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Creating Places for People
an urban design protocol for Australian cities
FINAL DRAFT
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Final Draft: October 2011
Who should read this document?
The Urban Design Protocol is intended for anybody who has an interest in our built environment.
Broadly, there are two audiences for this Protocol:
1. Decision makers and professionals whose actions affect the urban environment, including: Elected representatives and officers in Commonwealth, State and Local government Consultants and practitioners whose work has an impact on urban design, including
planning, development, architecture, landscape architecture, engineering, law and
finance.
This audience should make particular reference to the model processes for creating high
quality urban environments, and the outcomes that these processes are seeking to achieve.
2. The general public (individuals and community groups) who are affected by the builtenvironment. This audience should make specific reference to the outcomes that is, the
aims and principles described in this document and how this might affect them.
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Creating Places for People
an urban design protocol for Australian cities
INTRODUCTION 4
Relationship with other policies and guidelines 5
DEFINING WORLD-CLASS URBAN DESIGN 7
AIM AND PRINCIPLES 8
Design Principles about Place: prosperity + sustainability 10
Design Principles for People: liveability 11
Principles about leadership and governance 12
MODEL PROCESSES 13
ELEMENTS OF URBAN DESIGN 15
APPENDIX A: URBAN DESIGN PROTOCOL ON A PAGE 17
APPENDIX B: NATIONAL URBAN POLICY 18
.
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Cairns Esplanade redevelopment, winner of the 2003 Australia Award for Urban Design.
By Cox Raynor and Tract Consultants. Image courtesy of Cairns Regional Council
INTRODUCTION
Urban design occurs across all parts of a city, from the inner city to the middle suburbs and outer
metropolitan fringes. Urban design is relevant from the largest to the smallest scale developments,
whether they are city-wide transport and infrastructure networks, urban infill projects, regional
towns, new suburban developments, shopping malls, office blocks, university campuses or hospitals.
The quality of our neighbourhoods and towns have a significant impact on our daily lived experience
and, consequently, urban design makes a valuable contribution to our economy, our natural and
built environments, and the liveability of our cities.
The basis for the Urban Design Protocol (the Protocol) is to encourage world-class urban design. This
is drawn from an agreement by the Council of Australian Governments, between each of the States
and Territories, to undertake reforms in capital city strategic planning systems to ensure Australian
cities are globally competitive, productive, sustainable, liveable and socially inclusive and are wellplaced to meet future challenges and growth. (COAG 2009)
1
Nine criteria are listed in the COAG agreement. The Urban Design Protocol addresses Criterion 8: To
encourage world-class urban design and architecture. The Protocol identifies what urban design is in
the Australian context, and provides a framework to define, implement, measure and improve best
practice to deliver on COAGs criterion.
Although the agreement applies specifically to Australias capital cities, there is a recognition that
regional cities and towns can benefit by sharing best practice knowledge and encouraging better
quality planning and design of the built environment.
1www.coagreformcouncil.gov.au/agenda/cities.cfm
First life, then spaces, then buildings:
the other way around never works
Jan Gehl
http://www.coagreformcouncil.gov.au/agenda/cities.cfmhttp://www.coagreformcouncil.gov.au/agenda/cities.cfmhttp://www.coagreformcouncil.gov.au/agenda/cities.cfmhttp://www.coagreformcouncil.gov.au/agenda/cities.cfm -
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Relationship with other policies and guidelines
Our Cities, Our Future: a national urban policy for a productive sustainable and liveable future
(National Urban Policy, available at www.majorcities.gov.au) is the Australian Governments
strategic policy document for the eighteen major cities of Australia. It articulates the role of the
Australian Government in facilitating better outcomes in our cities, whether through direct
investment or in partnership with key stakeholders. Appendix B summarises the National UrbanPolicy goals and objectives. One of the actions arising from the National Urban Policy was a
commitment to develop an urban design protocol.
Many jurisdictions at State, Territory and Local government level already have in place their own
guidelines and protocols related to planning and urban design. Figure 1 illustrates a line of sight
from the National Urban Policy down to neighbourhood and street level.
Other guidelines and tools that also operate across the national platform including Healthy Spaces
and Places a national guide to designing places for healthy living (www.healthyplaces.org.au)2
and
the sustainability rating tools soon to be released by the Green Building Council of Australia for
Green Star Communities (www.gbca.org.au/green-star/green-star-communities) and the
Australian Green Infrastructure Council (www.agic.net.au).
The Protocol is intended to complement these materials by providing a national framework in the
context of the COAG planning reforms and National Urban Policy. It is intended to be supported by
further guidance on best practice, urban design concepts, and case studies.
Paddington Reservoir Gardens, joint winner of the 2009 Australia Award for Urban Design. By Tonkin
Zulaikha Greer Architects and James Mather Delaney Design. Image courtesy of City of Sydney.
2Developed by the Australian Local Government Association, in partnership with the National Heart Foundation and Planning Institute of
Australia, supported with funding from Department of Health and Ageing
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Figure 1: Line of Sightfrom national level to street level
Thinking about urban design, strategic and statutory planning at different scales helps put them in context. Theelements of urban design are illustrated next to the scale of planning at which they are commonly addressed.
Concept adopted from Next Generation Planning, published by the Council of Mayors (SEQ), 2011
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DEFINING WORLD-CLASS URBAN DESIGN
Urban Design Urban design is concerned with the arrangement, appearance and function of
our suburbs, towns and cities. It is both a process and an outcome of creatinglocalities in which people live, engage with each other, and engage with the
physical place around them.
Urban design involves many different disciplines including planning,
development, architecture, landscape architecture, engineering, economics,
law and finance, among others.
Urban design operates at many scales, from the macro scale of the urban
structure (planning, zoning, transport and infrastructure networks) to the
micro scale of street furniture and lighting. When fully integrated into policy
and planning systems, urban design can be used to inform land use planning,
infrastructure, built form and even the socio-demographic mix of a place.
Urban design can significantly influence the economic, environmental, social
and cultural outcomes of a place:
Urban design can influence the economic success and socio-economiccomposition of a locality whether it encourages local businesses and
entrepreneurship; whether it attracts people to live there; whether the
costs of housing and travel are affordable; and whether access to job
opportunities, facilities and services are equitable.
Urban design determines the physical scale, space and ambience of aplace and establishes the built and natural forms within which individual
buildings and infrastructure are sited. As such, it affects the balancebetween natural ecosystems and built environments, and their
sustainability outcomes.
Urban design can influence the social and cultural impacts of a locality:how people interact with each other, how they move around, and how
they use a place.
Although urban design is often delivered as a specific project, it is in fact a
long-term process that continues to evolve over time. It is this layering of
building and infrastructure types, natural ecosystems, communities and
cultures that gives places their unique characteristics and identities.
The section Elements of Urban Design provides further definitions relating tourban design in the Australian context.
World-class World-class refers to something that is of an international standard ofexcellence. It engenders standard-setting in terms of design, performance,
quality, satisfaction and value when benchmarked against the best
developments, products or processes in the world.
The objective of the urban design protocol is to encourage world-class urban
design across all parts of our suburbs, towns and cities, from the most iconic
projects to everyday projects and situations.
http://www.businessdictionary.com/definition/term.htmlhttp://www.businessdictionary.com/definition/design.htmlhttp://www.businessdictionary.com/definition/performance.htmlhttp://www.businessdictionary.com/definition/quality.htmlhttp://www.businessdictionary.com/definition/value.htmlhttp://www.businessdictionary.com/definition/value.htmlhttp://www.businessdictionary.com/definition/quality.htmlhttp://www.businessdictionary.com/definition/performance.htmlhttp://www.businessdictionary.com/definition/design.htmlhttp://www.businessdictionary.com/definition/term.html -
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AIM AND PRINCIPLES
The Urban Design Protocol is founded on five pillars: prosperity, sustainability, liveability, leadership
and design excellence. When integrated together, these pillars form the aim of the Protocol:
To create prosperous, sustainable and liveable
places for people
through leadership and the
integration of design excellence
Figure 2: Pillars of the Urban Design Protocol
Twelve basic principles underpin the Protocol. These are divided into eight principles about design
(outcomes) and four principles about leadership and governance (process). These principles, which
are described in the next section, are interrelated with the five foundation pillars of the Protocol, as
illustrated in the matrix in Figure 3.
Prosperous
LiveableSustainable
world class
Urban
Design
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Figure 3: Aim and Principles of the Urban Design Protocol
What is being achieved (outcome) How its achieved (process)
Aim Prosperity Sustainability Liveability Leadership Design
Creates prosperous, sustainable and
liveable places for people, through
leadership and the integration of
design excellence
Enhances
economic
prosperity +
living
affordability
Fosters
environmental
responsibility
Cultivates
healthy +
cohesive
communities
Demonstrates
visionary
leadership +
governance
Integrates
design +
embraces
excellence
Design principles about place: prosperity + sustainability
EnhancingEnhances local economy,
environment + community
Connected
Connected, bothphysically and socially
DiverseDiversity of options
and experiences
EnduringSustainable, enduring
and resilient
Design principles about people: liveability
ComfortableComfortable and
welcoming
VibrantVibrant, with people
around
SafeFeels safe
WalkableEnjoyable and easy to walk
+ cycle around
Principles about leadership and governance
ContextWorks within the planning,
physical and social context
ExcellenceExcellence, innovation
and collaboration
EngagementEngages with stakeholders
CustodianshipConsiders custodianship,
management +
maintenance over time
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Design Principles about Place: prosperity + sustainability
Creates the context for people to engage with the place
Principles Outcomes Attributes - How it helps to achieve world-class urban design
Enhancing Enhances the
local economy,
environment and
community
It respects the needs and aspirations of the local communitywho live and work there
It creates opportunities for people to prosper and businesses tothrive
It sustains and enhances the natural environmentIt enhances the built environment visually, physically, and
functionally
It celebrates the unique characteristics of the place, its heritage,culture and community, that create a sense of place and identity
Connected Connected, both
physically andsocially
It is well connected to surrounding areasYou can see where you are and where you are goingThere is a range of transport options, including public transport,
walking and cycling
It is connected to places with jobs, schools, shops, facilities andservices
It is connected with the past the heritage of a place and withthe community and its culture
It feels connected with the natural environmentDiverse Diversity of
options and
experiences
Each locality has its unique character and qualitiesThere is a range of facilities, services and activitiesDespite the diversity, there is an overall harmonious blendThere is a rich range of experiences how you move around andinteract with others, what buildings and spaces look and feel
like, and what things you can do
You can take different routes depending on your mood, or ifyoure visiting different places on your way
There is biodiversity in the flora and faunaEnduring Sustainable,
enduring and
resilient
Things are built to last, where appropriate theyre made ofrobust materials, are designed well and theres a sense of quality
It is visually and aesthetically pleasing as well as practicalThe place is well-maintained and cared forIt is designed to save resources such as water, energy and
materials, and minimises its impact on the environmentThe place can evolve and adapt over time
Enhances the local
economy,environment andcommunity
Enhancing
Connected, both
physically andsocially
Connected
Diversity of options
and experiences
Diverse
Sustainable,
enduring andresilient
Enduring
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Design Principles for People: liveability
Creates the context for people to engage with each other
Principles Outcomes Attributes - How it helps to achieve world-class urban design
Comfortable Comfortable
and welcoming
It feels comfortable to walk through, sit, stand, play, talk, read, or justrelax and contemplate
It is not too exposed to unpleasant noise, wind, heat, rain, traffic orpollution
You can freely use the place, or at least part of it, without having topay
You can be yourself and feel included as part of the communityVibrant Vibrant, with
people around
You can see that there are other people around People are enjoying themselves and each others company There are places to meet and interact, play, explore, recreate and
unwind
Overall it is a place you want to visit, experience, or live inSafe Feels safe You feel safe and secure, even at night or on your own
There arent signs of decay such as graffiti, rubbish, weeds or derelictplaces
Roads and paths are safe for adults and children to walk or ride theirbikes
Walkable Enjoyable and
easy to walk +
cycle around
Prioritises people walking or riding before vehiclesEasy to get around on foot, bike, wheelchair, pushing a pram or
wheeling luggage
Buildings and streets feel like theyre the right size and type for thatplace
Encourages physical activity and social interaction, and promotes ahealthy lifestyle
Comfortable andwelcoming
Comfortable
Vibrant, withpeople around
Vibrant
Feels safe
Safe
Enjoyable and easyto walk + cyclearound
Walkable
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Principles about leadership and governance
Principles Processes Attributes - How it helps achieve world-class urban design
Context Works within theplanning, physical
and social context
Sets, or works within the context of, a strategic planningframework for designing and decision-making
Integrates with the physical environment including itstopography, biodiversity, landscape and views, existing
streets and buildings, and infrastructure
Incorporates the heritage, culture and historical context ofsurrounding communities and places
Recognises the impact of different aspects of building onurban design outcomes, from major infrastructure such as
airports and railways, to small scale projects and buildings
Excellence Fosters excellence,
innovation and
collaboration
Prioritises best practice planning, design, engineering,procurement and maintenance
Integrates design, and design expertise, from the earlieststages of a plan or project through to completion
Engages competent, skilled professionals to design anddeliver on projects
Engagement Engages withstakeholders
Acknowledges that urban design is about creating places forpeople
Engages people in the development of their communityAdopts a multi-disciplinary and collaborative approach to
urban design
Custodianship Considers
custodianship,
management and
maintenance over
time
Recognises that communities, environments and cities arecontinually evolving and adapting
Considers the wider environmental, social and economic costsand benefits of development, operations, maintenance and
disposal
Ensures that the design of a place is appropriate for itsongoing maintenance, operations and upkeep
Incorporates climate change mitigation and adaptationstrategies
Works within theplanning, physicaland social context
Context
Fosters excellence,innovation andcollaboration
Excellence
Engages withstakeholders
Engagement
Considerscustodianship ,management and
maintenance overtime
Custodianship
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MODEL PROCESSES
Well-designed urban places can only be achieved by adopting an integrated design approach where multi-
disciplinary teams work collaboratively at all stages of a project, from design through to procurement,
implementation, operation and maintenance. Good model processes prioritise design excellence through
leadership, teamwork and integrated processes.Whilst the urban design process is unique to each project, it involves some common components:
CONTEXT The project is should be undertaken within the context of a strategic planning
framework. It should respond to the National Urban Policy objectives
(Appendix B) and the Urban Design Protocol, as well as the relevant State,
Territory, and local authority strategic and statutory plans and guidelines
(refer Figure 1: Line of Sight).
A strategic planning framework documents and coordinates social, economic
and environmental urban intervention priorities. Strategic plans are
implemented through a variety of mechanisms including: statutory planning
instruments and policies, infrastructure plans and service delivery plans.
EXCELLENCE through:
Leadership A process that embraces design excellence requires visionary leadership. Oneway of encouraging this is to appoint a client-side project leader and ensure
that delivering high quality urban design outcomes is a key accountability. For
larger projects, consider a design champion within the project team, capability
based selection, design competition and /or independent design review.
Collaboration Urban design excellence is dependent on multidisciplinary teams comprisingof consultants with appropriate skills and experience. Ensure the project team
includes professionals with good physical and spatial design skills includingland use planners, urban designers, landscape architects, architects and
engineers as appropriate.
Integratedprocesses
Invest up front in quality, integrated processes:
Develop a vision of the outcomes that the project seeks to achieve Write a detailed and balanced brief, setting out performance criteria Undertake high quality place-based analysis Develop at variety of realistic and varied options (potentially through an
enquiry by design process) that meet the brief
Consult relevant stakeholders and communities at appropriate stages Evaluate options against performance criteria and Urban Design Protocol
principles and attributes
Develop the preferred option through an iterative design process, anddocument decision making
Document the preferred option Select the procurement method, ensuring that procurement processes do
not reduce design quality and monitor throughout the implementation of
the project to ensure outcomes are achieved
Evaluate outcomes with reference to the Urban Design Protocolprinciples, and document areas for improvement or future rectification
Design culture Foster a culture which critically assesses urban design, builds design literacy,shares its best examples and rewards design excellence.
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ENGAGEMENT Relevant stakeholders, including the broader community, should provide
input and feedback at key stages of the process. They can help to develop the
vision, review design options and provide feedback during public exhibition.
CUSTODIANSHIP Ensure that systems are in place for ongoing operations and management, to
ensure the place is well-maintained and sustainable in the long term.
Geelong Youth Activity Precinct, joint winner of the 2010 Australia Award for Urban Design.
By City of Greater Geelong.
Inner Northern Busway, joint winner of the 2010 Australia Award for Urban Design.
By BVN Architecture and Queensland Department of Transport.
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ELEMENTS OF URBAN DESIGN
This section provides basic explanations for terms that are commonly used for urban design in the
Australian context.
Figure 4 shows the approximate hierarchical relationship between the elements of urban form, followed
by a brief definition of each of the elements.
Figure 4: Elements of urban formmacro to micro scale
Urban structure The overall framework of a region, town or precinct, showing relationships
between zones of built forms, land forms, natural environments, activitiesand open spaces. It encompasses broader systems including transport and
infrastructure networks.
Urban grain The balance of open space to built form, and the nature and extent of
subdividing an area into smaller parcels or blocks. For example a fine urban
grain might constitute a network of small or detailed streetscapes. It takes
into consideration the hierarchy of street types, the physical linkages and
movement between locations, and modes of transport.
Urban Structure
Urban Grain
Density + Mix
Height + Massing
Streetscape + Landscape
Facade +
Interface
Details +Materials
Socialandecono
icfabric
Scl
li
l
r
y,
l
sc
vir
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Density + mix The intensity of development and the range of different uses (such as
residential, commercial, institutional or recreational uses).
Height + massing The scale of buildings in relation to height and floor area, and how they
relate to surrounding land forms, buildings and streets. It also incorporatesbuilding envelope, site coverage and solar orientation. Height and massing
create the sense of openness or enclosure, and affect the amenity of
streets, spaces and other buildings.
Streetscape + landscape The design of public spaces such as streets, open spaces and pathways, and
includes landscaping, microclimate, shading and planting.
Facade + interface The relationship of buildings to the site, street and neighbouring buildings
(alignment, setbacks, boundary treatment) and the architectural expressionof their facades (projections, openings, patterns and materials).
Details + materials The close-up appearance of objects and surfaces and the selection of
materials in terms of detail, craftsmanship, texture, colour, durability,
sustainability and treatment. It includes street furniture, paving, lighting
and signage. It contributes to human comfort, safety and enjoyment of the
public domain.
Public Realm Much of urban design is concerned with the design and management ofpublicly used space (also referred to as the public realm or public domain)
and the way this is experienced and used. The public realm includes the
natural and built environment used by the general public on a day-to-day
basis such as streets, plazas, parks, and public infrastructure. Some aspects
of privately owned space such as the bulk and scale of buildings, or gardens
that are visible from the public realm, can also contribute to the overall
result. At times, there is a blurring of public and private realms, particularly
where privately owned space is publicly used.
Topography, landscapeThe natural environment includes the topography of landforms, water
and environment courses, flora and fauna whether natural or introduced. It may be in the
form of rivers and creeks, lakes, bushland, parks and recreational facilities,
streetscapes or private gardens, and is often referred to as green
infrastructure.
Social + economic fabric The non-physical aspects of the urban form which include social factors
(culture, participation, health and well-being) as well as the productive
capacity and economic prosperity of a community. It incorporates aspects
such as demographics and life stages, social interaction and support
networks.
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APPENDIX A: Urban Design Protocol on a page
Aim: to create prosperous,
sustainable and liveable places for
people, through leadership and the
integration of design excellence
Urban design incorporates:
Outcomes described in theeight design principles
Processes described in thefour principles about
leadership and governance.
DESIGN PRINCIPLES ABOUT PLACE: Prosperity + Sustainability
DESIGN PRINCIPLES FOR PEOPLE: Liveability
PRINCIPLES ABOUT LEADERSHIP + GOVERNANCE
Enhances the localeconomy,environment andcommunity
Enhancing
Connected, bothphysically andsocialy
Connected
Diversity of optionsand experiences
Diverse
Sustainable,enduring andresilient
Enduring
Comfortable andwelcoming
Comfortable
Vibrant, withpeople around
Vibrant
Feels safe
Safe
Enjoyable and easyto walk + cyclearound
Walkable
Works within theplanning, physicaland social context
Context
Fosters excellence,innovation andcollaboration
Excellence
Engages withstakeholders
Engagement
Considerscustodianship,management andmaintenance overtime
Custodianship
Prosperous
LiveableSustainable
world class
Urban
Design
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APPENDIX B: National Urban Policy
Our Cities, Our Future: a national urban policy for a productive sustainable and liveable future presents
the Australian Governments agenda for a long term, national framework to guide policy development
and public and private investment in cities. It articulates a set of goals, objectives and underlying
principles to guide this agenda. Seewww.majorcities.gov.aufor further information.
Goals Objectives Principles
Productivity To harness the productivity of Australias people and industry, by better
managing our use of labour, creativity and knowledge, land and
infrastructureEfficiency
Value for
money
Innovation
Adaptability
Resilience
Equity
Affordability
Subsidiarity
Integration
Engagement
1. Improve labour and capital productivity
2. Integrate land use and infrastructure
3. Improve the efficiency of urban infrastructure
Sustainability To advance the sustainability of Australias natural and built environment,
including through better resource and risk management
4. Protect and sustain our natural and built environments
5. Reduce greenhouse gas emissions and improve air quality
6. Manage our resources sustainably
7. Increase resilience to climate change, emergency events and natural
hazards
Liveability To enhance the liveability of our cities by promoting better urban design,
planning and affordable access to recreational, cultural and community
facilities
8. Facilitate the supply of appropriate mixed income housing
9. Support affordable living choices
10. Improve accessibility and reduce dependence on private vehicles
11. Support community wellbeing
Governance To progress the goals of productivity, sustainability and liveability through
better governance, planning and management
12. Improve the planning and management of our cities
13. Streamline administrative processes
14. Evaluate progress
http://www.majorcities.gov.au/http://www.majorcities.gov.au/http://www.majorcities.gov.au/http://www.majorcities.gov.au/