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Agenda Page 40

10.5 Draft Swan Street Structure Plan

Executive Summary

Purpose

The purpose of this report is to seek Council endorsement for the release of the Draft Swan Street Structure Plan for public comment in May/June 2011.

Key Issues

David Lock Associates has been engaged to prepare a Structure Plan for the Swan Street Major Activity Centre with a Stakeholder group comprising representatives from residents, business,public transport operators, relevant Council business units and representatives from theDepartment of Transport and the Department of Planning and Community Development providinginput into the Plan’s development.

The Swan Street Structure Plan - Issues Paper which included an analysis of the study area and adiscussion of identified issues was made available for public comment during October 2010 and

thirteen written submissions were received. The second phase of the project has been thepreparation of a draft Structure Plan for further public consultation prior to its adoption by Council.

The draft Swan Street Structure Plan sets out a proposed vision for the future of the Swan StreetMajor Activity Centre and broader study area and identifies what ‘the place’ will become. Itincludes a series of strategic objectives that outline how the vision will be achieved. The draftStructure Plan includes objectives, strategies and plans organised under the four key themes of land use; built form; public realm; and access and movement. Anticipated change is represented

spatially through plans incorporated under each theme



Agenda 1

10.5 Draft Swan Street Structure Plan

Trim Record Number: D11/11362

Responsible Officer: Acting Director City Development

Purpose

1. To seek Council endorsement for the release of the Draft Swan Street Structure Plan for public comment in May/June 2011.

Background

2. David Lock Associates was engaged in July 2010 to prepare the Swan Street Structure Plan.The study area for the Structure Plan is that area bounded by Punt Road to the west, theYarra River corridor to the south, Loyola Grove to the east, and roughly halfway betweenSwan Street and Bridge Road to the north.

3. A Stakeholder group comprising representatives from residents, business, public transportoperators, relevant Council business units and representatives from the Department of Transport and the Department of Planning and Community Development was established to

provide input into the Plan’s development.4. The Stakeholder Group has now met on five occasions to provide comments and feedback,

including a full day workshop conducted at Kangan Institute in November 2010.

Issues Paper

5. The Swan Street Structure Plan - Issues Paper was informed by extensive research andanalysis undertaken by the consultants and input provided by members of the Stakeholder Group.

6 I S t b 2010 C il l d t hibit th I P d k b d bli



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8. The submissions received from the public exhibition of the Issues Paper reflect a wide rangeof concerns and interests that are generally localised in their focus as opposed to commentsthat apply to the entire study area.

9. The submissions have been categorised under the four key themes included in the StructurePlan and then distilled further to encapsulate the key issues related to each theme. SeeAttachment 1.

Draft Swan Street Structure Plan

10. The purpose of the Swan Street Structure Plan is to assist both Council and private investorsin understanding the requirements of achieving the shared vision for the area. It will be usedto manage growth and change; coordinate better community services; plan traffic andtransport measures; plan physical changes to streets and streetscapes; guide both publicand private sector investment; and advocate for, and coordinate action by, governmentagencies and bodies.

11. Development of the draft Swan Street Structure Plan for public comment has been informedby various inputs including, but not limited to:

(a) initial research and analysis of the study area undertaken by consultants;

(b) the public consultation and written submissions received on the Issues Paper;

(c) detailed discussions with the Swan Street Structure Plan Stakeholder Group, includinga full day workshop to discuss the issues and opportunities articulated in the Issuespaper and to work collaboratively to develop responses; and

(d) two further discussions with the Stakeholder Group concentrating on the details of thedraft Structure Plan. A diversity of views has been expressed by the Stakeholder Group throughout discussions but with no expectation that a consensus must beachieved by the Group.

12 The draft Structure Plan sets out a proposed vision for the future of the Swan Street Major



Agenda Page 43

Vision

15. The vision for the future of Swan Street is:

The Swan Street Activity Centre is home to a rich mix of activities providing choice and

diversity in living, working, playing and learning. It is a vibrant, gritty and eclectic urbancommunity where people connect.

Land Use

16. The objectives of the draft Structure Plan in relation to land use are to:

(a) support a diversity of viable retail opportunities that support local residents andbusinesses;

(b) develop links between higher education providers and associated businessopportunities;

(c) support vibrant, dynamic and appropriately managed night time activity;

(d) maintain and strengthen a diversity of employment and industrial opportunities;

(e) encourage a diversity of living opportunities;

(f) encourage the continued development of cultural and arts related uses;

(g) promote the effective use of underutilised land; and

(h) provide a range of mixed-use buildings and spaces.

17. The draft Plan includes a Framework Plan in relation to land use which specifies a largenumber of land use precincts and also specifies three key revitalisation areas aroundRichmond, East Richmond and Burnley Stations.

Built Form

18 The objectives of the draft Structure Plan in relation to built form are to:



Agenda Page 44

Public Spaces

23. The objectives of the draft Structure Plan in relation to public spaces are to:

(a) encourage the development of accessible, diverse, vibrant and interesting public

spaces that support the needs of local residents and businesses;

(b) develop a linked network of green spaces including local streets and parks;

(c) develop a strong sense of character and identity developed through the creation of highly attractive spaces integrated with a locally specific theme;

(d) develop a series of appropriately located, well designed and architecturally distinctcommunity uses; and

(e) support vibrant arts and cultural activities.24. The draft Plan includes an action plan for public spaces which identifies opportunities for new

open space, proposed green links, streetscape improvement areas, pedestrian upgrades,enhanced street greening, enhanced bridges and gateways, and new/improved civic spaces.

25. The action plan also proposes an arts trail and opportunities for public art in recognition of the increasingly important presence of the arts and local creative industries in the study area.

Access and Movement

26. The objectives of the draft Structure Plan in relation to access and movement are to:

(a) improve the design and management of the movement network to enhanceconnectivity, accessibility and efficiency;

(b) facilitate public transport use by improving stops and interchanges;

(c) encourage walking and cycling options to enhance health and wellbeing and reducecarbon emissions; and

(d) impro e the legibilit of the rban fabric



Agenda Page 45

(c) an exhibition of the draft Structure Plan at the Richmond Town Hall and RichmondPublic Library, Richmond Community Learning Centre and on the public website;

(d) consultation with local businesses and residents;

(e) consultation by invitation with various community groups located in the study area;

(f) an all day street stall at the west end of Swan Street;

(g) a ‘meet the planner’ information session at Richmond Public Library;

(h) an article in the business e-bulletin; and

(i) consultation with Council’s Business Advisory Group.

32. Consultation on the draft Structure Plan is proposed for a six week period commencing in

May and concluding in June.

Financial Implications

33. The cost of preparation of the Swan Street Structure Plan has been included in Strategic andEconomic Branch’s annual operational budget.

34. Any financial implications associated with implementation of the Structure Plan have yet tobe identified.

Economic Implications

35. The economic implications of the Swan Street Structure Plan are likely to include:

(a) stimulation of local business, increased retail activity and growth of local employment;and;

(b) flow on effects for the local economy as the study area accommodates a growingdaytime and resident population who are likely to utilise local businesses and services.

S t i bilit I li ti



Agenda Page 46

(b) built form;

(c) transport; and

(d) environmental sustainability.

Legal Implications

41. There are no legal implications.

Conclusion

42. The preparation of the draft Swan Street Structure Plan and proposed communityconsultation in relation to the draft Plan represents the second major phase in thepreparation of the Structure Plan for Swan Street.

43. Submissions received during the consultation period will be used to inform the finalisation of the Structure Plan.

44. A further report will be presented to Council on the outcomes of the public consultation onthe draft Structure Plan together with a recommended Structure Plan for Council adoption.At this stage, it is anticipated that the final draft will be presented to Council for adoption inAugust this year.

RECOMMENDATION

1. That Council endorses the Draft Swan Street Structure Plan shown as Attachment 2 for public consultation for a six week period commencing in May 2011 and concluding in June2011.

Submissions



Page 1 of 10

Summary of Submissions Nov 2010

Submitter Summary of Submission Response

Resident

Yarra MattersPanel Member

Land useArea needs to offer a diverse range of retail.Large format retail premises are visually unattractive and detractfrom the residential feel of the area. Given the size of the premises,if current tenants vacate, there may be significant challenges findingnew tenants and premises could potentially be vacant for longperiods of time. Combined effect of vacancies and type of largeformat retail leaves the area looking unappealing.

be positioned to provide niche retail. More fresh food outlets andoverall greater variety of retail is needed.

Hospitality makes a positive contribution. Issues with patronbehaviour after leaving venues.

Need to actively support emerging arts culture in the area.

area and particularly heritage fabric. Creates traffic congestion.Need to provide a diverse typology of housing. Opportunities for redevelopment in Cremorne along with retention of mixed uses in thearea.

Public RealmUnderutilised space around Burnley train station providesopportunities for increasing green space.

The draft Structure Plan addresses the issue of retail mixties that support local Council is unable to influence the rental market for commercialproperties. Strategies have been included to activate retailareas at street level, promote pedestrian friendly environmentsand incorporate articulated facades, fenestration and designdetail.The activation of retail areas and support for local nicheretailing is incorporated into strategies under the Land Usetheme in the draft Structure Plan.

Addressed in the draft Structure Plan under Objective 3 of theLand Use theme.

Arts and cultural activities are encouraged in the draftStructure Plan under the Land Use & Public Spaces theme.

A diversity of building typology is encouraged in a number of strategies under Objective 4 of the Built Form theme.

Burnley Station has been identified in the draft Structure Planas an appropriate location for redevelopment. Objective 2under the Public Spaces theme provides support for a linkednetwork of green spaces. The draft includes reference to theYarra Open Space Strategy for guidance on the development



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Intersection of Punt Road and Swan Street provides goodopportunity for establishing a gateway to Swan Street. Currentimpression created of the area is poor. Richmond station requires

significant redevelopment and overpass is regarded as ugly andunsafe.

Access and MovementTraffic congestion is a significant issue. Clearways move vehiclesbut impact detrimentally on local business. Taxi rank at RichmondStation would be good. Need greater permeability betweensurrounding street network and bicycle path along river to improvebicycle access.

of new public open spaces.

Issues are acknowledged in the draft Structure Plan andaddressed under all 4 themes.

The issue of traffic congestion is acknowledged in theStructure Plan through Objectives and Strategies listed under the Access and Movement theme. Establishment of a taxi rankis included as a strategy and walking and cycling options areencouraged in the draft.

Resident Structure Plan should demonstrate how the objectives of the Major Activity Centre relate to, or fit with, heritage objectives

Heritage is addressed under Objective 1 of the Built Formtheme.

Resident RetailDiversity required particularly local convenience shopping thatprovides fresh food. Promote Swan Street as a niche retail strip.Large format retail plays a positive role and means locals to travel far for these types of goods. Creative small businessenterprises should be encouraged.

Housing growthEncourage transit orientated development and conversion of redundant industrial land.

Underutilised landLand around train stations, car parks and car rental businessesaround Richmond Station provide opportunities for redevelopment.Particularly Richmond Station.

Sustainable developmentEncourage with the use of incentives and establish higher standards

A diversity of retail is encouraged in the draft Structure Plan.This includes promoting fresh food retailers and niche retailopportunities.

Objectives and Strategies in the draft Structure Plan supportthis direction.

Objectives and Strategies in the draft Structure Plan supportthis direction.

Objective 5 of the Built Form theme addresses this issue and



Page 3 of 10

than the current star rating requirements.

Land UseEncourage adult education and increase the number and variety of sporting facilities.

Public spaceImprove linkages between open space to the west of the study area.Maximise roof spaces and develop as green areas.Potential to develop roof space over Richmond station if redeveloped. Richmond station and surrounding precinct requiressignificant redevelopment and gateway concept should beincorporated. Railway overpass requires improvement throughartwork, painting etc.Improve connectivity and signposting along river cycle paths toimprove access to Swan Street.

Transport

Introduce traffic calming measures in Swan Street to address trafficcongestion and promote alternative modes of transport to the car.Convert carparking lanes on Swan Street to bicycle lanes. Priorityshould be given to trams over cars and local surrounding streetnetwork should be permit only parking.

Improve linkages to Swan Street from Yarra River bicycle path.

seeks to integrate ESD initiatives into new development.

The important contribution made by Education providers isreflected in strategies included in the Land Use theme in the

draft Structure Plan.

A new pedestrian crossing for Punt Road is proposed under Objective 3 of the Access and Movement theme. This willimprove connectivity with open space that lies to the west of the study area.Richmond Station and environs has been identified as alocation for significant redevelopment.Facilitating connectivity and improving wayfinding areaddressed in the draft Structure Plan.

A number of strategies are included in the draft Structure Planto address the issue of traffic congestion and promote activeforms of transport.

Improved linkages with the Yarra River Corridor is addressedunder the Public Spaces theme in objective 2, Strategy 2.7 of the draft Structure Plan

Resident Richmond Station precinct requires significant redevelopment. Ugly,poor amenity, unsafe and provides poor linkages with surroundingarea. Public transport patronage should be encouraged through

improvement to station environs.

Linkages with Yarra Park should be improved and parking in thisarea should be prevented.Shop fronts along west end of Swan Street require refurbishment

Redevelopment of Richmond Station is addressed in the draft.Richmond Station is recognised as a regionally importantpublic transport modal interchange in the Draft Structure Plan.

Improved links to existing open space areas is addressed inthe draft Structure Plan. The Structure plan is essentially ahigh level strategic plan and does not address parking



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and should be sympathetic to heritage values where appropriate. restrictions in particular locales.Sensitivity to, and integration with existing heritage fabric isaddressed under the Built Form theme of the draft StructurePlan.

Resident Encourage more fresh food shops.

Improve access to Swan Street via active modes of transport andpublic transport. Improve pedestrian access through wideningfootpaths. Redevelopment of Richmond Station is a priority and aTOD should be considered for the surrounding environment.

Mixed use zoning should be applied to encourage integration of landuses.

Avoid visual clutter through excessive signage.

Ensure good acoustic treatments for developments where there areinterface considerations and/or industrial uses.

Consolidate large format retail in one area that provides undergroundcarparking.

Incorporate office space above existing shops and new residentialdevelopments.

4-5 storey development should be encouraged along Swan Street.Consider retail at the ground floor level.

Increased population will require more open space areas which could

be provided through Council purchasing redundant industrial land for this use.

Pedestrians and bicycles should be prioritised over vehicles toimprove access and safety. Carparking spaces along Swan Street

Encouraged under the Land Use theme.

Active modes of transport are encouraged in the draft StructurePlan.Richmond Station designated for significant redevelopment.

The zones that currently apply to the study area provide for arelevant mix of land uses that are considered appropriate for the land uses anticipated into the future.

Noted

Acoustic treatments are considered at the planning permitapplication stage.

Large format retail is consolidated into 2 key areas as shownon the Land Use Plan

Noted

Reflected in Built Form Plan

Refer to The Yarra Open Space Strategy for guidance on the

provision of new open space areas.

Active forms of transport are encouraged in the draft Structure



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should be converted to on road bicycle lanes. Plan.

Department of Transport

Suggestion to develop baseline data through assessing existingtravel patterns in the study area to inform future transport planning.

Transport implications of anticipated growth need to be carefullyconsidered. Improve priority for public transport and developcomplimentary strategies that assist in achieving this priority alongwith improving amenity.

Encourage higher density development adjacent to tram routes,railway stations and other key public transport routes or stopsidentified on the Principal Public Transport Network. Activate

surrounding environment through higher densities, local convenienceshops, community services and facilities.

Support for TOD around the three railway stations.

Consideration should be given to accessible tram stops alongChurch and Swan Street

Nightrider bus along Church and local bus services along Hoddle Stand Punt Rd.

Pedestrian and cycling networks.

Informal culture of pedestrian priority crossing Swan Street but lookat ways to formalise or strengthen pedestrian behaviours andpreferences.

Introduce wayfinding signage

Background research undertaken by consultants included adetailed analysis of existing transport provisions and

operations. This information has formed the basis of considerations in relation to access and movement in the draftStructure Plan

Access and Movement is a key theme in the draft StructurePlan. Active forms of transport and improved access to publictransport are promoted.

Addressed in draft Structure Plan and consistent withdirections expressed regarding redevelopment of train stations.

As above

Addressed in draft Structure Plan.

Improving access to public transport is consistent with the draftStructure Plan

Promoting pedestrian friendly environments is addressed in thedraft Structure plan.

Wayfinding signage is addressed under the Access &



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Identify regional trip generators and opportunities to improve or enhance active forms of transport and PT patronage.

Improve linkages to the river, Yarra bend park /Studley park.

Ensure end trip facilities with new developments are provided.

Policy Basis as follows:

Transport Integration Act

The Victorian Transport Plan

Melbourne 2030 Update: Melbourne @ 5 million

VicRoads SmartRoads as an approach

DOT Public Transport Guidelines for Land Use andDevelopment

Movement Theme, Objective 4.

Support for active transport is included in relevant sections of the draft.

Noted

Considered under Yarra Planning Scheme provisions.

Tract Consultants Submission advocates that Council nominate 658 Church StreetCremorne as a strategic redevelopment site appropriate for a highdensity, mixed use development comprising, retail, office andresidential uses.

Site identified as a positive opportunity for new signaturebuilding.

Architect &Resident

Concept sketch provided for proposed Burnley Stationredevelopment. Incorporates mix use zone, promotes activetransport and addresses community safety.

Burnley Station identified as a location appropriate for significant redevelopment.

Resident

Yarra MattersPanel Member

Greater emphasis should be placed on ensuring the study area is

family friendly and considers the needs of long term residents.

Improvements along Swan Street should improve amenity for families and long term residents and avoid Richmond becoming adormitory suburb.

Many of the objectives and strategies seek to provide

outcomes that are considered to be family friendly.The purpose of the Structure Plan is to provide a long termstrategic view of the study area and to plan for and manage



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Resident&Member Swan Street

Structure PlanStakeholder Group

Opportunities to improve linkages to open space areas to the east of the study area.

Carparking along Swan Street considered adequate. Empty spaces

Gateway opportunity could be explored in parkland to the north of Richmond Station?

Permeability of the urban environment and improvedconnectivity to existing open space areas are addressed in thedraft Structure Plan.Existing carparking provision regarded as adequate.

Resident Area needs a major shopping centre like Victoria Gardens to improveaccess to healthy foods. Should be underground with hospitalityabove.

Underground roadways and tunnels to connect to Chapel Street.Need post office and bank locations.Desolate, isolate and deprived area.

Correspondence courses and short courses/education centre for Swan Street parking should be separate from shops.

New advertising and improvements at the Maltings site, Nylex andRichmond Station.

Burnley Station tunnels and loops.Laneways and walkways have uneven surfaces.More pedestrian lights needed.Taxi rank near Richmond Station, buses as well.

Safety issuesBridge to solve traffic issues and separate traffic flow from cyclistsand pedestrians.

An underground stand -alone shopping mall is not supported.

NotedNotedNoted

The important role of the education sector in the study areawas discussed in the issues paper and is reflected in the draftStructure Plan under the Land use theme.

Maltings site and Richmond Station are identified as separateprecinct sin the Future Character and Building Guidelines.

NotedNotedNotedA taxi rank is proposed as a strategy in the draft StructurePlan.

NotedNoted



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Resident Maintain and enhance visual amenity of Stewart St streetscape

Concentration of creative enterprises around Stewart Street shouldbe promoted, supported and expanded.

Manage patron behaviour of people from MCG and bars along SwanStreet to minimise detrimental impacts.

Residential amenity to the north of Richmond Station is detrimentallyaffected by noise from Richmond Railway Station due to poor condition of infrastructure. Advocate on this issue.

Redevelop Richmond station!!

Create a vertical garden on wall abutting Stewart Street andRichmond Railway Station.

Supported by objectives and strategies in the draft.

Noted

Addressed under Land use theme.

Issue noted.

Support for the redevelopment of the Richmond train Station isincluded in the draft.

Support for green spaces is included in Strategy 2.3 of Objective 2 under the Public Spaces theme.

MGS Sustainable transportPotential for Green Street to be a sustainable transport corridor of regional significance.

Include the potential for pedestrian and cycle crossings acrossHarcourt Parade to the river trail.

Expansion of peripheral and bulky goods style premises in a locationthat could be identified as a TOD should be discouraged.Intensification of residential uses, employment generating uses andcommunity infrastructure should be encouraged.

Super stop and improvements to commuter facilities at the gatewayto the precinct, East Richmond Station and Richmond/Swan Streetinterchanges.

The Access and Movement Framework Plan includes a bicyclefocus along Green Street.

Noted

Noted. Support for transit orientated development is providedin the draft Structure Plan.

Church Street is nominated in the Access & MovementFramework Plan as having a public transport focus. Thisincludes an emphasis on improving access to public transportand ensuring stops are safe and comfortable.



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Proposed tourist tram route linking northern end of Chapel Street andwest of Toorak Road with key sports and Docklands and city centrehubs should be identified in Structure plan.

Structure plan should emphasise active forms of transport, promote

and encourage a modal shift.

Appropriate investment should be made in the quality, capacity andamenity of streets and community facilities located in the study area.

Upgrade pedestrian space and boulevard landscaping to the north of chapel Street and the River Street corridors. Explore potential for extending this to Church Street and Green Street.

Retain historical warehouses in Cremorne similar to Foy and Gibsoncomplex. Consider some expansion at interface with adjoiningresidential development and consider taller buildings (6-10 levels)along the rail corridor for office and residential accommodation.

Church Street to the south of Swan Street should not be developedas a peripheral sales corridor because of the transit orientation of thecorridor, particularly around East Richmond Station and gateway tothe precinct at Chapel Street.

Support for redevelopment of existing business park located at eastend of study area. Should be identified as an appropriate location for residential development. Could be developed along the same linesas Victoria Gardens incorporating a mix of residential, commercialand retail development.

Identify locations that provide opportunities for significant change

within the study area.

658 Church Street put forward as a significant site for redevelopmentwith surrounding precinct identified as being appropriate for further intensification.

Noted.

Included in the draft Structure Plan.

Objective 4 under the Public Spaces theme addresses thismatter.

Suggestion noted.

Noted.The Built Form Plan identifies a range of heights for the variousprecincts.

Noted.

Noted

Noted and addressed in draft Structure Plan

Site identified as an opportunity for a new signature Building.



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Upgrade streetscape and general amenity of Swan Street locale. Addressed throughout draft Structure Plan under relevantsections.

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