8 July 2016 Fishermans Bend Taskforce Department of Environment, Land, Water and Planning Level 36, 2 Lonsdale St Melbourne 3000 fishermansbend@delwp.vic.gov.au Dear Sir/Madam, Fishermans Bend Recast Vision May 2016 Planning Institute of Australia submission June 2016 PIA welcomes the State s inclusion of the City of Port Phillip and City of Melbourne in providing guidance and advice to the State. This is critical to the eventual success of the project. PIA strongly supports the refinement and further assessment of options and feasibility and community and stakeholder consultation is most definitely required. PIA encourages the State to continue to advance the planning for Fishermans Bend to deliver a world class brownfield inner urban re-development site over the next 50 years: The re-development of land that will define a fast growing Melbourne, and will be able to be presented as an inspirational attractor for new economy industries and investment if comprehensively implemented. At present, Fishermans Bend Recast Vision May 2016 is not on track to optimise the precinct s potential. While providing much of the bare bones of strategic vision for the area, there are many places where changes in the document in order to represent Fishermans Bend to the world as a spade ready best-practice inner city precinct would add substantial economic and reputational value to Victoria. To assist the State in refining the vision for Fishermans Bend, PIA makes the following observations and suggestions. Vision Statement Vision Statements in Strategic Planning are extremely important. The Vision Statement for Fishermans Bend Recast would benefit from reworking. As an overarching statement of desired outcomes for a project, with the capacity to define the whole city of Melbourne (not just the City of Melbourne) for many generations to come, it would benefit from a substantial overhaul in order to: Create a perception through the Vision that establishes the position of Fishermans Bend in a world context. The current impression from the
document is one that is small town parochial in scope rather than an exceptional emerging economy city. Unfortunately, this impression underplays the potential for Fishermans Bend, and does not expose readers to Melbourne s confidence in itself and its future Fishermans Bend Vision needs to better address sustainability issues beyond transport; including inter-generational equity, affordable housing for essential skilled workers, and the huge opportunity to realise biodiversity enhancement within an inner city context through deliberate design of water infrastructure incorporated into green space. To place Fishermans Bend side by side with a comparable project, it is notable that Malmö in Sweden achieved greater sustainability outcomes, and higher biodiversity, water and waste management implementation success than appears to be the case, at least as outlined, by the Fishermans Bend Recast Vision. The Malmö Bo01 brownfield redevelopment of a heavy industry ship building area that was developed from 2001 1 suggest that the Fishermans Bend Recast Vison 2016 is not, as it is currently stands, delivering world s best practice for brownfield planning. In order for Melbourne to truly deserve to retain its much cherished title of world s most livable city Fishermans Bend Recast Vision must deliver initiatives at the cutting edge of planning, social, biodiversity and engineering excellence for Fishermans Bend, not rest upon the city s past success, and not rely upon the limited development paradigms of successful outcomes currently seen as adequate. To assist the State in reviewing the Fishermans Bend Recast Vision, in Table 1 PIA sets out each vision statement in the Recast document and provides comment on each: Table 1: The Vision for Fishermans Bend Fishermans Bend Recast Vision 2016 Vision Statement Fishermans Bend is an unparalleled renewal opportunity at the heart of Melbourne. An area more than twice the size of the CBD, Fishermans Bend is the next chapter in Melbourne s growth story. Comment This would be much stronger as a vision statement if it provided Fishermans Bend with a world context seeking development excellence. Fishermans Bend is an extraordinary opportunity to present Melbourne to its citizens and in the eyes of the world as a cutting edge, innovative sustainable city. It is a 50-year project with the capacity to define 1 If it is assumed that planning began a conservative 4 years before development, this means Bo01 planning was created 20 years ago. 2
Melbourne s aspirations and belief in itself for the current century and even beyond. The project s capacity to complement existing Melbourne in scale and vision should demonstrate how great Melbourne can be on the world stage. Fishermans Bend is a very large legacy project for this government and the people of Melbourne. This vision statement would benefit from establishing the impression of a passionate desire to present Melbourne to its citizens and the world as a cutting edge, innovative sustainable city. This perception is important in order to attract the economy, jobs and investment that Melbourne needs and could be ideally located at Fishermans Bend A benchmark for sustainable and resilient urban transformation, Fishermans Bend is planned to be Australia s largest urban renewal Green Star Community. A benchmark for sustainable and resilient urban transformation is good. However, Green Star is a specific metric system that has no place in a vision statement. In addition, there are many levels of Green Star achievement so this leaves way too much wriggle room for sub-optimal performance. Using establishing world s best practice would provide confidence that something worthwhile is being achieved in the sustainability space with this project. Melbourne is Australia s fastest growing city and is set to become Australia s biggest. Fishermans Bend will support this growth providing 60,000 jobs and a range of well-serviced, high density housing options for 80,000 people. The Fishermans Bend Recast Vision would benefit from clearly encouraging Medium Density Housing as a high quality inner city development option. The current vision statement gives the impression that all housing will be very highdensity housing development towers, which is not desirable or appropriate for all areas, and as set out by Strategic Direction 7 not the intent. 3
Seeking rather a high density urban form at a human scale with the Wirraway description seeking small to medium scale apartment buildings, which are not high density housing options. Fishermans Bend will play a vital role in securing new high value jobs for Victoria, building on its legacy of world-leading technology and innovation. New and improved connections will leverage Fishermans Bend s strategic location between Port Phillip Bay, Yarra River and the CBD. It will boast unprecedented levels of walking, cycling and public transport connectivity that will set a new benchmark for Melbourne There are over 400,000 jobs in the existing City of Melbourne. 60,000 for Fishermans Bend over 50 years appears to be a low target for delivery. This Vision would benefit from a careful review to determine whether it is too low. As a vision statement this does not really add any support for a planning outcome. Rather: Fishermans Bend will provide for (or provides) high value jobs in world-leading technology development and service innovation establishes support for a vision outcome that can be planned into the project and lead to successful implementation. The Vision would benefit from greater emphasis on establishing the importance of integration back to the existing CBD, including specifics such as: new road and public transport connections into existing Melbourne CBD are critical to optimising the success of Fishermans Bend as an integrated part of Melbourne as a capital city in order to strengthen the requirement for the extension of Collins Street to a priority project, open up other longer term possibilities such as exploring the potential extension of Ingles Street to Docklands Drive, delivering life to Harbour Town and surrounds. Both of these routes integrate the existing tram network into the newly developing precinct. The potential connection into a future expanded metro 4
(being examined in the options study) is supported by this vision. Unprecedented levels of walking, cycling and public transport connectivity that will set a new benchmark for Melbourne would seem to be a relatively low aspiration vision to achieve for this project. Heritage and culture will be celebrated and form the backdrop for a collection of diverse, mixed use places. Fishermans Bend will provide high quality open space, community services, schools, medical facilities, as well as retail, cultural and entertainment options to build on Melbourne s acclaimed liveability. The Vision would be improved by increasing confidence that Fishermans Bend is to become a world class sustainability precinct supported by the necessary active transport and public infrastructure, providing inter-connectivity with surrounding Melbourne. Supported. This vision could benefit from emphasis on delivery at the cutting edge of improvement. For Melbourne to truly deserve to retain its much cherished title of world s most livable city it cannot rest upon its past success, and certainly not rely upon the limited development paradigms of successful outcomes currently seen as adequate. How does the Vision link to the Strategic Directions? P.4 of the Recast Vision headings are: Aligning with the refresh of Plan Melbourne, our city plan to 2051: Transport Building Resilience to climate change Housing supply, diversity and choice There is a link to the Recast Vision on Transport, but no links to Climate Change or Housing. The question arises: If there are inadequate links to the vision and Strategic Directions, how will these be implemented into planning outcomes? Table 1, 2 and 3 provide commentary on how Fishermans Bend Recast Vision might address these important issues. Biodiversity Enhancement The Fishermans Bend Recast Vision would benefit greatly from including a statement of strategic intent on biodiversity enhancement. Melbourne as a whole faces the prospect of large-scale redevelopment in select locations. For urban developments, Melbourne Water advocate(s) the development of constructed 5
waterways that retain the characteristics of a natural waterway for that area. These new waterways constructed in keeping with contemporary waterway management philosophies have greater ecological, social and amenity value. Fishermans Bend could attempt to meet the equivalent of such standards, even where drainage and contaminated land issues may prevent any natural waterways being re-introduced. Under such conditions it is still practical to attempt to deliver water bodies as biodiversity features within open space, to provide the social and biodiversity benefits Melbourne Water recognizes for urban development. Reconsideration of the total area of road pavement within Fishermans Bend provides an excellent starting point for this strategic response. Local government is leading the way in creating policy for biodiversity enhancement, for example, of old engineered waterways. As the State is developing a Vision for the largest brownfield redevelopment ever in Australia it is an excellent opportunity to showcase its sustainability and climate change ameliorating credentials to the world by embracing biodiversity enhancement as an integral planning component of the precinct. Are the 10 Strategic Directions Still Relevant today? The 10 Strategic Directions from the Draft Vision 2013 would benefit from being more specific, giving the clear strategic direction required for statutory implementation of the Vision Statement. Writing the Strategic Directions carefully with implementation at a planning permit assessment level in mind will assist planners to deliver the Vision. Table 2: 10 Strategic Directions from Fishermans Bend Urban Renewal Area 2013 Direction 1.The creation of 21st century jobs Fishermans Bend enhances its competitive economy through the creation of additional jobs and businesses by capitalising on its strategic location between the CBD and the Port. 2.The timely provision of infrastructure Fishermans Bend is supported by a funding model that promotes early delivery of catalyst infrastructure and balances transitioning of existing Industries. 3. A place that is easy to get around Fishermans Bend is a connected and legible precinct where peoples Comment/ Relevance This direction would greatly benefit from being re-worked to more effectively capture the intent of providing a strategic framework supporting the establishment of businesses and creation of jobs in the new economy capitalising on its strategic location. The direction would better address issues of equity and distribution of reasonable development contributions if amended to supported by a funding model that provides early delivery of all necessary public infrastructure by developers and Government. The direction would benefit greatly from a change of emphasis to provide strategic justification for more than minimal requirements: A place where 6
preference for getting around is by walking, cycling and public transport networks that are integrated into the CBD and surrounding suburbs. 4. A vibrant mix of uses and activities Fishermans Bend supports a vibrant mix of uses by providing a balance of employment generation, housing choice and community facilities that are accessible to Fishermans Bend residences and their surrounding neighbours. 5. Distinctive and diverse neighbourhoods Fishermans Bend has a unique public realm situated between the Yarra and the Bay with a diverse and distinctive neighbourhoods that foster a sense of place through their safe, legible and inviting streets. 6. A great place for families Fishermans Bend is a place for people of all ages through the creation of diverse, liveable and family friendly communities. sustainable transport modes are preferred. Active transport opportunities and public transport options are comprehensively integrated into the design of the precincts, fully supported by provision of the appropriate infrastructure, to strongly encourage the use of sustainable transport modes in preference to private vehicles The direction would benefit from having clearer focus, such as: A mixed use living and working environment where carefully planned precincts provide for a variety of residential development types, employment opportunities and community assets, all with excellent ground level urban design, interconnected by active transport infrastructure, linked green space, biodiversity enhancement and sustainable infrastructure, creating a powerful catalyst for community life. Consider the benefits to this direction of alternative wording: Distinctive and diverse neighbourhoods that make best use of their co-location with existing city elements such as port functions, CBD proximity, and public transport connections as well as planned sustainable and public transport infrastructure, optimal active transport connectivity to existing residential areas while delivering, legible, high quality urban and landscape design that creates safe and attractive living and working environments. The intent of this Direction may be more clearly and effectively expressed as: A Living Environment for all Stages of Life Fishermans Bend delivers a variety of living environments from high density apartment living to a range of medium density apartment styles set in a treed landscape of green spaces and waterways, providing for climate change adaption and the creation of 7
7. A high quality built environment The neighbourhoods of Fishermans Bend have a high quality built environment that promotes best practice environmentally sustainable design with compact, high density urban form at human scale. 8. Smart environmental solutions Fishermans Bend delivers integrated and efficient energy, water and waste infrastructure through cost effective, modern and sustainable environmental solutions. 9. Environmental constraints addressed Fishermans Bend allows for the early consideration of precinct-scale environmental constraints with cost effective, collaborative solutions to achieve a more efficient outcome 10. Strong partnerships and effective governance Governance structure and approval processes will promote best-practice design and construction methods and gives planning certainty to the development industry. livable, family friendly neighbourhoods The direction could benefit from a change of emphasis to further encourage its intent: A high quality built environment The neighbourhoods of Fishermans Bend have a high quality built environment that incorporates best practice environmentally sustainable design into compact urban form, developed to recognise the importance of human scale. As for Direction 7, The direction could benefit from a change of emphasis to further encourage its intent: Smart environmental solutions Fishermans Bend delivers integrated and efficient energy, water and waste infrastructure through the provision of cost effective, sustainable environmental design solutions as part of a precinct wide outcome. As for Direction 7, the direction could benefit from a change of emphasis to further encourage its intent: Environmental constraints addressed The delivery of sustainable solutions to the environmental constraints facing Fishermans Bend through precinct-scale cost effective, collaborative solutions achieves a lasting and efficient outcome The Direction would benefit from including the new consultation arrangements that the State is encouraging for Fishermans Bend: Strong partnerships and effective governance Governance structure and approval processes will promote best-practice design and construction methods and give planning certainty to the development industry and surrounding communities by creating confidence and precinct value through meaningful consultation with the Cities of Melbourne and Port Philip and the local community. 8
In order to establish the full range of strategic priorities for such a critical planning area, the addition of three important Strategic Directions for consideration as specific inclusions are recommended in Table 3 Table 3: Strategic Directions for Consideration Direction Rationale 11. Amelioration of the impact of Building design conditions to provide Climate Change through Building, for excellent living environments with Streetscape, and Greenspace design low carbon footprint, streetscape delivering the creation of cooler design to provide for large shade outdoor living environments, low trees, separate active transport carbon transport, greenways corridors/priority lanes, and including canopy trees, and greenspace design to include water sustainable buildings. elements as part of the overall water management system to keep 12. Biodiversity enhancement through linked Greenspace corridors that include water elements to encourage recolonization of Fishermans Bend by species previously endemic to the area. neighbourhoods cool. The Directions would benefit from providing for the opportunity to deliver recolonization of Fishermans Bend by once endemic species. The provision of water elements within the linked Greenspace corridors and intelligent landscaping choices can achieve this. Plan Melbourne Refresh includes a strategic environmental principle of Enhance the community s access to nature across our urban areas and the community s access to the natural environment will be improved through greater attention to natural values across neighbourhoods and waterways. Unfortunately, it offers no guidance on how this is to be achieved within a brownfield redevelopment site like Fishermans Bend. However, this does provide the strategic justification for biodiversity enhancement in the precinct, which will add extraordinary social capital and potential economic value to the overall project outcome. Although there is a high level of contamination in the soil, this is not an adequate reason for failing to implement this outcome. Water elements will clearly have to be designed to exclude the possibility of leaching of contaminants. 9
13. Delivery of affordable housing for essential service skilled workers and their families Housing prices in the inner city area are shutting out essential skilled workers from close proximity to their workplaces in the city. Fishermans Bend could deliver a significant proportion of housing that is affordable to this group by implementing one or more of a range of well-tried mechanisms available to collect funds to support such a program. What could Fishermans Bend be in 2050? Backcasting: a method in which the future desired conditions are envisioned and steps are then defined to attain those conditions, rather than taking steps that are merely a continuation of present methods extrapolated into the future 2 The backcasting exercise is not well linked into the strategic vision, and many of PIA s comments go, in fact, to linking the Vision and Strategic Directions to the vision statements in the recasting exercise. PIA believes that the next step from Fishermans Bend Recast Vision should link the backcasting exercise, and the additional Strategic Directions suggested by PIA, to the Vision and Strategic Directions directly, creating a more robust strategic justification for implementation. This would require a much more fully developed version of the backcasting exercise, if this is the method that the State wishes to use to identify ultimate outcomes. It is important, if the backcasting exercise is to have value, that the flow through to the Vision for Fishermans Bend and Strategic Directions as tools for implementation delivery of What could Fishermans Bend be in 2050 be fully established. Conclusion The Fishermans Bend Recast Vision 2016 could be improved by: Establishing an exciting, world s best practice, value generating, outward looking position for Melbourne toward the wider world through the Fishermans Bend project establishing within the document the impression of a passionate desire to present Melbourne to its citizens and the world as a cutting edge, innovative, sustainable city more comprehensively addressing sustainability issues beyond transport 2 https://en.wikipedia.org/wiki/backcasting 10
discussing inter-generational equity, especially by providing a Strategic Direction in the context of funding providing a Strategic Direction that requires affordable housing for essential skilled workers taking the opportunity to realise biodiversity enhancement within an inner city context by identifying it as a Strategic Direction requiring world s best practice for the implementation of sustainability practice on a precinct wide basis. providing clear and unambiguous strategic guidance to implementation clarifying statements about the delivery of housing, neighbourhoods and housing typology prioritising the requirement for new transport infrastructure for the integration of Fishermans Bend with existing Melbourne clearly establishing the need for a more comprehensive and equitable funding model for infrastructure delivery further establishing the critical need for consultation with the Cities of Melbourne and Port Phillip, and the community comprehensively setting out the vision for dealing with climate change, and establishing the need for a delivery model for affordable housing solutions for skilled, lower paid workers and their families. Please do not hesitate to contact the Victorian Executive Officer, Carmel McCormack on 9654 3777 or myself to discuss any aspect of this submission. Yours sincerely, James Larmour-Reid FPIA, RPIA (Registered Planner) Victorian President Planning Institute of Australia 11