Contract Report

Accessible Communities Study

by ARRB Group and TPG Urban Planning

for Department of Planning

Department of Transport

000541- October 2009

Accessible Communities Study

for Department of Planning Department of Transport

Reviewed

Project Leader

Anne Still

Quality Manager

Paul Morris

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Summary

Introduction

Creating neighbourhoods that encourage people to choose active travel is increasingly being recognised as a way to foster more sustainable, healthier and safer communities. Accessible communities are inclusive communities that meet the needs of walkers, cyclists, children, seniors and people with disabilities. They are places which are designed around safe, active travel and crime prevention principles.

“Active travel relates to physical activity undertaken as a means of transport. It includes travel by foot, bicycle and other non-motorised vehicles. Use of public transport is also included in the definition as it often involves some walking or cycling to pick-up and from drop-off points. Active travel does not include walking, cycling or other physical activity that is undertaken for recreation.” 1

In recent years high vehicle ownership levels, urban sprawl and a focus on the movement function of streets have led to an increase in car dependence and neighbourhoods which are poorly serviced for active travel. Increasingly, the focus has been on roads as corridors for the movement of cars, rather than streets as a shared movement space and the focus of life and activity. This has resulted in increasing reliance on the car for transportation even for short distances, with the resulting consequences of increased traffic congestion, sedentary behaviour, ill health and social alienation.

Although a clear mandate for accessible communities has been identified in a number of high level cross-sectoral government strategies, such as Directions 2031: Spatial Framework for Peel and Perth, Network City: Community Planning Strategy for Perth and Peel, Liveable Neighbourhoods, the State Physical Activity Strategy, and the Active Aging Strategy, there is often insufficient emphasis and profile placed on accessible communities during the land development process, resulting in developments that do not address some important aspects of accessibility.

ARRB Group and TPG Town Planning and Urban Design (the Consultants) were contracted by the former Department for Planning and Infrastructure (DPI) to undertake this project for the Western Australian Planning Commission (WAPC).

The Accessible Communities Study has identified gaps and flaws in the planning system that act as barriers to the promotion of active travel and has determined mechanisms that may help to overcome these problems.

Purpose and Objectives

The objective for this project has two parts (a) to ensure appropriately designed transport infrastructure and supporting urban design are integral to all urban developments, and (b) that this is made certain during the

1 Be Active Australia: A Framework for Health Sector Action for Physical Activity 2005-2010

Although the Report is believed to be correct at

the time of publication, ARRB Group Ltd, to the extent lawful, excludes all liability for loss (whether arising under contract, tort, statute or otherwise) arising from the contents of the Report or from its use. Where such liability cannot be excluded, it is reduced to the full extent lawful. Without limiting the

foregoing, people should apply their own skill and judgement when using the information contained in the Report.

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approval and implementation of urban development. The ultimate aim is to help ensure that Western Australian communities are planned in a sustainable and accessible way.

Process and Approach

The project comprised two stages.

• Stage 1 explores the effectiveness of current planning policies in delivering accessible communities, and the influence of supporting transport policies (for urban areas within Western Australia). It identifies gaps and flaws in the policies, guidelines and processes and recommends an appropriate response framework

• Stage 2 develops a policy response and/or alternative mechanisms, which can be implemented through the statutory planning system.

This report deals with Stage 1. Progression to Stage 2 is to be confirmed subject to the outcomes of Stage 1, and has been recommended by this study. This project was undertaken in four parts:

• PART 1 - A best-practice review of national and international case studies was carried out by staff from the former Department for Planning and Infrastructure (DPI) Walking and Access Unit, using a template assessment index table provided by the Consultants. The review looked at the following topics and locations:

o travel planning in the United Kingdom

o planning and development control policies in Australia and Denmark

o technical issues and audit of design manuals in the United States and the United Kingdom

o planning systems in the United States and New Zealand

o planning policies in Scotland and England

o successful systematic approaches in the United States, Brazil and Australia.

A write-up of best practice identified by the Walking and Access Unit is reported in a Compendium which supports the main report, and key findings from the best practice review are summarised in a gap analysis table prepared by the Consultants (pages 11-31). Some additional, specific examples of best practice were reported on in the main report by the consultants (pages 6-11).

• PART 2 - The Consultants undertook a review of local practice (pages 32-41), including policy documents and planning frameworks relevant to accessible communities (pages 42-57). The review is generally ordered from the strategic level down to the regulation level in the following way:

o State Strategies

- State Planning Strategy

- Other State Strategies

o WAPC planning policies

o WAPC operational policy

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- Liveable Neighbourhoods

- Development control polices and guidelines

o WAPC Planning Bulletins

o Procedural guidelines

o WAPC Metropolitan policy

- Network City: Community Planning Strategy for Perth and Peel

- Directions 2031: Draft Spatial Framework for Perth and Peel

- Building a Better Planning System

o Non-WAPC Policy and guidelines

- Health-related policies and strategies

- Transport Policy and Guidelines

o Wungong Urban Water Project

• PART 3 - Building on the research of best practice case studies and the review of current local practice a gap analysis was undertaken.. A workshop was held with key stakeholders to determine what the main gaps are in the delivery of accessible communities. The participants included representatives from local government, state government agencies, and other key stakeholders such as LandCorp. A summary of the workshop gap analysis is contained in pages 62-77 of the main report.

• PART 4 - Recommendations on policy gaps and process improvements were then formulated.

Report Compendium

Given the substantial scope of this study a report Compendium has been produced for this study. For readers, this comprises full review tables and related study material.

Recommendations

Recommendations were developed based upon the outcomes of the best-practice review of national and international case studies, the review of local practice including policy documents and planning frameworks relevant to accessible communities, and the gap analysis including gaps identified at the key stakeholders’ workshop. The recommendations seek to provide mechanisms through which more specific gaps e.g. relating to design issues and lack of active travel infrastructure or priority, which is recorded in earlier sections, can be remedied.

Accessible communities can only be achieved with high-level cooperation, sustained effort and strong commitment from the community, state government agencies, local government, urban designers, planners, architects, developers, street designers and accessible communities experts.

Recommendations have been grouped into 10 themes to assist with stakeholder consideration and implementation and are presented in Table 4.

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The 10 themes are:

1. Strategic linkages – focuses on the use of Integrated Transport Plans (ITP) as a mechanism for realising more accessible communities.

2. Funding – recommends investigating how funding models affect the provision of infrastructure conducive to active travel and how the future funding can be linked to ITPs.

3. Documents that support planning and development – focuses on clarifying and amending the role and content of documents used in the planning system to better cater for the development of accessible communities.

4. Training and development – emphasises WAPC’s role in educating across government sectors about accessible communities. This supports the work also being actioned through Building a Better Planning System.

5. Governance – recommends (a) the establishment of committee based structure plan hearings, and (b) investigating how more liability can be assumed from local government to better support the trialling of innovative street design concepts such as ‘naked streets’.

6. Policy – makes a series of suggestions about government policies to support the development of accessible communities.

7. Monitoring and enforcement – advocates strengthening enforcement processes relating to planning policies.

8. Further study – suggests further investigation of how consistent current standards and guidelines on street design are, and how these meet accessible communities objectives.

9. Communication – aims to improve the uptake of innovations and international best practice for the design of accessible communities.

10. Terminology –suggests the use of alternative terminology to better describe what is meant by accessible communities.

A ‘Lead agency’ and ‘partners’ have been assigned by the DP with input from stakeholders. With respect to the implementation of the recommendations the roles of the Department of Transport (Transport) and Department of Planning (DP) may change as the two Departments strategic transport planning roles are clarified. For the purposes of this study, where the lead agency is not clear, both DP and Transport have been included for implementation purposes.

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TABLE 4 – RECOMMENDATIONS

1. Strategic Linkages

Recommendation

Lead Agency

Partner

Section Reference

1.1 The WAPC already supports the development of integrated transport plans. Comprehensive guidance should be provided in partnership with the Western Australian Local Government Authority (WALGA) to encourage and support local governments (LG) to develop integrated transport plans (ITPs) that focus on active travel and accessible communities. The ITPs must take into account strategic plans that have already been developed by local and state government and cover existing and planned areas. The ITPs should form the basis for funding proposals for transport related infrastructure to ensure all transport funding expenditure is aligned to improving accessibility for all (refer to recommendation 2.2). Therefore ITPs should be required as part of local planning strategies and reflected in structure plans.

Transport DP

WALGA LG

Part 1 Appendix B

Rationale – It is evident from the response by local governments that while there is some activity in relation to pedestrian and cycle plans, integration of these plans could be improved. State level leadership that is clearly articulated in its strategic documents and supported through funding proposals hinges on being extended to local government to provide consistent outcomes in the development of accessible communities. Local government in turn should be supported to prepare integrated transport plans to ensure that joint state and local government objectives are achieved. Many local strategies have been in place for a considerable length of time and require updating. Guiding the process will ensure a good outcome and consistency in their preparation will enable more streamlined and focused funding assessment.

2. Funding

Recommendation

Lead Agency

Partner

Section Reference

2.1 Increased State funding should be made available to bring existing areas into line with current policy in terms of the provision of infrastructure that facilitates active travel. To support increased resourcing for upgrades, it is necessary to engage in a more comprehensive analysis to build a strong business case. Therefore, DP and Transport should undertake an investigation into the current structure, funding model, and sustainability (triple bottom line) of existing active travel networks (including bus stops). The objective of this review would be to identify (a) whole of government benefits (environmental, social and functional) of accessible community planning for WA, (b) existing infrastructure, (c) existing funding, and (d) infrastructure gaps.

Transport DP WALGA

Part 2 Part 3

Rationale – It is evident from field studies and industry workshops that many existing areas fall well below the standards being achieved in new developments. The retrofitting of existing areas is required. In many cases transport program funding is decided using cost-benefit analysis. Demonstrating the benefits of active travel is difficult, as many benefits such as well-being cannot easily be quantified. Triple bottom line has more scope to consider qualitative benefits. Benefits can be gained from integrated transport schemes that deal with all users rather than just one aspect of the system.

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2.2 The allocation of transport funding should be linked to the contents of agreed local government integrated transport plans that identify networks and safeguard their implementation over time.

Transport

DP WALGA WAPC

Part 1

Rationale – The political cycle and current system of funding supports large and expensive infrastructure projects. A comprehensive evaluation will assist in delivering funds to areas of greatest societal benefit. This will allow schemes to be assessed side-by-side and integrated if not cross-funded. (This is similar to the Borough Spending Plan process in London and LTP process in UK). Multi-year programs could also be funded e.g. Portland, London. Such an approach will reduce the time and effort required to prepare and assess one-off applications and ensures funding is directed to areas of highest priority. In terms of improvements to existing areas, there is a tendency to request contributions for items that the federal government will fund (e.g. surf clubs), which may be used by only a small part of the community. Funding for public domain improvements is difficult to obtain without a coherent program of works and stated outline of needs. In terms of new areas, funding of better streets is mutually beneficial for developers and communities.

3. Documents that Support Planning and Development

Recommendation

Lead Agency

Partner

Section Reference

3.1 Draft a new State planning policy for accessible communities.

DP Transport Part 3 Appendix C

Rationale – Planning for Accessible Communities is inadequately covered by existing State planning policies. The transport requirements needed to facilitate active travel should be encouraged through a new State planning policy.

3.2 Consider how State planning policies for which gaps have been identified by this study (including SPPs 3, 3.6 and 4.2) should be dealt with as part of Stage 2 of this study. It is noted that these are currently the subject of a separate review.

DP Transport Part 2

Rationale – Gaps and flaws in SPPs have been noted from this study and SPPs should be amended to take account of these shortcomings and areas for improvement. Many policies attempt to cover too much without providing clear and specific standards on acceptable outcomes. For example, the current activity centres policy endeavours to promote main streets but the wording does not provide a regulation to assist in enforcement. The parallel section in Liveable Neighbourhoods is equally open to interpretation.

3.3 The content of individual development control policies (e.g. DC 1.5 Cycling published in 1998) should be updated and, as originally intended in Liveable Neighbourhoods, integrated into a single document. The purpose of development control policies needs to be reconsidered including in regard to greenfield and brownfield development.

DP Transport Part 2

Rationale - Development control policies are often out of date (e.g. DC 1.5 Cycling) or have been surpassed by more comprehensive documents such as Liveable Neighbourhoods. Liveable Neighbourhoods replaces development control operational policies and to the point of any inconsistencies, Liveable Neighbourhoods prevails;

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however, Liveable Neighbourhoods does not control brownfield development.

3.4 If retained, development control policies should be prepared for pedestrian planning to ensure a consistent approach.

DP Transport Part 2

Rationale – There is not currently a pedestrian planning DC policy. Raising the requirement to state level highlights the importance of the requirement. The DC policy will be inclusive of development not covered by Liveable Neighbourhoods.

3.5 Development control policies (regardless of what form these are published) should be used to convey development standards not street design standards and should point users to supporting guidelines such Austroads, a Manual for Streets, Walking and Cycling Design Guides, IPWEA Subdivision Design Guidelines, the Draft Street Layout, Design and Traffic Manual Guidelines and various other standards. Clarifying and possibly redefining the role of planning bulletins should also be considered.

DP Transport Part 1 Part 2

Rationale – Street design standards need to be comprehensive to deal with a range of conditions, environments, and safety requirements. These are too varied to be stated in development control policies without over simplification, as is currently the case. The purpose and necessity of Planning Bulletins is unclear – currently the function is split between providing advice and providing information and progress updates. E.g. Planning Bulletin 33 Rights-of-Way or Laneways in Established Areas – Guidelines is a form of control policy but issued as a bulletin

3.6 The review of Liveable Neighbourhoods needs to ensure that the range of accessible community objectives are more emphatically addressed in the policies.

DP LG Transport

Part 2 Appendix C

Rationale –

a) State Administrative Tribunal has agreed that Liveable Neighbourhoods confines itself to greenfield areas whereas the application of Liveable Neighbourhoods to activity centres and sites over 4 ha is appropriate in existing areas. There are clear areas where the Liveable Neighbourhoods integrated approach could result in better outcomes e.g. for brownfield subdivisions and large Strata titles.

b) Liveable Neighbourhoods contains too many ‘should’ statements relative to the regulation provided by other agencies and therefore is open to being undermined.

c) Liveable Neighbourhoods provides insufficient advice on context sensitive design and refers to prevailing approaches to speed limits and road hierarchy.

d) Activity Centres and local centres are central outcomes but the section is located at the back of the document and lacks strength. There are few local centres in new areas and shopping complexes continue to occur on town centre sites. Liveable Neighbourhoods needs to better address policy that links vehicle numbers with road speeds as this limits potential for activity centres to include urbanised higher-order roads.

e) The movement section could expand on the need for transport plans and require greater certainty on the early provision of public transport services (possibly bonded provision).

f) Current proposal to increase the minimum road width, on the premise of accommodating future utilities and improving

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certainty of inclusion of street trees is likely to result in wider streets and less edge friction. Agreed narrow street options with services in lanes or under carriageway need to be developed to avoid 16 metre road reserves being widely applied.

g) Liveable Neighbourhoods should reinforce minimum density levels and staging commitments.

3.7 A Manual for Streets should be developed that demonstrates how context sensitive design should be applied to design of movement networks in urban areas including town centres. It is important that WA specific pedestrian and cycle design guidelines are incorporated into the Manual for Streets. A Manual for Streets would offer greater details for the Perth vision and it is likely these would sit below Austroads and possibly alongside or possibly trigger changes to some Main Roads Western Australia (MRWA) Standards. This manual must be developed in conjunction with Main Roads and IPWEA to ensure local government support is achieved.

Transport

MRWA WALGA IPWEA

Part 1 Part 3

Rationale – The information is vital but too detailed for Liveable Neighbourhoods. Austroads provides design advice but guidelines are needed on the vision for Perth’s network and the processes in place for implementing it. The Manual for Streets promotes performance based, context sensitive design and goes some way to bridging the gap between land use and transport planning. Those guides, which have been updated as part of the review of the Austroads Guide to Traffic Engineering Series, now provide more scope for local interpretation but cannot cover all situations where active travel modes should be expressly prioritised.

3.8 It is recommended that DP adopt an accessible communities infrastructure audit which checks design and infrastructure against a desired level of service to ensure quality cycle parking, cycle paths, pedestrian paths, seating, water fountains and lighting are provided.

DP Transport LG

MRWA PTA

WALGA

Part 3

Rationale – Public realm standards are missing from the planning policy framework. They are left to designers, developers and local government to negotiate with variable outcomes. Much of the focus is on parks not streets. An infrastructure audit will allow designs to be checked, prior to the development being occupied. Needs to consider context sensitive design.

3.9 The Guidelines on Transport Assessment should undergo a time-restricted trial (have been under review since 2006), or be reviewed in response to recent international work on thresholds and finalised. Further, the transport assessment can ensure early consideration of non-car modes (during first or second stage of development) and place the onus on the developer to demonstrate how non-car users are to be catered for. Travel plan requirements including level of service measures that provide for pedestrian priority (i.e. length between crossing points) also need to be considered.

DP Part 1 Part 2

Appendix A Appendix C

Rationale – There is inconsistent application and insufficient emphasis on the outcomes in design. It is evident from field studies that the relationship between ‘estates’ and major roads is still limited and legible cycle paths are limited. Transport assessment is essential to ensuring policy objectives are delivered by developers.

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3.10 In line with Directions 2031 Spatial Framework for Perth and Peel recommendations, the Residential Design Codes should be amended to consider minimum densities that will result in higher densities than the current codes are able to provide. It is recommended that the review might go one step further and consider laying out a transect-based residential planning code framework that prescribes different design codes and standards for different zones along a transect which can, as demonstrated in other countries, result in more compact, walkable, and mixed-use environments.

DP WAPC Transport

Part 2 Appendix C

Rationale – This approach could assist with:

a) More certainty of development outcome including minimum densities.

b) Stronger streetscape relationship control. c) More ‘as of right’ approval for higher density development in

transit areas. A multi-unit housing code is currently being prepared which will include a tracked based assessment approach whereby development applications are streamed into an assessment 'track' that corresponds with the level of assessment required to make an appropriately informed decision.

d) Providing for more transit supportive parking standards and options for constraining supply e.g. shared parking (should reflect outcomes of upcoming Metropolitan Parking Strategy actioned as part of Directions 2031 Spatial Framework for Perth and Peel).

e) Implementing a consistent metropolitan approach/standard to overcome the extent to which existing communities prevent developer-driven reduced parking ratios, based on concern that parking will be on-street.

f) Decoupling residential parking in multi-unit developments.

4. Training and Development

Recommendation

Lead Agency

Partner

Section Reference

4.1 The WAPC should continue to work with other government sectors, and industry partners and health authorities to develop training initiatives for local government, councillors and others on:

• Pedestrian and cycling design, and network planning; e.g. MRWA cycling design course and a knowledge transfer strategy for local government.

• Expectations in terms of WAPC's vision and policy.

• Benefits and rationale to assist in promotion.

• Good planning practice.

• Developer advice sessions.

• Introduction to new documents.

DP MRWA Transport

WALGA LG

Part 1 Part 3

Appendix F

Rationale – Many decisions are made outside WAPC control thus partnerships and training is critical. This recommendation should also be progressed through Building A Better Planning System.

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5. Governance

Recommendation

Lead Agency

Partner

Section Reference

5.1 A hearings system should be provided for structure plans where a committee hears the conditions set by each agency and by DP and can instruct other agencies to investigate alternative conditions (within the scope of its act) to address adverse effects of proposed conditions. Establish a sequence of hearings to assist the development of the structure plan or project. Investigate whether the terms of reference for the Infrastructure Coordinating Committee may allow for it to take on this role more actively.

DP WALGA LG

Part 3 Appendix F

Rationale – The current informal system allows agencies to operate in isolation of each other’s agendas. This recommendation should also be progressed through Building A Better Planning System.

5.2 It is recommended that Transport investigate if and how it could assume the liability from local governments for road accidents on approved streets. The approach would have to separate liability based on maintenance from liability based on design.

Transport MRWA WALGA

Part 3 Appendix F

Rationale – There is a perceived risk in adopting new approaches and strong policies to ensure roads are congestion free. A centralised approval body can trial new approaches, introduce better standards, and defend decisions on the basis of broader social agendas.

6. Policy

Recommendation

Lead Agency

Partner

Section Reference

6.1 A road classification system that allows for greater recognition of variations in the design and speed of roads along their length as they move through different areas needs to be integrated into recognised classification systems.

MRWA Transport DP

Part 2 Appendix C

Rationale – A clearer statement on sharing traffic load across the network and allowing roads to safely transition through sensitive areas needs to be communicated to create the shift from the traditional hierarchical and inflexible road design/road function approach. Auckland City Council is following an approach advocating ‘liveable arterials’ whereby road function transitions through various areas.

6.2 A community-based process of prioritising various modes across the street network should be developed to enable the community to set priorities in terms of access. The process must include comprehensive information on the costs or various choices to business, taxpayers and society.

MRWA Transport

DP LG

Part 3

Rationale – Current road design and standards are increasingly recognising the level of service for other users. However, level of service for vehicles continues to dominate current discussions as evidenced by the almost complete lack of activity corridors in new areas despite community support evident in the Dialogue with the City workshop.

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6.3 Traffic speed is a major psychological barrier to increased walking and cycling. MRWA and local government have implemented a number of lower speed zones in Perth. MRWA aims to achieve operating speeds of 30 km/h in high pedestrian areas that are self enforcing through design elements and has signed off on the State Road Safety Strategy Towards Zero, which promotes targeted speed limit reductions and demonstration speed limit reduction projects. Lower speeds in highly pedestrianised areas and possibly residential areas should, over time, become a standard condition with proof of safety required when permitting higher speeds in such areas to show these will not undermine access for all.

MRWA LG Police

Office of Road Safety Transport

Part 1 Part 3

Appendix A Appendix F

Rationale – Concern regarding the time delay effect of reduced road speeds persists despite evidence that the time delay is limited. Meanwhile, the savings to human life, improvement in the sense of safety, and improved physical health are potentially immense. MRWA has demonstrated commitment through recent projects such as the Fitzgerald Street speed reduction (30 km/h) in North Perth and the variable speed reduction (40 km/h) in Beaufort Street Mount Lawley. Discussions are underway to reduce the posted speed limit in the Leederville Town centre to 30 km/h. All speed limit reviews require agreement between MRWA, local government and the police, and any of the three organisations or members of the public can initiate requests for reviews.

6.4 The DP has begun work (funded by the WAPC) to revise and extend the Perth Parking Policy. This should provide strategic direction on the funding and delivery of appropriate levels of both on and off-street parking for visitors, tenants, disability, service bays and other parking requirements as well as guidance on the management of parking in activity centres. The Perth Parking Policy framework would need to (a) support a balanced transport system, (b) encourage equitable access between centres, and (c) promote good urban design and amenity outcomes within centres. Shared parking arrangements should be promoted.

Transport WALGA WAPC

Part 2 Appendix C

Rationale – Parking is one of the key determinants of mode choice. It is offered as an employment benefit or visitor incentive, yet encouraging driving reduces the comfort and actual convenience of other modes. Some standards can act as a deterrent for developers, and influence LG policy on parking. The review of Perth Parking Policy is an opportunity to contribute to wider policy objectives to reduce car dependency.

6.5 Minimum standards for the presentation and provision of way-finding signage should be developed by Transport in conjunction with WALGA, Public Transport Authority and MRWA. Local governments should be supported to adopt the standards and provide this type of signage/information, whilst simultaneously streamlining the overall provision of signage and reducing ‘clutter’.

Transport DP WALGA

Part 3 Appendix F

Rationale – Time and convenience are vital to the choice of modes. For minor cost, major improvements can be made to the ease of non-vehicle trips. Good signage reinforces the ease, availability and support of non-vehicle trips thus elevating its importance. All too often, excessive, conflicting or unclear signage is used.

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6.6 DP and Public Transport Authority should provide guidance on a common system for establishing accessibility to public transport nodes that extends beyond distance (e.g. ped-sheds) to include barriers (e.g. safety and severance caused by major roads).

PTA DP WALGA

Part 3 Appendix C

Rationale – While Liveable Neighbourhoods has significantly improved street interconnectivity, site constraints can be too easily accepted as a reason for not ensuring a high level of service. This measure will highlight deficiencies and assist in a more critical review of detailed design factors for services and infrastructure. Safety studies done around Midland, Mosman Park and Gosnells could be a model. Other case studies such as PERS2 (Pedestrian Environment Review System) use various parameters to provide a comprehensive quantitative assessment of the environment under review from a pedestrian perspective, providing an effective illustration of its key elements. This analysis enables objective comparison of the level of service for pedestrians along different routes and entails ‘rating’ a variety of headings on a 7-point scale.

7. Monitoring and enforcement

Recommendation

Lead Agency

Partner

Section Reference

7.1 Investigate models for more consistent and frequent monitoring of movement infrastructure and greater powers of enforcement relating to planning policy and guidelines and planning application conditions. Models must consider resource requirements and may involve self-assessment.

DP WALGA LG

Part 1

Rationale – Many policies and standards are not often enforced due to perceived constraints and conflict with other policies and standards. Accessible communities based policies must not be able to be diluted in this way. It is also evident from the field assessments that some innovative practices are being approved but not reviewed. Conversely there are failings in implementation including lack of interface of centres with high-order roads and lack of proper street systems in many town centres. Outcome monitoring provides the opportunity to identify outcomes and compare these against original project objectives and wider government objectives. Voluntary outcome monitoring of Borough Councils has been implemented by London’s transport funding authority using self-assessment.

2

http://www.walk21.com/papers/Zurich%2005%20Allen%20PERS%20v2%20Auditing%20public%20spaces%20and%20interchan.pdf

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8. Further Study

Recommendation

Lead Agency

Partner

Section Reference

8.1 Austroads, MRWA, Australian Standards and other guidelines should be studied to consider how these are meeting accessible communities objectives and opportunities for consolidation or consistency with WA policies for the following:

• design vehicles

• street tree policy

• kerb radii

• car parking provision

• roundabouts

• splitter islands.

Transport MRWA

DP WALGA

Part 2 Appendix C Appendix D

Rationale – An expansive and often conflicting array of standards exist affecting street design and layout e.g. Planning Bulletin 97 Proposed Street Tree and Utility Planning Amendments to Liveable Neighbourhoods dictates a minimum street width of 16 metres based on infrastructure agency driven concerns. It considers the possibility of narrower roads in town centres but does not explain how under-width roads might be made possible in town centres or why this would not be possible across the neighbourhood. The likely outcome may be a default to 16 m roads in all circumstances.

9. Communication

Recommendation

Lead Agency

Partner

Section Reference

9.1 WAPC should establish a common interface for all accessible communities’ policy where practitioners can find resources, source all relevant standards and be made aware of best practice studies relevant to Western Australia.

WAPC Part 3

Rationale – Innovations are not identified and promoted consistently, international best practice is not widely identified and communities are not informed and empowered to demand accessible communities.

10. Terminology

Recommendation

Lead Agency

Partner

Section Reference

10.1 Find an alternative to accessible communities.

Transport/DP

Part 1

Rationale – The term is well established by the disabled access advocacy groups and related more with universal access. Liveable Cities captures the broader agenda of compact, connected and conducive cities. The EU is using the term for an agenda to improve cities which has many parallels to this work (http://www.liveablecities.org/).

10.2 Adopt active travel as a popular term.

ALL Part 1

Rationale – the Planning Institute of Australia, Australian Local

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Government Association and the Heart Foundation has adopted it nationally.

Conclusions: Where to from here

The continuation of this work to Stage 2 is recommended. As a starting point the recommendations relating to documents that support planning and development should be progressed as these will support the implementation of the other recommendations.

Key to this will be:

• The drafting of a new State planning policy for accessible communities.

• Updating and integrating the content of development control policies.

• Clarifying and possibly redefining the role of planning bulletins.

• Progressing the planned review of Liveable Neighbourhoods.

• Progressing the Manual for Streets.

• Linking in with other work e.g., review of Perth Car Parking Policy.

Accessible communities can only be achieved with high-level cooperation, sustained effort and strong commitment from the community, state government agencies, local government and other key stakeholders.

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Contents

1 Introduction..............................................................................................................1

1.1 Description of accessible communities ...........................................................1

1.2 Project aims and structure ..............................................................................1

1.3 Report Compendium.......................................................................................2

1.4 Steering committee .........................................................................................2

1.5 Project in context.............................................................................................3

2 Part 1: Best Practice Review..................................................................................4

2.1 Overview .........................................................................................................4

2.2 Context ............................................................................................................4

2.2.1 Impacts of car dependency........................................................................4

2.2.2 Towards sustainable travel ........................................................................6

2.2.3 Approaches to redressing car dependency ...............................................6

2.3 Detailed review of best practice case studies...............................................11

3 PART 2: Local Practice .........................................................................................32

3.1 Overview .......................................................................................................32

3.2 Planning frameworks.....................................................................................32

3.3 Transport frameworks ...................................................................................35

3.3.1 Delivery of transport programs.................................................................35

3.3.2 Transport guidelines and standards ........................................................39

3.4 Detailed document review.............................................................................42

4 PART 3: Gap Analysis...........................................................................................58

4.1 Overview .......................................................................................................58

4.2 Workshop-based gap analysis ......................................................................58

4.2.1 Ideal, gap and response assessment ......................................................58

4.2.2 Agency responsibility assessment...........................................................59

4.2.3 Focus of improvement initiatives..............................................................59

4.3 Field assessment ..........................................................................................60

4.4 Key stakeholders’ assessments of gaps table..............................................61

5 PART 4: Formulate recommendations................................................................79

5.1 Recommendations ........................................................................................79

6 Conclusions: Where to from here........................................................................90

7 List of Reference Documents...............................................................................91

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1

1 Introduction

1.1 Description of accessible communities

Creating neighbourhoods that encourage people to choose active travel is increasingly being recognised as a way to foster more sustainable, healthier and safer communities. Accessible communities are inclusive communities that meet the needs of walkers, cyclists, children, seniors and people with disabilities. They are places which are designed around active travel and crime prevention principles.

“Active travel relates to physical activity undertaken as a means of transport. It includes travel by foot, bicycle and other non-motorised vehicles. Use of public transport is also included in the definition as it often involves some walking or cycling to pick-up and from drop-off points. Active travel does not include walking, cycling or other physical activity that is undertaken for recreation.” 3

1.2 Project aims and structure

ARRB Group and TPG Town Planning and Urban Design (the Consultants) have been contracted by the Department of Planning (DP) to undertake this project for the Western Australian Planning Commission (WAPC).

The accessible communities Study is intended to identify gaps and flaws in the planning system that act as barriers to the promotion of active travel and to determine mechanisms that may help to overcome these problems. The objective is to ensure appropriately designed transport infrastructure and supporting urban design are integral to all urban developments and that this is made certain during the approval and implementation of urban development. The ultimate aim is to help ensure that Western Australian communities are planned in a sustainable and accessible way.

The project comprises two stages:

• Stage 1 explores the effectiveness of current planning policies in delivering accessible communities, and the influence of supporting transport policies (for urban areas within Western Australia). It identifies gaps and flaws in the policies, guidelines and processes and recommends an appropriate response framework.

• Stage 2 develops a policy response and/or alternative mechanisms, which can be implemented through the statutory planning system.

This report deals with Stage 1. Progression to Stage 2 is to be confirmed subject to the outcomes of Stage 1, and has been recommended by this study. This project was undertaken in four parts:

3 Be Active Australia: A Framework for Health Sector Action for Physical Activity 2005-2010

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• PART 1 - A best-practice review of national and international case studies was carried out by DP staff from the Walking and Access Unit using a template assessment index table provided by the Consultants.

• PART 2 - A review of local practice including policy documents and planning frameworks relevant to accessible communities was undertaken. The general methodology for reviewing documents was for a member of the consultant team to review each document individually, in light of core Accessible Community principles. Given the substantial number of documents that required review it was agreed that the results of this process would be best reflected in summary table format, which would involve inserting the key objectives from each reviewed document and then summarising key comments and suggested actions.

• PART 3 - Building on the research of best-practice case studies and the review of current local practice, a gap analysis was undertaken. A workshop was held with key stakeholders to determine what the main gaps are in the delivery of accessible communities. The participants included representatives from local government, state government agencies, and other key stakeholders such as LandCorp.

• PART 4 - Recommendations on policy gaps and process improvements were formulated.

1.3 Report Compendium

Given the substantial scope of this study a report Compendium has been produced for this study. For readers, this comprises copies of process related documents, full review tables and related study material.

1.4 Steering committee

Crucial to the success of this study was the collaboration and guidance by a project steering committee. The steering committee for this study was made up of the following DP representatives:

• Alice Haning, Principal Policy Officer, Walking and Access (Convenor/Chair)

• Alastair Stewart, Senior Policy Officer, Walking and Access

• Gary John, A/Director, Transport Programs

• Neil Foley, Project Director, Urban Place Planning

• Russell Greig, A/Manager, Bikewest

• Robert Campbell/David Igglesden, A/Director, Urban Transport Systems

• Parwez Jahmeerbacus, Senior Transport Engineer/Planner, State and Regional

Policy.

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1.5 Project in context

In recent years high vehicle ownership levels, urban sprawl and a preoccupation with the movement function of streets have led to an increase in car dependence and neighbourhoods that are poorly serviced for active travel. Increasingly, the focus has been on roads as corridors for the movement of cars, rather than streets as a shared movement space and the focus of life and activity. This has resulted in increasing reliance on the car for transportation even for short distances, with the resulting consequences of increased traffic congestion, sedentary behaviour, ill health and social alienation.

Although a clear mandate for accessible communities has been identified in a number of high level cross-sectoral government strategies, such as Directions 2031: Spatial Framework for Peel and Perth, Network City: Community Planning Strategy for Perth and Peel, Liveable Neighbourhoods, the State Physical Activity Strategy and Active Aging Strategy, there is often insufficient emphasis and profile placed on these matters during the land development process, resulting in developments that do not address all aspects of accessibility.

The Western Australian Government agencies, developers and practitioners recognise the health, social, environmental and economic benefits of residents actively engaging the community. Government support and consumer demand for more active community participation has highlighted a need for improved planning and delivery of urban environments that meets the needs of walkers, cyclists, children, seniors and people with disabilities.

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2 Part 1: Best Practice Review

2.1 Overview

Many of the issues associated with delivering accessible communities are a direct result of the planning and transportation policies, which have been adopted in Perth over the past 50 years.

In the first instance, this section will examine the key influences and drivers, which have been at work in shaping Perth’s urban environment. Secondly, it provides a summary of key urban planning and transport responses to restraining car use and thirdly a best-practice review of national and international case studies is presented, which was carried out by staff from the former Department for Planning and Infrastructure, Walking and Access Unit using a template assessment index table provided by the Consultants. A gap analysis table was then prepared by the Consultants showing key findings from the Best Practice Review and the relevance of these to the study.

Due to resource constraints the scope of this study was limited to examining personal transportation only and excluded the issue of freight movement.

2.2 Context

2.2.1 Impacts of car dependency

Traditionally, cities and towns developed in a compact and connected way, facilitating non-motorised transportation. Compact, connected and conducive towns and neighbourhoods by their very nature fostered active travel.

The rise of motor vehicle use has been the dominant factor in how towns and cities have been shaped in recent years and in some cases has been responsible for the disintegration of traditional urban forms. Before the advent of cars, towns and cities grew in a more organic way, and to a more human scale. The rise of motor vehicles has seen urban growth occurring further and further away from the traditional centre. The rise of suburban development has led to urban sprawl and increased car dependence.

“Automobile dependence is when a city or area of a city assumes automobile use as the dominant imperative in its decisions on transportation, infrastructure and land use. Other modes thus become increasingly peripheral, marginal or non-existent until there are no

real options for passenger travel other than the automobile.” 4

Vehicle ownership has brought many benefits, such as increased mobility, independence and improved access to markets, which are essential in a large, sparsely populated country like Australia. However, the resulting urban expansion has proved to be unsustainable in a number of ways. Many suburbs are characterised by cul-de-sacs, low levels of public transport provision and are not conducive to walking, cycling, and disabled access.

4 Newman, P. & Kenworthy, J. (1999) Sustainability and Cities: Overcoming Automobile Dependence, Island Press, Washington.

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“Perth’s development has been heavily influenced by our dependence on the car and truck and this needs to be more balanced with better integrated land use and transport”

WA State Sustainability Strategy, 2003

The United States and Australian cities are the most automobile dependent in relation to their transportation patterns, infrastructure and land use. People are lured into vehicles for the majority of journeys and this can result in negative social, economic, and environmental impacts.

Health Impacts

Health impacts include obesity, heart problems, respiratory disease, psychological problems, and personal injury accidents. The individual health impacts of a sedentary lifestyle are of growing concern. Exercising through active travel is one way to remain healthy. Health impacts include:

• Physical inactivity is responsible for 5% of the burden of disease and injury in Western Australia. 5

• In 2006, one in four adults (27%) reported insufficient physical activity levels for health benefit.6

• In 2006, 76% of primary school children aged 5 – 12 years reported insufficient physical activity.7

Social Impacts

Social impacts include alienation, stress, community severance (caused by physical barriers such as roads and major intersections), exclusion of people who do not have a licence and the loss of public space from roads and car parking. Active travel fosters local culture through greater interaction within the community and creates safer environments through increased passive surveillance. Conversely, automobile dependent lifestyles are associated with higher levels of stress and feelings of social alienation as people engage less with their communities. Long commutes to and from work have a time cost and place a financial burden on families due to fuel and car maintenance costs. This disproportionately impacts lower-income families who often live in developments further away from the city centre, where most employment opportunities are located.

Economic Impacts

Economic impacts include cost of fuel and car maintenance, infrastructure costs, time cost of commuting, cost of injury and death from road accidents. Ever-expanding

5 Somerford P, Katzenellenbogen J, Codde J. Impact of modifiable risk factors on disability and death: Overview by age Bulletin No. 5. Perth: Department of Health 2004. 6 Wood N, Daly A. Health and wellbeing of adults in Western Australia 2006, overview of results. Perth: Department of Health 2004.

7 Wood N, Daly A. Health and wellbeing of children in Western Australia, July 2006 – June 2006, overview of results. Perth: Department of Health 2007.

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suburban development puts a financial burden on the community as a whole to provide and maintain services. There is a wide discrepancy between the cost of infrastructure for cars and infrastructure for active travel (excluding public transport). Likewise, infrastructure for cars (roads and car parking spaces) leads to loss of public open space and land wastage.

A further economic concern is the possible impact of reaching peak oil. Peak oil describes the point at which the supply of oil passes its peak and falls into decline. Debate continues as to when peak oil will be reached, however, it is widely accepted that it is inevitable and proximate. Since so much of current life and economic development is structured around cheap oil, converting cities to deal with less of it is seen to be highly costly and problematic.

Environmental Impacts

Environmental impacts include air and noise pollution from traffic and loss of land to infrastructure. The impact of motor vehicles on the environment is both local - in the form of air and noise pollution - and global, as they contribute to increases in greenhouse gasses and hence to global warming.

Alternative fuel sources are being developed aimed at emulating the cost-effectiveness of carbon-based fuels with less environmental consequences. However, these alternative fuel sources only have the potential to lessen part of the environmental impacts of car dependency.

2.2.2 Towards sustainable travel

Urban transport systems based around the automobile are unsustainable and are delivering declining levels of accessibility despite increasing investments. Current policies have changed to indicate a more integrated approach to address transportation within the broader urban planning, land use and societal arena, from the macro scale of how the city is planned, to the micro scale of how streets are designed.

In Western Australia there have been some important innovations in overcoming automobile dependence that have attracted worldwide attention, in particular the Liveable Neighbourhoods policy, the expansion of the electric train system and the TravelSmart program. These developments have been critical in helping to deliver more accessible communities throughout Perth.

Places, which have consistently included sustainability as a key consideration in transport and land use planning, include New Zealand, Denmark, Scotland, United Kingdom (UK), Portland, Oregon, Vancouver and Canada. A full review of the best practice of transport and land use authored by the DP is contained in the Compendium accompanying this report.

2.2.3 Approaches to redressing car dependency

The negative impacts of vehicle-dependent development have been experienced in cities around the world and a number of planning and transport approaches have been developed in recent years to redress these. They are variously known as New Urbanism,

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New Pedestrianism, Transit-Orientated Development, Smart Growth, Shared Space, Naked Streets, redefining approaches to road hierarchy, Local Area Traffic Management, Travel Demand Management and infrastructure for active travel.

Most of these approaches focus on the physical urban design, urban density and land use zoning of cities in order to achieve more compact, safer and better connected places which promote active travel. These approaches suppose that a significant contribution for integrated, active and sustainable travel can be made by a consolidated urban form of mixed-use and accessible destinations with built-in priority for walking, cycling and public transport. The following is a brief discussion of these approaches.

New Urbanism

New Urbanism, as espoused by the American Congress of New Urbanism, supports regional planning, context-appropriate architecture, and the development of jobs and housing in mixed-use neighbourhoods. New Urbanism strategies seek to reduce traffic congestion, increase the supply of affordable housing, and rein in urban sprawl8.

New Pedestrianism

New Pedestrianism is a more ecological and pedestrian-oriented version of New Urbanism. Pedestrian villages utilise the principles of New Pedestrianism and can range from being nearly car-free to having car access behind houses and businesses, but pedestrian lanes in front. Eliminating the front street and replacing it with a tree-lined pedestrian lane places emphasis on active travel modes such as walking and cycling9.

Transit Orientated Development

Transit Oriented Development (TOD) refers to locating moderate to high-intensity commercial, mixed use, community and residential development close to train stations and/or high-frequency bus routes to encourage public transport use over private vehicles10. TOD improves the attractiveness of, and access to public transport, cycling and walking; provides communities with interesting and vibrant places for people to interact; reduces the impact of transport on the environment; reduces household travelling expenses; and provides more housing diversity and affordable housing options.

Smart Growth

Smart Growth11 is an approach to land use and transportation planning originally developed by the US Environmental Protection Agency and several non-profit organisations. Smart Growth concentrates growth in a network of centres to avoid urban sprawl. It advocates compact, transit-oriented, walkable, bicycle-friendly land use, including neighbourhood schools and mixed-use development with a range of housing choices.

8 http://www.cnu.org/charter 9 Michael E. Arth, The Labors of Hercules: Modern Solutions to 12 Herculean Problems. 2007 Online edition. Labor IX: Urbanism. 10

11 http://www.smartgrowth.org/about/default.asp

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Smart Codes (Place Codes)

In America the Smart Code12 tool was developed out of Smart Growth and New Urbanism principles. It guides the built environment through a series of codes, which promote compact, walkable and mixed-use environments. The SmartCode is a transect-based planning framework which prescribes different design codes and standards for different zones along the transect. It offers an alternative standards framework for urban designers and transport planners, which is crucial in supporting innovative transportation solutions. Smart Codes also lay out urban design standards suitable for areas of different densities in both greenfield and brownfield sites.

Shared Space

Shared Space deals with the design, management and maintenance of streets and public spaces, based on the integration of traffic with other forms of human activity. Shared Space requires an innovative approach to the process of planning, designing and decision-making. It prescribes a design that is sensitive to land use and reflects the need for streets to be primarily places for people13.

Naked Streets

The most recognisable characteristic of naked streets is the absence of conventional traffic signals, signs, road markings, humps and barriers. Naked Streets should reflect design that allows streets by their very nature to be ‘self explaining’. The driver in Naked Streets becomes an integral part of the social and cultural context, and behaviour (such as speed) is controlled by everyday norms of behaviour.

Refining Road Hierarchies

Road hierarchies assign classifications to roads and streets based on the functional characteristics of those roads and streets. High-level design parameters are linked to each classification. The function of roads is largely determined by adjacent land use and the associated access requirements. Sometimes roads are assigned a strategic function such as the movement of freight, which does not reflect adjacent land use.

Inherent in the notion of hierarchies is a commitment to ensuring that a road maintains the same design character and hierarchy throughout its length. This approach has often created disjointed patterns of development by assuming place is subservient to movement. Both place and movement functions of streets have to be considered in combination, with their relative importance depending on the street’s function within the network.

In recent years road and planning authorities have been researching ways to redefine the concept of road hierarchies to better consider adjacent land use and the place aspect of roads, as well as considering other roads users in addition to car drivers.

12 SmartCode v 9.0 (2008), The Town Paper Publisher.

13 Policy Briefing 01/09 Naked Streets – Living Streets, UK; www.livingstreets.org.uk

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The UK Government’s Manual for Streets (2007)14 document provides guidance for new streets and public spaces and offers a movement/place matrix (FIGURE 1). This matrix helps define the relative importance of particular streets/roads in terms of place and movement functions. It recognises that whilst some streets are more important than others in terms of traffic flow, some are also more important than others in terms of their place function and deserve to be treated differently. This approach allows designers to break away from previous approaches to hierarchy, whereby street designs were only based on traffic considerations.

FIGURE 1 - TYPICAL ROAD AND STREET TYPES IN THE PLACE AND MOVEMENT HIERARCHY

Source: UK Manual for Streets, Department for Transport 2007

Local Area Traffic Management

Local Area Traffic Management (LATM), which is a common practice in Australia, is aimed at identifying the need for localised controls in the street system. These can include the use of horizontal deflection such as landscaping and roundabouts and vertical deflection such as speed bumps and raised tables. In extreme cases they can include the introduction of sections of one-way streets, restricted access (left in left out or out only) and even closing the street to cars.

14 Manual for Streets (2007). Department for Transport UK; www.dft.gov.uk

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LATM is sometimes introduced as a context-sensitive initiative on major roads through centres but more often it is introduced to avoid high speeds on lower order roads and to discourage ‘rat running’. Rat running is a pejorative term for vehicles using the lower order road system to avoid congestion on the high order road. It is seen as inherently negative as more traffic is introduced into residential streets and driver behaviour is often not suitable in that environment.

The new urban movement accepts LATM but also highlights that a flatter hierarchy where having more local streets to share the traffic load, is a better system as it reduces the scale of major roads, reduces trip distance and frustration, especially where cul-de-sacs are replaced by direct links, and promotes re-urbanisation of the neighbourhood as a mixed use employment rich area15.

Austroads guidance on LATM design principles has been revised and responds to past criticisms that the improper application of horizontal deflection devices has sometimes caused cyclists to be located in an unsafe position nearer to the adjacent traffic stream. Similarly guidance and practice have been adapted where vertical deflection devices have caused discomfort for traffic, including cyclists and therefore discontinuity in the path of travel.

Travel Demand Management

Travel Demand Management (TDM) is the application of strategies and initiatives to reduce automobile travel demand, or to redistribute this demand in space i.e. with shorter trips or in time i.e. with fewer trips. Managing the demand for travel is a cost-effective alternative to increasing capacity. There is a broad range of TDM measures, including:

• voluntary travel behaviour change programs such as TravelSmart, which is the brand name 16 for a program that provides information, support and services to encourage active travel

• travel planning

• promotion of car-pooling

• fiscal strategies (such as increasing parking costs, road user charges and congestion taxes)

• promoting walking and cycling

• subsidising public transport costs for employees or residents

• flexi-time work schedules with employers to reduce congestion at peak times

• road space rationing by restricting travel based on license plate number, at certain times and places

• travel plans.

15 The New Urbanism, Towards an Architecture of Community, Peter Katz, 1994.

16The TravelSmart trademark is registered in the Crown in right of the State of Western Australia.

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Integrated Transport Planning (ITP)

Just as regional transport infrastructure is essential for economic prosperity, so too is local level transportation infrastructure (bus stops, footpaths, street lights and dropped kerbs) essential for social prosperity. There is a wide range of design options for infrastructure that aids active travel. Whilst this may relate to special facilities such as pedestrian crossings, cycle lanes and bus stops it also relates to adopting good design practices, which ensure all streets and their inherent infrastructure, such as intersections facilitate and do not deter people from undertaking active travel.

Many cities are structured in a way that supports access for their residents without car dependence. However, the private vehicle is a powerful force in shaping new cities and potentially reshaping the form or travel patterns in existing cities. Cities that provide accessible communities appear to be united by two things. The first is strong planning and transport control and the second is carefully directed funding. Funding is critical in determining that both higher order and lower order transportation infrastructure needs are addressed.

In the UK, transportation funding requires projects to demonstrate best benefits and advocates that these may not automatically be directed to roads. This is achieved through the requirement that local governments prepare Integrated Transport Plans (ITP) to assist with funding prioritisation.

There is also a progressive movement towards ‘co-funding’ where large projects must include funds for cycling and walking infrastructure. While this is positive some countries are looking to assess first whether funds are better spent on cycling and walking and other initiatives instead of large projects. Additionally in the UK ‘Area Based Schemes’ are emerging which seek to improve defined areas and as a necessity cover all modes. Area Based Schemes may have a focus on town centres, business improvement districts or interchanges.

2.3 Detailed review of best practice case studies

A gap analysis showing key findings from the best practice review is presented in TABLE 1. The end column in Table 1 comments on the relevance of these findings to this study. A full review of international and national best practice can be found in the report Compendium, APPENDIX A.

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TABLE 1 – INTERNATIONAL BEST PRACTICE

Topic Location

or document

Key Findings Key points / relevance to this work

Transport Plans

United Kingdom

- Producing and reviewing Local Transport Plans is a statutory requirement.

- LTPs must contain policies and implementation plans, and are constantly under review.

- Local Government must consider contribution of LTP to identified national transport goals.

- Must cover capital and revenue funding and must meet realistic funding levels.

- Funding of LTPs is not performance based – monitoring is not regulated by Department of Transport but is recommended.

- Should cover all transport from, within and to Local government area.

Statutory requirement for integrated transport plans ensure local action is aligned with strategic policy. Possible recommendation for this study in terms of linking schemes to strategic objectives.

Planning and development control policies

Brisbane

- Development managed through the City Plan, which states Brisbane City Council’s intentions. Key aims are to adopt a performance based approach, promote urban design, and focus on implementation.

- Draws on State planning strategies/policies, regional planning processes (frameworks) and Local Area Planning (LAP) (rolling program).

- Local Area Plans include an action plan and town planning recommendations (influencing land use and development). LAPs identify development priorities.

Direct connection from local plans to hierarchal city wide strategic policy. This is not dissimilar to Perth. Note: Brisbane City Council different model to Perth.

Denmark

- Previous system - responsibility for decision making decentralised. Policies and plans at regional and local level binding whilst policies and guidelines at national level advisory.

- Under new system - most land use responsibilities and competencies are now under the control of the local governments and central government. The local municipal governments are now in the process of linking local plans and developments to national level planning frameworks. Regional guidance is provided on the vision for the region.

Local government plans linked to Federal government frameworks – with regional government providing vision. Local empowerment – possibly more context sensitive.

Speed control on urban Roads

Portland 2002

- Deals with posted speed limits and fitting road widths to suit this.

- The perspective that speed can be controlled through design changes and vehicle friction with the urban environment is not adopted.

- “Travel lane width is a function of the use of the lane, the type of vehicles served and the vehicle speed. Travel lane width is also determined by the locations of the travel lane within the travel way and the character of the adjacent land use the street is intended to serve. Outside curb lanes require a wider width to accommodate turning trucks and buses, and reduce the effect of adjacent obstructions such as parked vehicles.”

The Metro document Creating Liveable Streets: Street Design Guidelines does not use design to address speed control on urban roads. Rather, it focuses attention on using design to create a more liveable street. It is accepted that this will reduce speed, but it is not explicitly

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Topic Location

or document

Key Findings Key points / relevance to this work

stated.

Context Sensitive Solutions, Institute of Transportation Engineers 2005

- Target speed is defined as operating speed rather than design speed and is selected based on level of multi-modal activity generated by adjacent land uses.

- In the past the design speed has been encouraged to be as high as is practical. The CSS recommends that the design speed become a function of the thoroughfare type and context (i.e., residential or commercial). Setting target speeds that are artificially below the design speed encourages operating speeds that are too high and are not enforceable. The CSS identifies the following design factors that contribute to speed reduction:

o lanes of appropriate width, without excess

o minimal or no horizontal offset between inside travel lane and median curbs

o elimination of super elevation (road camber)

o elimination of shoulders in most urban applications

o on-street parking

o smaller curb return radii and reconfiguration/removal of channelised right turns (left turns in Australia)

o spacing of signalised intersections and synchronising to the desired speed

o paving materials so that drivers can feel when areas are likely to have pedestrians

o proper use of speed limit, warning, advisory signs and other devices to gradually transition speeds when travelling though changing speed zones.

- Avoid perception that high-capacity needs high design speeds. Intersection operations and delay can influence capacity in urban thoroughfares to a greater extent than speed.

Advocates design speed equal to desired operating speed.

Advocates tightening road geometry to reduce speed and using intersections for speed control.

Manual for Streets, UK

- Designers should aim to create streets that naturally control vehicle speed rather than use traffic calming devices and generally speaking separating pedestrian/cycle routes away from motor traffic should only be considered as a last resort.

- In residential streets a maximum speed of 20 mph (32 kph) should normally be the objective.

- Straight and uninterrupted links of road should be limited to around 70 m. Continuous links can be broken with:

o physical features involving horizontal and vertical deflection (other means are preferable)

o changes in priority at roundabouts and other junctions

Advocates traffic calming as a last resort.

Advocates providing for cyclists on main traffic routes.

Advocates maximum speed limit of 32 kph in residential street.

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Topic Location

or document

Key Findings Key points / relevance to this work

o street dimensions i.e. short lengths between junctions and decreased carriageway width

o reduced visibility may reduce vehicle speed (although also reduces pedestrian visibility)

o street features can impact on psychology and perception on driver behaviour, such as edge markings that visually narrow the road, removal of centre line markings, close proximity of buildings to the road, pedestrian refuges, on-street parking, types of land use, e.g. shopping, pedestrian activity.

- Speed limits in urban areas are normally 30 mph (48 kph); however 20 mph (32 kph) areas are becoming common. In the UK a 20 mph limit only has signage and may or may not have traffic calming devices. Speed Zone areas are treated differently to speed limited areas as traffic-calming devices are a legal requirement in a 20 mph Zone. Any speed limits below 30 mph (other than 20 mph zones) require individual consent from the Secretary of State for Transport. It is made clear that designers should be aware that approval is unlikely to be given.

- Speed limits are not an indication of appropriate operational speeds. It is stated that “for new streets or where existing streets are being modified and the design speed is below the speed limit, it will be necessary to include measures that reduce traffic speeds accordingly.”

On-street parking standards

Portland 2002

- Width = 2.3 m.

- Avoid diagonal parking.

- Prohibit on-street parking above traffic speed of 72 kph.

- Extend kerbs at cross walks to the width of bay.

Bay width in line with Australian standard of 2.1m – 2.3m.

CSS, ITE 2005

- Width = 2.4 m to 2.7 m.

- Diagonal parking only allowed at low speeds.

- Prohibit on-street parking above traffic speed of 56 kph.

- Advantages = slows traffic, buffers pedestrians, benefits business, indicates desired operating speed for motorists (can reduce speed by 3-30% depending on number of lanes and frequency of parking manoeuvres).

Bay width in line with Australian standard of 2.1m – 2.3m

On-street parking can reduce speeds by 3-30%.

Manual for Streets UK

- Does not specify bay widths.

- Does not specify angle parking.

- Suggests suitable context for provision of parking – preference for discrete bays; limit to groups of five; on-street can meet off-street demand.

Manual for streets provides guidance on key considerations instead of standards for car parking.

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Topic Location

or document

Key Findings Key points / relevance to this work

- Advantages - increases street activity; buffers pedestrians; well-surveilled; shared.

- Issues - slows traffic but causes potential safety issues when traffic speeds exceed 32 kph and no provision for pedestrian crossings is made; can undermine streetscape; leads to verge parking.

- Line or textured surface will encourage good behaviour.

- Need to consider volume, speed of traffic and geometry of street as well as demand.

Footpath location and widths

Portland 2002

- Consider paving treatment to delineate pedestrian areas.

- Continuous sidewalks particularly on main arteries.

- Footpath width greater than 3.0 m to accommodate intensive pedestrian traffic.

- In commercial areas preferred width of 3.65 m - 4.5 m.

- Should not be combined with cycle paths.

Preferred width is greater than 3.0m (intensive use).

3.65m - 4.5m in commercial areas.

CSS, ITE 2005

- Should be provided on both sides of the street in urban contexts.

- Uniform crossovers advocated.

- Utilities should not interfere with pedestrian movement.

- Minimum width is 1.5m in constrained residential areas and 1.8m in constrained commercial areas. For more pedestrianised areas the minimum width is 3m.

Preferred width is greater than 3.0 m (more pedestrianised areas).

Footpaths should be provided on both sides of the street in urban contexts.

Manual for Streets UK

- No maximum width for footways – ideal width is 2.0m and should be considered the minimum in normal circumstances.

- Under constrained circumstances the minimum can be reduced to 1.5m. Where there are obstacles the passing width can be reduced to 1m.

- The minimum width at bus stops is 3m and 3.5-4.0m in commercial areas.

- In areas of high pedestrian activity larger footpath widths will be necessary.

- Shared use paths must be demarcated.

No maximum width for footways – ideal width is 2.0 m.

3.5 m - 4.0 m in commercial areas.

Street trees standards

Portland 2002

- Encourages trees and specifies uses e.g. to delineate on-street parking spaces.

- Should not interfere with driver sightlines.

- Off-set of 2 ft for drainage purposes.

Possible need to investigate how WA policy can better accommodate trees in urban areas where speeds are

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Topic Location

or document

Key Findings Key points / relevance to this work

CSS, ITE 2005

- Reinforces benefits – buffer for pedestrians, comfort, and climate.

- Must not interfere with sightlines.

- Cover with grates to provide even surface.

- Off-set of 18 inches for drainage purposes.

Manual for Streets UK

- Should not impede movement of pedestrians.

lower.

Lane widths Portland 2002

- Subject to land use and road function.

- 3.0 m-4.2 m per lane depending on speed, volume and composition of traffic.

Minimum of 3.0 for lane width.

CSS, ITE 2005

- Reduce lane width to accommodate non car users.

- Minimum lane width of 10 feet (3.0m) may be used where operating speeds are less than 30 mph. 11ft appropriate for most circumstances and 12 ft above 40 mph. Where trucks are present lanes may be 13ft -15ft.

- Avoid combining minimum width dimensions for all modes in the ROW.

- Median width should be reduced where lanes are wide to reduce pedestrian crossing distance.

- Turn lanes of 10 ft-11 ft are appropriate for most vehicles.

- Wider travel lanes only have a small increase on overall traffic capacity.

Minimum of 3.0 for lane width.

Manual for Streets UK

- Lists factors to be considered in deciding width, but does not give dimensions.

Again, does not prescribe minimums – consider extent to which a design manual such as this which is truly context sensitive could work in Perth.

Bus stop locations - embayment’s

Portland 2002

- At intervals of 200 m-400 m in areas of higher intensity land use, in CBD 182m -274 m is recommended.

- Minimum bus stop width of 3 m.

Guidelines in line with Perth e.g. use of embayment’s not advocated unless speeds dictate and bus stops can be

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Topic Location

or document

Key Findings Key points / relevance to this work

CSS, ITE 2005

- At intervals of max 152 m in urban centre; general urban area with more than 1931 people per square kilometre – 213 mt-274 m; suburban 1351-1931 people per square kilometre – 274 m-396 m.

- If buses cannot stop in traffic a pull out is preferred but bus turnouts should only be used under certain conditions due to delay when entering traffic. These conditions occur when speed exceeds 40 mph, peak period dwell time exceeds 30 seconds, the frequency of accidents is high, traffic exceeds 250 per hour or bus volumes exceed 10 or more per hour in the kerbside lane.

Manual for Streets UK

- Buses should be situated near intersections to improve access even if capacity is affected.

located near intersections.

Urban kerb radius

Portland 2002

- Typical urban intersection – 3.0 m-7.6 m maximum radius is sufficient.

- In an area servicing regular truck movements a 12 m radius may be required.

Recommends 3.0m-7.6m maximum curb radius where trucks are infrequent.

CSS, ITE 2005

- Curb radii should be designed to accommodate the largest vehicle size frequently turning the corner – assumes that the occasional large vehicle can encroach into the opposite lane.

- In areas where pedestrian activity is more intensive, curb radii should be as small as possible.

- Curb radii of different lengths can be used on different corners of the same intersection. Flexibility in design of radii dependent on – choice of design vehicle, dimensions of approach and receiving lane, curb return radius itself.

- In urban centres at intersections with no vehicle returns the min curb radius should be 5 ft (1.5 m). A typical curb return radius of 10 ft (3.0 m) to 15 ft (4.6 m) should be used where: high pedestrian volumes are present or anticipated; volumes of turning vehicles are low; width of the receiving lane can accommodate a turning vehicle without it encroaching into the opposing lane; passenger vehicles are the most frequent; bicycle and parking lanes create additional space; low turning speeds are required or desired; occasional encroachment of larger vehicles into the opposing lane is acceptable.

Curb radii should be designed to accommodate the largest vehicle size frequently turning the corner – assumes that the occasional large vehicles can encroach into the opposite lane. Where pedestrian activity is more intensive, curb radii should be as small as possible.

A typical curb return radius of 10 ft (3.0 m) to 15 ft (4.6 m) should be used.

Manual for Streets UK

- Large vehicles may need whole carriageway to turn at small radii.

- Large curb radii can be used without interrupting the pedestrian line of travel if the footway is built out at the corners. If large radii cause excessive speeds consider lifting the roadway surface at the intersection so it is level with the footpath.

Large curb radii can be used without interrupting the pedestrian line of travel if the footway is built out at the corners. If large radii cause excessive speeds consider lifting the roadway

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- It is recommended that intersections are designed to promote slow vehicle speeds; this may include small corner radii or raising the roadway.

- Bus routes in residential areas are likely to need a more generous swept path; while encroaching is acceptable for trucks it may not be so for buses. The amount of space provided should consider the frequency of buses and the likelihood of buses coming from opposite directions.

surface at the intersection so it is level with the footpath.

Channelised left turns

Portland 2002

- Channelised right turns (left in Australia) should be avoided – however, guidelines can be exempt in areas of extremely low pedestrian volume and a high volume of large vehicles.

Channelised turns to be avoided.

CSS, ITE 2005

- Unless careful thought is given to design, channelised turn will have a detrimental effect on pedestrian activity. Channelised turns should be avoided where pedestrian activity is high.

- A volume of 200-300 vehicles per hour should be the acceptable range for the provision of right turn lanes. Once the right turn lane is deemed necessary the channelised island should be designed in favour of pedestrians. Right turn lanes should be for speeds between 5-10 mph.

- Consider channelised right turns at complex multilane intersections to assist pedestrians to negotiate crossing.

- If a channelised right turn is justified and all other options have been considered and rejected the following design features should be incorporated:

o low angle right turn (112 degrees)

o ensure islands are accessible and of sufficient size (150 sqft) such that pedestrians are a minimum of 4 ft from the curb face in all directions. The island has to be large enough to accommodate curb ramps or channels cut through the island flush with the road surface

o unless the right turn lane is used frequently by large vehicles it should be no larger than 16 ft and have painted edges to restrict the turn radii of smaller vehicles into a 12 ft wide space to slow their speeds

o reminder signs to drivers that they must give way to pedestrians are likely to be needed in the right turn lanes

o signalisation may be necessary when there is/are multiple right turn lanes, something inherently unsafe about the unsignallised crossing, or high pedestrian/vehicle accidents.

Channelised turns to be avoided.

Manual for Streets UK

Not reported on

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Design of urban intersections – size of roundabouts

Portland 2002

- Raised medians should extend into the intersection the same distance as the curb return.

- The preferred location for pedestrian crossings is at intersections.

- Strategies should be considered before increasing the number of lanes beyond three in each direction including considering roundabouts as a possible design solution to address intersection delay (this may be at the expense of pedestrian movement if roundabouts are large and traffic speeds are high).

Pedestrian guidelines

- Set pedestrian crossing times at signalised intersections for 3.5ft (1.0m) per second.

- Striped crosswalks should be placed at all signalised intersections.

- Striped crosswalks at all intersections (no matter what type) near schools.

- In general provide striped crosswalks at stop controlled intersections when the maximum pedestrian crossing volume (for a peak of 4 hrs) exceeds 25 per hour when average daily traffic meets with guidelines specified in three reference documents.

- When the crossing is used by high numbers of children or elderly pedestrians the crossing volume decreases to 10 per hour.

- Provide pedestrian pushbuttons at all signalised intersections and in high volume locations provide a walk phase every cycle.

- Consider special paving treatments for crosswalks (colour, brick type).

- Provide ADA compliant wheelchair ramps (2 per corner) at all intersections.

- Avoid intersections with double left or right turn lanes, particularly when one is a shared through lane.

- Reduce width at intersections by providing curb extensions equal to the width of the parking lane (but not interfering with cycle lanes) or reduce curb radius to the minimum stated under the curb return radius section. This is not necessary in narrow lane streets and not advisable at intersections with exclusive right turn lanes (in Australia left turn lanes), or areas with high volumes of large trucks turning right (in Australia left).

- Avoid placement of crosswalks on the right hand side (left in Australia) of unsignallised ‘T’ intersections (where pedestrians cross in front of left turns (right in Australia) from major streets), this is to minimise pedestrian/vehicle conflict.

Bicycle lanes

- Bike lanes should extend up to intersection stop lines, or crosswalks.

Safety implications of roundabouts well recognised as in Australia, but use still allowed.

Possibly need to consider extent to which policy such as compulsory provision of crossings needs to be integrated with design guidelines.

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- At intersections with exclusive right turn lanes (left turn lane in Australia), transition the bike lane to the left (right in Australia) of the right turn lane (left turn lane in Australia).

- Avoid intersections with dual right turn lanes (left turn lanes in Australia), particularly when one of these is a shared through lane.

- Install bicycle loop detectors at intersections with loop detectors.

- Provide a bike clearance at intervals at signalised intersections to accommodate a 10 mph (16 kph) crossing.

CSS, ITE 2005

Roundabouts

- The purpose should be to provide vehicles with free-flow capability through the intersection at reduced speeds to enhance pedestrian and cyclist safety.

- Roundabouts are not always appropriate; consideration should be given to design vehicles, use by people with disabilities; and effects on pedestrian route directness.

- Roundabouts design should reduce the relative speeds between conflicting traffic streams.

- Pedestrian crossings should be located approx 25 ft from the entry point.

- Bicyclists can be either integrated with the flow of traffic, diverted off and onto a shared sidewalk, or a combination of these.

- Single lane roundabouts can accommodate up to 20,000 vehicles per day, double lanes up to 40,000 vehicles per day.

- When considering double lane roundabouts also consider moving pedestrian crossings mid-block away from the roundabout.

- Sight distance needs to be maintained at the roundabout.

- Appropriate signage needs to be present.

Crossings/intersections

- Pedestrians must be able to cross streets and highways at regular intervals no more than 300 ft-400 ft out of their way.

- Provide marked crosswalks at all urban signalised intersections and provide a marked crosswalk at intersections controlled by stop signs where the minimisation of vehicle-pedestrian conflicts is especially important. - Bicycle lanes should be striped right up to the stop sign or crosswalk. - On intersections with an exclusive right-turn (left turn) lane the bicycle lane should be located on the left (right) of that right-turn (left turn) lane. - Where there are a number of left-turning (right turning) bicycles, a left-turn (right turn) lane

Safety implications of roundabouts well recognised, as in Australia, but use still allowed.

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may be provided on approach to the intersection. The lane should be located between the vehicular left-turn (right turn) lane and the adjacent through lane so that cyclists can keep to the outside as they turn left (right).

Manual for Streets UK

Roundabouts - Conventional roundabouts are generally not appropriate for residential areas because capacity advantages are not needed; negative impact on vulnerable road users; and they do little for the street aesthetic. - Large roundabouts are inconvenient for pedestrians because they deflect from desired lines of travel and it is hard to anticipate the movement of motor vehicles on, entering or leaving the roundabout. - Small roundabouts may be suitable in residential areas as they cause less deviation for pedestrians; are easier for cyclists to use; occupy less land area.

- Continental-style roundabouts may also be suitable for residential areas; these roundabouts are larger than mini-roundabouts and retain the centre island, but they also have minimal flare at entry and exit points and a single lane carriageway. This geometry reduces entry, circulatory, and exit speeds and is safer for cyclists as drivers cannot pass while on the roundabout.

Pedestrian treatment at crossings

- Footbridges and subways should be avoided unless conditions make them necessary.

- Should facilitate direct pedestrian desire lines, which means using smaller corner radii.

- Intersections can be marked to indicate which streets have priority over others. On quieter streets no markings may encourage motorists to slow down.

- Staggering the intersecting roads can reduce vehicle conflict at intersections but may reduce directness for pedestrians.

- Where designers are concerned about potential user conflict, may consider placing the intersection on a speed table (raising the road surface to level with the kerb) - alternatively, designers could close one arm of the intersection to vehicles.

Safety implications of roundabouts well recognised, as in Australia, but use still allowed.

Planning systems

Portland, Oregon

- Framework is the 2040 Growth Concept Plan (GCP) developed by Metro and the 2035 Regional Transportation Plan (RTP). RTP contains Federal component and State law, local plans in Metropolitan Portland areas must be consistent with this. Likewise, the RTP must in turn be consistent with the Oregon Transportation Plan amended in 2006.

- Creating Liveable Streets: Street Design Guidelines 2nd Edition design manual was developed by Metro in 2002 and is linked to the Portland 2040 Growth Project.

No comment on extent to which consistency with strategic documents is managed/monitored.

- Approval requirements are necessary for any work that is carried out on municipal streets. Possible recommendation of this

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study.

- There are three ways in which Metro influences the allocation of federal funding.

1) All projects that receive federal transportation funding must be included in the Regional Transportation Plan.

2) Spending is managed through the Metropolitan Transportation Improvement Program (MTIP), a four year program of projects identified to receive federal funds balanced against the forecasted availability of federal funds.

3) Metro coordinates the allocation of regional flexible funds every two years from the combination of two federal grant programs: the Surface Transportation Program and the Congestion Mitigation/Air Quality Program.

Idea of integrated planning – no ad-hoc funding.

Idea of multi-year and bi-annual allocations and a ‘surface transport program,’ where different modes might compete for funding, and special programs based on strategic objective e.g. air quality This is similar to London where boroughs submit a spending plan containing bids against various program areas.

- The 2040 Growth Concept land uses, called 2040 Design Types, are arranged in a hierarchy. The hierarchy serves as a framework for prioritising Regional Transport Plan investments. Primary and secondary levels receive RTP funding e.g. central city, town centres. Only developed or developing (not undeveloped areas) are funded.

- Hierarchy applies only to developed and developing areas.

This is a concept which might partially occur in Directions 2031 within the Activity Centres Hierarchy.

- New actions in Cycling Masterplan (2009).

- Strengthen city policies in support of cycling and extend the network by circa 280 miles.

Relevant in terms of strengthening policies to ensure that cycling is promoted – could be a recommendation for mandating this when development control policy is reviewed.

Denver, Colorado

- Blueprint Denver develops coordinated land-use and transportation system vision city-wide. There are three tools:

1. Regulatory tools that define the type and intensity of new development and prescribe design and development standards to achieve an area’s overall urban design goals.

2. Public infrastructure investments, such as a park or light-rail line to make it more attractive to private investment.

3. Public-private partnerships which involve using public funds or activities to directly foster private investment and development activity. As an extension of this the Strategic Transportation Plan (STP) was developed.

All three tools relevant.

Idea of regulation and introducing public-private partnerships to advance objectives.

Perth does not have an Integrated Transport Plan.

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- Design is not conducted at a neighbourhood or place level. City/County has used travel sheds as a means to delineate between areas. The design of each area in turn is influenced heavily by the people using that space. A travel shed takes a broad look at the collection of streets and mobility routes that feed into the larger, connected transportation system. There are 12 identified travel sheds based on areas that share similar characteristics, such as trips that start and finish in the same area and geographic features that create barriers to travel movement.

Travel sheds could be applied to Perth – especially since there are many local government areas.

- In terms of walking, streets in the network were selected based on their ability to connect pedestrians from one civic place to another, to provide access to transit, and to accommodate infrastructure that encourages pedestrian travel. The Pedestrian Plan recommends prioritising improvements on the most underdeveloped streets in the network.

There is no strategic walking network in Perth – in London there is a strategic network of 12 walking routes; these are the focus of annual funding. Could be intermediate step to providing more funding for pedestrian improvements in the future.

- Bike Plan addresses seven key issues which include improvements to Denver’s Grid Route System; Downtown Bicycling; Major Missing Links; Parks & Trails; Recreational Bicycling; Transit Access and Accommodations; Advocacy.

More information required about the grid route system.

Focus on CBD cycling important.

- Blueprint Denver distributes forecasted growth to Areas of Change, where it will be most beneficial, and away from Areas of Stability, where it may have some negative consequences.

This occurs to some extent naturally in Perth whereby the extent to which new development can occur is limited because of the level of existing development.

- Both Denver and Portland have used bond systems and accessed Federal funding to action their pedestrian plans. This is an important factor to note as presently there is no allocated funding at Federal and State levels set aside specifically for pedestrian improvements in Metropolitan Perth or Western Australia.

Increased funding for retrospective pedestrian infrastructure should be a recommendation of this study.

Vancouver British Columbia

- City Council has set a list of transportation priorities in the following order: pedestrian, bicycle, transit, movement of goods, and private automobile. All existing and new projects in the City are evaluated with these priorities in mind.

Recommendation of this study is to adopt a user hierarchy and accompanying evaluation approach for all new projects – this could be supported by audit processes.

- Speed Control, Priority Control and Road Access are addressed by the Master Municipal Construction Document (MMCD).

Further work needed on traffic control through road design to convey to

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- There are design specifications for all pedestrian related footpath designs (including traffic calming devices) and for Vancouver are outlined in a planning guideline called the Street Restoration Manual.

- The Streets Restoration Manual is a supplement to the MMCD. There is a focus on traffic control through road design (i.e. narrow streets) present also in the MMCD Green Design Guidelines.

- Furthermore, the Municipalities of British Columbia have proposed a blanket 40 kph speed limit in all residential zones (similar to our 50 kph limit) and they already have 30 kph zones around schools and playgrounds.

designers what is acceptable; lowering speed is seen as going against the norm and design speeds are high.

Need for appraisal of extent to which design guidelines are facilitating accessible communities.

- Greenways in Vancouver are linear public corridors for pedestrians and cyclists that connect parks, nature reserves, cultural features, historic sites, neighbourhoods and retail areas.

Possible program for WA – routes in existence e.g. Swan routes and Burswood – just needs formalising – ‘politically pleasant’. Meets needs of children. Europe and England have programs.

- Land use and spatial planning occurs at a local level within the City of Vancouver. Rather than operating a Masterplan for the entire city, individual precincts are dealt with separately. The transportation plan, in effect, links these communities/precincts together.

Idea of travel sheds / precinct planning e.g. not based on LG or development parcels. Similar to structure planning? Role of transport plans in linking distinct areas.

- Rezoning policy for greener larger sites:

- Rezoning on sites of generally two acres or more will need to meet a number of sustainability measures in addition to those required in the Rezoning Policy for Greener Buildings.

This would be a Liveable Neighbourhoods type policy.

- The City of Vancouver is interesting as a case study as, similar to Portland and Oregon, the extent of influence the City covers a large area. In Vancouver this is through an association of local government associations called the Greater Vancouver Regional Authority. Similar organisations exist in Western Australia as regional metropolitan councils. The key difference is that the GVRA covers all metropolitan councils; the WA metropolitan councils are fractured and have differing perceptions regarding their key roles (planning, waste management, shared services).

Increased role for WALGA or Local Government Advisory Committee based on representatives from assigned sectors?

New Zealand

- National level: National walking and cycling strategy (Ministry of Transport, 2003).

- Policy and Strategy: City-wide and local council.

Retrospective pedestrian infrastructure funding required in Perth.

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- Councils can get funding from the NZ Transport Agency under the different categories: pedestrian facilities, cycling facilities, travel demand management, road maintenance (lighting, amenity, safety maintenance) and minor improvements.

- Land Transport NZ currently facilitates the preparation of local and regional council walking and cycling strategies by subsidising the cost of this work with an increased financial assistance rate of 75% (2004/05 and 2005/06). The state highway network including any associated walking and cycling facilities is fully funded by Land Transport NZ. Planning for state highway walking and cycling facilities is usually undertaken in conjunction with (and often by) the local authority through a walking and cycling strategy, although planning is sometimes done through a regional land transport strategy or a state highway 10 year plan.

Not dissimilar to Perth but high priority placed on walking and cycling facilities.

- There are also a number of areas ensuring an integrated transport system that are not visible in our planning system (e.g. Public transport accessibility levels).

Require public transport accessibility measurement for development control – to be integrated into Transport Assessment.

- Neighbourhood accessibility planning implemented in urban areas where pedestrians and cyclists are at high risk of injury or in areas with ‘strategic significance’ (e.g. in areas where it is beneficial to improve linkages to passenger transport).

Neighbourhood accessibility planning links back to concept of ‘Area Based Schemes’ where more than one mode is considered. Possible recommendation of this study.

- Pedestrian and cycling design and network planning guidelines that sit below Austroads and education courses provided by government about them.

Perth – specific guidelines recommended by Perth Bicycle Network review – needed to convey local vision and network planning advice.

- At a local level, councils are ‘educated’ on the best practice of preparing walking and cycling strategy documents.

Guidance / template required on appropriate content – with evaluation by State Government. Should be linked funding.

Planning policies

Scottish Planning Policy 17

- At local government level, Development Plans lie at the heart of the planning system. Development Plans are made up of 2 parts:

1. Structure plans – long-term view of development, broadly where it should be located. Each council prepares a structure plan either along or working with neighbouring councils; after consultation with the public and other interested organisations, the council submits a

Ensures link from structure plan to local plan – local plan must follow on.

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structure plan to local government for approval.

2. Local plans – usually used for smaller areas, set out more detailed policies and proposals to guide development. Councils must consult on the content. Basis for decision making in the area and if the plan is not in line with the approved structure plan, no decisions to develop locally can be undertaken.

- The local council is responsible for enforcement to ensure that developments have the necessary planning permissions and are in line with any conditions which have been set. The local council can decide what action to take to reconcile the problem that breaks the planning rules. If a council does not take suitable action, it can be reported to the Commissioner for Land Administration in Scotland. Councils also have the power to issue notices detailing the action needed to correct it. Failure to act on these notices is a criminal offence.

Key gap – need to introduce system of enforcement in collaboration with local government. Link to recommendation for system of outcome monitoring.

- Statement of Planning Policy 17 – Planning for transport; this policy is essentially a land use planning policy but initiates the linkage between land use policy and transport policy.

o integration of land use, economic development, environmental issues and transport planning

o introduction of parking standards

o avocation of Travel Plans to support/enable adoption of maximum parking standards

o revised transport assessment ( TA) methodology

o TAs should focus on delivering an 'appropriate non-car mode share'

o transport appraisal and modelling outcomes to be used to inform decision making

o new development should be accessible by public transport accessing a range of destinations, with Development Plans providing clear guidance on requirements

o support for public transport contributions as part of planning agreements.

Key gap – accessible communities policy at State level which bridges gap between planning and transport and summarises transport ‘tools’ to promote accessible communities.

- Outcomes of a review by the Scottish Government of SPP17:

• The lack of consideration of transport issues in the detailed local planning brief considered is a concern, if this is reflected more widely.

• The limited focus on sustainable access issues at the early stage in the development planning process is a concern, particularly as it is likely (and certainly the intention) that such a brief should set the tone for the subsequent development of the site. There was a significant level of support for SPP17 and the principles that it promotes; however, there are issues with its implementation, for example the following issues were identified

Similar issues common to Perth – lack of consideration of public transport early on in process, poor integration, lack of resources, poor strategic linkages.

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as presenting significant problems in implementing SPP17 (in descending order of significance):

o lack of control of public transport

o lack of integrated working between authorities

o conflicts with the local political agenda

o lack of integrated working within authorities

o lack of funding

o conflicts with National economic objectives

o conflicts with local economic objectives;

o conflicts with the National political agenda

o lack of resources.

- Travel plans and public transport are part of the planning application lodged with the local city council. General traffic and construction traffic are part of the planning application.

Travel plans may need to be a requirement of transport assessment. WA guidelines on TA need to be finalised and this could be picked up then.

- Councils have the power to ensure that secure, sheltered cycle parking is conveniently located to building entrances.

- The Transport Assessment and Implementation Guide was published alongside SPP 17and developers develop a plan for non car mode share in respect of access to the proposed development.

Use of regulatory powers – not advisory.

Onus on developers to prove non-car access.

- Development planning authorities are required to prepare a spatial strategy. This is a broadly-based statement of proposals as to the development and use of land in the area.

- An analysis of the relationship with development and land use proposals in neighbouring areas that are likely to affect the strategic development plan area.

Idea of reinforcing linkages across boundaries of neighbouring areas.

- The new development proposals submitted for approval to the planning authority which in turn consults with the roads authority on street design issues. The safe movement network may include:

o preliminary street designs and layouts

o design statement

Similar to Transport Assessment in Perth – but for travel plan requirement.

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o design codes

o a Transport Assessment

o a Travel Plan

o an Environmental statement

o a sustainability Appraisal.

- Designing streets: there is a user hierarchy where pedestrians are considered first. Seen in other cities too – adopt in Perth.

- New developments: Local authorities can create development teams for all relevant departments with an interest in street design to work together during the design and approval process

Collaborative involvement of various groups required in Perth – translate into recommendation.

- A Working Party was formed to consider issues associated with implementation of SPP17:

o guide to roles and responsibilities - both authorities and developers

o guidance on the appropriate level of appraisal and modelling of transportation proposals at the various stages of the development process

o at the second stage of development, all travel modes and mobility’s are included in the appraisal process, in order to encourage the use of walking, cycling and public transport. User hierarchy is to consider pedestrians first, followed by cyclists, public transport users, specialist service vehicles and lastly other motor vehicles

o clear and consistent approach to the application of parking standards, which nevertheless recognises differences in city, large town, small town and rural areas

o further guidance on the principles, basis and approach to agreeing developer contributions

o guidance on the mechanisms for developing, providing and supporting rail and bus infrastructure and services

o guidance on accessibility analysis

o Scottish Government and Transport Scotland take forward the adoption of the Manual for Streets in Scotland with local authorities being encouraged to adopt the emerging guidance

o Scottish Government and Transport Scotland consider a review of SPP17 to reflect the change in the wider sustainability agenda and institutional set-up since its original publication

Recommendations for this study could reflect need for:

- timeframes for consideration of modes

- improved guidance / flexibility in parking standards

- guidance on developer contributions

- accessibility analysis

- manual for Streets

- State policy review

- monitoring on policy content (e.g. not like with development control policies)

- system for early involvement of required parties – development panel

- outcome monitoring against targets and KPIs established at outset of project.

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o Scottish Government repeats the questionnaire element of this commission on an on-going basis and at regular intervals to provide information on the trends associated with implementation of SPP17

o a more integrated approach with roads engineers being fully involved throughout the design and development stage so that detailed planning stage can move through the technical approval stage without requiring any significant changes. Early involvement of the Local Authority officers involved with road construction consents is vital

o monitoring: this is undertaken to ensure continuity of a Masterplan which is prepared in detail. Monitoring is used to see how improvements to street environments can be redesigned to function in practice

o set targets at local council level for non motorised mode share.

England - Local council or planning authorities should set out their requirements through the core strategy development plan in line with the national policies.

Strategic linkages to regional policy.

- Priority to be given to people over ease of traffic movement and plan more road space for pedestrians, cyclists and public transport in town centres and local neighbourhoods when implementing planning policies and traffic management schemes and in the design of individual developments to widen transport choices for passenger and freight.

- Compliance must be in accordance with the regional planning guideline which sets out a strategic framework through the use of public transport accessibility criteria.

User hierarchy.

Accessibility measure for public transport.

- Local planning authorities are required to submit annual monitoring reports to the Secretary of State which must cover performance against defined output indicators (e.g. amount of leisure development in town centres, completed office and retail development) and where policies not being implemented, the reasons why.

Outcome monitoring – allows ongoing review of effectiveness of processes rather than, or in addition to, more formal periodic review.

- Cycle parking in developments to increase and car bays decrease. A consistent approach on parking is set out in the regional transport strategy to avoid competition between different locations based on supply or cost of parking.

Relevant to required clarification of parking policy and standards.

- Transport assessments should be prepared and submitted alongside the relevant planning applications for development. The coverage and detail of the transport assessment should reflect the scale of development and the extent of the transport implications of the proposal. The assessment should illustrate accessibility to the site by all modes and the likely modal split of journeys to and from the site. It should also give details of proposed measures to improve access by public transport, walking and cycling to reduce the need for parking associated with the proposal and to mitigate transport impacts. Where

Relevant to WA transport assessment procedures.

Relevant to required review of parking policy and standards.

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appropriate, a travel plan should be included.

- The regional transport strategy sets out the context for parking controls and charges by each local authority and within this context, local authorities set out appropriate levels and charges for parking so that the vitality of town centres is not compromised.

Successful systematic approaches

Vancouver

- Cycle infrastructure will only be funded if it is part of an integrated cycle plan that links and extends the existing network.

Use of integrated transport plans to identify funding priorities.

- Bicycle parking by-law. Depending on building use, new developments are required by law to have bicycle racks (class B) installed. If it is deemed necessary underground secure facilities must also be installed (class A) and if this occurs then showers and change rooms must also be provided under this by-law.

Idea of regulating for end-of-trip facilities. Could extend to other areas.

Portland - The state of Oregon passed legislation called ‘The Bicycle Bill’. This stipulates that 1% of all state highway funding must be spent on cycling and pedestrian infrastructure. This 1% is a minimum figure, there is no maximum.

Insufficient funding in Perth – idea that funding for various modes should be evaluated side by side using triple bottom line criteria of social, economic and environmental.

- Furthermore, unspent amounts can be put into a reserve that can be rolled over for a period of 10 years. This bill is independent from a separate stipulation that all new roads must include cycling and pedestrian paths.

Not being able to roll over funding makes it difficult for local government to commit to large schemes that have the potential to make a difference.

- Lastly the Oregon Vehicle Codes (i.e. traffic laws) are designed to protect cyclists and pedestrians. For example, Oregon crosswalk laws designate all intersections as unmarked crosswalks, marked crosswalks. There are also mid-block marked crosswalks. For intersections, motor vehicles must give way to pedestrians and cannot cross until all pedestrians are clear of the lane plus 6 ft of the adjacent lane before proceeding.

Increased priority for non car modes required. Particular requirements could be highlighted in State planning policy for accessible communities.

2035 Portland Region Transport Plan which states:

3.3.5. Provide for audible signals, tactile strips and appropriately timed signalized crosswalks at major retail centres, near bus stops on arterial streets, high volume neighbourhood circulators or other major arterial streets near elderly or disabled facilities or in neighbourhoods with significant elderly or populations with disabilities.

3.3.6. Complete gaps in the bicycle and pedestrian networks.

3.3.7. Provide short and direct pedestrian crossings at transit stops and marked crossings at regional transit stops.

Links back to need for State planning policy for accessible communities that reduces gap between planning and transport. Could specify priority treatments e.g. head start facilities etc. and other infrastructure that must be incorporated into development.

Idea of transport asset database

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3.3.8. Provide crossings and continuous sidewalks along both sides of all arterial streets with sidewalks and crossings that connect to side streets, buildings and transit stops.

3.3.9. Provide innovative, flexible, attractive and cost-effective alternatives to standard fixed route buses, rail and para-transit services to increase available options to elders and people with disabilities.

3.3.10. Expand outreach and education on how to use multi-modal transportation services.

3.3.11. Maintain and periodically update regional pedestrian and bicycle system inventories in coordination with TriMet, Transport and local agencies.

3.3.12. Coordinate transportation and land uses to reduce barriers to non-motorized travel by reducing travel lengths from residential to worksites, schools, food and services.

important for monitoring and linking improvements.

Armadale Perth

- The Wungong Urban Water Project’s Developer Contribution Scheme (DCS) identifies various scheme costs that are to be shared among all landowners on an equitable basis as there are a variety of lot sizes and ownerships. Landowner (developer) contributions are separated into scheme works and cell works. The scheme works are district-wide infrastructure that includes major transport items such as footpaths, schools, activity centres, public transport, road avenues (road with avenue of trees) and linear parkland. Landowners contribute to scheme works based on net size of their development area and the intensity of the area to be developed. Cell works contributions are calculated similarly but if a developer has no land in that cell.

- A Masterplan has been developed for the development at a district level. This will form the basis for the development of separate structure plans for each of the 13 cells. The sequencing of this is based on cash-flow and timing of landowner subdivision. Agreements regarding the scope, cost, and timing of works are reached with landowners prior to development occurring to allow the Armadale Redevelopment Authority to adequately manage cash-flow and infrastructure works.

Guidance required on obtaining and managing developer contributions from different sources, for different capital uses.

3 PART 2: Local Practice

3.1 Overview

This section firstly provides an overview of current planning and transport frameworks and systems in Western Australia; and secondly provides a summary of a review of Western Australian strategies and policies, the results of which have assisted in identifying areas of concern as part of a Gap Analysis (Part 3). Given the substantial number of documents that required review, the results of this process are reflected in table format showing key comments and suggested actions for each.

It should be noted that the scope of this study is largely confined to the consideration of planning policy relating to accessible communities. Therefore this overview is not intended to be analytical, to any depth, in regard to the appropriateness of overarching planning and transport systems.

3.2 Planning frameworks

Accessible communities and specifically travel behaviour are influenced through a complex system of inter-relationships. No single element or factor can be said to cause a change in travel behaviour. Likewise, the ways in which government can influence travel behaviour through planning, infrastructure design, and travel demand management are also complex and inter-related. Opportunities for active travel arise from combinations of factors in the environment, which are likely to vary in different contexts. Responsibilities lie with planning authorities, government agencies, local government and with the private sector and individuals. In order to capitalise on the opportunities to change travel behaviour by influencing the environment, it is necessary to take a systematic approach.

At state level the State Planning Strategy provides strategic planning guidance on matters of state significance as well as at regional and local levels. Various policies (WAPC and local government), schemes (regional and local town planning) and plans (regional, district and local) make up the planning process in Western Australia. There are two components of town planning: strategic planning and statutory planning.

Strategic planning focuses on the ‘big picture’, long-term and regional planning in WA while statutory planning is the legal arm where legislation and regulations ensure appropriate land use and development controls.

FIGURE 2 provides an overview of the planning system in Western Australia. The Model Scheme Text is the statutory instrument that is used in region schemes, town planning schemes, subdivision and development. The Regional, District and Local Structure Plans must have ‘due regard’ for the State Planning Strategy and the Sustainability Strategy. Operational policies are derived from State Planning Policies and guide local level policy, schemes and subsequent subdivision and development. They include documents such as Liveable Neighbourhoods and the development control polices.

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FIGURE 2 - STATE PLANNING PROCESS17,18

FIGURE 3 also gives an overview of the planning system in Western Australia and highlights the interrelationships between the various components and shows in yellow highlight those components that are supported and bound by legislation. Policies to facilitate accessible communities need to be applied at the local level (local structure plans etc.) and more comprehensively via the integration of accessible communities’ principles within the Model Scheme Text. A range of planning considerations needs to be balanced with accessible communities including heritage issues, fire regulations and environmental concerns.

17 Note – Liveable Neighbourhoods is technically an Operational Policy. 18 State Designing Out Crime Strategy - Office of Crime Prevention, Government of Western

Australia, 2007.

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FIGURE 3 - PLANNING PROCESS19

Local government have dual approval powers on structure plans in conjunction with the WAPC. They comment on subdivisions and clear conditions giving them powers in the layout and design of streets and spaces. Local governments also have delegated powers to assess private developments including strata development and also have access to state and federal funding for strategies, plans and construction projects through a wide range of funding grant schemes.

In summary, these are some of the criteria that will ensure success in the creation of accessible communities:

• The Government provides the mandate for fostering accessible communities.

• The Cabinet Standing Committee on Planning and Development ensures high-level engagement of Government in the Strategy.

• The Department of Planning coordinates across-government collaboration and implementation.

• The Western Australian Planning Commission ensures implementation is delivered, in accordance to its policies across the WA community.

19 State Designing Out Crime Strategy - Office of Crime Prevention, Government of Western

Australia, 2007.

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• Other government agencies provide their specialist expertise and resources to accessible communities’ partnerships and programs.

• Local community partnerships and plans will set local accessible communities priorities and actions for development. The plans enable increased local community participation and engagement of local services.

3.3 Transport frameworks

Transport planning and transport policy are intrinsic to the creation of accessible communities. The facilitation of active travel, by its very nature, is a complex process with many different stakeholders, departments and agencies. This section outlines the role of various agencies in delivering the key transport programs in Perth that promote sustainable modes of travel. This section also broadly identifies the guidelines and standards that support and in some cases determine the development of transport infrastructure and the design of roads and streets.

3.3.1 Delivery of transport programs

The responsibility for planning and managing the Metropolitan Transport System lies with four key agencies, the Department of Planning (DP), Department of Transport (Transport) (formerly Department for Planning and Infrastructure), the Public Transport Authority and Main Roads Western Australia (MRWA). Local governments have a key role in developing local networks to respond to growth as well as ensuring the day-to-day operation of the network. Other organisations such as the Governments Physical Activity Taskforce and the Disability Services Commission have a particular interest in the area of active travel and accessible design.

As well as being regulatory the DP/Transport are the agencies responsible for transport network and infrastructure planning, establishing integrated transport policies and delivering transport programs. These relate to TravelSmart, walking, cycling, strategic corridor planning and the development of movement strategies for freight and general traffic.

In terms of overarching policy, the Metropolitan Transport Strategy (1995) was superseded by Network City (2004). Directions 2031: Draft Spatial Framework for Perth and Peel (2009) will now become the key strategy for directing transport planning.

TravelSmart is a suite of community-focussed programs managed by the Department of Transport to encourage the replacement of trips taken by car with walking, cycling and public transport trips. TravelSmart involves working with individuals (in a household setting) and local communities, including local governments, schools, universities, hospitals and workplaces, to help them self-manage the process of travel behaviour change. In this way, TravelSmart helps to build individual capacity, as well as the capacity of organisations and institutions to influence the travel behaviour of their staff and customers. TravelSmart initiatives include:

• TravelSmart Household, which uses a technique called individualised marketing, whereby individual households are contacted to inform them of their travel choices, provide tailored information related to alternative transport modes, and provide

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ongoing motivation to support behaviour change. This program has recently been integrated with the Living Smart program to tackle household demand for water, energy, waste and travel.

• TravelSmart Local Government Officer Program, which supports the employment of Local Government TravelSmart Officers to promote and provide sustainable transport options for their local community.

• TravelSmart Workplace Program, which through the implementation of workplace travel plans, aims to reduce solo car trips to work by promoting travel alternatives.

• TravelSmart to School, which involves the delivery of school travel initiatives, by local government TravelSmart Officers.

Walking is promoted by Transport through its policy, advocacy and promotional program. The former Department for Planning and Infrastructure and the Physical Activity Taskforce jointly developed the Walk WA Strategy, which is a whole-of-government, whole-of-community strategy. The Walk WA Strategy is currently being implemented with input from key stakeholders across state government, local governments and various non-government agencies and aims to:

• provide strategic management, advocacy and coordination of the Walk WA Strategy

• promote walking

• improve the places where people walk

• improve safety and security of places where people walk

• implement and expand programs and services, which provide opportunities for walking.

Bikewest is the government body (under Transport) responsible for the promotion of cycling within the community and the maintenance and extension of the cycling routes in the Perth area. The Perth Bicycle Network (PBN) is a network of cycling routes for the Perth metropolitan region. The network includes all cycling-related infrastructure throughout metropolitan Perth comprising a mixture of on-road (bicycle lanes), off-road (shared paths) and end-of-trip facilities (bicycle parking).

Bikewest coordinates the development of the PBN in partnership with MRWA, the Public Transport Authority and all metropolitan local government authorities. The annual PBN local government Grants Program is the key in the relationship between state and local government for the development of cycling facilities.

Significant progress has been made towards achieving the goals stated in the 1996 PBN plan, but there are still many gaps in the network and a number of routes need progressing. The Department is currently reviewing the PBN plan and readjusting the program to reflect current land use requirements and government policy.

In Perth there are gaps in the funding streams designed to target walking and cycling. For example, there is no funding program for retrospective pedestrian infrastructure other than that funded via the federal Black Spot Program. Similarly, there is no

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dedicated funding stream for cycling infrastructure on main roads and district roads, which are both key to developing successful city-wide networks.

The Public Transport Authority (PTA) is the government body responsible for designing and building public transport infrastructure in Perth and the regional centres and is currently preparing the 20 year Public Transport Plan for Perth.

The Transperth system provides public transport services in the Perth metropolitan region with a network of buses, trains and ferries; with additional services such as plans to extend the northern suburbs rail line in various stages of planning. The PTA is also responsible for a program being delivered in partnership with local government to progressively upgrade bus stops in line with disability access standards. The PTA is represented on the Transit Oriented Development Committee and other transport planning committees for various projects and regions.

In the Perth metropolitan area, MRWA manages some strategic freight routes and all AusLink (National) and state roads. Local governments are responsible for the remaining roads.

On local roads, MRWA is responsible for all road markings and signage (including speed limit signs) and agreeing to the provision of traffic signals. Local government is responsible for considering and funding all road improvements and modifications, including traffic signals whilst the on-going operation of traffic signals is the responsibility of MRWA. MRWA provides, at the request of councils, technical advice to local government about improvements to local roads.

Road safety improvements on local roads are the responsibility of local government to consider and fund. Road and safety improvements and traffic management schemes on local roads can be funded via the State and Federal Black Spot Programs, the Federal “Roads to Recovery” Program and through general State and Federal grants. Local government also funds road and safety improvements from a portion of the rates paid by its residents and businesses.

Local governments have wide and varied approaches to promoting accessibility and active travel. They are responsible for the maintenance of footpaths, for the development of walking, cycling and physical activity plans and the promotion of TravelSmart initiatives, for developing road safety schemes, for undertaking audits of public space and for responding to the Disability Services Act (1993) by developing disability access and inclusion plans aimed to create more accessible local environments. Local governments have also taken on a crime prevention role through ranger services and crime prevention through environmental design. The extent to which these roles are carried out by local governments varies.

As part of this study, a survey was carried out by the former Department for Planning and Infrastructure to identify what transport strategies have been developed by the various local government authorities. A summary of the responses received is in APPENDIX B. Two local governments did not respond.

Most of the local governments have either full or partial strategies in place, and of those that do not, they are either under review, or the local government is too small to have these in place. Some local governments, such as Fremantle, Claremont, Subiaco and

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Rockingham seem to have detailed strategies in place, which target active travel. However, further research is needed to determine how effective and wide ranging the various local government active travel strategies are. It should be noted that many of these strategies have been in place for a considerable length of time and may require updating. Additionally, detailed guidelines on how to develop walking and cycling strategies are not readily available.

The Disability Discrimination Act (1992) (DDA) is a significant piece of legislation that has established minimum requirements to ensure the accessibility of all public transport, including bus stop and footpath access. Continued work is required in this area with respect to refurbishing older infrastructure and accessible links into the communities where services are delivered. A recent review of the implementation of the Transport Standards indicated that achieving the level of effective accessibility the DDA and these Standards were meant to provide is problematic due to inadequate urban design, community infrastructure and facilities.

The Disability Services Commission, established under the Disability Services Act (1993), is the agency responsible for advancing opportunities, community participation and quality of life for people with disabilities. The Commission provides a range of direct services and support and also funds non-government organisations to provide services to people with disabilities, their families and carers.

The Disability Services Commission has recently consulted across the community to inform the development of a long-term plan to guide the wider community responses to Western Australians with disabilities. The plan, Disability Future Directions 2025: A better future for everyone which is nearing completion, identifies a number of priority strategies clustered around three broad areas (a) participation and contribution in all aspects of life, (b) personalised support services, and (c) economic and community foundations. Specifically, the area of economic and community foundations recognises the importance of three key contributing factors in being able to engage in one’s community and access the services necessary:

• economic security

• well-planned and accessible communities

• universally-designed housing.

The strategy states that good planning necessitates the design of new communities in ways that will enable people (with or without disability) to move easily and safely about their community (including homes, footpaths, cafes, schools, parks, and other amenities). This is of key importance as around one-fifth of all Western Australians report that they have a disability, and this will grow to around one-quarter in 15 years time as the population ages.

The Disability Services Act (1993) was amended in December 2004, and requires public authorities by law to develop and implement Disability Access and Inclusion Plans (DAIPs). The purpose of a DAIP is to identify and remove barriers to the participation of people with disabilities such that they can access buildings, services, and information provided by public authorities in Western Australia in a way that facilitates increased independence and inclusion within the community. The DAIP is an important tool in this

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context as it provides an existing mechanism to support the implementation of the outcomes of Accessible Communities.

In a letter to local governments around Australia concerning interpretation of the Disability Standards for Accessible Public Transport, Disability Discrimination Commissioner Graham Innes stated that “Accessible conveyances, premises and infrastructure are made up of various elements that must be linked by a series of access paths that provide a continuous accessible path of travel if the performance requirements of the Standards are to be met…Leaving out required elements or failing to ensure those elements link together on a continuous accessible path of travel would mean that the performance requirements of the Standards are not being met.”

A recent review has identified the unintentional omission of a number of important respondents to the Disability Services Act and its DAIP requirements, including the Western Australian Planning Commission. It has recently been recommended that this be rectified as one of number of proposed changes to the Act as part of the review.

The WAPC will soon have a statutory responsibility to prepare a DAIP and ensure access issues relating to people with disabilities are ultimately incorporated into WAPC policy and approvals. This will underscore to developers and planners that there is an obligation to provide communities that are designed with equitable access for people with disabilities.

3.3.2 Transport guidelines and standards

There are four key sources of transport standards and guidelines for designing transport infrastructure in WA. These are Austroads, MRWA, the Public Transport Authority and to a lesser extent Standards Australia. This section identifies those guidelines and standards relevant to supporting the development of accessible communities. Due to the planning focus of this study, the scope of works did not extend to reviewing all documents listed below.

Austroads

Austroads20 is the association of Australian and New Zealand road transport and traffic authorities. Austroads members are the six Australian states and two territory road transport and traffic authorities, the Department for Infrastructure, Transport, Regional Development and local government, the Australian Local Government Association (ALGA), and the NZ Transport Agency. Austroads’ produce and promote a range of publications, which aim to assist road agencies in the planning, design, construction, maintenance, operation, and stewardship of roads.

Three series of guides are particularly relevant to this study:

• Guide to Traffic Management (for which there are 13 Parts)

• Guide to Road Design (for which there are eight Parts)

• Guide to Road Safety (for which there are nine Parts).

20 http://www.austroads.com.au/about_us.html

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The Austroads Guides have recently been updated. Some guides such as the previous Guide to Traffic Engineering Part 13 (Walking) and Part 14 (Cycling) are not being replaced and will instead be amalgamated into other guides. The principle for this is that walking and cycling should be integrated as core to any road design, safety or traffic management project and practitioners should not be required to consult separate guidelines.

Main Roads Western Australia Guidelines and Standards

MRWA develops guidelines, standards and specifications for use by internal staff, and external consultants working for MRWA. The guidelines generally identify standards by exception, where they deviate from Austroads guidelines or Australian Standards. While a detailed review of the MRWA standards and guides was outside the scope of this study, for reference purposes the relevant guidelines include:

• Geometric Design

o Intersections, Indented Bus Bays, Roundabouts, Railway Crossings, Interchanges, Driveways, Pedestrian and Cyclist Facilities, High Wide Loads, Temporary Alignments in Roadways, Urban Areas

• Traffic Management

o Signs, Directional Sign Guidelines, Pedestrian Crossings, Roadside Advertising, ITS, Local Area Traffic Management, Speed Zones

o Roadside Objects

o Lighting, Emergency Telephones, Road Safety Barriers, Assessment of Roadside Hazards, Fencing & Walls, Stock on Roads, Fauna Underpasses, Guide Posts, Bollards, Kerbing, Arrester Beds, Culway, Roadside Stopping Places, Guidelines for Roadside Services.

Public Transport Authority

There are four guidelines published by the Public Transport Authority that cover the planning, design, construction and maintenance of public transport infrastructure (detailed below). The review of these guidelines and policies was outside the scope of this study; for reference purposes the relevant guidelines include:

• Bus Route Planning and Transit Streets guideline details best practice approaches in urban transport planning principles and policy. It is designed to provide an appreciation of Transperth operating systems.

• Traffic Management and Control Devices Guideline - details best practice approaches of implementing traffic management devices along bus routes.

• Bus Priority Measures: Principles and Design Guideline - details information and bus priority methods and approaches at a regional and local level.

• Public Transport Bus Stop Layout Policy - relates primarily to the application of tactile ground surface indicators (TGSI) and wheelchair access at all new and existing bus stop locations.

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Australian Standards

Standards Australia is recognised by the Government as Australia’s peak standards body. It coordinates standardisation activities and develops internationally aligned standards. Standards Australia publishes standards relating to bicycle and car parking and traffic control devices.

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3.4 Detailed document review

The focus for the review of local practice is on regulations and policies administered by the WAPC with other regulations and policies being discussed where directly relevant. The following summary table provides a comment on whether the intent is aligned with accessible communities. These comments provide a subjective assessment based on the professional knowledge of the consultant team. In some cases specific comments on critical sections are provided. A table showing the full review of local practice is included in the report Compendium, APPENDIX C.

This section reviews WAPC State planning policy, operational policy and WAPC Metropolitan Policy in the form of Network City: Community Planning Strategy for Perth and Peel and the Directions 2031: Draft Spatial Framework 2031 for the Perth and Peel Region.

A full review of WAPC Planning Bulletins is also included in the report Compendium, APPENDIX D.

Additionally, a brief review of the Armadale Redevelopment Authority’s Wungong Masterplan and policies is included as the Authority has taken a leadership role on accessible communities with this major greenfield development. While Wungong is included in the comparative case study paper it is also appraised here as an example of policy being applied in a way that allows local ‘best practice’ to prevail.

The review is ordered from strategic level down to regulation level in the following way:

o State Strategies

- State Planning Strategy

- Other State Strategies

o WAPC planning policies

o WAPC operational policy

- Liveable Neighbourhoods

- Development control polices and guidelines

o WAPC Planning Bulletins

o Procedural guidelines

o WAPC Metropolitan policy

- Network City: Community Planning Strategy for Perth and Peel

- Directions 2031: Draft Spatial Framework for Perth and Peel

- Building a Better Planning System

o Non-WAPC Policy and guidelines

- Health-related policies and strategies

- Transport Policy and Guidelines

o Wungong Urban Water Project

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TABLE 2 - SUMMARY OF REVIEWED WESTERN AUSTRALIAN STRATEGIES AND POLICIES.

State Strategies

State Planning Strategy

Strategy State Planning Strategy

Comments and suggested actions

Should give greater emphasis to:

Ensuring that urban design considerations in the Liveable Neighbourhoods: Community Design Code for residential land maximises the potential to foster a strong sense of community, and an accessible, safe built environment.

Promoting mixed uses of land in communities, especially through the location of

housing in commercial centres.

Monitoring and promoting to private developers world best practice in the area of accessible urban design which assists in the development of a sense of community and vibrant neighbourhoods.

Ensuring in the determination of subdivision applications that consideration of urban design policies are taken into account.

Ensuring infrastructure that prioritises active travel is planned into new communities.

Other State Strategies

Strategy Walk WA: A Walking Strategy for Western Australia (2007 – 2020)

Physical Activity Taskforce/ Be Active WA.

Comments and suggested actions

The Accessible Communities Study is aimed at ensuring environments are walkable. Many of the recommendations are fundamental to the successful delivery of accessible communities.

Strategy State Designing out Crime Strategy

Comments and suggested actions

Safety is a critical issue in supporting accessible communities. The strategy highlights the importance of programs and co-ordination in delivering safe environments for people in public space. The strategy is supported by built environmental design criteria outlined in the Designing out Crime Guidelines.

Strategy State Sustainability Strategy

Comments and suggested actions

accessible communities is aligned to the State Sustainability Strategy and the Strategy mandates all partners including government agencies are to support accessible communities. Reinforce the links between accessible communities and the sustainability agenda and strategies.

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WAPC Planning Policies

State Planning Policy No 1

State Planning Framework Policy (Variation No 2)

Comments and suggested actions

Seek opportunities to highlight that accessible communities are supported and explained (i.e. the vision) at the highest level of WAPC policy. Ensure accessible communities related development control policies and design codes are made pursuant to SPP1.

State Planning Policy No 2

Environment and Natural Resources Policy

Comments and suggested actions

Environmental protection can undermine accessibility within the urban environment where it creates a barrier to movement. Objectives need to be better considered at regional level before urban settlements are laid out.

State Planning Policy No 3

Urban Growth and Settlement

Comments and suggested

actions

The policy forms the critical next layer of state policy support under SPP1. Carefully review SPP3 to ensure it provides clear and direct support for accessible communities.

State Planning Policy No 3.1

Residential Design Codes (Variation 1)

Comments

and suggested actions

The residential design codes provide an established framework for managing some aspects of density, bulk and design. They are being stretched to manage evolving expectations and practice without a change to the basic framework. The almost universal acceptance that detailed area plans are needed for greater quality and surety of outcomes including better environments for accessible communities shows the need to revise the R-Codes.

The R-Codes permit estate-scale strata title developments without providing due control of these.

The R-Codes provide almost no guidance on mixed use (residential).

The R-Codes do not deal with non-residential forms of development in the urban environment.

Parking requirements are set by the R-Codes other than if a local policy has been created or the local government accepts performance assessment for parking ratios. This, more than any other area of regulation should be based on the location of the development, and the availability of alternatives. These alternatives should include stronger recognition that on street parking can be used to meet requirements and waive requirements based on proximity to services.

State Planning Policy No 4.2

Metropolitan Centres Policy Statement for the Perth Metropolitan Region

(Draft State Planning Policy - Activity Centres for Perth and Peel)

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Comments and suggested actions

The existing policy’s main intent is to manage the location and distribution of centres through allocation of allowable retail floor space.

The draft policy has the same intent; however, it allows a performance based approach to determining appropriate levels of retail floor space based on, amongst other things, catchment and accessibility.

The draft policy contains guidance on centre design pursuant to its core objectives; however, a more detailed examination of the policy revealed little concrete regulation in this regard. The application is also limited to the Perth and Peel metropolitan areas.

The role of the policy needs reconsideration and concrete regulations on design adopted within the policy or in another policy framework. The current broad statements of vision are open to misinterpretation and challenge.

State Planning Policy No 5.1

Land Use Planning in the Vicinity of Perth Airport

Comments and suggested actions

No special action required. It should be noted that the airport forms a major land holding in the metropolitan area and is a barrier to movement. Conversely it presents a planning opportunity for compactness.

Draft State Planning Policy No 3.6

Development Contributions (Draft)

Comments and suggested actions

The policy allows for contributions pursuant to a contribution plan and also standard developer contributions. Standard contributions allow for contributions to paths and roads but not ancillary items such as bike racks and seating. The explanation of inclusions that could be added to a contribution appears more extensive.

Review the policy to ensure it is supportive of contributions to the full needs of accessible communities prior to adoption.

Draft State Planning Policy

Metropolitan Freight Network

Comments and suggested actions

As many areas of the freight network impose pressures on the urban environment, the policy needs to allow a balance between objectives especially in regard to freight movement efficiency benefits versus accessible community benefits.

Review the policy to ensure it is supportive of the full needs of accessible

communities prior to adoption.

Draft State Planning Policy

Statement of Planning Policy: Network City (Draft)

See Network City: Community Planning Strategy for Perth and Peel (September 2004) page 47.

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WAPC Operational Policy

Liveable Neighbourhoods

State Operational Policy

Liveable Neighbourhoods

Comments and suggested actions

While Liveable Neighbourhoods replaces many (outdated) development control policies it is limited in its application to greenfield sites and large brownfield sites. Its application could be extended to all sites over 5 ha or in locations where strategic connections would be important and to all centres.

Liveable Neighbourhoods relies on many references to other standards and guidelines. Many of these are useful contributions in that they deal with walking, cycling and disabled access as well as traffic management and constructions standards. However, some are contradictory to Liveable Neighbourhoods, intentions and subject to change. The success of Liveable Neighbourhoods at the street organisation level leaves scope for a supporting set of documents to control street design and built form.

Community Design Chapter

Comments and suggested actions

The Community Design requirements lead international current practice for

accessible communities, in intent. They suggest a wide range of land form use and built form controls, which are largely outside the control of Liveable Neighbourhoods. Some of these can be reinforced through commitments in structure plans but implementation falls to local government which may not have the political support, resources, mandate or standards to enforce outcomes such as minimum densities, minimum built form intensity, maximum parking standards and proper investment in streetscape.

Movement Chapter

Street movement network

Comments and suggested actions

The requirements lead international current practice for accessible communities, in intent. In practice the tables and diagrams in Liveable Neighbourhoods perpetuate an inflexible hierarchical road system that gives little consideration to accessibility, safety and convenience other than for vehicles. Speeds on larger roads are in particular set by volume rather than context. Conversely, minor streets are designed with kerb radii at intersections that exceed best practice. Large lot truncations accompany these. In addition, roundabouts are promoted where more accessible communities focused options are being adopted elsewhere.

Public transport

Comments and suggested actions

Planning for public transport is in line with accessible communities; however the provision of public transport is not within Liveable Neighbourhoods control. Timing of the delivery of public transport infrastructure and services and frequency is seen to be important but not always linked to approvals.

Cycle movement network

Comments and suggested actions

The objective is in line with accessible communities and the requirements are excellent, however Liveable Neighbourhoods does not control detailed design. To ensure Liveable Neighbourhoods is achieved appropriate supporting guidelines are needed.

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Movement for people with disabilities

Comments and suggested actions

The objective is in line with accessible communities and the requirements are excellent, however Liveable Neighbourhoods does not control detailed design. Requirements for footpaths are adequate except where footpaths are not required on both sides of the street.

Pedestrian movement network

Comments and suggested actions

The objective is in line with accessible communities and the requirements are excellent, however Liveable Neighbourhoods does not control detailed design. Requirements for footpaths are adequate except where footpaths are not

required on both sides of all streets.

Street design

Comments and suggested actions

The objective is in line with accessible communities and the requirements are excellent, however Liveable Neighbourhoods does not control detailed design. Requirements for street trees and street furniture are limited.

Street construction

Comments and suggested actions

The requirements largely direct readers to other standards and policies. These polices are often inflexible and the guidelines referenced have sometimes been superseded. A review is needed to properly guide the reader to the appropriate guidelines. It may be simpler to refer to a new WA design manual or advice note reference, which can be updated as Austroads and other standards change without the need to update Liveable Neighbourhoods constantly.

Utilities Chapter

Comments and suggested actions

The requirements create large verge widths, relatively wide streets and only allow for trees. They are not required. The standards support an inflexible approach to utility provision undermining the potential for narrow traffic-calmed streets and more efficient land use.

Activity Centres and Employment Chapter

Comments and suggested actions

The objectives and majority of requirements would, if fully implemented, provide the foundation for exemplary accessible communities. Implementation beyond subdivision level is largely dependent on local government through assessment of compliance with subdivision conditions, town planning schemes and centres plans.

Schools Chapter

Comments and suggested actions

The objectives and majority of requirements would, if fully implemented, provide the foundation for exemplary accessible communities for children. Implementation beyond subdivision level is largely dependent on local government and the Department of Education.

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Development control policies and guidelines

General

Development Control Policy 1.1

Subdivision of Land - General Principles

Comments and suggested

actions

Liveable Neighbourhoods has provided a comprehensive set of design principles for subdivision of land. The policy does not reflect these advances adequately.

Development Control Policy 1.2

Development Control - General Principles

Comments and suggested actions

While not a development control document Liveable Neighbourhoods and other policies including the Designing out Crime Policy provide a comprehensive set of design principles for development control. The policy does not reflect these advances adequately.

Development Control Policy 1.3

Strata Titles

Comments and suggested actions

Strata titles vary between duplexes and strata title towns. While strata title provides a useful means of evading many obligatory service corridor and street width requirements it should be subject to accessible communities assessment. This is not ensured by the policy. Community title in the eastern states may be introduced in WA. This could coincide with the development of standards for strata title and green title neighbourhoods ensuring accessible communities.

Development Control Policy 1.4

Functional Road Classification for Planning

Comments and

suggested actions

The policy is not supportive. It needs to be revised to manage application of poorly designed or incongruous cul-de-sacs and overcome excessive focus on hierarchy and traffic separation.

Development Control Policy

1.5

Bicycle Planning

Comments and suggested actions

The policy is out of date and must be reviewed. In particular the reference to standards is out of date.

One of the policy objectives is to make cycling safer and more convenient

through the provision of end-of-trip facilities and by the provision of better cycle route networks. If these facilities were actually required at the development approval stage then this policy could be implemented.

Development Control Policy 1.6

Planning to Support Transit Use and Transit Oriented Development

Comments and suggested

actions

The policy is highly relevant, however many standards, in particular minimum density are not practised. Should be made mandatory.

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Development Control Policy 1.7

General Road Planning

Comments and suggested actions

The policy is supportive of intense development and more accessible communities; however it outlines an outdated approach to road hierarchy and has been superseded by Liveable Neighbourhoods. The policy should be deleted.

Development Control Policy 1.9

Amendments to the Metropolitan Region Scheme

Comments and suggested actions

There is a need to expand on one of the dot points in 2.1,”Any other land use, transport, environmental or planning implications associated with the proposal“.

Development Control Guidelines

Transport Assessment Guidelines for Developments

(Version for trial and evaluation)

Comments and suggested actions

The guidelines do provide a focus on planning for other users beside vehicle users. The role could be expanded. Policy needs to be reviewed and finalised.

Residential

Development Control Policy

2.2

Residential Subdivision

Comments and suggested actions

Design codes are flexible enough to allow for appropriate street front design but do not require street surveillance. Need for a code on high density housing in urban areas. This work is underway. DP to review when complete. Contains extensive overlap with Liveable Neighbourhoods except that it would appear to cover infill and some other areas, which Liveable Neighbourhoods does not.

Development Control Policy 2.3

Public Open Space in Residential Areas

Comments and suggested actions

The policy supports accessible communities through the provision of public open space in urban environments. The recognition of the importance of using 10% and linking to other open spaces is not strong. Tends to allow playing fields as the primary open space approach. Review policy in light of the provisions provided for within Liveable Neighbourhoods.

Development Control Policy 2.4

School Sites

Comments and suggested actions

The policy would be subject to detailed review, however the subject of schools is now included in Liveable Neighbourhoods. The policy should be deleted and any items not covered in Liveable Neighbourhoods transferred to Liveable Neighbourhoods.

Development Control Policy 2.6

Residential Road Planning

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Comments and suggested actions

The policy contains many inappropriate street layout forms and recommendations. The policy has been superseded by Liveable Neighbourhoods. The policy should be deleted.

Development Control Guidelines

The Design and Geometric Layout of Residential Roads

Comments and suggested actions

This is an obsolete policy, which provides little of the complexity and integration of Liveable Neighbourhoods. It suggests a road hierarchy without consideration of land use integration. Policy should be revised.

Development Control Guidelines

The Preparation of Local Structure Plans for Urban Release Areas

Comments and suggested actions

The policy could be deleted in favour of Liveable Neighbourhoods.

Development Control

Guidelines

The Preparation, Form and Content of Local Housing Strategies

Comments and suggested actions

The policy is relevant but out of date. Densities are too low to provide for accessible communities.

Development

Control Guidelines

Local Commercial Strategies - Preparation, Form and Content Guide

Comments and suggested actions

The policy should be expanded to include more on appropriate location of centres.

Development Control Policy 5.3

Use of Land Reserved for Parks and Recreation

Comments and suggested actions

The policy is supported, especially relating to passive and active recreation on public open space.

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WAPC Planning Bulletins

Planning Bulletins

Various

Comments and suggested actions

The role and function of the bulletins is varied between providing advice and updates. A clear distinction needs to be made between their various roles and where they provide an interim advice they need to be deleted once the policy updates have been made or the process concluded. The role of bulletins should be reviewed.

Procedural Guidelines

Report Guidelines

Liveable Neighbourhoods

Street Layout, Design and Traffic Management Guidelines

Comments and suggested actions

These guidelines approximate a street design manual for Liveable Neighbourhoods. Many of the practices are not as accessible communities focused as approaches in other countries but they represent an advance on current practice in WA and a clear outline of how street design and urban land use and access relate is required. The extent to which these align with other endorsed and accepted traffic guidelines such as Austroads also needs to be considered.

Audit Tools and Methodologies

Various including Healthy By Design

Comments and

suggested actions

Audit tools, the funding of audits and the funding of remedial action are well established in Australia with billions of dollars being committed to the work. Almost all of this work is focused on auditing vehicle movement and accidents. Little of it is focused on integrated accessible communities work.

Several Capital Cities and the Midland Redevelopment Authority have funded public spaces and places studies and undertaken improvements. In all cases the improvements have resulted in more public use of the city. The Public Transport Authority has also undertaken this form of work.

WAPC Metropolitan Policy

Policy Network City: Community Planning Strategy for Perth and Peel

Role and Status It has not been adopted.

Comments and suggested actions

Network City provides a comprehensive framework for metropolitan planning incorporating actions, which are aimed at producing a sustainable city. Creating accessible communities is recognised as central to this intent through a number of objectives and principles. It is recognised that implementing Network City would require a comprehensive review of many polices and strong interagency co-ordination of new and established areas.

Central to Network City are activity corridors, which are major roads lined with intensive development. These roads would be traffic-calmed boulevards with a

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careful balance between modes of transport. The Accessible Communities Study can assist in delivering some of the objectives of Network City.

Frameworks Directions 2031 Spatial Framework for Perth and Peel

Comments and suggested actions

Much of the implementation initiatives in this framework confirm a commitment to continuing specific existing programs undertaken by DP and the WAPC. Many accessible communities related initiatives are supported and given greater weight with indications of more definitive policy and a greater degree of enforcement.

There are few definitive commitments and the framework does not define priorities for projects. The range of issues to be addressed appears very supportive of accessible communities and accessible communities are specifically mentioned. The detailed implementation needs careful monitoring and extensive input and funding.

Possible gaps are the lack of active travel projects identified for sub-regions (in NE, SE, SW and Peel) in comparison to the number of specific road projects.

Building a Better Planning System

Comments and suggested actions

Building a Better Planning System is not a policy in its own right but many of the proposed changes will affect how development is assessed. The proposed changes will see greater focus on simplifying the system of policies to avoid overlap, streamlining subdivision condition and subdivision engineering standards, providing greater certainly on developer contributions and greater focus on delivering the State’s strategies and climate change management objectives through state and local policy. All of these changes have the potential to lead to improvements in accessible communities outcomes if accessible communities is given a higher level of priority.

Non - WAPC Policies and Guidelines

Health-related policies and strategies

Premiers Physical Activity Task Force

A Strategic Physical Activity Action Plan for a Healthy

Active WA 2007/08-2010/11

Comments and suggested actions

The Physical Activity Task Force (PATF) recognises that it has a collaborating role with other agencies to promote active, supportive environments and active living. The PATF supports the intent of accessible communities in that accessible communities support increased levels of physical activity through an increase in non-motorised modes of transport.

Department of Education and Training

Physical Activity Strategy 2008 – 2011

Comments and suggested actions

The strategy includes an extensive list of initiatives to market physical activity to students and programs to involve them in physical activity. The policy promotes walk-to-school buses.

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Road and personal safety improvements may assist in a return to active transport journeys to school.

Department for Communities Office for Seniors Interests and Volunteering

Active Ageing Strategy

Comments and suggested actions

The strategy includes an extensive list of initiatives to market physical activity to seniors. The policy recognises the importance of the built environment and monitors planning improvements.

Health Department

Health Impact Assessment in WA

Discussion Paper

Comments and suggested actions

The Department of Health is not a statutory referral authority for development in Western Australia, as is the case in some other countries. The paper considers the potential for assessments by the Health Department to include assessments on whether the environment is supportive of physical activity.

Achieving accessible communities has a range of objectives including promoting physical activity. However, there may be value in the Health Department providing an independent assessment as this could elevate the commitment to accessible communities and provide external agency support to DP’s assessment of a development from accessible communities point of view.

Office of Crime Prevention

Designing Out Crime Guidelines

Comments and suggested actions

Safety is a critical issue in supporting accessible communities. The policy provides strong guidance in delivering safe environments for people in public space. The guidelines should be brought into greater use.

Transport-related policies and guidelines

Institute of

Public Works Engineering Australia

Local Government Guidelines for Subdivisional Development 2009-

Edition 2

Comments and suggested actions

The Guidelines are valuable in providing a consolidated guide to local engineers across a wide range of civil areas.

The policies extract the key information from Liveable Neighbourhoods some of which should be read in context of the objectives on Liveable Neighbourhoods and not in isolation. The guidelines also introduce standards such as minimum tree spacing, which can adversely affect the development of tree-lined avenues without careful consideration.

The guidelines highlight the need for an effective and consolidated source of information on road hierarchy and street design.

Public Transport Authority

Various Standards, Guidelines and Policies

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Comments and suggested actions

PTA policy is aligned with accessible communities in principle. There can be difficulties in some areas as large buses have some characteristics of large trucks and can result in expanded intersections (e.g. roundabouts) and wider lane widths.

There is debate regarding the appropriateness of dedicated bus lanes where these are in addition to vehicle lanes. There is also debate regarding the extent of parking around stations and its effect on the urban environment. PTA

and DP collaborate in many areas to achieve good outcomes. Policy integration is needed to ensure there are no conflicts and the concept of accessible communities is properly considered.

Main Roads Policies

Various Standards, Guidelines and Policies

Comments and suggested actions

The requirements provided by MRWA standardise design to ensure the safe movement of vehicles and controlled road crossings. They suit movement corridor conditions but sometimes make it difficult to implement desired proposals for roads in activity corridor settings.

MRWA’s role in road line marking means its policies have an effect on all roads including its own roads. In addition MRWA standards create default standards for road design with possible negative consequences for accessible communities.

The MRWA website is an exemplar in that it provides a concise summary of polices and standards with hyperlinks to associated standards.

Road Hierarchy

Comments and suggested actions

There is a lack of emphasis on providing for public transport, walking and cycling as a priority and does not advocate speed restraint in line with Austroads guidelines. Needs to be reviewed in line with latest Austroads guidance.

Main Roads Design Check Procedure

Comments and suggested actions

Possible flaws in the process are that the outcomes could be constrained as to how the design aligns to existing standards and guidelines. Benefits could arise by implementing a framework that ensures decision-making reflects context sensitive design, in that design is responsive to the context in which transport activities occur, not simply the design process.

Policy for Cycling Infrastructure

Comments and suggested actions

A review is suggested as the policy was published in 2000. The Austroads Guide that is referred to has been superseded.

Office of Road Safety

Towards Zero: Road Safety Strategy 2008-2020

Comments and suggested actions

This strategy is supportive of accessible communities and plans to reduce road crashes (including those involving pedestrians and cyclists). This will be achieved by targeting four cornerstones of road safety, being:

• safe road use

• safe roads and roadsides

• safe speeds

• safe vehicles.

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Austroads Various

Comments and suggested actions

Generally it was found that by considering research in recent years, the Austroads Guides are increasingly supportive of accessible communities. Several key concepts are introduced that alter accepted approaches to transport provision. Most notable is the introduction of context sensitive design and the increased emphasis on the opportunity for the flexible application of standards. It is stated in the Austroads Guide to Road Design that:

‘The Austroads Guide to Road Design is intended to provide designers with a framework that promotes efficiency in design and construction, economy, and both consistency and safety for road users. However, the Guide moves away

from rigid design limits as the basis for achieving these goals, and promotes the concept of ‘context-sensitive design’. The intention is to allow designers the flexibility to exercise their critical engineering judgement, for example, by choosing design values outside of normally accepted limits when prevailing constraints require, provided that they recognise their responsibility to be able to produce strong, defensible evidence in support of that judgement’.

However, proper implementation of the guidelines in key. Training conducted on the revised Guides will be key in highlighting new approaches, and conveying how the content of the Guides should be interpreted.

It is essential that clear links be made from the Austroads Guides to strategic policy. It is this strategic policy that will drive how the guidelines are implemented – that is according to identified priorities.

One area where further work is required is the review of approaches to road hierarchy. This has been discussed in earlier sections. Currently a two-tier road hierarchy is advocated which from a road function viewpoint states there are two essential needs which must be met:

• The traffic movement, or mobility, function providing the means by which people and goods can move from one place to another.

• The access function providing access to properties and land uses adjacent to the road.

This lacks consideration of the function of ‘streets as places’ in their own right.

Austroads Guide to Road Safety Series

Road Safety Overview

Comments and suggested actions

Supportive of accessible communities particularly in terms of reducing vehicle speeds.

Speed Limits and Speed Management

Comments and suggested actions

Content is extremely agreeable in terms of fostering accessible communities. Offers options and advocates lower speeds.

Local Government and Community Road Safety

Comments and suggested actions

Relevant in terms of roles and responsibilities of local government in managing development and developer requirements in terms of safety. The tone of this guideline highlights how firm the responsibilities are in the area of safety for councils in contrast to other areas e.g. achieving benchmarked standards for accessible communities. For example ‘As a road authority, a local council is required to have a reasonable knowledge of the deficiencies in its road network

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and a long-term plan to remedy these as funds become available’.

This is also demonstrated by the need for road safety strategies and the detailed guidance on how to produce and fund them etc.

Roadside Hazard Management

Comments and suggested actions

Not supportive, in that this policy may result in removal of landscape features. Does not support accessible communities where conflicts with pedestrian safety (tree could protect pedestrians on side of road but could also cause injury car occupants). Trees are part of main street amenity.

Austroads Guide to Road Design Series

Introduction to Road Design

Comments and suggested actions

Supportive of accessible communities as it advocates context sensitive design as the backbone of the document.

Does not try to cover design outcomes for every situation but aims to help guide the practitioner in making good decisions.

Design Considerations

Comments and suggested actions

The guideline is generally aligned to accessible communities, however the hierarchy does not discuss street as a ‘place’. This could be reinforced through WAPC guidelines.

Intersections and Crossings - General

Comments and suggested actions

Not published at time of review

Roadside Design – Safety and Barriers

Comments and suggested actions

Not published at time of review

Austroads Guide to Traffic Management Series

Introduction to Traffic Management

Comments and suggested actions

Supportive, but in regard to road hierarchy does not consider place function.

Network Management

Comments and suggested actions

Not published at time of review

Road Management

Comments and suggested actions

Supportive in that all road users recognised, the classification to road types is fine with room for context sensitive design however the implication is to ensure the right classification is assigned to right roads – emphasis required on place function.

Intersections, Interchanges and Crossings

Comments and suggested actions

To be looked at as part of further study recommended in this report.

Traffic Management in Activity Centres

Comments and suggested actions

Not published at time of review

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Local Area Traffic Management

Comments and suggested actions

To be looked at as part of further study recommended in this report.

Traffic Control and Communication Devices

Comments and suggested actions

Not published at time of review

Traffic Impacts of Developments

Comments and suggested actions

Not published at time of review

Road Environment Safety

Comments and suggested actions

Not published at time of review

Wungong Urban Water Project

Review Wungong Urban Water Project

Comments and suggested actions

This project shows that an authority attempting to create accessible communities within Western Australia is able to, where it has the power to do so, amend or complement current WAPC policies and require more commitment from the developer. Current assumptions regarding trip generation will need to be challenged to avoid road design that actively overestimates demand and thus provides the capacity which in turn may attract more vehicle trips and undermine accessible communities.

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4 PART 3: Gap Analysis

4.1 Overview

This section builds on the Part 1 review of various planning and transport responses to reducing vehicle dependency and research into best practice case studies and the Part 2 review of policies and guidelines, currently in operation in Western Australia, whereby, various gaps and flaws in the delivery of accessible communities were identified. As part of Part 3, two additional layers of research were conducted. A key stakeholders’ gap assessment workshop was held and a broad scale field assessment conducted. The findings of these are reported in this section.

4.2 Workshop-based gap analysis

The workshop was held in Perth over duration of four hours on 7 May 2009. It included representation from state agencies, local government, university and several government authorities (e.g. Public Transport Authority, LandCorp). The Chair of the WAPC, Gary Pratley, introduced the workshop and then participants were presented with an outline on national, international and local practice on accessible communities. Copies of the workshop presentation and a summary of participants’ responses can be found in the report Compendium, APPENDIX E.

Participants were then invited to a workshop to discuss (a) ideals (b) gaps and flaws and (c) recommendations. These were systematically addressed at the regional/district, neighbourhood/subdivision and urban environment/ block scale with the respective focus of each being the compactness, connectivity and conduciveness components of accessibility.

4.2.1 Ideal, gap and response assessment

The feedback on the ‘ideal’ situation, the ‘gap’ and the recommended ‘response’ have been tabulated and ordered according to FIGURE 4. They move from comments on integrated accessible communities to discussions on compactness, connectedness and conduciveness (to active travel). External factors influencing these outcomes are discussed as issues under Current Practice within TABLE 3.

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FIGURE 4 - ACCESSIBLE COMMUNITY CONSIDERATIONS

4.2.2 Agency responsibility assessment

Due to time restrictions a detailed assessment of agency responsibility could not be undertaken. Therefore, notes regarding which agency has responsibility to manage improvements have been added to TABLE 3 by the project team and are indicative only. The role of developers is identified in the table as an issue.

4.2.3 Focus of improvement initiatives

The identified or apparent initiative through which the gap might be addressed is noted under the following categories:

• Governance (leadership and decision making support may be required)

• Funding (funding support is required)

• Policy/Codes (policy improvement is required)

• Approvals (stronger enforcement is required)

• Design Standards (design standards improvement or revision are required)

• Construction (change in construction practice is required)

• Education (community or individual changes to behaviour are required).

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4.3 Field assessment

One of the concerns outlined in the project brief is that WAPC policies and requirements are not always being achieved on the ground. The study team conducted a range of informal audits during the study and included some of this work in the key stakeholder workshop briefing presentation (APPENDIX E)

The conclusion was that prescriptive control was the only mechanism that resulted in ‘on the ground’ outcomes and that many of the aspirational requirements were not being met. A typical example of this is when the WAPC desires standards for intersections that are conducive to pedestrian and cyclist needs and at the same time allows large kerb radii and the use of large roundabouts at intersections to be approved and thus the desirable outcome is not being met. Another example is that WAPC desires main-street based mixed-use centres to support a range of activities and jobs and provide a pedestrian-friendly street based environment. However, WAPC allows local government to approve internalised retail centres, set aside for main street town centres and thus the desirable outcomes are not being met. For the most part these types of issues have been extensively addressed in the industry workshop summarised in TABLE 3.

Notably, one of the concerns of the steering committee is whether construction standards referenced in policies are being met. For instance, ‘do drop kerb ramps meet the road without a level change?’ It should be noted that in many instances current approval conditions require local governments to ensure that construction conforms to the certain standards. However, field observations concluded that in most cases the quality of construction work was exceptional. Approaches included paving the crossing in the same paver as the footpath eliminating a ramp altogether. On major roads MRWA removed the kerb at islands and continued the surface through splitter islands and medians creating a seamless surface for pedestrians and cyclists.

In contrast, field audits indicated that few streets had satisfactory street tree planting and few, if any seating opportunities were provided other than within public open space areas. Further, consideration for seating was limited to several benches placed at points of contemplation rather than street side.

A guide to minimum street standards is not provided by the WAPC. However, the Planning Act (section 169) does enable the WAPC to prescribe road/street design standards. The WAPC does provide a review role where the applicant is not satisfied with the local authorities’ position or the local authority does not act. This review is usually only at the applicants initiation and the applicant may be hesitant to challenge local government. The applicant may not view it as their responsibility to provide a quality of streetscape above the minimum required by the local government. There are many cases where local government has sought to reduce investment in the public domain due to ongoing maintenance costs.

Currently WAPC does not have a process by which it can ensure that its expectations are being met other than to hold up the approval until all details and commitments have been resolved to its satisfaction. This is not reasonable from the development industry perspective, as it creates delay and resentment rather than expedience and partnership.21 From an accessible communities point of view, given the huge

21 UDIA response to Building a Better Planning System (May 2009)

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development pressures in Perth and limitations on resources, a more systematic approach to streetscape quality needs to be developed to avoid the need to create and debate requirements on a project by project basis.

4.4 Key stakeholders’ assessments of gaps table

The summary of the key stakeholders’ gaps assessment workshop is presented in TABLE 3. The wording in this table and the outline of the relationship between gaps and required responses is excerpted from notes taken by table-appointed scribes at the workshop. The full typed transcript of the original notes is available from Transport.

TABLE 3 - IDEAL, GAP AND RESPONSE ASSESSMENT

ISSUE IDEAL (summarised from notes and comments at workshop)

GAP (summarised from notes and comments at workshop)

REQUIRED RESPONSE (summarised from notes and comments at workshop)

AGENCY

GOVERNANCE

FUNDING

POLICY/CODES

APPROVALS

DESIGN

STANDARDS

CONSTRUCTION

EDUCATION

INTEGRATION (of Compact, Connected and Conducive)

INTEGRATION TRANSPORT AND LAND USE PLANNING

Y = yes

TRANSPORT AND LAND USE INTEGRATION

Transport and land use integration minimises the need for travel and

neither overwhelms the other.

Planning decisions don’t always put land use in the right location and transport design often results in poor access to

roads.

Need to integrate urban and transport planning

at all levels.

DP/PTA/ MRWA

y y y

ACCESS TO DESTINATIONS

Destinations are highly accessible.

Good access to destinations including centres is often overlooked.

Development to ensure connection of uses from district to local level (hierarchy of

uses/integration to be demonstrated).

DP/LG y

ACCESS TO OPEN SPACE

Green spaces are accessible and

conducive to active travel.

Lack of landscape planning.

Ensure good access to open space.

DP/LG y y y

OPEN SPACE MOVEMENT CORRIDORS

Green spaces are accessible and linked.

Guidelines on the design of open space systems limited.

Connect open spaces and look at open space as a movement corridor.

DP/LG y y y

INTEGRATION PRESENCE OF GOOD STREET NETWORKS

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ROAD HIERARCHY Disperse traffic through

the city.

Road system is too hierarchical and local connections are too

convoluted.

Improve connectivity of street system.

DP/LG/ MRWA

y

INTER-CONNECTED NEIGHBOURHOODS

Neighbourhoods are Interconnected.

Lack of linkages between

neighbourhoods.

Improved neighbourhood

connections, focussing on active travel priorities

and desire lines.

DP/LG y

PERMEABILITY Permeability to destinations.

Pedestrian and cycling access blocked in

certain developments, e.g. in cul-de-sacs.

Urban design in subdivision and

development should ensure permeability.

DP/LG y y

PUBLIC ACCESSWAYS

Public access ways retained and are made

safer.

High level of closure of public access ways.

Policy should prevent closure of public access ways wherever possible and funds/ incentives found to improve PAW.

DP/LG y y

INTEGRATION TRAFFIC VOLUME, SPEED AND CONFLICT POINTS

FREIGHT MOVED TO RAIL

Rail freight encouraged to ease road traffic.

High level of road freight through city.

Ongoing improvements to rail freight

infrastructure and future planning. Govt target for 30 % of container freight on rail by 2013 noted.

DP/MRWA y y y

BY-PASS ROADS Vehicle by-

passes/through pass.

Decision when to bypass and when to go through is not always

appropriate.

Better planning of road functions for context.

DP/MRWA y y y y

EFFICIENT USE OF VEHICLE AND LANE CAPACITY

Vehicles and roads are used very efficiently.

Private car ownership and single occupancy is wasting resources and increasing traffic.

Encourage car-pooling.

MRWA/DP/ LG

y y y

CONTEXT SENSITIVE SPEEDS

Hierarchy of roads accepts centres slow

zones.

Road design is not context sensitive.

Allow for variations in road design and speed to consider changing context along road.

(Austroads), MRWA,DP

y y y y

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SPEEDS IN RESIDENTIAL STREETS

Low speeds for residential streets.

Lack of adequate planning to establish low speed design of street

system.

30 kph. Traffic calming measures in certain

areas.

MRWA/DP/LG y y y y y

SPEEDS

Lower traffic speeds across all areas with significant pedestrian and cycling activity including CBD.

Traffic speeds too high in certain higher density areas - pedestrian and

cycling safety compromised.

Set 30 kph every residential street. Determine speeds according to street

function.

MRWA/DP/LG y y y y y

ROUNDABOUTS AND STREET CROSSINGS

Clear priority in roundabouts - active travel modes prioritised.

Pedestrians and cyclists are not given priority in roundabouts - safety concern. Crossing of arterial roads is a concern. There is

contradictory legislation e.g. Traffic code gives priority to pedestrians, Main Roads WA gives it

to the car.

Need clear indication of priority at roundabouts and educate drivers on this, and correct design.

y y y

INTEGRATION URBAN MODELS

TRANSIT ORIENTED DESIGN AND LIVEABLE NEIGHBOURHOODS

The transit oriented development intent of

Liveable Neighbourhoods is

achieved.

Liveable Neighbourhoods policy does not provide for sufficient density near public transport hubs.

Mandate minimum density near transit stops and nodes.

DP y y y y y y

PEDESTRIAN ORIENTED DESIGN

Centres and other key urban areas are

designed to support pedestrian movement

and public life.

Centres are designed giving priority to cars and not pedestrians.

Need to shift priority to active travel at a district

level.

All y y y y y y

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PROTECTION AND REINFORCEMENT OF EXISTING MAIN STREET CENTRES

Return of the "village" style community incorporating

employment, recreation, education and sporting opportunities within the

community.

Loss of community heritage with

redevelopment (i.e. loss of local delis due to

competition from Coles and Woolworths, etc.) - implications for how

people travel and shop, etc.

Development concessions for

developer contributions (higher density for extra

contributions).

All y y y y y y

SHARED SPACE

The street is viewed as a public place with vehicles permitted on the basis that the driver manages the vehicle in a way that ensures the safety and comfort of other users. Drivers accept this as they are engaged in the activity and richness of

the street.

Streets have become car focused. Other

users particularly young and elderly) are

intimidated by the speed of vehicles and obvious disregard by drivers.

Explore these approaches: Naked Streets, Home Zones.

All y y y y y y

COMPACTNESS

CENTRES Integrated centres.

Development to self-sufficiency targets (i.e. minimum job targets) are not being reached.

Create centres with large degree of self-

sufficiency of employment, civic facilities, retail and

recreation. Encourage mixed-use hubs rather than straight retail

centres.

DP/LG y y y y y

DENSITY

More compact urban form with greater in-fill development taking

place.

Continued urban sprawl - low density

development with little in-fill development.

Must mandate for density and self-sufficiency (living, working, shopping, recreation, food generation).

DP y y y y y

AGED LIVING

Aged care accommodation with easy access to

shops/facilities/pubic

Aged accommodation is not required to be

located close to centres.

Link aged accommodation to

public transport routes and centres.

All y

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transport.

PARKING AS LAND USE

Reduced land use for parking (remove from town centre) (use on-street parking).

Supply of parking is too high in centres. Do not have a consistent

parking policy across all local government.

Set standards to avoid parking undermining compactness. Explore innovative solutions e.g.

shared parking.

DP/LG y y y

ON-STREET PARKING Use streets for parking.

More efficient. On-street parking is

limited.

Provide on-street parking in residential

areas.

MRWA/DP/ LG

y y y y y

ACCESSIBILITY USES IN CENTRES OUT OF HOURS

Mixed-use centres offer out of hours activity. This results in better use of space and generates

fewer trips.

Some centres are "dead-zones" during out of business hours and hence are not conducive to active travel. There are safety concerns

when shops close early.

Encourage mixed-use development and longer trading hours to localise

services.

All y y y

SERVICE CORRIDORS

Utility requirements in streets and spaces (including service compounds) do not

adversely impose on the urban environment.

There is no agreement from service providers on using service

corridors. Developers try to use service

easements for public open space/dual use paths and the servicing agencies cannot provide local government/WAPC

with a consistent approach - leads to missed opportunities.

Better management of utility corridors and agency requirements.

All y y y y y y

CONNECTED

CONNECTED INTEGRATION OF MODES

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CATCHMENT DISTANCES, PEDSHED

Public transport catchment distance: 400 m and 800 m for walking,

5 km for biking.

Bus services aren't always where they need to be and walkability to stops is not always

good.

Plan transport accessibility for active

travel.

DP/PTA y y y

INTEGRATION OF TRANSPORT NETWORKS AT DIFFERENT LEVELS

Modal integration from the district to the local

level.

Key destinations are not identified at the district

level.

District level transport planning needs to be informed by regional level transport planning so that services are

integrated.

DP/LG y y y y

CYCLE PROVISION ON PUBLIC TRANSPORT

Cyclists can access public transport for part

of the journey.

Bicycles excluded during peak hours undermining multiple trips integrating active travel, e.g. cycle, bus,

cycle.

Ensure integration of transport modes.

Convert public transport to accommodate

bicycles.

PTA/DP y y y

CONNECTED PRIORITY OF MODES

y y y y

BUS PRIORITY Plan for the bus then the

private car. Car given priority in

transportation planning. Establish peak hour bus lanes on district roads.

MRWA/DP/ PTA/LG

PLANNING FOR WALKING AND CYCLING

Plan for pedestrians and cyclists then bus and

private car.

Poor recognition of pedestrians and cyclists - too much emphasis on motorised transport.

Need to establish strategic footpaths and cycle networks at the district level to ensure permeability of all modal

choices.

MRWA/DP/ PTA/LG

y y y

PEDESTRIAN PRIORITY Pedestrian prioritised in

local centres. Too much emphasis on motorised transport.

Shared road environments should be

encouraged.

MRWA/DP/ PTA/LG

y

CONNECTED TREATMENT OF MODES (CARS AND PARKING)

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SUPPLY OF PARKING Parking is limited and priced at its true cost.

Real parking and driving costs not filtered down to the users - vehicular transport subsidised by the whole of community at the expense of active travel users. Abundant supply of parking encourages car use.

Metro-wide introduction of paid parking across all LGAs (including private shopping

centres) to fund public transport and other

mode networks). Need to have review of effects

of over-supply of parking. Recommend limited commercial parking in areas near public transport nodes.

DP y y y

CONNECTED TREATMENT OF MODES (PUBLIC TRANSPORT)

PUBLIC TRANSPORT LAYOUT

Suburbs are well connected with public transport network.

Public transport is not widespread enough. Serves the centre, but limited inter-suburban connectivity. New

suburbs poorly serviced.

Circular service as well as radial service. Prioritise public transport.

DP/PTA y y y

GREENFIELDS AND BUSES

Public transport routes established at start of

development.

Lag time in bus routes being made available in new developments.

Public transport should be designed before areas become established.

DP/PTA y y y

PUBLIC TRANSPORT LANES

Public transport has dedicated routes.

Public transport is often delayed.

Dedicate lanes on roads to public transport.

MRWA/DP/ PTA

y y y

PUBLIC TRANSPORT FREQUENCY

Suburbs provided with frequent services.

New suburbs poorly serviced.

Public transport frequency improved.

PTA/DP y y y

BUS ROUTES

Roads for public transport should be straight and direct

(approximately 800 m to 1000 m apart).

Bus routes are circuitous.

Set up peak hour bus lanes on district roads.

DP/LG/PTA y y y

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RIVER TRANSPORT Free river transport. River transport limited and not highly used.

Improve river transport and planning for access to river transport.

PTA/DP/SRT y y y y

CONNECTED

TREATMENT OF MODES (CYCLES)

CYCLE PATH NETWORK Cycle path network is safe and well connected.

Cycle network is discontinuous and often

not safe.

Plan and fund a better network.

DP/PTA/ MRWA

y y y y

BIKE LANES

Cycle networks are safe, especially on-road cycle movement. Bypass

facilities are provided at non-signalised intersections.

Cycle lanes are not provided at intersections and roundabouts.

Maintain connected facilities - bike lanes through intersections. Plan and promote "work"

routes, as well as "recreational" routes to facilitate point-to-point journey-to-work cycling.

DP/LG/ MRWA

y y y y

END OF TRIP FACILITIES

Cycling to transit and other destinations is

possible as safe end-of-trip facilities are provided.

Secure bicycle parking at transit nodes is

limited.

Improve provision of safe trip end storage at transit nodes and other

destinations.

PTA/LG y y y y y

BICYCLE HIRE Bicycles are available as

needed. Lack of hire bikes. Promote cycle hire.

y

CONNECTED TREATMENT OF MODES (WALKING)

PROVISION OF FOOTPATH SYSTEM

The footpath system does not have gaps or

barriers.

There is poor integration between footpaths and

roads.

Enforce smooth

interface points between footpaths and roads on

the ramps by construction companies.

DP/LG y y y y

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PROVISION OF FOOTPATHS ON STREETS

Wide footpaths are provided on both sides of

streets.

Many residential developments either have no pathways, or have only one pathway

along the road.

Enforce installation of pathways on both sides of the roads in greenfield sites and in brownfield sites where pathways are compromised.

y y

CONNECTED TREATMENT OF MODES (DISABILITY CONSIDERATIONS)

DISABILITY ACCESS TO SERVICES AND BUILDINGS.

Fully integrated and accessible environments

for disabled.

Disability Access Inclusion Plans in local government have focused on local

government buildings and how staff interacts with people with

disabilities. This goes part of the way, but not

far enough.

Disability Access Inclusion Plans should also consider town planning, road design and community (non-local government)

facilities, not just local government buildings. Apply universal design principles to all facilities.

LG y

DISABLED ACCESS TO TRANSPORT

Fully integrated disabled access to public transport.

Poor disabled access to some public transport

services.

Prioritise active travel and disabled needs.

PTA/LG y y

CONDUCIVE

CONDUCIVE

SPEED CONSIDERATIONS (See integration) CONDUCIVE STREET LEVEL CONFLICT

BUILDING DESIGN AND ACCESS

Integrate active travel infrastructure with

buildings.

Priority is given to vehicles when designing access to buildings; expansive car parks, poor pedestrian access

and signage.

Building design guidelines/disability access plans must address the gap

between pedestrian and cycle networks and

y y y

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71

buildings. Prioritise active travel.

CONDUCIVE PERSONAL SAFETY

PERSONAL SAFETY

Well designed and lit streets which encourage safe active travel with no

danger spots.

Walls and fences, poor lighting, unsurveilled

streets.

Encourage surveillance to reduce crime and create comfortable,

conducive active travel environments by having active frontages, well designed streets with good lighting. Crime prevention principles.

y y

PATHWAYS PRIORITY Pathway priority over

driveways. No pathway priority over

driveways. Pathway priority over

driveways.

y y

PEDESTRIAN FOOTPATH

Pedestrians: need safe, well-designed pathways with smooth surfaces to accommodate all ability

and age levels.

Quality of footpath in existing areas and

provision in new areas.

Assign some areas as pedestrian dedicated zones. Establish "Naked Streets" in certain zones.

y y y y

PEDESTRIAN ENVIRONMENT

Pedestrians: need safe crossing environments.

Speed limits too high in residential areas. Pedestrians have no priority in residential environment.

Change laws to give pedestrians right of way over cars on heavily pedestrianised streets.

y y y

CONDUCIVE

STREET LEVEL CONFLICT

BUILT FORM CONTROL

The built environment is of a high quality and density is appropriately

Development is not well controlled. Quality of outcomes poor.

Develop models of ideal built form outcomes (visual representation).

DP/LG y y

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integrated.

FRONTAGES Active frontages are

provided.

Footpaths are fronted by blank walls and fences, lacking surveillance and

interest.

Stronger controls on active frontages and engaging environment.

DP/LG y y

STREET WIDTHS

The number of lanes is decided based on

convenience to all users.

Road standards don't accept peak congestion

resulting in dual carriageways and roads that are too wide to cross comfortably.

Review road design standards. Consider peak clearways. Avoid

additional lanes wherever possible.

DP/ LG/ MRWA/ Austroads

y y y y

GOOD STREETSCAPES

Interesting and stimulating environment reduces perception of length of journey.

Urban environments often not very

stimulating in design.

Good design interest and offers a legible journey. Inclusion of public art. Well

maintained environment.

DP/LG y y y y

TREES Streets have canopies of

trees.

The space for trees is not made and trees are

not provided.

Ensure provision of trees to make walking attractive, comfortable

and sun safer.

y y

STREET FURNITURE

Street furniture including benches, bins, drinking fountains, sheltered areas are provided.

There is a lack of street furniture and shading.

Standards are required, incentive could be considered.

DP/LG y y y

LIGHTING Good street lighting is

provided.

Lighting has not been upgraded in existing areas and is not

sufficient in some new centres and

neighbourhoods.

Appropriate lighting mandated.

DP/LG y y

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SIGNAGE AND WAYFINDING

Clear and legible signage is provided for all users including disabled and

drivers.

Streets are over-signed with controls but good wayfinding advice is

limited.

Reduce signage other than for key wayfinding

signage.

DP/LG y y y y

CLUTTER Footpaths are free of clutter and barriers.

Streets are full with signage. Much of it is parking control signage and mandatory signage

that may not be necessary.

Promote a ‘Naked Streets’ approach in certain areas.

DP/LG y y y y

BUS SHELTERS DESIGN

Bus stops provide shelter from weather, interesting

designs, clear information on bus routes and bus tracking system suitable to all users.

Lack of funding for bus shelters. Bus stops may be little more than a post

in the ground.

Provide extensive bus shelter coverage with clear information on bus routes and timetabling. Make shelters attractive.

PTA/LG y y

MAINTENANCE

Infrastructure is well maintained for active travel with smooth pavements and bike

paths, environments free of litter and graffiti, good

lighting.

Environments are neglected, vandalised and poorly maintained.

Prioritise maintenance and repairs of

vandalised or damaged infrastructure and street furniture. MRWA required to maintain pedestrian/road crossings.

PTA/MRWA y y

SERVICES

Servicing does not adversely affect street

users.

Pedestrians are inconvenienced during periods of service construction and

maintenance. Location of above ground services not well considered.

Manage service structure locations and

service works.

All Agencies y y y y y

CURRENT PRACTICE

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CURRENT PRACTICE PLANNING AUTHORITY AND DECISION MAKING

EARLY CONSULTATION

Development benefit from knowledge of best

practice and collaboration.

Developments progress to planning and

implementation without good guidance.

Developers must consult with agencies prior to beginning the planning process with local government.

All y y

AGENCY ALIGNMENT AND CONSULTATION

Agencies collaborate to deliver successful

accessible communities.

Conflict between agencies, state and local government, e.g. PTA not always

informed of structure plans.

Need unified objectives with a common plan and goal. Local government need to be empowered to deliver accessible communities.

All y y

CONSISTENCY AND LOCAL GOVERNMENT RESPONSIBILITY

Good outcomes are delivered consistently

with involvement of those who will maintain them.

Inconsistencies between policies and guidelines.

Need to have consistent standards across local areas and regions in order to ensure

accessible communities. Local government maintains these

therefore should enforce the design guidelines.

y y y y

INFLEXIBLE APPLICATION OF STANDARDS

Design decisions are based on serving

outcomes rather than adherence to standards.

Local government overly focused on "standards"

rather than the developed outcome

based on previous poor examples.

Support local government to approve

urban design.

DP/MRWA/ LG

y

DESIGN CONTROL AT LOCAL LEVEL NOT MAIN ROADS BASED

Streets designed for all users.

Road design too vehicle movement focused.

Reduce MRWA involvement at

neighbourhood road levels (i.e. for line

markings and signage only).

DP/LG/ MRWA

y y y

TRAFFIC MODELLING

Traffic modelling outputs are balanced against common sense.

Too much emphasis on modelling outputs based on conservative inputs. Little use of empirical

observation.

Shared road environments should be

encouraged.

DP/LG/ MRWA

y y y y y

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CIVIL ENGINEERING STANDARDS AND EASEMENTS

Infrastructure services urban development

without undermining the development it is

servicing.

Standards and easements are imposed without due regard for effect on the urban environment.

Review engineering standards e.g. service easements to comply with new planning

objectives.

DP/MRWA/ LG/OTHER AGENCIES

y y y

URBAN DESIGN ADVICE

Projects benefit from experience and peer

review.

Good ideas and skills are not being used to full

potential.

Access to peak urban design body to

advocate/support better design outcomes.

DP y y y

ACCESS TO INFORMATION

All stakeholders are informed of system and can ensure good decision making.

Information is guarded and decisions made or appear to be made on personal preference.

Change assumptions in models and increase acceptance of existing working examples as

precedence.

DP/LG/ MRWA

y y

CURRENT PRACTICE COVERAGE OF POLICY

BETTER DISTRICT PLANNING THROUGH STRUCTURE PLANS

Development achieves the accessible

communities’ objectives through an efficient

timely and collaborative process.

Development lacks guidance and integration.

The importance of the structure plan has to be

elevated.

All y y y

PLANNING OF BROWNFIELD SITES

Brownfield development occurring under

accessible communities principles.

Liveable Neighbourhoods policy primarily deals with

greenfields development. Little

guidance on brownfield development.

Integrated Liveable Neighbourhoods style policy for existing areas.

DP y y y

GREENFIELD/ BROWNFIELD

Liveable Neighbourhoods level of policy support provided for existing areas.

Liveable Neighbourhoods good

for greenfield development but difficult

to implement in brownfield sites.

Create Liveable Neighbourhoods

approach for brownfield sites.

DP/LG y y

CURRENT PRACTICE DEMONSTRATION

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CREATION OF MODEL DEVELOPMENTS

Government and private demonstration projects

set up.

Limited examples of Greenfield

developments planned for private vehicle.

Government commitment to

accessible communities - commitment at all

levels.

DP/PTA/ MRWA/LG

y y

COMPETITION BETWEEN DEVELOPERS

Developers see market benefit in best practice and deliver accessible

communities.

Developers are not committed to accessible

communities as community is not aware

of importance.

Create market leading development examples of good accessible

communities. These will create competition

amongst developers and thereby lead demand by

the market and consumers.

DP/PATF y

CURRENT PRACTICE LIABILITY

RISK ADVERSITY

Innovative developments occur with well managed

risk.

Fear of liability by not meeting standards can knock improvement projects on head in brownfield sites.

Innovation risk is assumed where it can best be managed and writs defended.

DP/ Parliament

y y y y

CURRENT PRACTICE PUBLIC FUNDING

PRIORITY BASED FUNDING ACROSS ALL AREAS

Funding is based on addressing greatest

need.

Funding is separated and not properly prioritised.

Reprioritising use of funding - transport plans to identify the priority expenditure for public transport/ infrastructure.

All y y y

PRIORITISATION OF ACCESSIBLE COMMUNITIES IN DEVELOPMENT

Developments put priority on planning outcomes.

Financial considerations drive development, not best planning outcomes.

Stronger planning controls and better

awareness.

DP y y y y y

TRANSPARENT FINANCIAL RESPONSIBILITY

Funding sources are well understood and

responsibly managed.

Funding sources are varied and have varied guidelines for financial

provision.

Need to have a clear definition of financial responsibilities.

All y y

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BUS SHELTER FUNDING

Finding bus stops and waiting for the bus is convenient and comfortable.

Lack of funding for infrastructure including

bus shelters. Plan and fund networks.

All y y y y

FOOTPATH AND CYCLEWAY FUNDING

Funding enables footpaths and shared use paths networks to be fully

established.

Funding from all agencies for footpaths and shared use paths is

limited.

Establish funding and change policies on what

will be funded.

PTA y y y y

CURRENT PRACTICE DEVELOPER CONTRIBUTIONS

DEVELOPER CONTRIBUTIONS TO ESTABLISHED AREA UPGRADES

Upgrades to established areas are funded by the developments that will benefit from them.

Development often results in upgrades to roads, focused on traffic access sometimes to the detriment of the quality

of the areas.

Require developer contributions to

infrastructure such as cycle lanes, etc.

DP/ LG y y y

DEVELOPER CONTRIBUTIONS TO NEW DEVELOPMENTS

Developers of new areas know their obligations and are able to make a positive contribution.

No incentives to get ideal outcomes -

developers are often driven by financial returns; therefore this often leads to the

cheapest solutions and compromised design

outcomes.

Create strong design guidelines and local government should enforce these with the developers. Formalise financial contribution

arrangement.

DP/ LG y y y

CURRENT PRACTICE TAXING TO MODIFY CHOICES

REFORM TAX REBATES

The tax system recognises the costs of travel by alternative

modes.

Tax system only recognises vehicle travel

as a formal cost.

Provide tax rebate for public transport users, pedestrians and cyclists.

Federal Treasury

y y y

REFORM TAX REBATES FUNDING

Public transport is free, private vehicle users are

taxed.

It's free to drive on roads but costs money to use

public transport.

Taxation system should be reformed to reflect the true cost of motorised

transportation. There should be further subsidies for public transport use to

State and Federal Treasury

y y y

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encourage modal shift.

CONGESTION TAX

Individuals whom wish to occupy the street, access their destination, in a car pay for the burden that it

creates.

There is little disincentive to car travel and expectations are of high level of service.

Congestion tax - abuser pays.

DP/LG/ MRWA

y y y

CURRENT PRACTICE COMMUNITY INVOLVEMENT

LEADERSHIP ON ACCESSIBLE COMMUNITIES

There is clear and effective leadership in the delivery of accessible

communities.

Lack of consistent funding for local governments.

DP to lead - local government strategy to be aligned with state

strategy.

DP y y

COMMUNITY CONSULTATION ON ROAD CHARACTERISTICS

The community involved in the decision-making process and in setting the hierarchy of roads.

Liveable Neighbourhoods produced with great

community participation; however, the opportunity this offered has been

missed.

Should have public

consultations (surveys, questionnaires, enquiry by design) to determine what people want for

their district.

DP/PTA/ MRWA/LG

y y y

EDUCATION Community supports

accessible communities. Community not engaged

in issue. Community education

programs.

All y

CURRENT PRACTICE ROAD USER ATTITUDES AND BEHAVIOUR

DRIVER BEHAVIOUR Driver behaviour

respects other users.

Drivers given too much priority in social consciousness.

Community education programs.

All y

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5 PART 4: Formulate recommendations

5.1 Recommendations

The following recommendations have been developed based upon a best-practice review of national and international case studies, a review of local practice including policy documents and planning frameworks relevant to accessible communities, and the gap analysis including gaps identified at the key stakeholders’ workshop. The recommendations seek to provide mechanisms through which more specific gaps (e.g. relating to design issues and lack of active travel infrastructure or priority which are recorded in earlier sections) can be remedied.

Recommendations have been grouped into 10 themes in the following TABLE 4 to assist with stakeholder consideration and implementation. The 10 themes are:

1. Strategic linkages 2. Funding 3. Documents that support planning and development 4. Training and development 5. Governance 6. Policy 7. Monitoring and enforcement 8. Further study 9. Communication 10. Terminology. A ‘Lead agency’ and ‘partners’ have been assigned by the DP with input from stakeholders. With respect to the implementation of the recommendations the roles of the Department of Transport (Transport) and Department of Planning (DP) may change as the two Departments strategic transport planning roles are clarified. For the purposes of this study, where the lead agency is not clear, both DP and Transport have been included for implementation purposes.

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TABLE 4 – RECOMMENDATIONS

1. Strategic Linkages

Recommendation

Lead Agency

Partner

Section Reference

1.1 The WAPC already supports the development of integrated transport plans. Comprehensive guidance should be provided in partnership with the Western Australian Local Government Authority (WALGA) to encourage and support local governments (LG) to develop integrated transport plans (ITPs) that focus on active travel and accessible communities. The ITPs must take into account strategic plans that have already been developed by local and state government and cover existing and planned areas. The ITPs should form the basis for funding proposals for transport related infrastructure to ensure all transport funding expenditure is aligned to improving accessibility for all (refer to recommendation 2.2). Therefore ITPs should be required as part of local planning strategies and reflected in structure plans.

Transport DP

WALGA LG

Part 1 Appendix B

Rationale – It is evident from the response by local governments that while there is some activity in relation to pedestrian and cycle plans, integration of these plans could be improved. State level leadership that is clearly articulated in its strategic documents and supported through funding proposals hinges on being extended to local government to provide consistent outcomes in the development of accessible communities. Local government in turn should be supported to prepare integrated transport plans to ensure that joint state and local government objectives are achieved. Many local strategies have been in place for a considerable length of time and require updating. Guiding the process will ensure a good outcome and consistency in their

preparation will enable more streamlined and focused funding assessment.

2. Funding

Recommendation

Lead Agency

Partner

Section Reference

2.1 Increased State funding should be made available to bring existing areas into line with current policy in terms of the provision of infrastructure that facilitates active travel. To support increased resourcing for upgrades, it is necessary to engage in a more comprehensive analysis to build a strong business case. Therefore, DP and Transport should undertake an investigation into the current structure, funding model, and sustainability (triple bottom line) of existing active travel networks (including bus stops). The objective of this review would be to identify (a) whole of government benefits (environmental, social and functional) of accessible community planning for WA, (b) existing infrastructure, (c) existing funding, and (d) infrastructure gaps.

Transport DP WALGA

Part 2 Part 3

Rationale – It is evident from field studies and industry workshops that many existing areas fall well below the standards being achieved in

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new developments. The retrofitting of existing areas is required. In many cases transport program funding is decided using cost-benefit analysis. Demonstrating the benefits of active travel is difficult, as many benefits such as well-being cannot easily be quantified. Triple bottom

line has more scope to consider qualitative benefits. Benefits can be gained from integrated transport schemes that deal with all users rather than just one aspect of the system.

2.2 The allocation of transport funding should be linked to the contents of agreed local government integrated transport plans that identify networks and safeguard their implementation over time.

Transport

DP WALGA WAPC

Part 1

Rationale – The political cycle and current system of funding supports large and expensive infrastructure projects. A comprehensive evaluation will assist in delivering funds to areas of greatest societal benefit. This will allow schemes to be assessed side-by-side and integrated if not cross-funded. (This is similar to the Borough Spending Plan process in London and LTP process in UK). Multi-year programs could also be funded e.g. Portland, London. Such an approach will reduce the time and effort required to prepare and assess one-off applications and ensures funding is directed to areas of highest priority. In terms of improvements to existing areas, there is a tendency to request contributions for items that the federal government will fund (e.g. surf clubs), which may be used by only a small part of the community. Funding for public domain improvements is difficult to obtain without a coherent program of works and stated outline of needs. In terms of new areas, funding of better streets is mutually beneficial for developers and communities.

3. Documents that Support Planning and Development

Recommendation

Lead Agency

Partner

Section Reference

3.1 Draft a new State planning policy for accessible communities.

DP Transport Part 3 Appendix C

Rationale – Planning for Accessible Communities is inadequately covered by existing State planning policies. The transport requirements

needed to facilitate active travel should be encouraged through a new State planning policy.

3.2 Consider how State planning policies for which gaps have been identified by this study (including SPPs 3, 3.6 and 4.2) should be dealt with as part of Stage 2 of this study. It is noted that these are currently the subject of a separate review.

DP Transport Part 2

Rationale – Gaps and flaws in SPPs have been noted from this study and SPPs should be amended to take account of these shortcomings and areas for improvement. Many policies attempt to cover too much without providing clear and specific standards on acceptable outcomes. For example, the current activity centres policy endeavours to promote main streets but the wording does not provide a regulation to assist in

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enforcement. The parallel section in Liveable Neighbourhoods is equally open to interpretation.

3.3 The content of individual development control policies (e.g. DC 1.5 Cycling published in 1998) should be updated and, as originally intended in Liveable Neighbourhoods, integrated into a single document. The purpose of development control policies needs to be reconsidered including in regard to greenfield and brownfield development.

DP Transport Part 2

Rationale - Development control policies are often out of date (e.g. DC 1.5 Cycling) or have been surpassed by more comprehensive documents such as Liveable Neighbourhoods. Liveable Neighbourhoods replaces development control operational policies and to the point of any inconsistencies, Liveable Neighbourhoods prevails; however, Liveable Neighbourhoods does not control brownfield development.

3.4 If retained, development control policies should be prepared for pedestrian planning to ensure a consistent approach.

DP Transport Part 2

Rationale – There is not currently a pedestrian planning DC policy. Raising the requirement to state level highlights the importance of the requirement. The DC policy will be inclusive of development not covered by Liveable Neighbourhoods.

3.5 Development control policies (regardless of what form these are published) should be used to convey development standards not street design standards and should point users to supporting guidelines such Austroads, a Manual for Streets, Walking and Cycling Design Guides, IPWEA Subdivision Design Guidelines, the Draft Street Layout, Design

and Traffic Manual Guidelines and various other standards. Clarifying and possibly redefining the role of planning bulletins should also be considered.

DP Transport Part 1 Part 2

Rationale – Street design standards need to be comprehensive to deal with a range of conditions, environments, and safety requirements. These are too varied to be stated in development control policies without over simplification, as is currently the case. The purpose and necessity of Planning Bulletins is unclear – currently the function is split between providing advice and providing information and progress updates. E.g. Planning Bulletin 33 Rights-of-Way or Laneways in Established Areas – Guidelines is a form of control policy but issued as a bulletin

3.6 The review of Liveable Neighbourhoods needs to ensure that the range of accessible community objectives are more emphatically addressed in the policies.

DP LG Transport

Part 2 Appendix C

Rationale –

a) State Administrative Tribunal has agreed that Liveable

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Neighbourhoods confines itself to greenfield areas whereas the application of Liveable Neighbourhoods to activity centres and sites over 4 ha is appropriate in existing areas. There are clear areas where the Liveable Neighbourhoods integrated

approach could result in better outcomes e.g. for brownfield subdivisions and large Strata titles.

b) Liveable Neighbourhoods contains too many ‘should’ statements relative to the regulation provided by other agencies and therefore is open to being undermined.

c) Liveable Neighbourhoods provides insufficient advice on context sensitive design and refers to prevailing approaches to speed limits and road hierarchy.

d) Activity Centres and local centres are central outcomes but the section is located at the back of the document and lacks strength. There are few local centres in new areas and shopping complexes continue to occur on town centre sites. Liveable Neighbourhoods needs to better address policy that links vehicle numbers with road speeds as this limits potential for activity centres to include urbanised higher-order roads.

e) The movement section could expand on the need for transport plans and require greater certainty on the early provision of public transport services (possibly bonded provision).

f) Current proposal to increase the minimum road width, on the premise of accommodating future utilities and improving certainty of inclusion of street trees is likely to result in wider streets and less edge friction. Agreed narrow street options with services in lanes or under carriageway need to be developed to avoid 16 metre road reserves being widely applied.

g) Liveable Neighbourhoods should reinforce minimum density levels and staging commitments.

3.7 A Manual for Streets should be developed that demonstrates how context sensitive design should be applied to design of movement networks in urban areas including town centres. It is important that WA specific pedestrian and cycle design guidelines are incorporated into the Manual for Streets. A Manual for Streets would offer greater details for the Perth vision and it is likely these would sit below Austroads and possibly alongside or possibly trigger changes to some Main Roads Western Australia (MRWA) Standards. This manual must be developed in conjunction with Main Roads and IPWEA to ensure local government support is achieved.

Transport

MRWA WALGA IPWEA

Part 1 Part 3

Rationale – The information is vital but too detailed for Liveable Neighbourhoods. Austroads provides design advice but guidelines are needed on the vision for Perth’s network and the processes in place for implementing it. The Manual for Streets promotes performance based, context sensitive design and goes some way to bridging the gap between land use and transport planning. Those guides, which have been updated as part of the review of the Austroads Guide to Traffic Engineering Series, now provide more scope for local interpretation but cannot cover all situations where active travel modes should be expressly prioritised.

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3.8 It is recommended that DP adopt an accessible communities infrastructure audit which checks design and infrastructure against a desired level of service to ensure quality cycle parking, cycle paths,

pedestrian paths, seating, water fountains and lighting are provided.

DP Transport LG

MRWA

PTA WALGA

Part 3

Rationale – Public realm standards are missing from the planning policy framework. They are left to designers, developers and local government to negotiate with variable outcomes. Much of the focus is on parks not streets. An infrastructure audit will allow designs to be checked, prior to the development being occupied. Needs to consider context sensitive design.

3.9 The Guidelines on Transport Assessment should undergo a time-restricted trial (have been under review since 2006), or be reviewed in response to recent international work on thresholds and finalised. Further, the transport assessment can ensure early consideration of non-car modes (during first or second stage of development) and place the onus on the developer to demonstrate how non-car users are to be catered for. Travel plan requirements including level of service measures that provide for pedestrian priority (i.e. length between crossing points) also need to be considered.

DP Part 1 Part 2

Appendix A Appendix C

Rationale – There is inconsistent application and insufficient emphasis on the outcomes in design. It is evident from field studies that the relationship between ‘estates’ and major roads is still limited and legible cycle paths are limited. Transport assessment is essential to ensuring policy objectives are delivered by developers.

3.10 In line with Directions 2031 Spatial Framework for Perth and Peel recommendations, the Residential Design Codes should be amended to consider minimum densities that will result in higher densities than the current codes are able to provide. It is recommended that the review might go one step further and consider laying out a transect-based residential planning code framework that prescribes different design codes and standards for different zones along a transect which can, as demonstrated in other countries, result in more compact, walkable, and mixed-use environments.

DP WAPC Transport

Part 2 Appendix C

Rationale – This approach could assist with:

a) More certainty of development outcome including minimum densities.

b) Stronger streetscape relationship control. c) More ‘as of right’ approval for higher density development in

transit areas. A multi-unit housing code is currently being prepared which will include a tracked based assessment approach whereby development applications are streamed into an assessment 'track' that corresponds with the level of assessment required to make an appropriately informed decision.

d) Providing for more transit supportive parking standards and options for constraining supply e.g. shared parking (should

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reflect outcomes of upcoming Metropolitan Parking Strategy actioned as part of Directions 2031 Spatial Framework for Perth and Peel).

e) Implementing a consistent metropolitan approach/standard to

overcome the extent to which existing communities prevent developer-driven reduced parking ratios, based on concern that parking will be on-street.

f) Decoupling residential parking in multi-unit developments.

4. Training and Development

Recommendation

Lead Agency

Partner

Section Reference

4.1 The WAPC should continue to work with other government sectors, and industry partners and health authorities to develop training initiatives for local government, councillors and others on:

• Pedestrian and cycling design, and network planning; e.g.

MRWA cycling design course and a knowledge transfer strategy for local government.

• Expectations in terms of WAPC's vision and policy.

• Benefits and rationale to assist in promotion.

• Good planning practice.

• Developer advice sessions.

• Introduction to new documents.

DP MRWA Transport

WALGA LG

Part 1 Part 3

Appendix F

Rationale – Many decisions are made outside WAPC control thus partnerships and training is critical. This recommendation should also be progressed through Building A Better Planning System.

5. Governance

Recommendation

Lead Agency

Partner

Section Reference

5.1 A hearings system should be provided for structure plans where a committee hears the conditions set by each agency and by DP and can instruct other agencies to investigate alternative conditions (within the scope of its act) to address adverse effects of proposed conditions. Establish a sequence of hearings to assist the development of the structure plan or project. Investigate whether the terms of reference for the Infrastructure Coordinating Committee may allow for it to take on this role more actively.

DP WALGA LG

Part 3 Appendix F

Rationale – The current informal system allows agencies to operate in isolation of each other’s agendas. This recommendation should also be progressed through Building A Better Planning System.

5.2 It is recommended that Transport investigate if and how it could assume the liability from local governments for road accidents on approved streets. The approach would have to separate liability based on maintenance from liability based on design.

Transport MRWA WALGA

Part 3 Appendix F

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Rationale – There is a perceived risk in adopting new approaches and strong policies to ensure roads are congestion free. A centralised approval body can trial new approaches, introduce better standards, and defend decisions on the basis of broader social agendas.

6. Policy

Recommendation

Lead Agency

Partner

Section Reference

6.1 A road classification system that allows for greater recognition of variations in the design and speed of roads along their length as they move through different areas needs to be integrated into recognised classification systems.

MRWA Transport DP

Part 2 Appendix C

Rationale – A clearer statement on sharing traffic load across the network and allowing roads to safely transition through sensitive areas needs to be communicated to create the shift from the traditional hierarchical and inflexible road design/road function approach. Auckland City Council is following an approach advocating ‘liveable arterials’ whereby road function transitions through various areas.

6.2 A community-based process of prioritising various modes across the street network should be developed to enable the community to set priorities in terms of access. The process must include comprehensive information on the costs or various choices to business, taxpayers and society.

MRWA Transport

DP LG

Part 3

Rationale – Current road design and standards are increasingly recognising the level of service for other users. However, level of service for vehicles continues to dominate current discussions as evidenced by the almost complete lack of activity corridors in new areas despite community support evident in the Dialogue with the City

workshop.

6.3 Traffic speed is a major psychological barrier to increased walking and cycling. MRWA and local government have implemented a number of lower speed zones in Perth. MRWA aims to achieve operating speeds of 30 km/h in high pedestrian areas that are self enforcing through design elements and has signed off on the State Road Safety Strategy Towards Zero, which promotes targeted speed limit reductions and demonstration speed limit reduction projects. Lower speeds in highly pedestrianised areas and possibly residential areas should, over time, become a standard condition with proof of safety required when permitting higher speeds in such areas to show these will not undermine access for all.

MRWA LG Police

Office of Road Safety Transport

Part 1 Part 3

Appendix A Appendix F

Rationale – Concern regarding the time delay effect of reduced road speeds persists despite evidence that the time delay is limited. Meanwhile, the savings to human life, improvement in the sense of

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safety, and improved physical health are potentially immense. MRWA has demonstrated commitment through recent projects such as the Fitzgerald Street speed reduction (30 km/h) in North Perth and the variable speed reduction (40 km/h) in Beaufort Street Mount Lawley.

Discussions are underway to reduce the posted speed limit in the Leederville Town centre to 30 km/h. All speed limit reviews require agreement between MRWA, local government and the police, and any of the three organisations or members of the public can initiate requests for reviews.

6.4 The DP has begun work (funded by the WAPC) to revise and extend the Perth Parking Policy. This should provide strategic direction on the funding and delivery of appropriate levels of both on and off-street parking for visitors, tenants, disability, service bays and other parking

requirements as well as guidance on the management of parking in activity centres. The Perth Parking Policy framework would need to (a) support a balanced transport system, (b) encourage equitable access between centres, and (c) promote good urban design and amenity outcomes within centres. Shared parking arrangements should be promoted.

Transport WALGA WAPC

Part 2 Appendix C

Rationale – Parking is one of the key determinants of mode choice. It is offered as an employment benefit or visitor incentive, yet encouraging driving reduces the comfort and actual convenience of other modes. Some standards can act as a deterrent for developers, and influence LG policy on parking. The review of Perth Parking Policy is an opportunity to contribute to wider policy objectives to reduce car dependency.

6.5 Minimum standards for the presentation and provision of way-finding signage should be developed by Transport in conjunction with WALGA,

Public Transport Authority and MRWA. Local governments should be supported to adopt the standards and provide this type of signage/information, whilst simultaneously streamlining the overall provision of signage and reducing ‘clutter’.

Transport DP WALGA

Part 3 Appendix F

Rationale – Time and convenience are vital to the choice of modes. For minor cost, major improvements can be made to the ease of non-vehicle trips. Good signage reinforces the ease, availability and support of non-vehicle trips thus elevating its importance. All too often, excessive, conflicting or unclear signage is used.

6.6 DP and Public Transport Authority should provide guidance on a common system for establishing accessibility to public transport nodes that extends beyond distance (e.g. ped-sheds) to include barriers (e.g. safety and severance caused by major roads).

PTA DP WALGA

Part 3 Appendix C

Rationale – While Liveable Neighbourhoods has significantly improved street interconnectivity, site constraints can be too easily accepted as a reason for not ensuring a high level of service. This measure will highlight deficiencies and assist in a more critical review of detailed design factors for services and infrastructure. Safety studies done

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around Midland, Mosman Park and Gosnells could be a model. Other case studies such as PERS22 (Pedestrian Environment Review System) use various parameters to provide a comprehensive quantitative assessment of the environment under review from a pedestrian perspective, providing an effective illustration of its key elements. This analysis enables objective comparison of the level of service for pedestrians along different routes and entails ‘rating’ a variety of headings on a 7-point scale.

7. Monitoring and enforcement

Recommendation

Lead Agency

Partner

Section Reference

7.1 Investigate models for more consistent and frequent monitoring of movement infrastructure and greater powers of enforcement relating to planning policy and guidelines and planning application conditions. Models must consider resource requirements and may involve self-assessment.

DP WALGA LG

Part 1

Rationale – Many policies and standards are not often enforced due to perceived constraints and conflict with other policies and standards. Accessible communities based policies must not be able to be diluted in this way. It is also evident from the field assessments that some innovative practices are being approved but not reviewed. Conversely there are failings in implementation including lack of interface of centres with high-order roads and lack of proper street systems in many town

centres. Outcome monitoring provides the opportunity to identify outcomes and compare these against original project objectives and wider government objectives. Voluntary outcome monitoring of Borough Councils has been implemented by London’s transport funding authority using self-assessment.

8. Further Study

Recommendation

Lead Agency

Partner

Section Reference

8.1 Austroads, MRWA, Australian Standards and other guidelines should be studied to consider how these are meeting accessible communities objectives and opportunities for consolidation or consistency with WA policies for the following:

• design vehicles

• street tree policy

• kerb radii

• car parking provision

• roundabouts

• splitter islands.

Transport MRWA

DP WALGA

Part 2 Appendix C Appendix D

22

http://www.walk21.com/papers/Zurich%2005%20Allen%20PERS%20v2%20Auditing%20public%20spaces%20and%20interchan.pdf

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Rationale – An expansive and often conflicting array of standards exist affecting street design and layout e.g. Planning Bulletin 97 Proposed Street Tree and Utility Planning Amendments to Liveable Neighbourhoods dictates a minimum street width of 16 metres based on infrastructure agency driven concerns. It considers the possibility of narrower roads in town centres but does not explain how under-width roads might be made possible in town centres or why this would not be possible across the neighbourhood. The likely outcome may be a default to 16 m roads in all circumstances.

9. Communication

Recommendation

Lead Agency

Partner

Section Reference

9.1 WAPC should establish a common interface for all accessible communities’ policy where practitioners can find resources, source all relevant standards and be made aware of best practice studies relevant to Western Australia.

WAPC Part 3

Rationale – Innovations are not identified and promoted consistently, international best practice is not widely identified and communities are not informed and empowered to demand accessible communities.

10. Terminology

Recommendation

Lead Agency

Partner

Section Reference

10.1 Find an alternative to accessible communities.

Transport/DP

Part 1

Rationale – The term is well established by the disabled access advocacy groups and related more with universal access. Liveable Cities captures the broader agenda of compact, connected and conducive cities. The EU is using the term for an agenda to improve cities which has many parallels to this work (http://www.liveablecities.org/).

10.2 Adopt active travel as a popular term.

ALL Part 1

Rationale – the Planning Institute of Australia, Australian Local Government Association and the Heart Foundation has adopted it nationally.

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6 Conclusions: Where to from here

The focus of all outputs is to ensure that they are readily understood and implemented and that they provide the necessary framework and platform for sustainable planning initiatives. The proposed Stage 2 of this study requires the preparation of an appropriate response that translates the recommendations identified in Stage 1 into implementable planning policy or other initiatives.

The continuation of this work to Stage 2 is recommended, although the recommendations identified in Stage 1 are viewed as a package of improvements and therefore are equally important. It is the Consultants’ view that as a starting point, recommendations relating to the documents that support planning and development (refer recommendation group 3) should be progressed as these will support the implementation of many of the other recommendations and deal with detailed problems identified during the Gap Analysis.

Key to this will be:

• The drafting of a new State planning policy for accessible communities that integrates into the existing planning framework and meets the requirements of the range of stakeholders.

• Updating and integrating the content of development control policies.

• Clarifying and possibly redefining the role of planning bulletins.

• Progressing the planned review of Liveable Neighbourhoods taking account of recommendations in this study.

• Progressing the Manual for Streets or similar document.

• Linking in with other planned work such as the review of Perth Car Parking Policy.

In addition, recommendations relating to outcome monitoring and models for greater powers of enforcement relating to planning regulations and planning application conditions should be progressed to inform Stage 2 by providing better information on how the system is performing in terms of the extent to which accessible communities are being created.

Accessible communities can only be achieved with high-level cooperation, sustained effort and strong commitment from the community, state government agencies, local government, urban designers, planners, architects, developers, street designers and accessible communities experts.

The Steering Group established to progress this study should consider an ongoing role in managing the implementation of the recommendations made in this report.

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