Amendment C221 - City of Melbourne · Amendment C221 . Expert Evidence Statement . V161950T ....

Amendment C221

Expert Evidence Statement V161950T

Prepared for Holding Redlich 2 November 2016

Amendment C221

Expert Evidence Statement V161950T

Amendment C221 Expert Evidence Statement

2 November 2016 Cardno ii )

Document Information Prepared for Holding Redlich Project Name Expert Evidence Statement File Reference CG140452Panel001F01.docx Job Reference V161950T Date 2 November 2016

Contact Information Cardno Victoria Pty Ltd Trading as Cardno ABN 47 106 610 913 Level 4 501 Swanston Street Melbourne Victoria 3000 Australia Telephone: (03) 8415 7777 Facsimile: (03) 8415 7788 International: +61 3 8415 7777 [email protected] www.cardno.com

Document Control Version Date Author Author

Initials Reviewer Reviewer

Initials

F01 2/11/16 Tim McKinley

© Cardno. Copyright in the whole and every part of this document belongs to Cardno and may not be used, sold, transferred, copied or reproduced in whole or in part in any manner or form or in or on any media to any person other than by agreement with Cardno.

This document is produced by Cardno solely for the benefit and use by the client in accordance with the terms of the engagement. Cardno does not and shall not assume any responsibility or liability whatsoever to any third party arising out of any use or reliance by any third party on the content of this document.


2 November 2016 Cardno iii )

Table of Contents 1 Planning Panels Victoria Guidelines 4

2 Introduction 6

3 Background and Existing Conditions 7 3.1 Location and Land Use 7 3.2 Road Network 8

3.2.1 Kensington Road 8 3.3 Melbourne Seafood Centre – Existing Operations 9

4 Potential Development 11 4.1 General 11 4.2 Vehicle Access and Road Network 12

5 Issues 13

6 Road Network Considerations 14 6.1 Location of Site Access Points 14 6.2 Signals and Security Gate 15 6.3 Kerbside Parking Loss 16 6.4 Lane Width Design – Heavy Vehicles 17 6.5 Lane Width Design – Bicycles 17 6.6 Review of draft Schedule 12 to the Development Plan Overlay 17

7 Conclusions 18

Appendices Appendix A Proposed melbourne Seafood Centre Swept Paths Appendix B Existing Melbourne Seafood Centre Swept Paths Appendix C Austroads Guide to Road Design Excerpts Appendix D Public Transport Guidelines for Land Use and Development Appendix E Planning Scheme Clause 56.06 Appendix F Vehicle Paths Appendix G Austroads Guide to Road Design Excerpts – Bicycle Lanes

Tables Table 4-1 Indicative Development Schedule 11

Figures Figure 3-1 Street Map of Site Location 7 Figure 3-2 Kensington Road, looking north from the subject site 8 Figure 3-3 Kensington Road, looking south from the subject site 8 Figure 3-4 Aerial Photograph of Melbourne Seafood Centre 9 Figure 3-5 Peak traffic and parking period 10 Figure 6-1 Melbourne Seafood Centre Security Gate 15 Figure 6-2 Kensington Road on-street parking demand 16


2 November 2016 Cardno 4 )

1 Planning Panels Victoria Guidelines

The following report has been prepared In accordance with the Planning Panels Victoria Guide to Expert Evidence. My qualifications, expertise and instructions to undertake this work are summarised below:-

Name: Timothy Peter McKinley

Address: Cardno

Level 4, 501 Swanston Street

Melbourne Vic 3000

Professional Qualifications: > Bachelor of Engineering (Civil) Hons, 2003, University of Melbourne

> Bachelor of Commerce, 2003, University of Melbourne

> VicRoads Accredited Senior Road Safety Auditor

Professional Experience: > Cardno 2011 - present

> Cardno Grogan Richards 2007 – 2011

> VicRoads 2003 - 2007

Areas of Expertise: > Car parking, traffic and transportation.

> Traffic advice and assessment of land uses and development proposals to planning authorities, government agencies, corporations and developers (including residential, retail, commercial, industrial, institutional and mixed use projects).

Expertise to Prepare this Report: My training and experience including involvement with all forms of development over a number of years qualifies me to comment on the traffic implications of the proposal.

Instructions which defined the scope of this report: I have been requested by Holding Redlich, on behalf of Melbourne Seafood Centre, to provide my expert opinion, in regards to Amendment C221 on the site addressed as 156-232 Kensington Road, West Melbourne.

I have been requested to provide my opinion on the following issues:

1. The traffic context with respect to the site and surrounds, particularly with regard to the Melbourne Seafood Centre;

2. The effect of that context upon a mixed use proposal for the site.



Facts, Matters and Assumptions Relied Upon: > Site visit, Wednesday 26th October, Friday 28th October and Saturday 29th October 2016;

> West Melbourne Waterfront Draft Development Plan, 11th March 2016;

> “Fish Markets Kensington – Traffic and Parking review”, prepared by GTA, dated 15th June 2016;

> “West Melbourne Waterfront Development Plan Integrated Transport and Access Plan” prepared by GTA dated 21/8/15;

> Melbourne Planning Scheme Clause 52.06 and Clause 56.06;

> Public Transport Guidelines for Land Use and Development, Department of Transport 2013;

> Austroads Guides to Road Design Part 3 – Geometric Design.

Identity of Persons Undertaking the Work: Tim McKinley of Cardno.

I have made all the inquiries that I believe are desirable and appropriate, and no matters of significance, which I regard as relevant, have to my knowledge been withheld from the Panel.

Tim McKinley

Associate

for Cardno



2 Introduction

It is proposed to rezone approximately 2.8 hectares of land known as ‘West Melbourne Waterfront” from Commercial 2 Zone to Mixed Use Zone and apply a Development Plan Overlay and Environmental Audit Overlay to the land being rezoned.

This report has been prepared in accordance with the Planning Panels Victoria Guidelines. In the course of preparing this assessment, I have inspected the subject site and surrounding road network, researched relevant case study data, reviewed the proposed documents and plans outlined in Section 1.

My opinions with respect to the proposed rezoning are set out in the following report.



3 Background and Existing Conditions

3.1 Location and Land Use The subject site comprises a number of land parcels located on land at 156-232 Kensington Road, West Melbourne. The site has an approximate area of 2.8 hectares and 270 metres frontage to Kensington Road along the south-eastern boundary. The site abuts a rail reservation to the north, warehouse/store land use to the south, and the Maribyrnong River to the west. The subject site currently accommodates several warehouse buildings with associated car parking arrangements and loading areas. In total there are 7 existing crossover connections to Kensington Road, all of which provide fully-directional access. The site is currently surrounded by a mixture of land uses. The area south of the railway line is predominantly occupied by modern industrial, warehouse and storage land uses. The area to the north of the railway line is predominantly residential in nature, with notable land uses in the vicinity of the site being JJ Holland park (150m north-east of the site) and Flemington Racecourse (700 metres north-west of the site) The site is serviced by public transport with both bus and train services located within a convenient walking distance. Bus Route #402 passes along the Kensington Road frontage of the site providing a link between Footscray and East Melbourne, with interchange connections to several railway stations. Bus stops for this route are provided on both sides of Kensington Road at both the northern and southern boundaries of the site. The site is zoned for Commercial Use (C2Z) in the Melbourne Planning Scheme. The purpose of this land use zoning is to encourage commercial areas for offices, appropriate manufacturing and industries, bulky goods retailing, other retail uses, and associated business and commercial services. Figure 3-1 Street Map of Site Location

Subject Site



3.2 Road Network

3.2.1 Kensington Road

Kensington Road is a local road under Council jurisdiction which is aligned northeast- southwest along the frontage of the site. Kensington Road in the vicinity of the site accommodates a single two-way carriageway of approximately 14.5 metres width. Each side of the carriageway accommodates a central vehicular travel lane of 3.0m separated by a painted island of 1.0m width, an outer bicycle lane of 1.5m and kerbside parking lane (inclusive of bus stop areas) as shown in Figure 3-2 and Figure 3-3. On-street parking along Kensington Road in the vicinity of the site is generally unrestricted. “No Stopping” controls are located adjacent to several vehicle crossovers to provide adequate manoeuvring space for larger vehicles to enter and exit the road network. The posted speed limit along the Kensington Road frontage is 50 km/h. Significant arterial roads in the vicinity of the site include Dynon Road and Footscray Road, located approximately 150 metres and 800 metres south of the site respectively. Figure 3-2 Kensington Road, looking north from the subject site

Figure 3-3 Kensington Road, looking south from the subject site



3.3 Melbourne Seafood Centre – Existing Operations The Melbourne Seafood Centre (MSC) operates from a site on Kensington Road opposite the Amendment C221 area, as shown in Figure 3-4. The sole vehicular entry to the seafood centre is provided to the north of the site, while the sole exit is provided at the southernmost section of the site abuttal to Kensington Road. Both entry and exit points are provided with large security gates and are designed to accommodate movements into and out of the site by 19m semi trailers.

Figure 3-4 Aerial Photograph of Melbourne Seafood Centre

Fish is delivered to the site by wholesalers between 9pm and 4am each day. This fish is sold when the seafood centre is opened to registered buyers between 4.30-7.00am six days per week.

When the seafood centre opens at 4.30am, the peak traffic and parking associated with the site occur at this time, as shown in Figure 3-5. Buyers enter the site via vans and trucks at opening in order to take advantage of the best produce available and therefore the traffic intensity is at its greatest at opening. The peak traffic and parking times for the seafood centre do not conflict with the normal commuter traffic peak period nor compete for on-street parking with any other industrial uses south of the railway line.

Subject Site MSC



Figure 3-5 Peak traffic and parking period



4 Potential Development

4.1 General It is proposed that the subject site be rezoned from commercial use (C2Z) to mixed-use (MUZ) to allow for a mixed-use infill development of the site.

The Draft Development Plan and Integrated Traffic and Access Plan (ITAP) provides an outline of the proposed mixed use components. The potential development schedule outlined in those documents is summarised below:

Table 4-1 Indicative Development Schedule

Use Area / No.

Dwellings 750 no.

Office 14,050 m2

Retail (Shop) 4,650 m2

Retail (Supermarket) 2,800 m2

Car Parking Spaces 1,384 no.

The Draft Development Plan provides building massing diagrams which indicate the development will comprise four (4) buildings with varying height and setbacks. The northernmost building will comprise a supermarket, office, retail and residential land uses. The three (3) buildings to the south will comprise commercial and residential land uses.

The traffic documents suggest an overall on-site parking provision of 1,384 car parking spaces. The Draft Development Plan indicates these spaces will typically be provided in the ground and podium car parking levels of each building. Detailed car parking layouts are not provided, however the section diagrams suggest each building will have a varying level of car parking to accommodate the parking demands of that particular building.



4.2 Vehicle Access and Road Network Vehicular access to the site is proposed from Kensington Road via the construction of four (4) access points.

▪ ‘Site Access 1’ is located at the northern boundary of the site and is proposed to provide an unsignalised left-in, left-out access for regular vehicles, while allowing right out for loading vehicles;

▪ ‘Site Access 2’ is proposed approximately 80 metres south of the above access and will initially be constructed as a signalised intersection with separate left and right turn stand up lanes and a channelised right-turn and auxiliary left-turn treatment on Kensington Road. It is also proposed to signalise the exit from the Melbourne Seafood Centre as part of this intersection;

• ‘Site Access 3’ is proposed approximately 100 metres to the south of Site Access 2 and is proposed to provide separate left and right turn stand up lanes with a channelised right-turn and auxiliary left-turn treatments on Kensington Road;

• ‘Site Access 4’ is proposed at the southern boundary of the site and is proposed to provide fully-directional access with single stand up lane to Kensington Road.

Concept layout plans for the site access arrangements have been prepared by GTA Consultants and are shown within Appendix C of the ITAP report. To accommodate the inbound right-turning treatments on Kensington Road, the vehicle and bicycle lanes on the opposite side of the carriageway have been moved towards the south-eastern kerbside. This results in a significant loss of kerbside parking spaces on both sides of the road (in the order of 53 spaces), and also requires alterations to the existing southbound bus stops. Further to this, the effective width of the through traffic lanes has been reduced from 3.5m to 3.0m, and the bicycle lanes from 1.5m to 1.2m. No alteration to kerbs is proposed, noting that trees and power poles are located at the back of kerb on both sides of Kensington Road. The plans indicate the bus stop opposite Site Access 2 will be relocated approximately 70 metres south and the bus stop opposite the stage 3 works is proposed to be relocated approximately 30 metres under ultimate conditions.



5 Issues

The issues dealt with in this report are the traffic and transport implications of the proposed rezoning of the land, inclusive of the following issues as they relate to the Melbourne Seafood Centre:

• Location of access points;

• Clash between signals and security gate;

• Provision of kerbside parking on the road frontage;

• Geometric cross section design for motor vehicles;

• Geometric cross section design for bicycles.



6 Road Network Considerations

6.1 Location of Site Access Points I have reviewed the proposed access points to the proposed West Melbourne Waterfront site with respect to the impact upon the Melbourne Seafood Centre. Both Site Access 1 and Site Access 2 are opposite the vehicular access points to the Melbourne Seafood Centre.

I have undertaken swept path analyses for the two access points in relation to their impact upon the movements into and out of the Melbourne Seafood Centre. These swept paths are shown within Appendix A.

Site Access 1 provides no inhibition for the 19m articulated design vehicle swept paths into the existing Melbourne Seafood Centre.

Site Access 2 is located directly across from the existing Melbourne Seafood Centre exit point. The swept paths for the 19m articulated design vehicle indicate that the signalised intersection will not be able to accommodate the left turn movement out of the Melbourne Seafood Centre without encroaching upon the median island as well as the north-eastbound through traffic lane. The swept paths also demonstrate that the proposed signalised exit from the seafood centre must operate under a separate phase to all other movements and therefore it is likely that a stationary vehicle would be present on the south-western approach while the left turn movement occurs.

Under the existing road cross section, the design vehicle is able to be contained within the correct traffic lane (and painted median) without encroaching onto opposing movements as shown in Appendix B.

It is my opinion that the signalised intersection at Site Access 2 does not adequately take into consideration the exiting movement of 19m articulated vehicles from the Melbourne Seafood Centre, and that it would be better integrated into the existing Kensington Road network if it were either moved away from the Melbourne Seafood Centre exit point, or if Kensington Road was locally widened.



6.2 Signals and Security Gate It is also of note that the proposed signalisation of the Melbourne Seafood Centre exit is complicated by two factors.

Firstly, a detector loop would be required to trigger the signal phase and this would need to be provided at the site egress and upon private property. This would create a maintenance issue for VicRoads to access the site in case of a fault and requires agreement from the site owner and/or acquisition of the portion of land that forms part of the signal hardware system. Secondly, the security gate takes up to 30 seconds to fully open and it is currently triggered by a detector loop, as shown in Figure 6-1. The gate opening time and closing time may significantly impact upon the proposed signal operation and create inefficiencies.

In my opinion, signal operation would not be compromised by separating the signalised intersection from the Melbourne Seafood Centre gated exit.

Figure 6-1 Melbourne Seafood Centre Security Gate



6.3 Kerbside Parking Loss The Melbourne Seafood Centre currently operates with a reliance on the on-street parking, especially between 4.30am and 6.30am when parking peaks occur.

According to the GTA letter entitled “Fish Markets Kensington – Traffic and Parking Review”, in the order of 53 on-street parking spaces will be lost along Kensington Road between Dynon Road and Childers Road. These spaces are heavily utilised between 4.00-6.00am by staff and customers of the Melbourne Seafood Centre, due to the proximity of this parking to the site access, as well as these spaces being located away from residential section of Kensington Road north of the railway line.

The loss of this parking would displace parking into the residential area of Kensington Road, and/or the parking adjacent the railway line south of Childers Street. These locations are considered to be less than desirable for car parking during the early hours of the morning due to residential amenity and safety concerns (i.e. limited lighting and lack of passive surveillance).

In my opinion, the design of the road cross section could be altered to retain parking provision on the eastern side of Kensington Road, to limit the impact of the proposed rezoning on the Melbourne Seafood Centre and other existing uses in the vicinity. In addition to this, car parking could be made available within the development site to offset parking losses on-street, reflecting the variation in parking demand over time and efficiencies between different land uses.

Figure 6-2 Kensington Road on-street parking demand



6.4 Lane Width Design – Heavy Vehicles The existing cross section of Kensington Road provides for 3.0m traffic lanes in each direction, supplemented by a painted median of approximately 1.0m, providing an effective lane width of 3.5m.

The 3.5m cross section for traffic lanes is consistently referred to in various design reference documents inclusive of Austroads Guide to Road Design Part 3 – Geometric Design, Public Transport Guidelines for Land Use Development and Clause 56.06-8 of the Melbourne Planning Scheme. Relevant excerpts of these documents are shown in Appendix C, D and E.

In my opinion, the proposed reduction in lane widths to 3.0m is not appropriate in this instance, due to Kensington Road forming part of a bus route, and being located within an industrial area there are large articulated vehicles using this route. The retention of a consistent width of 3.5m through lanes allows for buses and larger vehicles to pass concurrently without having to move towards the outer edge of a lane.

Standard vehicle templates for buses (including clearance) are shown in Appendix F for both the existing and proposed traffic conditions. These diagrams illustrate that the existing road cross section provides adequate clearance, while the proposed geometry would require encroachment onto the bicycle lane.

6.5 Lane Width Design – Bicycles The existing cross section of Kensington Road provides for a 1.5m bicycle lane width. The proposed concept reduces this to 1.2m. As described above in Section 6.4 and shown in Appendix F, a narrow lane width for buses/trucks would require some encroachment into the bicycle lane and reduce the effective width of the bicycle lane further. In my opinion, the retention of a consistent bicycle lane width of 1.5m would be appropriate, which maintains the standard of treatment along the entire length of Kensington Road and avoids pinch points.

6.6 Review of draft Schedule 12 to the Development Plan Overlay I have reviewed the draft Schedule 12 to the Development Plan Overlay.

Under “Requirements for development plan” the requirements of the Integrated Transport and Access Plan are set out as follows:

An Integrated Transport and Access Plan which includes:

• Expected traffic generation and the impact on the existing road network.

• Location of vehicle egress and ingress points.

• The provision of a movement network to, from and within the site that:

o connects with and complements the form and structure of the surrounding network;

o recognises the primacy of pedestrian and bicycle access within the site;

o provides a high level of amenity and connectivity;

o allows for appropriate levels of manoeuvrability for emergency and service vehicles; and

o are of sufficient width to accommodate footpaths, street trees, water sensitive urban design and bicycle lanes.

While the above provides a broad description of the transport requirements, specific issues such as the impact on adjacent businesses, external road cross section amendments and loss of kerbside parking on Kensington Road could be overlooked while still complying with the requirements. In my opinion, specific requirements could be strengthened by adding further words such as:

• Expected traffic generation and the impact on the existing road network and adjacent properties including the Melbourne Seafood Centre.



7 Conclusions

Based on the forgoing discussions, it is my view that:

1. The proposed signalised access point adjacent to the existing Melbourne Seafood Centre site egress will not be able to be operate satisfactorily;

2. Swept paths of 19m semi-trailers into and out of the Melbourne Seafood Centre are not accommodated within the concept design for Site Access 2;

3. The proposed cross sections of Kensington Road will not satisfactorily accommodate truck movements and bicycle movements;

4. There will be a significant loss of on-street parking that is currently well utilised by Melbourne Seafood Centre.



Expert Evidence Statement

APPENDIX

A PROPOSED MELBOURNE SEAFOOD CENTRE SWEPT PATHS




APPENDIX

B EXISTING MELBOURNE SEAFOOD CENTRE SWEPT PATHS




APPENDIX

C AUSTROADS GUIDE TO ROAD DESIGN EXCERPTS




APPENDIX

D PUBLIC TRANSPORT GUIDELINES FOR LAND USE AND DEVELOPMENT




APPENDIX

E PLANNING SCHEME CLAUSE 56.06




APPENDIX

F VEHICLE PATHS




APPENDIX

G AUSTROADS GUIDE TO ROAD DESIGN EXCERPTS – BICYCLE LANES

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