of the way to cycle and walk around and be accessible for people
Docklands develops may be the combination of with disabilities.
housing with other uses, for example retail and
office, in a way that is not currently typical of There are some specific aspects of the vision for
Melbourne. It is important to recognise that where Docklands which relate to infrastructure:
the Draft Strategy discusses particular uses as being Transport Interchange
appropriate to particular sites, it may be possible for
The redevelopment of Spencer Street station
these uses to be combined with other activities.
provides an outstanding opportunity for the
The importance of Docklands as a new site for integration of different transport modes which
inner city housing has been clearly recognised by service the city, the metropolitan area and the whole
both the Task Force and the broader public. While State of Victoria. It should include a new coach
parts of Docklands may not be suitable for housing, terminal and retail and office facilities and provide
it is clearly a place that can house many thousands easy connections between inter and intra-state and
of people, making efficient use of existing suburban rail services, buses, trams and taxis.
infrastructure and breathing new life into the Other key facilities could include a terminus for the
central city. Further, both the realities of the proposed Rapid Transit Link from Melbourne
market place and principles of equity dictate that a Airport.
range of housing in terms of price and type should be
encouraged. Roads
Through-traffic should be directed away from
Docklands also offers a great opportunity to add to
the ring of open space that now partially circles Docklands via an extension of the proposed Western
Bypass. Footscray Road could be connected to a new
inner Melbourne. An arc of key sites has been
identified, not the least of which is the water itself, north-south boulevard, referred to as "Docklands
which can be used for varying types of open space. Road", constructed adjacent to the rail corrider.
4.2 The Draft Strategy

Heritage
The heritage of the port could be reflected in the
design and buildings of Docklands. The important
historic structures could be rejuvenated and recycled
for new uses to establish a sense of place.
Human Scale
Docklands could be a place to which people are
attracted because of the variety of activities which
take place there. It could also be designed and built
on a human scale, that is, on a scale with which
people feel comfortable and can understand.
Cycling on the Yarra Bank Environment

The urban design of Docklands could reflect
East-west access is also necessary, both for advanced practice in minimising pollution and
transport reasons and to open the city up to the Greenhouse gases, conserving energy and protecting
waterfront. Collins and La Trobe Streets could be and enhancing varieties of flora and fauna.
extended into Docklands. Significant, varied areas of open space would also be
a feature.
Other Services
Development at Docklands would allow more
efficient use to be made of existing infrastructure
4.2.1 Land Uses
and investment in inner Melbourne. For example, Docklands is capable of accommodating a variety of
providers of human services consider that, in most land uses consistent with its near-city waterfront
cases, a new population at Docklands could be location. The main land uses which have been
catered for without substantial new investment. nominated would be residential, open space, leisure
Local schools, hospitals and health centres have and tourism, office, retail and education and
adequate capacity. It should also be noted that the research. Other uses would include transport and
range and quality of services available in inner industry. In determining appropriate locations for
Melbourne is excellent, especially when compared different uses, criteria have been outlined in Section
with fringe areas. 3.1.3 above.
Other physical services, such as water and The extent and locations of these uses will become
sewerage, can be readily supplied at no penalty apparent, however, only as development proceeds
compared with supply in fringe areas. and the demand for various uses (particularly office,
There are other aspects of this vision which relate residential and retail) becomes clearer.
particularly to character: The planning framework therefore should retain
considerable flexibility so that it can accommodate
Vitality the uncertainties inherent in a long-term process.
Docklands could be a place where several thousands However, it is definitive in the following respects.
of people live and to which many more come for
work, study or for recreation and pleasure. Residential
Docklands would be a place of social diversity and The provision of significant quantities of residential
have a lively, bustling character. accommodation is an objective of Docklands
development. Densities similar to or higher than
Maritime those of other parts of inner Melbourne are
Docklands will acljoin a major functioning port and envisaged.
is itself a waterfront area. Maritime activities could
Possible sites for residential neighbourhoods at
therefore be a feature of the area and contribute
Docklands have been identified on the basis that
strongly to its own character and the whole of
they could provide a clean, safe environment, are
central Melbourne.
able to be serviced and have good access to open
space and recreation. The sites are, however,
dependent to some degree on decisions taken
Residential
Office
Industrial
Retail
north
"Campus": Education. Research, Housing
250 0 1000
Open Space
~--~
I
Entertainment. Leisure
scale of metres
Note : Sites can have mixed uses hence overlapping.
The Strategy: Land Use

regarding Footscray Road and the internal road Open Space

network. Open space could take several forms appropriate for
The primary locations are: an inner city redevelopment project. These include
- at South Wharf regional scale open space (such as Royal Park),
linear parks and pathways (such as the Yarra
- on the south side of Victoria Dock banks), local open space (such as the park at Hawke
- adjacent to the proposed campus area and Adderley Streets), urban plazas and squares. In
overlooking Victoria Dock, and addition, large bodies of water such as Victoria Dock
- set back from Footscray Road, again are open space of a particular type.
overlooking Victoria Dock. Docklands already includes several large and
Other residential accommodation may be somewhat undeveloped open space areas. These are:
appropriate also, for example, within any proposed - the estuary ofMoonee Ponds Creek, south of
educational campus and in hotels near to or within Footscray Road;
the Transport Interchange. In total, between 5,000 - North Wharf, berths 12-15;
and 8,000 people could be accommodated at
Docklands, depending on how much of the above - linear grassed areas along Footscray Road,
locations is devoted to housing. west of Dudley Street, north of Flinders Street
extension and near Blyth Street.
Locations which are not suitable for housing
include the former Gasworks site, which is Because of their poor amenity and isolation from
contaminated. other uses, such as housing and offices, these areas
are under-used at present. But they could be key
components of the open space network.
Residential Open Space

A variety of open spaces, both land and water, is would involve excavation of contaminated areas.
proposed as a unifying element of Docklands. These The possibility of a more formal, European style of
spaces are primarily intended as focuses for views, park, like those already surrounding the city, could
as voids between groups of buildings or as dividers be envisaged as a gateway to Docklands.
between different land uses. To a large degree, their These large areas of open space could be linked by
character would be a function of the structures smaller open areas: canals, plazas, squares, all more
which surround them and of planting or structures
within them.
Victoria Dock will be the focus of Docklands.
Public access around its perimeter would help
ensure a mix of uses and activities that will draw
people for leisure and recreation, The proposed road
pattern would reinforce this focal position.
The second major open space is the Yarra River
and its banks. This linear open space will develop as
a corridor of movement between an increasing
number of facilities along its length in central
Melbourne. In Docklands its character would
gradually change from a recreational, softer-edged,
river environment near the CAD to a harder-edged
industrial and port environment.
The third major open space is that around Moonee
Ponds Creek. Its visual qualities are likely to be very
different from those of Victoria Dock and the Yarra
River. A wetlands has been suggested, heavily
planted to screen the nearby industrial uses and the
Western Bypass and to provide a unique inner-city
estuarine environment. This is consistent with the
current drafting of a concept plan for Moonee Ponds
Creek which is occurring as part of the Open Space
2000 program. On the north of Victoria Dock there
is the opportunity to provide for two canals as new
outlets ofMoonee Ponds Creek: one on the
alignment of an existing storm water drain; the Entertainment, Lesure and Tourism
other parallel to Footscray Road, providing a water
orientation to both that boulevard and the campus
area. These two canals could be within a narrow urban in character and intense in use. These can be
park environment. planned as part of the more detailed development
The site of the old Gasworks, bounded by process.
Footscray Road, Pigott Street and the Yarra River,
Entertainment, Leisure and Tourism
has been found to be contaminated and would
require expensive clean-up procedures to be made This wide-ranging and varied land use could occur
available for most uses. EPA advice indicates that at several locations, generally related to the
less expensive capping processes would render this waterfront. The areas identified are generally
site suitable for use as parkland or for convenient to the CAD, are concentrated to allow
commercial/office development. Open space is a different yet related activities and are accessible by
preferred land use, however, because of the site's public and private transport. The sites, North
location west of the CAD and because of the capacity Wharf, Central Pier and several of the existing port
of open space to complement other uses. In addition, and rail buildings, could make suitable locations for
there are likely to be industrial difficulties these uses. They should be readily accessible and
associated with commercial redevelopment which should form part of the open space network.
Office Retail
Appropriate activities could include a casino, cafes, Retail

restaurants, tourist shops and attractions, markets, Retailing should occur in conjunction with other
theatres, cinemas, visitor centre, museum, displays, uses, mostly office and entertainment/recreation.
craft workshops and marinas. Retail activity in Docklands could therefore be
Office concentrated to take advantage of passing traffic
with good public transport and road access. This
Office uses, which have been discussed in Section
could occur in a corridor parallel to the proposed
3.1.3 above, should be concentrated within easy
Collins Street extension between Spencer Street and
walking distance of public transport, particularly
Victoria Harbour, in areas of high pedestrian
the Spencer Street station and abutting major roads.
activity, and in the north-west of Docklands, facing
The amount ofland required for office use is Footscray Road to attract passing trade. This area
difficult to predict, particularly in the current lends itself to large-scale retailing, including
economic environment. Some areas suitable for peripheral sales, and could serve the wider inner
offices could be used equally for retail or metropolitan market.
entertainment activities, possibly in mixed use
configurations with office use. Education and Research
A significant area of Docklands has been identified The term "education and research" in intended here
as suitable for offices, should the demand arise. to encompass activities such as post-secondary
education, research establishments, related business
and light industry and associated residential and
other support facilities. A site of some 24 hectares
for an inner Melbourne campus has been identified
Education and Research Industry
on the north side of Victoria Dock and extending West Gate Freeway. In general, these areas are
north to the estuary ofMoonee Ponds Creek. The already used for such purposes, although new low-
area has good access to the CAD, provides ample rise office development is replacing industry in the
opportunity for future expansion and development southern area.
within reach of open space, and could be well-
serviced by public transport. This site would also be
suitable for residential development. 4.2.2 lnfrastucture
This location also has good accessibility to similar Infrastructure planning for Docklands should cover
establishments in the central city, Carlton and transport infrastructure, which is a high priority, as
Parkville, and the inner western suburbs, well as physical and human services. Approaches to
principally via Dudley Street. these are outlined below.
Industry Transport Infrastructure
Much of the industry traditionally attracted to this Planning for the provision of transport
part of inner Melbourne is related to the port and infrastructure must strive to achieve a high level of
rail. The redevelopment of Docklands envisages the accessibility for Docklands while providing a
replacement of some low intensity warehousing with pleasant environment in which motor vehicle
other industrial uses. A high degree of physical intrusion is minimised. The transport framework
infrastructure is accessible with close proximity and has taken account of existing infrastructure, travel
access to the arterial road and freeway network. The patterns generated by the development and travel
areas are generally adjacent to Footscray Road and through the area. It is also important to ensure that
Appleton Dock Road and, in the south, abutting the infrastructure proposals will meet future demand in
a cost-effective and environmentally sensitive way.
Major Pedestrian Links -----~

Rail Stations
Tram Routes
Ferry Stops
Major Vehicular Access Points
Boulevard Treatment
......0
The Strategy: Access and Movemnt

The transport objectives for Docklands are that: to Melbourne's economic well-being and must be
- the bulk of trips within Docklands should be retained and, ifpossible,enhanced. Other through-
provided by public transport and walking; traffic should be able to bypass the area also.
- public transport should provide access as Improved public transport should diminish the
directly as possible to Docklands, both from the demand for private transport, particularly for peak
CAD and surrounding areas; hour commuter travel. There will be some demand
for private road transport within Docklands,
- heavy freight traffic (to/from the port and rail however, particularly from residents and users of
terminals) should bypass the Docklands the leisure, entertainment and residential facilities
development; as well as from business and other commercial
- through-traffic should travel around rather users. A parking policy should promote the use of
than through Docklands; public transport (ie parking constraints) but have
- parking policy should encourage public spaces available for business users and for trips
transport usage; outside business hours (on a user pays basis).
Pedestrian and bicycle links should provide for easy
- pedestrian precincts and linkages should movement and access through the area.
facilitate ease of movement in high density
areas; Through-traffic
- bicycle paths should provide access and links This issue of the management of through-traffic is
into existing networks. discussed in Section 3.1.2 where a number of
alternative solutions were explored. It has been
Docklands has a good existing infrastructure concluded by the Task Force that the preferred
basis: Spencer Street railway station and proximity strategy is for the extension of the Western Bypass
to tram routes which could be extended into the from Footscray Road through the current port area
development. But it also has characteristics, such to the West Gate Freeway, generally on the west-
as large volumes of through-traffic, which are not side of the Moonee Ponds Creek, at the earliest
sympathetic to the area's redevelopment nor to the possible date.
creation of a pleasant environment.
This would mean that the objectives ofrelieving
Transport planning for Docklands should aim for the CAD of through-traffic are met but that such
high levels of public transport patronage. Currently, traffic is diverted by means of the Western Bypass
of every 100 journeys to the CAD, 45 are by public extension away from Docklands. Docklands would be
transport and 55 by private transport. It is proposed relieved of the heavy movement of through-traffic
that development at Docklands should aim to particularly trucks, and the area would be a safer,
change this pattern in favour of public transport and more attractive and accessible place to live, work
to reduce reliance on private motor vehicles for and visit.
access. Planning should focus therefore on high
levels of public transport service provision and good The preferred alignment for the Western Bypass
pedestrian links, with access for disabled people. extends from the Tullamarine Freeway at
Flemington Bridge to the West Gate Freeway at
Through-traffic into Docklands needs to be Graham Street. The route for the northern section,
carefully managed. The location of the Docklands at between the Tullamarine Freeway and Arden Street
the junction of a number of major truck routes to generally follows that recommended in the
and from the docks, rail freight terminals, private Environmental Effects Statement (EES) exhibited in
freight depots, the major wholesale food markets 1989. The precise route would not be finalised until
and major industries means that high volumes of the future of the Upfield railway line is determined.
truck traffic must be catered for in a manner which
will minimise the impact on the Docklands From Arden Street, the preferred alignment is on
development. Journeys to and between these to the western side ofMoonee Ponds Creek, passing
destinations will increase with the growth of trade over all rail and road infrastructure, over the Yarra
so truck traffic can be expected to increase. At the River west of the entrance to Victoria Dock, and
same time, the need to improve the efficiency of the linking into the West Gate Freeway at Graham
freight industry must be recognised. Access to and Street.
between these areas and main radial routes is a key
The route for the Bypass would have the following residential areas of Port Melbourne can be
features, constraints and impacts: minimised.
It would be elevated over a large part of its - The river bridge would provide vertical
length. North of Dynon Road it would clear clearance of approximately llm to water level
Macaulay and Arden Streets, rail which is sufficient for most ferries, yachts and
infrastructure at Arden rail siding, Upfield line, tourist craft expected to use Victoria Dock and
and the high levels tracks to Broadmeadows the river upstream.
and Moonee Ponds Creek. It would continue to - The alignment would allow the PMA to develop
be elevated between Dynon and Footscray Appleton Berths E and F but not G. A
Roads, providing 6.8 m vertical clearance to all variation to the alignment can be made to
rail tracks leading into the South Dynon accommodate the future development of
Container Terminal. South of Footscray Road it Appleton G as proposed the PMA but is not
could be lowered to ground level for a short favoured because it adversely affects the open
length before being elevated again to pass over space proposed at the estuary of Moonee Ponds
Railway Canal, Dudley Street extension, Creek.
the Yarra River, and Lorimer and Turner
Streets before connecting into West Gate - Within Docklands, land use next to the Bypass
Freeway on the alignment of Graham Street. would be industrial and open space. Noise
levels generated by Bypass traffic should not
- In the vicinity of the Moonee Ponds Creek, increase the level of noise significantly in this
south of Footscray Road, the Bypass extension largely industrial area and the use of noise
could be at-grade or elevated. An elevated barriers through the Docklands should not be
structure would need to be aesthetically required.
designed to minimise visual intrusion and
enable pedestrians and cyclists uninterupted
access to the open space below. An at-grade
structure would bisect the proposed open space
requiring underpasses or overpasses to
facilitate pedestrian and bicycle movement
through the parkland.
It would have full interchanges at Dynon and
Footscray Roads which would provide points of
access to Docklands, but would primarily serve
the Port of Melbourne, trunuport dupoLt; uud
iudusLty to the west of Docklands, allowing the
Bypass to act as a link between these primary
facilities.
The Western Bypass extension could join the West Gate Freeway at
- A direct freeway-to-freeway connection would Graham Street
be provided at West Gate Freeway allowing
traffic to move only along the Freeway or the - Access for cyclists and pedestrians would be
Bypass. provided on the river crossing to link
- Graham Street to the south of West Gate pedestrian and bicycle paths on both sides of
Freeway would be truncated to prevent traffic the river.
flowing south from the freeways onto the street - The visual impact of the road would not detract
system of Port Melbourne, South Melbourne from the industrial, warehousing and freight
and the bayside corridor. facilities to the west of the road, and would not
- Ramps on the northern side of Turner Street to detract from the visual amenity of the area.
link industry and port facilities north and south - The river crossing would be designed to be
of the river are being considered but would aesthetically pleasing and as a landmark
only be adopted if traffic intrusion into the structure.
In summary, the preferred solution to the through- La Trobe Street being a second priority. Collins
traffic problem is the early construction of the Street is proposed as a local street in traffic
Western Bypass extension to the West Gate movement terms, with La Trobe Street as a higher
Freeway. However, if this is not possible for funding order traffic route. Both are important public
or port-related reasons, then either Footscray Road transport links.
or the proposed Docklands Road should carry The major components of the internal road system
through-traffic. The choice of interim measures will would be:
depend on the likely completion date of the Western
Bypass extension and the timing of Docklands - "Docklands Road". A new north-south road to
development. the east ofFootscray Road and adjacent to the
rail corridor, Docklands Road, would rise over
The construction of the Western Bypass and its Dudley Street and pass under La Trobe with
extension from Tullamarine Freeway to the West northerly and southerly ramps at La Trobe
Gate Freeway will be the first time freeways are Street.
linked by a freeway connection. To this extent, the
proposal to construct the Western Bypass and Intersections would be provided at Collins and
extension will raise questions about what occurs at Flinders Streets. Direct car access from
the eastern end of the West Gate Freeway. buildings onto the Docklands Road should be
Suggestions have been made by various interest avoided to improve traffic safety and flow. The
groups that a Southern Bypass tunnel is required main function of Docklands Road would be to
under the Domain linking the West Gate Freeway link both Footscray Road west and the Charles
and South Eastern Arterial. Vehicles could thus Grimes bridge to the CAD via La Trobe, Collins
travel from the northern to the southern suburbs in and Flinders Streets, and to provide the main
freeway conditions, bypassing the CAD and access into the Docklands from the south and
Docklands. This would hold considerable east. Docklands Road would also be developed
environmental benefits for the CAD and Docklands. as a boulevard.
The concept of a Southern Bypass warrants - Flinders Street Extension. Flinders Street
investigation. would be upgraded to carry trams into
Docklands. Road capacity available to motor
The internal road system vehicles would be limited by the existing
The internal road system should provide for intersection at Spencer Street which is already
circulation within the Docklands area for trams and congested and the railway viaduct which
buses and for linkages to the CAD and the greater prevents physical improvements to the
metropolitan area. intersection and hence constrains increase of
There has been considerable debate about the need capacity.
or desirability of extending any of the city streets - Dudley Street. With the construction of the
into Docklands. The existing view corridors, Western Bypass to Footscray Road, Dudley
westwards froni about William Street, create an Street would carry heavy north easterly and
important relationship between the city and the easterly traffic. However, this would be
water and should be preserved. It is logical that reduced significantly with the completion of the
thoroughfares follow the same alignment, whether Bypass extension to the West Gate Freeway.
for pedestrian, public transport or general traffic
- Collins Street extension. Collins Street would
use.
be extended into the Docklands area, curving
Traffic demand predictions (VicRoads, 1991) have slightly to the north parallel to the line of
indicated that additional road connections are North Wharf and in a similar fashion to roads
necessary betweent the CAD and Docklands, in Carlton and East Melbourne. Its
irrespective of the type of redevelopment which contribution to the road capacity available to
occurs. The existing connections, Flinders Street motor vehicles is not expected to be large as the
Extension and Dudley Street, are currently nearing Collins Street extension would be the second of
capacity at key intersections. the east-west roads carrying mixed tram and
It is proposed, therefore, that Collins Street should motor vehicle traffic.
be extended into Docklands as a first priority, with - La Trobe Street extension. La Trobe Street
Proposed Road Network
Proposed Road Network
would be extended into Docklands providing will decline by almost a third following the
direct links between the CAD and Footscray construction of the Western Bypass and the
Road. It would be connected to Footscray Road development of Docklands. However, it would also
deviation by ramps. In addition to carrying mean a build up of traffic volumes in Footscray Road
significant traffic volumes, it would be one of or Docklands Road, La Trobe and Dudley Streets.
several routes for trams into Docklands, linking Effective removal of heavy through-traffic from
Flagstaff station to Docklands. Docklands cannot be achieved without the
Other minor internal roads would perform strictly availability of the full Western Bypass stages 1 and
local circulation functions. Planning for minor roads 2 to the West Gate Freeway.
would take account of the: Traffic impacts of the Western Bypass extension
- need for local access to particular sites; on local streets in the southern suburbs would be
minimized by terminating the Western Bypass
- physical attributes of parcels ofland; extension at the West Gate Freeway in a "tee"
- formation ofland parcels. interchange so that traffic could not flow directly
onto the local street system and by truncating
Traffic impacts Graham Street north of Williamstown Road. Also
The major determinants of traffic impacts within the question of whether access ramps should be
Docklands and on surrounding areas will be the provided at Turner Street to link port and industrial
volume of through-traffic, the construction of the areas north and south of the river would need to be
Western Bypass, and the density of development reviewed so that traffic intrusion into Port
within Docklands. Melbourne was minimised.
Construction of the Western Bypass to Footscray Traffic projections indicate that the Docklands
Road would reduce through-traffic in King and development could result approximately in a 14 per
Spencer Streets and in North and West Melbourne. cent increase in traffic on key north-south routes in
In fact, it is estimated that traffic in these suburbs Port Me11'ourne and 4 per cent in Middle Park. With
the Western Bypass extension, traffic in Port Public transport patronage should be encouraged
Melbourne could increase by about a further 3 by appropriate pedestrian links between services
percentage points and by 1 percentage points in and redevelopment areas. With the exception of
Middle Park. There is little real impact further heavy rail services to Spencer Street, public
south. transport modes in Docklands would be road based -
Other traffic impacts would include: either trams or buses.
- the interchange between the West Gate Suburban Rail System
Freeway and Charles Grimes Bridge Road Access to the metropolitan-wide suburban rail
would be subjected to very heavy traffic. This system can be gained through Spencer Street
will limit motor vehicle access to the Docklands station. Trams will also provide links to Flinders
development; Street and Flagstaff stations.
- movement into Docklands from the east would Development of Docklands will produce a
be limited through the mixed tram and motor significant increase in patronage of the rail system,
vehicle use and the general capacity limitations particularly if targets are adopted which favour
along Flinders, Collins, La Trobe and Dudley public transport. The Public Transport Corporation
Streets east of Spencer Street; estimates that patronage growth could be of the
- a car parking limitation policy which restricts order of 30-40 per cent. Such growth could not be
the location, quantity and pricing of car spaces accommodated by the current system and would
would help avoid the generation oflarge necessitate upgrading. This could be achieved
volumes oflocal traffic. This would be through:
complementary with policies encouraging the - the introduction of double deck trains
use of public transport for the majority of trips
- an increase in service levels,
to and around Docklands.
- spreading peak demand,
Public transport
- improvement in infrastructure.
Public transport planning for Docklands should be
based on:
- the opportunities presented by existing
transport infrastructure;
- the objective of increasing the proportion of
trips to the central city which are conducted by
public transport so that it becomes the
predominant means of passenger transport;
- the desire to increase amenity by minimising
the need for transport by private car.
The development of a multi-modal Transport
Interchange at Spencer Street station and the
concentration of high density land uses in its vicinity
would present opportunities for swinging the current
proportion of journeys to the CAD in favour of public
transport. Through the Transport Interchange,
Docklands can be linked to the metropolitan and
country rail system and Melbourne Internationl
Airport, when the Rapid Transit Link proceeds.
Tram routes servicing the CAD or east-west streets
can provide public transport links into Docklands.
approximately 45 minutes to travel from the

mouth of the river to the Yarra Heliport. This is
Tram Services
equivalent to the time taken to travel from
Edithvale to the city by train. The usefulness of
Tram system boats and ferries for commuters therefore is limited
Tram services would be extended to integrate to short trips in and around the immediate
Docklands with the CAD. There are currently six city/Docklands area. Another limitation to
main tram services which operate through the CAD commuters is the time required to reach the river on
between Spring Street and Spencer Street on roads foot from much of the CAD.
which could be extended into Docklands.
Water transport would be attractive to tourists,
Buses however, with destinations close to the river. For
While internal travel within Docklands would example, trips to places such as Royal Botanic
primarily be serviced by trams, opportunities would Gardens, Olympic Park, Sports and Entertainment
exist for the expansion of existing bus routes into Centre, National Tennis Centre, Victorian Arts
Docklands. Bus services to Fishermans Bend or Centre, Museum of Victoria, Science Museum at
Garden City could be re-routed to service Docklands Spotswood, World Trade Centre, and Victoria Dock
as could the existing Footscray Road bus service. from origins such as Eden on the Yarra, Docklands,
and Flinders Street Station could attract a market.
The Transport Interchange would be the terminus There could be a demand also for river trips as a
for interstate and VLine coaches. Adequate
leisure activity in itself.
provision would be made for access to and from the
Transport Interchange and for bus parking. Design In the majority of cases water transport would
of roadways would need to accommodate bus stops in compete with other public transport services and
such a way as to avoid traffic congestion. Bus there would be little or no benefit generated beyond
passengers would be able to make easy connections those for the actual users of the service. It is
to other modes of transport. therefore appropriate that these should be services
operated at no cost to the community. Public sector
Water transport involvement should therefore be limited to planning
Complementary to the Docklands concept of a for water-based modes and regulation.
waterfront city is the use of water transport. Boats
and ferries could provide services for work and Taxis
business trips but their greatest potential would be Developments such as the Transport Interchange
catering for the needs of tourists. and casino would be major destinations for taxis.
Planning would ensure adequate entry to and exit
Current speed restrictions along the Yarra, which
have been imposed in order to prevent damage to
the river bank due to wash, limit the practicality of
boats. At a speed of 6 knots (11 kph) it would take
from such developments and, therefore, taxi high quality, extensive and frequent public
stopping patterns should not cause congestion. transport. Without the provision of such public
Webb Dock Rail Line
transport, road traffic congestion could occur.
Section 3.1.2 discusses the future of the Webb Dock Consideration should also be given to the form of
Rail Line. It concludes that while traffic on the line car parking allowed in Docklands. Currently free-
in the short-t.erm will be light it is important that a standing parking stations cannot be construct.ed in
link be maintained to the South Dynon container the CAD. In support of objectives to increase public
terminal, especially given the centrality that the transport's share of all central city journeys, it could
terminal is likely to assume in the national rail be argued that a similar policy should be adopted for
freight distribution network and the anticipated Docklands. Alternatively, Docklands' location at the
growth in port activity and rail freight traffic. periphery of the CAD suggests that it might be a
suitable location for a free-standing car park, close
The preferred alignment is for the Webb Dock line to tram rout.es and rail loop stations.
to be located in a single transport corridor along
with the West.ern Bypass ext.ension. However, since As proposed by the Transport Working Group,
this alignment is only likely to be realised in the development of a detailed car parking policy for
long-term it would be desirable to remove the Webb Docklands would need to have regard to:
Dock line from the centre of Docklands. An int.erim - objective of maximising public transport
alignment could be the eastern side of the proposed journeys for travel to and within Docklands and
"Docklands Road". the CAD;
Private transport - the mix of land uses and appropriat.e car
parking standards for each use;
Cars and parking
Planning objectives for Docklands favour public - whether car parking standards should be
transport as the predominant form of transport. A uniform across Docklands;
quality public transport system and pedestrian - impact on property development;
network should cater for most trips to and - the capacity for developments to "share" car
throughout Docklands. However, cars will need to parking;
be accommodat.ed and car parking provided,
particularly since the proposed Transport - the need for short, medium and long t.erm
Interchange and casino are the kinds of projects parking;
which would generate a high need for car parking. - the needs ofresidents, workers and emergency
Residents will need parking for their own cars, service vehicles;
parking will be required for commercial, leisure and - whether free standing parking stations should
entertainment uses and provision will need to be be permitted;
made for delivery and service vehicles. A car
parking policy will require a balance to be struck - location;
between the suppression of demand for car spaces in - pricing.
support of public transport and a supply of car
spaces which is adequate for commercial purposes.
A policy objective favouring public transport
suggests that a car parking limitation policy should
be applied in Docklands. Car parking limitation
policies currently apply in the CAD and at
Southbank, though the policy in place in Southbank
is less restrictive than that applying in the CAD. A
similar approach may be appropriate for Docklands,
given that both areas are on the periphery of the
CAD.
A car parking limitation policy for Docklands
would need to be accompanied by the provision of
Pedestrian areas
Pedestrians
Pedestrian environments should be created in
Docklands which are pleasant and safe. As far as
possible pedestrian areas should be created which
are separated from vehicles.
The design of the Transport Interchange should
incorporate a network of malls and subways
facilitating access and creating exclusive pedestrian
environments. This may include an internal square
creating an attractive resting place for pedestrians,
remote from traffic. A pedestrian overpass may also
be constructed over Spencer Street to the
Interchange.
The network of pedestrian areas along the Yarra
River would be continued into the Victoria Dock Services Infrastructure
area, allowing pedestrian access into the Port area, Physical Services
at least while Port activities continue upstream. A Physical services include the provision of sewerage,
pedestrian link could also be constructed over the gas, electricity, drainage, water and
river linking the north and south banks. This could telecommunications. At present, Docklands has
be a free-standing pedestrian bridge, however, it these services to varying degrees and a detailed
could not be constructed until the PMA vacates all investigation has been carried out with relevant
facilities downstream along North and South authorities to establish the physical and financial
Wharves. impact ofredevelopment. The results of this
Considerable pedestrian movement could be investigation are set out in a working paper
expected between North Melbourne railway station (Provision of Physical Services Infrastructure)
and the northern areas of Docklands by people and suggest that the provision of physical
travelling from the northern and western suburbs. infrastructure services is not a constraint on
As travel from North Melbourne station to these development at Docklands.
areas may be further than the average pedestrian is Some existing infrastructure will need to be
prepared to walk, some assistance may be required. relocated, other services expanded. In general,
This could mean a more direct pedestrian route such however, the physical and financial impact is
as by an overpass, or some form of people moving relatively insignificant and can be spread out over
technology. many years.
Where separation of pedestrians and vehicles is Human Services
not possible, care should be taken to provide
Planning for Docklands is in its early phases and
pedestrian crossings at key points and to ensure
little is known at this time of the make-up of a
provision of appropriate safety features.
future Docklands population. The analysis of human
Bicycles services is based on known data, therefore, that is,
Docklands is a good environment for bicycle travel identifying existing services that would be available
because of the flat terrain, the waterfront and to support a Docklands population, whether or not
nearby tourist attractions. Adequate provision that population would ultimately require them.
should be made for off-road bicycle paths for Education facilities: The Ministry of Education
touristJrecreation trips, on-road bicycle routes and has advised that existing primary anq secondary
adequate storage facilities for short-term and education facilities in South and Port MelJxmme, as
commuter trips. The bicycle paths within Docklands well as in North and West Melbourne, would be
would link to, and form an integral part of the suitable to service a Docklands population. The
metropolitan bicycle path system. following points are made about these existing
Bicycle storage would be provided at the Transport facilities:
Interchange, North Melbourne and Flagstaff - they are currently underutilised and more than
stations. Storages at key suburban railway stations adequately cater for the existing population;
would be increased.
- the number of enrolments is declining; support Docklands, requiring additional capital and
- there is abundant capacity to accommodate recurrent spending. The current approach of
extra students; Council is to develop community buildings that have
a multi-purpose use whereby child care, aged care
- even with the development of Docklands, it is and health care may be provided from one centre.
likely that further rationalisation and re- The Council considers that such a community centre
organisation of education facilities will take would be necessary to service Docklands.
place;
Overall, whilst the precise nature of a Docklands
- the Docklands development will assist in population is not known at this stage, major service
increasing the viability of existing facilities providers confirm that there is sufficient capacity in
rather than causing capacity problems; existing services to cater for a Docklands population
- some additional minor expenditure would be without significant investment. It should also be
required to upgrade existing facilites; noted that the inner city offers a superior range and
- recurrent costs will be reduced per capita, as quality of service to that often available in fringe
there is a general over-servicing of students in areas and that Docklands may improve the viability
the region; of some services eg. schools.
- the region is also well-served by the Catholic
school system. 4.2.3 The Character
Health facilities: There are ten major public The final element of the Draft Strategy concerns the
hospitals located in central Melbourne. These character of Docklands, including the urban design
hospitals service local, regional, State and national and form.
catchments and therefore the increase in population In general terms, Docklands should be a
from Docklands will have a negligible impact on complement to the Central Activities District (CAD)
these services. rather than an extension of it. Although direct and
Community health agencies exist in Flemington, convenient links are proposed between the CAD and
Kensington, North Melbourne, Prahran and South the waterfront, the character of the two areas should
Port (currently under construction). These agencies be distinct.
have been established for defined local catchments This distinction would be due in part to the
but it has been indicated that the catchments of the newness of Docklands and because it will be built
three agencies could be expanded to include a relatively quickly and in a more managed fashion
Docklands population. No additional capital or than the CAD or other parts of inner Melbourne. It
recurrent costs are envisaged. should not appear as a contrived place, however,
City of Melbourne: Docklands lies predominantly although controls on building design may be
within the City of Melbourne and the Council stronger than elsewhere.
provides the greatest range of community facilities Docklands will attract visitors as well as residents.
and services. Service provision is based, to a large A significant number of people will live there: this is
extent, on expressed demand. It is therefore difficult seen as essential in ensuring a sense of vitality.
to determine future needs and changes in provision. Housing should therefore be attractive and available
The major groups the City of Melbourne provides to all sections of the community.
services for include: The waterfront provides a particular focus for
- Families with children leisure, entertainment and tourism uses that
maintain public access.
- The elderly
- Youth The proposed redevelopment of Spencer Street
station would be a catalyst for development nearby.
- Community and personal health development Offices, hotels, theatres, restaurants and shops are
- Special community support. likely to locate close to this transport hub.
The City of Melbourne considers that some
additional services would need to be provided to
- the known major land uses which could occur in

Docklands in the early years of development
and
- the existing physical form of Docklands.
There are several additional fact.ors which affect the
urban design of Docklands. These are:
1) The identification by consultants of Vict.oria
Dock as being of hist.orical significance. This
means that consideration may need t.o be given
t.o preservation of the structure of the Dock, its
distinctive water edge form and several berths,
sheds and aprons. Importantly, it has been
recommended that the shape of the Dock be
retained. Aside from Vict.oria Dock, a range of
structures has been proposed for consideration
for the Hist.oric Buildings Council Register
while a number of buildings are already on the
Register.
The redevelopment of Docklands is the first
wholesale change of use since the railways and
port were introduced. It is therefore important
that these physical remains are treated
appropriately as part of the redevelopment
process. They should be integrated and
adapted for new uses in an environment that
reflects the site's previous functions, rather
Places of Heritage Significance
than retained as isolated monuments,
preserved in an alien context.
Urban Design Should the Hist.oric Buildings Council and the
Minister for Planning decide that the current
Urban design embraces both the layout of roads, land profile of Vict.oria Dock requires
thoroughfares, open spaces and land parcels and the preservation, this will prevent any alternative
three dimensional form of buildings and other design for the water's edge at Docklands.
structures on those land parcels. Good urban design Notably, ideas which have been put forward by
will also address the detail ofland use, particularly the professional architecture and planning
at street level, the role of landscaping and tree bodies about drawing the water up over the
planting and the character of the environment. railyards t.o Spencer Street - bringing the
The ambience, the sense of place and the personal waterfront t.o the CAD - or truncating the
response t.o being in a particular urban setting are finger pier at North Wharf or demolishing
influenced by the quality of the urban design. It is Central Pier, could not be realised.
therefore affected by decisions at all stages of the While the Task Force sees advantages in
planning process and by various parties t.o that retaining the current land profile, for economic
process, each of which has different objectives. as much as heritage reasons, it believes that
Important influences on an appropriate urban this issue should be fully explored in this
design for Docklands include: current phase of consultation.
- the grid pattern of the existing Central 2) The visual impact of the proposed Western
Activities District (CAD) Bypass extension and Webb Dock Rail Line
- the existing road network in Docklands bridges: The Western Bypass extension and the
Webb Dock Rail Line ideally would be located
- the building heights existing in the CAD in a single transport corridor. They would have
Views to Western Bypass Bridge Landmark Sites and View Corridors/Key Sites
a significant visual impact on Docklands and several sites where major civic or public
its surroundings where they cross the Yarra buildings could be located or where physical
River. The corridor would form the western elements, for example, fountains, plazas or
extremity of Docklands and partly close the statues, could be sited.
views down the river from the CAD streets and Several important view corridors exist: Collins
buildings and from water edge vantage points. Street, La Trobe Street, Dudley Street and at
The corridor would involve two parallel bridges the proposed Docklands Road. Potential
oflow sweeping structure, rising from elevated landmark sites are marked on the drawing
approach roads to a height above water of about above.
11 metres. This sculptural form and the
design of the bridges' supports and the 4) Building heights: The height of buildings and
treatment of road lighting or floodlighting are their relationship to the street will combine to
all critical aspects of the urban design create an important aspect of the character of
contribution of this important structure. Visual Docklands for people within it. New
intrusion could be minimised by spacing the development in Docklands should not compete
supports of the bridges identical distances with the clusters of office towers in the CAD.
apart. Rather, Docklands is seen as a low and
medium-rise environment, with relatively few
3) Vistas and monuments: Melbourne has a buildings above about 12 storeys, except at the
tradition of major buildings or monuments at proposed Transport Interchange, facing
landmark sites. This hallmark of nineteenth Spencer Street, or at landmark sites.
century Melbourne should be expressed in the
urban design of Docklands by identifying Lower building heights are proposed near to
site has been indicated already. For it is not simply

a matter of the PMA and PTC vacating land, but of
ensuring that decisions on infrastructure are
Suggested Maximum Building Heights
integrated with land release and that there is co-
(Number of storeys) ordination among all the agencies involved.
Nevertheless, where land is currently available,
actions could and should be taken to begin to open
access for the public and to provide recreation and
leisure activities.
Any development action within the next year or
two will need to be simple, relatively
straightforward and achievable. It should also have
maximum public benefit, make good use of physical
facilities currently available and assist in increasing
the community's interest in and awareness of
Docklands. The next decade could see development
of some major projects in Docklands and of
significant parcels ofland. What follows are ideas
which, if implemented, could achieve these
requirements.
4.3.1 First actions: Raising
Community Awareness
The Task Force has explored the viability of opening
up North Wharf, from Batman Park to Victoria
Dock, for pedestrian and cycle use, and for various
leisure-oriented activities. It has also investigated a
Suggested Maxium Building Heights similar route along Footscray Road, from the Yarra
River to Moonee Ponds Creek. These two trails are
substantially accessible at present, but due to a
the waterfront to encourage public access and
fragmented waterfront, a mixture of uses, a lack of
avoid overshadowing of the water. Two or
signage and an industrial atmosphere, the area is
three-storey structures should predominate in
little known and its potential is not exploited.
places where a pedestrian character is sought.
Existing heritage structures are all low-rise There is considerable potential to develop these
and, in part, these should influence the form of routes with a series of attractions centred around
new buildings nearby. Design should the maritime character of the area. While accepting
accentuate the opportunity to maximise water the need for the Port to retain its current
views, sunlight penetration and two or more operational land during the coming years, there is
land uses on one site. much underused but public waterfront land which
can be made accessible.
The concept of opening up and using as much of
4.3 The Phases of the available waterfront as possible meets a basic
Development premise of the Docklands Strategy; that is, that all
While efforts have been made to avoid the waterfrontages should be publicly accessible for
difficulties inherent in a prescriptive approach, pedestrian and cycle use, with public uses located
particularly to land use, action is possible in the along such frontages. It is appropriate to
short-term and in the next decade or so. This demonstrate this objective at the earliest stage of
section will attempt to demonstrate some of these the project's implementation. Since significant
earlier possibilities. public benefit - access to the waterfront - would be
delivered early in the life of Docklands, it should
The complexity of developing the entire Docklands also serve to stimulate developer interest in this
and cycle routes containing a variety of points of

interest.
The Task Force recommends as a priority
upgrading the trails and their facilities.
The range of uses, facilities and attractions which
could be introduced are discussed below.
Uses and attractions
A range of attractions for visitors can be provided
through the refurbishment of buildings and
development of open areas.
Potential uses and attractions include:
viewing points, at locations accessible by both
car and on foot, overlooking the port, the river
and the city skyline;
- restaurants, cafes, kiosks, at various sites,
either in new structures of appropriate design
and materials or in parts of existing sheds;
several locations exist for outdoor seafood cafes
beside the water and overlooking the port and
the city;
- retail, particularly of a maritime, tourism,
art/craft and leisure nature, could occur in
existing buildings. An occasional market,
whether food, "trash and treasure", craft or
general goods is also possible;
First Actions
- educational displays, of the current Port
operations, its engineering and trade history, or
unique area. of the Docklands project itself. An Interpretive
Over the long term, tourism and recreation Centre could become a tourist and educational
activities will be of considerable economic attraction in its own right. A "Museum of the
significance to Docklands. Port" could include material from the Port of
Melbourne Authority and Melbourne and
In the early years, as the waterfront is made more Metropolitan Board of Works archives and
accessible by the construction of bike paths and
elsewhere. Existing river cruises could make
pedestrian areas, a limited range of opportunities
this a stop on their tours of the port;
would emerge for such activities as food stalls, cafes,
restaurants and boat and bicycle hire businesses. - boat tours, of the lower Yarra, the Maribyrnong
and the Port focussing on current activity and
Over the long term these opportunities could be future plans for redevelopment, could
expected to expand considerably. All sorts of commence from the Interpretive Centre;
specifically waterfront-related activities eg. retailing
of seafood, boating hire, moorings, retail and repair - bicycle hire, street theatre, music recitals,
businesses, water taxis, some of which exist already fishing are other possible activities.
at Central Pier and at North Wharf, will emerge. These attractions would need to be complemented by
More general t.ourist and recreational opportunities the provision of car parking and other amenities at
will also develop such as museums, a range of shops, key points, suitable and informative sign-posting,
galleries and amusement activities. lighting and safety provisions.
Tourism potential of the two trails The responsibilities between agencies for
The trails can be negotiated now, on foot. They have implementation, management and maintenance of
considerable potential to be developed as pedestrian these potential attractions require resolution.
Possibilities In The Next Decade
Possibilities in the Next Decade
_
P ublicity and public awareness Public transport
One of the primary objectives of the First Actions is Initially Docklands will not be served by
to increase public awareness of Docklands, its assets comprehensive public transport services. It is
and potential. possible to serve the focal points along both the
The Task Force considers that Docklands has Riverfront and the River to Park Trails by buses
unique potential for providing leisure and accessing the area from the CAD via Dudley or
recreational opportunities for Melburnians and Flinders Street. The eastern end of the Riverfront
visitors at an early stage of its development, and at Trail is adjacent to a tram route and is 300 metres
relatively little cost, by capitalising on existing from Spencer Street station.
facilities. Links to other parts of inner Melbourne
This general community awareness would assist in These two trails can form vital parts of a wider
making more apparent the potential of Docklands regional cycle and pedestrian network currently
for major investment. It would start the process of under development. Additional cycle and pedestrian
turning much of the redundant facilities and vacant routes can be created from Docklands through South
land into assets on which the later phases of the and Port Melbourne to the bay frontage and to West
Docklands project would be built. Importantly, the Gate Park.
public would begin to enjoy access to the waterfront, The potential exists for Docklands to be a junction
with its city and port views, at an early stage. of several recreational cycle and pedestrian
movement routes. The proposed open space on the
former City Gasworks site would be the focus of
these radial routes.
4.3.2 Possibilities in the next of Collins Street along the southern boundary of the
decade: The Start of Development Interchange, concurrent with the major phase of its
redevelopment.
The initial actions noted above could be vital in
creating community awareness and appreciation of The extension of Collins Street into Docklands has
the site and of its potential to develop as a key numerous benefits for the overall Docklands
element of inner Melbourne. They would enable development. From a land use point of view, the
Docklands to be linked to the CAD and the Yarra extension of Collins Street would open up several
River corridor from the earliest stages, so that no key sites in the Melbourne Yard for redevelopment
early development, wherever it occurs, would be as well as bring Victoria Dock to within 500 metres
isolated in the midst of incompatible activity. It is of the CAD.
from this modest beginning that the next tier of Entertainment area
actions could commence. Indeed, from this point,
other parcels ofland may become attractive for a The land parcel between Flinders Street Extension
variety of the uses noted in the section on Land Use. and Collins Street extension and extending
westwards to the proposed "Docklands Road", has an
A starting point for development is clearly needed. area of about nine hectares. Because of its
A Transport Interchange and a casino are both proximity to the World Trade Centre and Spencer
projects of a dimension which would see Street station, and to good road access, several
regeneration oflarge areas. developments have been suggested for it, including:
What follows is an indication of the way in which - a casino
development could occur over the next ten years or
so, bearing in mind the staging of, and catalysts for, - an exhibition centre
development noted in the Strategic Issues section - a major car park
above. This is not a prescription, but a guide to a - entertainment and leisure facilities.
possible pattern of development.
This land parcel contains several structures of
It should be mentioned also that for the land use heritage significance so that any new land use will
changes in the next decade or so, the existing road need to take account of these important links with
network could be used as far as possible and the past.
supplemented by the construction of a minimum of
new access roads. In particular, retention has been proposed of the:
- No. 2 Shed, its brick southern section and
Transport Interchange covered platform to the north,
Plans to develop Spencer Street station as a
Transport Interchange have been discussed in the - retaining wall, north side of Flinders Street
section on Strategic Issues above (Section 3.1.4). Extension, and
If development of the Transport Interchange - components of what remains of No. 1 Shed,
proceeds it will become the main transport hub of which comprise a building relocated from the
Melbourne and the main gateway for passengers site of the Melbourne Exhibition of 1880-81.
from the suburbs, intra and interstate and overseas A major open casino could be located in Docklands,
(via the Rapid Transit Link). This has implications attracting up to 6.5 million visitors per year. With
in terms of the scale of any tourist/recreation up to 200 tables and 2,500 machines, the casino
opportunities that might occur in the area and, in would be the largest in Australia.
particular, for tourist accommodation. Even more A parkland environment could provide the setting
importantly, development would offer major for the casino and could see the implementation of
commercial benefits to the entire Docklands area. significant improvements to the Docklands
The Task Force has undertaken a brief study of a environment at an early stage.
design for a comprehensive Transport Interchange Registration of interest in developing and
on a site immediately west of Spencer Street and operating a casino have recently been called, and it
bounded by the westward alignments of Collins and is expected that this process will identify ancilliary
Bourke Streets (Transport Interchange · Collins activities likely to be associated with the casino such
StreetSite). This report also proposes the extension as a hotel, convention facilities,etc.
7 • t s In The Next Decade
Possible Developments in the Next Decade
A proposal of the scale of the casino, with its access primarily from Flinders Street Extension.
capacity to attract investors would be a significant The remainder of the site could be used for an
catalyst for development at Docklands and would exhibition centre or any other entertainment and
provide a boost to other tourism and recreation leisure facilities as suggested above.
opportunities.
This area is regarded as a vital element in a Gasworks park and surrounds
sequence of north-south land uses extending from This site lies between Victoria Dock and the Yarra
the Transport Interchange to the Museum of River, immediately west ofFootscray Road.
Victoria on Southbank. A pedestrian spine could be The land is currently used for a variety of
created to link a variety ofrelated and purposes. Very little of it is unused and many of the
complementary uses and activities. This spine current uses are viable operational areas of the Port
would be approximately on the alignment of the of Melbourne.
Galleria of the World Trade Centre and should
This land was identified originally as the site for
provide grade-separated, traffic-free walkways from
the 1996 Olympic Village. Several alternative uses
the concourse of the Transport Interchange to the
are now proposed.
Museum forecourt.
Public access is currently available on North
Of the land uses feasible for this site, a major car
Wharf and the berths here are used for private boat
park could be located between the pedestrian spine
operators. This use should continue, while the area
and the rail lines, linked into the pedestrian spine
is upgraded for a wider range of public access and
and hence to the other uses along it. A low-rise but
recreational activities.
high capacity structure is envisaged, with vehicular
The Port of Melbourne is likely to retain the use of which emphasise the public and waterfront nature
berths facing Victoria Dock and sites south of Pigott of the location. Above ground level, offices or
Street for land-based support services beyond the residential apartments would be appropriate.
time-frame discussed here. The frontage to the proposed "Docklands Road"
The major remaining land area is part of the would lend itself to office use, with retail or service
former City West Gasworks and, as such, has business at street level. The same configuration of
several factors constraining its re-use. These factors uses would be appropriate on the east side of
are the contaminated soil and the heritage Docklands Road with sites which back onto the rail
significance, in archaeological terms, of parts of the tracks.
site, where remnants of the former structure exist. Between the two main road frontage uses, the
The Gasworks closed in 1974. central core should be predominantly housing. This
It is proposed that the site of the former Gasworks, would be one site where medium to high-density
west of Footscray Road, and extending south to the housing could be suitable, given the proximity to
river, be designated as open space. North Wharf public transport, retail, leisure and employment
Road could remain within this open space, providing opportunities.
access to sites further west. Local open space, in the form of plazas and urban
This open space would be a major destination on squares, should permeate this area, and the form of
the riverfront access route and could be extended buildings should allow water views to be obtained,
eastwards to incorporate Footscray Road if that road including from buildings a<ljacent to the rail
is diverted to a new alignment. It is also feasible to corridor.
extend the open space area northwards to Victoria The area between the Transport Interchange and
Dock at a later stage. Victoria Dock will develop as a focus of pedestrian
Mixed use area movement and activity. A water transport quay is
This strip ofland extends from Flinders Street envisaged in Victoria Dock and this should be linked
Extension to Dudley Street and is bounded on the efficiently to the Transport Interchange by some
east by the possible future alignment of Footscray means of people mover.
Road and the north-south road, and on the west by It is therefore logical that this area become a band
Footscray Road on its present alignment. of retail and ancilliary uses, either along Collins
South of Collins Street extension, the site would be street or to its immediate north.
appropriate for office, residential, commercial or a The Webb Dock Rail Line passes through this area
mixture of uses. In the overall strategy this site is at present and, even if this route is modified to some
bisected by Docklands Road and the Collins Street extent, it is likely to remain in this area beyond the
view corridor. Overlooking the Yarra River are medium term. Several alternative routes are under
several key sites where landmark buildings could be investigation but this freight corridor will remain an
constructed. intrusion which will have to be accepted and its
The area includes the historically-significant visual and operational impact minimised.
Queen's Warehouse in Blyth Street. This Campus Site
substantial brick structure is to be preserved. Its Docklands provides a unique opportunity for inner
style and form necessitate new buildings nearby to city educational institutions to solve their space
be of similar scale. Its western frontage is proposed problems while taking advantage of the potential for
to face the proposed "Docklands Road". interaction with other facilities, particularly in the
North of Collins Street extension the land is area of research.
almost totally unused, the rail tracks and buildings The location of a multi-institutional campus with a
being substantially redundant to current operations. research focus could provide a basis for related
Once the Cowper StreetJCentral Pier area is commercial/industrial development in the way that
developed for public use, and through-traffic is Monash University has provided a basis for such
removed from Footscray Road, this land will become industry at Clayton and La Trobe University at the
particularly attractive. The frontage to Footscray Research Park at Bundoora.
Road, particularly at ground level, should have uses
The warehousing centred on Sudholz Street is The PMA will continue to operate the container
leased to a number of private businesses . Several of berth at No's 16 and 17 Victoria Dock in the
these leases are of a short-term nature, and this fact medium-term. The future of the private berthing at
contributed to the identification of the area as a berths 19 and 21 is unclear, although the opening up
suitable one for the early establishment of tertiary of this area for further public access is favoured.
education or research facilities. Other factors which The shed and berths at No's 20 and 21 Victoria
influenced this proposal were the perceived need for Dock have been identified as being of considerable
a new campus on the city's west to serve the western historic value. This may influence the range of
surburbs and the site's proximity to the Knowledge possible new uses.
Precinct in Carlton and Parkville.
A parcel of some 19 hectares has been identified
Several institutions have signalled an interest in which has frontage to both Footscray Road and the
locating facilities at Docklands, possibly on ajoint- existing vacant land abutting Moonee Ponds Creek
venture basis with the private sector. Both the which is proposed as open space. Of these 19
Victorian Post-Secondary Education Commission hectares, leases on about eight hectares are
and the State Training Board have also expressed renewable on an annual basis. Within a
interest in continuing discussions about the comparatively short time, therefore, land could be
development of a campus at Docklands, possibly of a made available for redevelopment.
multi-institutional nature.
Ultimately, a site of some 24 hectares, extending
The Task Force has identified an appropriate across Dudley Street to Victoria Dock, could be
campus site on land between Victoria Dock and created.
Moonee Ponds Creek. The land is currently within
the jurisdiction of the Port of Melbourne Authority
(PMA) although it is used for three main purposes:
private moorings, commercial shipping and
warehousing. Unused open space flanks the estuary
ofMoonee Ponds Creek.
4.4 Next steps of Public Comment on Docklands

The release of the Draft Strategy heralds the At each of these public seminars, the Task Force and
commencement of the second phase of public Docklands Consultation Steering Group are
consultation. Whereas the first phase canvassed a particularly interested in people's contributions to
wide range of ideas and concerns and explored in the main parts of the Draft Strategy, notably:
relatively general terms several options for - the presentation of public input (its accuracy
Docklands, this second phase provides the and comprehensiveness);
opportunity for public comment on the progress of
the Task Force to date in developing a strategy for - the appropriateness of the proposed set of
Docklands. principles for Docklands redevelopment;
This second stage will also provide an opportunity, - the identification and discussion of strategic
where appropriate, for the Docklands Authority to issues;
become well-versed in the background, current - the Draft Strategy's more specific treatment of
public response and matters relating to the land uses, infrastructure and character as they
finalisation of a strategy for Docklands. relate to the future of Docklands.
Beyond these agenda items, there may be of course
The Approach other matters relating to the finalisation of a
Docklands Strategy which people may wish to raise.
The second phase of consultation will have three
parts: People seeking to submit written responses in any
form would need to do so by 31 December, 1991.
(i) A press launch to announce the public release Appointments can also be made to present your
of the Draft Strategy and provide a broad views in person.
outline of its main components
For further information and/or further copies of
(ii) Soon after the launch, a major public meeting the Draft Strategy report, please contact:
to which all participants thus far (and possibly
new ones) will be invited to attend. The focus Docklands Task Force
will be on outlining the Draft Strategy; 11th Floor
describing the main lines of its development
176 Wellington Parade
since the earlier consultation; and providing an
opportunity for initial responses. East Melbourne VIC 3002
This will be held on Thursday 28 November from Ph: (03) 651 7895
7pm to lOpm at the Royal Exhibition Building Fax: (03) 651 7890
Conference Centre, (Mirrored Building) Nicholson
Street Carlton
(iii) Several localised public meetings for which
participants will have a choice of dates and
locations. The aim of these will be to provide
opportunities for closer and more detailed
discussion of the Draft Strategy.
These will be held on:
- Tuesday 10 December from 7.30pm to 10.00pm,
at the Assembly Room, Footscray town Hall,
cnr Hyde and Napier Streets, Footscray.
- Wednesday 11 December from 7.30pm to
10.00pm, at the Liardet Community Centre,
cnr Nott and Liardet Streets, Port Melbourne.
- Thursday 12 December from 4.00pm to
6.00pm, at Melbourne Water (MMBW)
Theatrette 625 Little Collins Street,
Melbourne.
--··--·-----------~-----------------------------~-=.---------~
0
List of Submissions ·
Private Individuals Organisations
E Avery, MBE (4 submissions) Community
NBaginski Association for the Blind
R Brons (Ms C Kyne)
A Davey
Bicycle Victoria
I Davidson
(Mr B Heath - Secretary)
A Day
GDoyle Cruising Boat Owners Association
MDrake (Spokespersons - M Coppell, D Turner, J Dobbin)
B Echberg (submission presented in person)
Debate and Analysis of News, Comments and
C Ferrari (3 submissions) Events (DANCE Group)
N Ford (submission presented in person) (Mr R Gordon -Associate Secretary)
C Fossemalle
JGraham Flemington Association
(Mr B Durant - Secretary)
J Irving
J Eric Jackson Foreshore Residents' Association Inc.
FLewis (Ms. NYeates -Secretary)
D McCutcheon
P Montgomery Hazardous Materials Action Group (HAZMAG)
(Ms C Hartland, Mr P Adams - Spokespersons)
DMoore
DrGMosley Moonee Ponds.Creek Association Inc.
Justice H Nathan (2 submissions) (Mr. W Harvey - Secretary)
E Peterson (submission presented in person)
National Council of Women of Victoria
NRandazzo
(Mrs. J Rofe - Acting President, Senior Vice
HRobson , , President)
KRussell
T Ryan (submission presented in person) North Melbourne Association Inc.
(Ms. K Oddie - Planning Convenor)
LSmith
DrHWard
North Melbourne Tenants' Association Inc.
RWelsh (Mr. A White - Chairperson)
A Wise
Paraplegic and Quadriplegic Association of
Victoria
(Mr R Harris)
Rainforest Action Group

(Mr P Spencer)
Social Justice Coalition

(Mr. E Ogilvy)
Vicrod Aboriginal
(Ms Sue Parks) The Wurundjeri Tribe Land and Compensation
Cultural Heritage Council Inc.
Professional r
(Ms. M Gardiner - Spokesperson)
Australian Institute of Landscape Architects
(AILA) Unions
(Mr. B Echberg) Joint Unions Working Party Report on
Docklands
The Royal Australian Institute of Architects Development
(RAIA) (Mr. C Collison - Spokesperson)
(Mr. S Ashton - President of RAIA Victoria
Chapter)
Media, the Arts and Heritage
Royal Australian Planning Institute Inc. (RAPI) National Trust Australia (Victoria)
(Mr. M van Assche - President, Royal Australian (Mr Ian Wight -Assistant Administrator,
Planning Institute and Conservation)
Mr. G Nicol - Chairman, Australian Association
of Planning Consultants) Ships and Ports Magazine
Maritime Trust of Australia
(MrNG Cree)
Business
Armstrong Williams and Associates Pty Ltd
Victorian Council of the Arts
(Mr Penry Williams)
(Ms D Reed - Chairperson)
AMP Investments - Property Development

(Mr S F Swain - Property Development Tertiary Institutions
Manager) Department of Architecture and Building
Melbourne University
CBT Australia - Building Technology (DrKDovey)
(Mr CE Nelson - Managing Director)
Other
Helicopter Association of Australia Astronomical Society of Victoria Inc.
(Mr B Newman - President, Victorian Branch) (Mr. G Dudley- Light Pollution Committee)
(submission presented in person)
Sandridge City Development Company Ltd.

(Mr. R Peck - Chief Executive Officer)
Government
VIPAC Engineers and Scientists Ltd. State
(Mr. M Smith-Managing Director) Department of Sport and Recreation
(Ms L Wyld - Recreation Planning Consultant)
William and Barber Associates
(Mr. W Barber) Department of Labour
(Mr G Holmes - Director General)
Religious
Gas and Fuel Corporation of Victoria
Collins St. Baptist Church
(Mr W L Fitzherbert - Secretary)
(Rev. J. Barr -Associate Pastor)
Hist.oric Buildings Coiincil _ City of South Melbourne

Ministry for Planning and Environment Vict.oria (Mr. N Kropp - Chief Executive Officer and Town
(Mr H Okraglik - Acting Direct.or) Clerk)
Melbourne and Metropolitan Board of Works City of Werribee

(Mr R Leivers -Manager, Metropolitan Open (Mr. J Kerr - Town Clerk)
Space Division)
Northern Region Commission
Melbourne and Metropolitan Board of Works (Mr R Kibby - Executive Direct.or)
(Mr R Smith - Acting Manager, Development
and Planning Co-ordination) Western Region Commission
(Mr F Maddern - Executive Direct.or)
Office of Aboriginal Affairs
(Mr T Garwood - Manager)
Port of Melbourne Authority

(Mr J King - Chairman)
Public Transport Corporation

(Mr C Malan - Direct.or, Corporate Development)
State Electricity Commission of Vict.oria

(Mr G Bates -Chief General Manager)
VicRoads
(Mr R Patterson - Chief Executive)
Federal
Civil Aviation Authority Australia
Safety Regulation Group, Vict.oria/l'asmania
Field Office
(Mr L Knight - Examiner of Airmen)
Local
City of Brunswick
(Ms. J Connellan - Special Projects Engineer)
City of Footscray
(Mr G Pearce - Chief Executive)
City of Melbourne
(Mr. A Friend - Corporate Manager)
City of Port Melbourne

(Mr NC Beddoe - City Engineer)
List of working papers and related documents

The Docklands Task Force has carried out or The Working Paper describes these alternatives
com.missioned research on a variety of topics and presents a summary of their potential, costs and
relevant to planning for Docklands. As part of the benefits. The incorporation of the Webb Dock Rail
consultation process, this information will be made Line into the connection has also been considered
available to interested individuals and organisations Comparative Costs of Resitkntial Development
who wish to examine particular issues in more at Docklands and the Urban Fringe: Working
detail. Paper, Urban Projects Pty Ltd, August 1991
Working Papers may be obtained at a nominal This paper considers the cost of providing for a
charge from: residential population at Docklands compared with
the outer urban fringe. Physical and services
Docklands Task Force
infrastructure to support a Docklands population is
11th Floor identified together with an assessment of spare
176 Wellington Parade capacity. Previous cost/benefit studies are reviewed
and actual costs of completed residential projects in
East Melbourne VIC 3002 the vicinity of Docklands are compared with the
Phone: (03) 651 7895 For further information, costs of projects in the outer suburbs. The long-term
contact the Task Force at the above address. running costs to local Government of providing for
Recreation Opportunities From Banana Alley the population is also analysed and a comparison
to North Wharf: A Working Document made of inner, middle and outer suburbs.
Costa, R., Phillip Institute of Technology, Melbourne Docklands: Draft Strategy:
June1991 Financial Evaluation: Working Paper
This paper discusses the existing and potential Docklands Task Foree, August 1991
recreation opportunities from Banana Alley to North This paper evaluates financially the Draft
Wharf. The current recreational facilities in the Strategy for Docklands using a computer-based
area are discussed and gaps in available facilities discounted cash flow analysis. This identifies
such as cafes/eating places are identified. Existing potential returns to Government from the sale of
constraints to pedestrian access such as the poor land. The methodology and output is verified by
signage and lack of clear trail or destination are also advice from the Office of the Valuer-General. Also, a
discussed. sensitivity analysis is undertaken to identify the
Sites for new recreational uses are considered and impact on financial returns of reducing expected
some strategies to encourage people into the area land sales revenue and increasing expected
are proposed. infrastructure costs.
The paper concludes by stressing the need to Melbourne Docklands: Human Services:
encourage more people into the area in an effort to Working Paper Docklands Task Foree,
enhance general public awareness of Docklands. August 1991
Comparison ofAlternative River Crossings for This paper examines existing human services
the Western Bypass: Working Paper, Maunsell available to support a Docklands population,
& Partners, October 1991 including an assessment of whether spare capacity
Plans for the development of Docklands include within services exists or whether the additional
proposals to extend the Western Bypass south of population at Docklands will assist in improving the
Footscray Road to allow direct connection across the viability of existing services. Also identified is any
Yarra to the West Gate Freeway. additional capital or recurrent expenditure on
services that may be required.
• Various forms have been considered for this
connection: Melbourne Docklands: Provision of Physical
Services Infrastructure: Working Paper
•low, medium or high bridges on an alignment.with Docklands Task Foree, September 1991
Graham Street;
This paper examines the provision of electricity,
• shallow or deep tunnels on the Graham Street water, gas, sewerage, drainage and
alignment; telecommunications infrastructure in Docklands.
• shallow tunnel on a Footscray Road alignment. The Paper presents a summary of the existing
physical services infrastructure and identifies the The Vict.orian Ports Land Use Plan is being
anticipated impacts, t.ogether with costs, of prepared by the State's three port authorities. This
Docklands development on these services. Land Use Plan and the Docklands redevelopment
R.eview of Effects of Ground Conditions on project impact significantly upon one another.
Construction in Docklands: Working An Options Paper was prepared for the Land Use
PaperMaunsell & Partners Pty Ltd and Urban Plan which sets out t.o select and develop options
Projects Pty Ltd, April 1991 from possibilities previously canvassed.
This working paper further examines the effects of This Review examines the Options Paper from the
poor ground conditions on construction in Docklands perspective of Docklands redevelopment and
as identified in the report prepared by Stephenson concentrates on issues that impact on Docklands. It
and Turner, Docklands Study,_1990. does not set out t.o provide full and detailed comment
The issues considered are the impact of on all aspects of the Options Paper but seeks to
construction cost penalties on the projected land address its evaluation criteria, trade forecasts,
sales revenue, the appropriate nature of industrial further options and relocation opportunities.
buildings on Docklands, the impact on inground Docklands Heritage Study
services of the high settlement characteristics of Ward A and Associates, June 1991
Coode Island Silt, and the Greenhouse Effect. This study encompasses a summary of ms_ior
A Review of the Olympic Village Site: Working hist.orical themes constituting the significance of the
Paper Docklands Task Force, August 1991 area, an environmental history supported by a
In this Working Paper, the land use mix proposed chronology of events in the history of the Port of
in the Olympic Village concept is reviewed in the Melbourne and the rail yards; and details of an
light of Government policy and objectives relevant t.o intensive field survey of the area.
the site; physical conditions; financial implications In all, some 83 sites are identified and described,
and public submissions relating t.o the Olympic and recommendations for inclusion in the State and
Village site. As a result, changes to the land use and National Estate Registers were made for 18 of them.
development parameters for the site are proposed.
Papers Previously Published by the
A Transport Strategy: Working Paper Docklands Task Force
Docklands Task Force Transport Working
Group, August, 1991 Heritage Working Paper
This Paper outlines solutions to the two primary Residential Land Use Working Paper
transport issues identified during the consultation Options for the Webb Dock Rail Line Working
process: Paper
- the need t.o maximise access opportunities by Financial Evaluation Working Paper
public transport; and Telecommunications Infrastructure and Services
- the desirability of minimising traffic intrusion Working PaperSpencer Street Station/l'ransport
by diverting existing and future through traffic Interchange Working Paper
away from Docklands. Greater Docklands Land Use Survey - Consultant
The proposed extension t.o the Western Bypass is Report
discussed in detail and mode split targets are Docklands Multifunction Polis Physical Planning
proposed for journeys to and within Docklands. Study Geotechnical Evaluation - Consultant Report,
Traffic implications of Docklands development and Maunsell & Partners, April 1990
transport infrastructure proposals are explored and
the future for rail freight, the principles of parking Summary of Ground Conditions in the Docklands
policy and pedestrian and bicycle movements are Development Area -Consultant Report, Nielson,
considered. June 1990
A Review of the Victorian Ports Land Use Docklands Study 1990: A comparative study of
Plan Maunsell & Partners Pty Ltd, July 1991 development costs associated with construction in
the Greater Docklands Study Area and description
· of special conditions encountered within the area -
I
L_ _ _ __
Consultant Report, Stephenson & Turner, November Other Documents Previously

1990 Published
Concept Study of a Moveable Rail Bridge Melbourne Docklands: Strategic Options, Docklands
Downstream of Applet.on Dock - Consultant Report, Task Force, December 1990
Maunsell and Partners, April 1990
Melbourne's Docklands - A Strategic Planning
Docklands Development: A Transport Overview, Framework, Ministry for Planning and Housing,
Docklands Task Force Working Group, July 1990 August 1989
Concept Study of Road and Rail Bridges Melbourne's Docklands - A Strategic Planning
Downstream of Victoria Dock - Consultant Report, Framework, Report on Public Consultation by
Maunsell & Partners, 1990 Minister for Planning and Urban Growth, May 1990
Railyards/I'ransport (Multi-Modal) Interchange, Melbourne's Docklands - Progress Report, Major
Spencer Street Yards Study - Consultant Report, Projects Unit, May 1990
Professor David Yencken, May 1990
Melbourne Docklands, Committee for Melbourne,
Spencer Street Multi-Modal Interchange Study- May 1990
Consultant Report, Connell Wagner and Daryl
Jackson, August 1990
---- (MMI): Preliminary
Transport Interchange
Investigation of a Collins Street site - Consultant
Report, Docklands Task Force, October 1990
Places of Cultural Significance, Multifunction Polis
Investigation Area, Advice from the Department of
Planning and Environment, March 1990
Melbourne Docklands Redevelopment: Ground
Contamination Study (Volume 1 Report, Volume 2
Appendices) - Consultant Report, Camp, Scott,
Furphy & Golder, September 1989
Melbourne Docklands Redevelopment: Ground
Contamination Overview Study - Consultant Report,
Camp, Scott, Furphy & Golder, May 1990
Melbourne Docklands: Planning Context and
Financial Implications - Consultant Report, Price
Waterhouse and Wilson Sayer Core, July 1990
Docklands Task Force: Report of the Information
and Telecommunications Working Party, June 1990
Docklands Task Force: The Establishment of a
Technoport in Melbourne - an Initial Examination of
the Issues - Consultant Report, Maunsell &
Partners, May 1990
London Docklands - A Case Study for Melbourne -
Consultant Report, Dan Kolomanski Consultants,
November 1990
0
142 Melbourne Docklands - Draft Strategy for Redevelopment l
,. i I
'
,.··
..... •··
Catttnll city:
E!ml
Central city:
20.2 ha 11.l ha
Office: Office:
12.S ho 12.S ha
Mixed used: Mixed used:
15.Sho 6.6ha
Houslitg: Hou•hllill:
47.1 ho 60.2 ha
Open 1pac.e: Optn speer.
h..tvstr!!i~ ha •r:::~--=:; 15.6 ho
Industrial:
9.S ha 9.Sha
Other:
:U.6ha
REFERENCE
ill.lfil1llll Central City :..:·:::·::';'·:·::; Institutions. Education etc
;.:::;::::;:::\:/:/ Mixed Use l!llM Industry. High Tech Industry - Residential
moo Office 1000
I
'i'i'i'i'i'i'i'i'i'i Rail
1.1.1,1,1.1.1.1,!,!, (!\:\
~
- . ~--
between Bwanson and

and Webb Dock.
treet Station and rail tmck.s are Financial Evaluation of BRIEFLY
barrters In any plans ol llnklng Schemes
els to the city.
Task Force offers a few $million, 1990 prices Fresh questions
vercome the problem: DEVELOPMENT of the docklands raises issues
: Develop the ex1sting station Revenue Coate Net lmportant to all Victorians.
any east-west street extenslons And the State Oovenunent is keen to hear
Present public conunent on a range or topics, such as:
the tracks. Estimated cost: O Whal are the costs and beneftts of developing
Value
: The station could be developed docklands?
(4~)
O What would happen if docklands wasn't.
uth direction over platform and developed?
have been lowered so that Option 1 1186 541 127 a What is the best land use pattern ror the
ts could be ext.ended at close docklands. core? Should this be city centre
de. (Thls options sets aside for Option 2 862 541 74 style development. or should there be more
g ~pe~~~~um~f Option l 827 541 66
open space, retail or residential development?
a How high should the buildings be and u:hat
Option 4 351 371 -11
~~{ ~~°l~t~ul~ ~°tw~~ ~s:~
types including public housing?
• This historic railway shod (above) could be a vital port O What sort ofguldlellnes or controls in tennsof
of the docklands unique cf:aoracter. Plans could also case environmental and urban quality should be
the traffic burden on Footscroy Rd (below). provided lf the developments does go ahead?
o What ls the best way or managing the
development or docklands? Is tt appropriate to
establlsh a Development Authority?
• Details on how you become involved in the
consultation process are on Page 4.
Transport plan
THE four strategic opttons cshown below) focus
attention on the exl.5tlng port and rail actil;ities.
The govenunent says much of Uus land ls
under-utWsed - given the substantial changes
occurring ln transport technology and practice.
The Port or Melbourne Authority 1PMA) ls
developing a Land Use Plan which will help
deDne long-tenn requirements.
And a land-release program has bttn den•-
loped based on data trom the PMA and the
Public Transport Corporation
•Coples or the papers prepared are available
trom PM.A's strategic projects manager. Ms
Lelgh Mackay, tel. t031611·1681.
mm!
C.ntnll city:
4.4 ha
Office:
s.e ha
Mi.11;ed und:
13.4 ha
Housing:
Nil
lnchntrial:
Nil
Other:
12.5 ha
the Optlon 2 prooosal. allowing are proposed along the along Victoria Harbor. and an- Melbourne a large. watcr- or the new north-south local
~ce for~ 870 Wllts.
~~rayorr'~~~J!Y1\t~~
other 23 ha between the harbor ortented parkland. road.
ar..d the Western Bypass exte~ This could complete the
TfB.~ ~um
10 A broad band or mixed use
density style lopment whlch could front the s!on. green link which already nearly
=~=~eorra~~
:fUng e.Ugnmento!Footscray An estlmated 1300 dwelling
units could be created in ftve e~~~~·~s~ ~l'Footscray Rd
1
between Footscray Rd and the
new road could stretch trom
Land next to the World Trade areas set e.side ror this~· could be userved as open f'Undcrs St to an extension or
lty or LaTtobe St.
~~:~~:1t~n 1~~
Centre could be used for exhibl· 8 space.
tton purposes. Residential use in the ct're
~~:S~ ~:I'~"Jmfia°/~ ~~
0
Land east or the old proposed areas. area could be restricted to the
mixed ltse area. Outside the
./M~ f:w ~~~ty development
Footscray Rd could be for resi- 1 g~~ls raised in the other
dential development - an area core it could be concentrated in
bounded by extensions to Flln- could convert the maJortty or Central city use could be co~ Kensington. West Melboumc.
dem and LaTrobe streets. the area lnto open space and ftru:d to Spencer St, the Collins and a strip along WiWam:n.own
Residential land ls provided give the west edge of central St extension and the east side Rd in Port Melbourne.
Reprinted from the Harald-Sun, February 11, 1991. Herold-Sun Melboul"ftf Oocllands Uft-out, Mondor. Febn.ory 11, 1991....,. 1
~
·~·
Some people might sit on a
dock. in the bay, drive
across the West Gate
Bridge, or even try standing
on tippy-toes in Spencer St.
But whichever way you look
at it, Melbourne's docklands
has a lot to offer.
T HERE Is unexplored paten·

tlal deep within the crazy
patA:hwork quilt we call Mel·
boume. The skyline Is an Incongruous
mix or omce buildings, rallyards with•
a backdrop or water and ships tunnels.
The docklands ls a hugt; tract or inner
clty land; a mix of rail-yards, port-related
activities, storage depots and idle blocks,
crts.s-crossed by a network of waterways.
ac~~ :~:t&:Cte~ =f~k :~=
towards the city.
Alternatively, stand at the bottom end or
Spencer St and look either west or south.
But one view which Isn't always so easily This core was the focus or
gained ls that or the tuture. · the Docklands Task Force's
Due to changes ln transport technology, attention In developing the
some areas ln the docklands have the It.s study includes strategic options.
potential to be redeveloped. neighboring districts so as to In broad term..s It covers an
This row page special feature ls a gov· ensure development or the area bounded by Spencer St
ernment sponsored lnltlative aimed at dockland takes into account to the east. Lorimer St to the
promoting public cl1scuss1on on the pos- the potential impact on sur· south and Footscray Rd to
sible ruture use or the docklands. rounding areas. the north lsee map1.
It will also outline the potentlal shape of The total area to be cons!· More than 80 per cent of
tomorrow's skyline. dered in the study Is the study area is publicl)'
Victoria's Premier. Ms Joan Kirner, de-- 21 square kllometres of land owned and, except ror the old
scrlbes the development as giving Mel- and waterways: however the Railways Administration
bourne a new waterfront perspecUve. greatest development poten· building in Spencer Street.
"This unique opportunttY wU1 lln.k the tia1 Is the core area of about the entire core area is also in
western and central regions of the city ln a 300 hectares. · · public ownership.
way that the West Gate Bridge never could
achieve," Ms Kirner said.
The Mlnister for Manufacturing and In-
dustry Development, Mr David White, said Docklands Task Force. Ms
the project could roster Melbourne's rep- Helen Davies, sald people
utation as a ..city on the water". needn't llmlt their response
It could ailow the city to be extended ln a to only choosing between the
way which would link the central activities four options that are pre-
district to the waterfront at Victoria Dock. sented ln the report.
Docklands ls right at the centre of the "It IS no~ that th.rough a
state's port and raU terminals. It could •The waterfront's changing face ••• as It was (above), where It mlght alter (inset), and how it looks today (below). process of open and v.'ide·
provide a major focus for in- ranging debate, informed. by
vestment ln knowledge lnten- some practical examples of
slve research and deve- What might be possible. the
lopmenL best possible strategy will
It could boost the lnner emerge,tt she said.
city's capablllty to provide Melbourne Docklands:
resldenilal dwellings. Strategic Option.! is lntended
But there ls more to to be a major resouree for the
successtul development Ulan Dest stage ln a two-stage con·
mere attention to detail. The sultation process which will
St.ate Government ls also be directed by the newly
keen to have lnput from the Conned Docklands Consult&·
community. tlon Steering Group.
To stimulate dlscusslon, The first-stage or public
the Government ha.a released consultation began with the
a report called Melbourne release or the report on De-
Dockland.I: Strategic Op- cember 17 and w1ll last unti:1
tlom. April, 1991.
of~=r;~r~:=
It ls aimed at building
public awareness or the op-
the Docklands Task Force, tions ror developing dockland
considers to be Cnanclally and stimulating public com·
The task force
and physically viable.
last Febru-
ary started kJ prepam a ions:·
ment on key l&Nes.
Tnfor.me.uoil anQ it&'-'tt'
berm IStnl&egy (er t.he ftl"ea.
It drew on several sources
='!'~~;~et::·~
included work previously car- Projects Unit's l'rogre3a Re- 'Ibe report raises lMues sta.Uon, the .Webb Dock rail all st.rateglc opUons. to help a development straegy which
port - Melbourne'a Dock- which might tnnuence deve- llne and heavy tramc on stimulate conunwllty debate, wW fonn the basts or the
ried out for: Melbourne's stage two consultation later
Olympics bid; the commltt.>e lands. lopment - such as land use, Footscrey Rd might all act as but other altema.tlves might
The task force also con- intensity of development, banters to the development also be possible. this year.
for Melbourne's proposal for
the Multl!Unctton Polls; the sulted local counctls., wban transport lnlrastructure and ofd~. OpUons ln the report range Tile State Oovenunent w1ll
Department o! Plannlng and planning bodies, social Issues economlc opportunities. However the report also from emphasl.slng commer- announce a final deve-
Urban Environment's groups. environmentalists, For example the transport otrers altemaUves for over- cial development to an open lopment. strategy after the
Strategic Planning Government agencles and section suggest'-' that the coming such banters. park concept. close of the second st.age or
Framework; and the Ma,Jor the private sector. Spencer Street rail tracks and Tile report ofl'ers four over- The acting director or the the consultation.
Plan links pieces in planning puzzle

PROPOSED dnelopment of the
clocldo..cl1 could 91•• o •••
woterffOltt per1pec:tl.,.. to Mel-
bourne, llnlr.lng both sides of th•
r·H·';l·••;1o1"i
THE PREMIER
the best un of the site. To this
•nd, coftun-itJ pa·rtleipatton i1
•ital.
Docklond1 11 1omothlng ••
cuuion Poper, which ••re ,._
leaad kit• test y.ar,
Th• by featuNs of these dou-
mtints and, in partiular, tho fou,.
1trot99lc optio•• d-loped b1
The consyftatl0tt wiU be dJ,...
ctctd by o eo.. ttation Stwering
Group repatting dlrectfy to the
~•t and will ..a •fttil
late in 1991.
city. make Melbourne a whole and should oll be enthlii1to1tic obout tt.. task. fore•. ore preMntod to A final deTelopcnent 1tror.gy
The doclr.lond1 pro•ldes o compa.te P*•· belngl~ln.
Mlp P40pf• unct.ntond what will ba anno.nced by the Go.em-
u1tlque opportunity to llnk th• The Victorian Go.... rnnMnt 11 The following pages summarise might be ochie...S. mtint after thti close of tho co•
wutem ond csntrol nelon1 of eatr1melJ e-.:cltod about th• th. Nport of th• Docklond1 To11t The1 ore PN••ted a1 uortt- 1ultatiOt11 and I •rve all Vlctorians
the city In o woy that th• West pa"ntlol offered bf dockland1, force Melbo11r1t• Doclclond• ples to help 1tlmulote dlseu11l°"" to contrit.rto to i~ d~t.
Gate Bride- M"l'9r could ochl..,•. but It Is Important that •• deflM Stta19f1lc Optla1 and the Prop. o.toi11 of the> public consulf'C>.
It 11 the ultimate opportunity to th• corNCt sh'ONgJ fat" sacurfftg o..d Oocldottd1 Alll"orltr DI•- tlon pt'OCHI ON also prOl'lcs.d. - JOAN KIRNER
A HOME TO Bill to
guide
THOUSANDS project
A PRO.rEcr the size of
docklands requires etre.
live orsanlsatlon.
Consquently, the Govern-
T HE urban sprawl
around Mel-
bourne is unllkely
to end, but development
or the docklands wlll
Bay-side living will be possible for
many lucky Melburnians, depending on
public response to the housing issue. e Up to 30.000 people might flad a " - at docklands.
ment now seeks tbe best
way to m.a.nqe the pro-
ject's development.
The M1niatu for Major
Projects. Mr Jim Kennan.
said: "'OM opUon. a Dock·
affect Its pace. lands Autborllj', ls out.lined
area ls government owned, lnnovaUve medium density reflect the characteristics or with us!Dg existing Infra•· ln a dlacusslon papu."
Housing tor up to 30,0M lt ls Possible to plan for a Mr Kaman said that It a
people could be sited at hous!Dg. the exlst.lng lnner suburbs. tructure; and
range of housing opUons - Docklan4s Autbodt1 was
will be to ensure integration :O~cC:~cbtoo.fe~ ios~
AB such, a primary a1m 11
docklands, depending on
including affordable public
Although the core has establbbed, Ila woa14:
what strategy ls chosen. never been a resldentlal • Promote devdoPtiicnt;
The Melbourne docklands
and private rental dwell- area - and no community or residential development environment.al benents. • Create a elear adml·
ings. lntrastructure exists there with surroundlng areas. The Melbourne docklands
report presents options that nlstraUve focus;
plan for between 5000 and Land In the docklands - the actjacent residential The residential options or reportfor looks at alx possible
• Have spedftc PGwet'!!f for
15,000 dwellings - up to core (which does not abut areas do have services and the docklands otters people: . sites thls development:
the docklands core; Lynch's the development; and
half of which could be in the any existing residential racllltles. • Its closeness to major Bridge (Kensington>; • Provide clear public
core area. areas) might even be set The government ls keen employment centres; ' aceountabllllJ'.
As most or the docklands aside for well-designed and to have any development • Cost beneftts associated. :l:~~e~t;o:r~e~~~:i He said tile Authority
Board could have commun-
Melbourne; and Port Mel· ity n:presentatl ves and · a
boume ·South Melbourne. derrce or independence
The report suggests the from the Goveriu:=nL
government should put Public comment on lbe
aside 10 per cent for public proposed Docklands
housing. Authority 8111 ls lnvtted bJ
It also suggests that Friday, March tS.
afford.able housing should Mall submissions to:
be built and that all dwell· Doell.lands Consultation
tngs be integrated into any Steering Group {DCSG),
development by not being 1st Floor,
Old Treasury Building,
~~t~ug~ln:.iaerent to Spring St,
The report said some Melbourne 3000.
nexiblllty 1n development Coples of the Bill and
other information are
controls would be needed to available f'rom lbe DCSG.
accommodate the variety or Other speciftc inquiries
housing types envisioned to Mr Rory Sheridan, kl.
for the area. 651°7975.
This report wW be released
These development con- The Govemment also In-
ror stage two consultation lat.er trols would relate to densi· tends to form a Docklands
ty, minimum lot slze, bulld- Advisory Board. Its role
~~ strateKY Is to be lng heights, site coverage,
car parking and private
will be to determine tile
level or lnvestor lnterest lo
announced after tlie close of
those talks. open-space provision. development proposals.
Melbourne Docklands: Community Consultation

PUBLIC MEETINGS During March, a further series of forums Dat= Mooc!ay April 15, Wednesday April Consultation Steering Group or the
will be held to focua on key issues such aa: 17, Friday April 19, Monday April 22, Task Force.
Four public meetings will be held to • economic development Wednesday April 24, Friday April 26,
provide information about the Dock1ands •transport Monday April 29, Wednesday May 1,
Consultation, and to present the report • land use and housing Friday May 3, Monday May 20, Wednesday INFORMATION ON DOCKLANDS
•Melbourne Dock1ands: Strategic Options". • environment. heritage and urban design. May 22, Friday May24, Monday May 27,
The •Proposed Docklands Authority Bill Wednesday May 29, Friday May 31 Copies of the Docklands Task Forte's
Discussion Paper• will also be discussed. Details of dates, times and venues will be report •Melbourne Docklands: Strategic
widely advertised. Appointments can be made between 10 am Options• are available from:
Tuesday February 19, 1991 and 4 pm on each of the above dates and
MMBW Theatrette DOCKLANDS CONSULTATION between 5.00 and 9.00 pm on Wednesday
Information Victoria
625 Little Collins Street April 17 and April 24 .
Melbourne
MAILING LIST All consultation sessions are open to the
318 Little Bourke Street
Melbourne Vic 3000
Time:4 pm public.
Contact the Dock1ands Task Fon:e if you
Please note: If you have not already sent a Department of Planning and Housing
Tuesday February 26, 1991 would like to be placed on the consultation Bookshop .
Assembly Room moiling list. written submission, you will be asked to
send a brief written outline of the issues Ground Floor
Footscray Town Hall 411 Collins Street
Comer o~ Hyde and Napier Streets People on the list will be advised of all you wish to discuss prior to your appoint-
menL Melbourne Vic 3000
Footscray publications produced. as part o(the
Time: 7.301pm consu1tation, and of all activities organised..
or from the Docklands Task Force.:
You wil1 alSo be sent a newsletter to tell WRITTEN SUBMISSIONS
Thursday February 28, 1991 you about how the consultation is
Copies or the report have also been
Supper Room progressing. Written submissions will be accepted at distributed to all municipal libraries.
Port Melbourne Town Hall any time up to the end of April 1991.
333 Boy Street CONSULTATION SESSIONS Submissions should be sent to the
Port Melbourne Dockland.a Taek Fon:e. Submissions in
Time: 7 .30 pm languages other than English will be
The Doc:kJands Consultation Steering
welcomed. All submissions will be treated
Group and the Docklands Task Force will
Saturday Mar<h 16, 1991 ea public unless otherwise specified.
be available to hear the views of anyone
Top Floor
interested in Docklands.
Waverley Civic Centre IS THERE ANOTHER WAY TO GET
293 Springvale Rood
Glen Waverley
Ir you would Jike an appointment to INVOLVED? hlftoor
OldTraasurylluiding
present your views in person, please
Time: 2 pm s,.rg Steel
telephone the Steering Group ot the If you have any other ideas about contri~ Melbourne, Vic: XK:12
Docklands Task Fort"e to make a time uting to consultation over redevelopment of DOCKLANDS Tel:03 6516508
during one of the following sessions. Docklands please contact the Docklands TASK FORCE Fax:036SI 6517
NWT DDIUT
. 1
plJ\NN\NG AND EPA ueRARY

Melbourne Docklands Draft Strategy For Redevelopment: Copy 2

Uploaded by

Document Information

Original Description:

Original Title

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

Melbourne Docklands Draft Strategy For Redevelopment: Copy 2

Uploaded by

Copyright:

Available Formats

MELBOURNE DOCKLANDS

DRAFT STRATEGY FOR REDEVELOPMENT

Revised Financial Evaluation

Option 1 $127m $1llm

A Strategy for Docklands 99

4.2 TPe Draft Strategy 103

4.3 The Phases of Development 121

4.4 Next Steps of Public Comment on Docklands 128

List of Submissions 131

List of Working Papers and Related Documents · · 137

February Newspaper _Insert~ 143

1. Docklands within central Melbourne · 4

11. Residential . 105

Principles for Development

principles proposed here are intended to be the

2. The Wider Integration of Docklands 4. Sustaining Heritage Values

primary role in the history of Docklands; 6. Maintaining Good Public

Docklands should provide a range of housing opportunities

Docklands Within Central Melbourne

Docklands with in central Melbourne

Education and Research Roads

Movement dominated by public transport

The Port of Melbourne is of critical importance to

1.2 POLICY CONTEXT

Section Three is then devoted to discussion of a

. Docklands : The Site

Docklands: The Site

2.1 Docklands Site Description

2.2 Docklan ds Authorit y ·

June 1991 Docklands Authority Board appointed.

Since its inception in February 1990, the

Wednesday 13 March Discussion at all the forums was again recorded by

Wednesday 20 March Task Force Initiatives

The Ministerial Task Force on the Transport

2.4 Major Consultatio n and Research

be made to work without simply calling for more

Representatives of BOMA and AMP Property immediately contiguous to Docklands. It looked at

While concerns were raised about the

2.4.2 The Port

economic lives of facilities expire. This approach

A range of human services, including schools, can be provided

This view is supported by work of the Task Force

Overall, there was considerable enthusiasm - minimise environmental impacts of urban

the regional population. The Australian Institute of

However, the main concerns that emerged from

The central city office precinct

The City of Melbourne believed that "central city"

Heritage Council suggested Koorie-based tourist

!!.- - .• ·_.. '.

Retail, Tourism and Entertainment on Central Pier

Arts and Culture

l!ducatlon and Research

Issues on which consensus emerged Included

was needed "as a matter of urgency", whilst the

Docklands was advisable, given that there were

Concerns were expressed during the

Site of the Old City West Gasworks at North Wharf

financial resources on redeveloping such a site and Coode Island

Current pollution problems concerning litter and

2.4.9 Transport Western Bypass

Ln Ttobe Street would pr1,ivirl .... rli 1¥.d. A1'.t~l'il'i

Some also pointed to the significance of the Rapid