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CITY AREA
(Haig Park to Lake Burley Griffin)
The draft Greater Canberra City Area Coordinated Action Plan 2010 - 2016
(Action Plan) has been prepared to help advance the Canberra Plan goal for
Canberra City, to be the dynamic heart of the region. This draft Action Plan
adopts explicit targets that focus on outcomes that enhance Canberra City as
a place for people - a place where innovative businesses can add to the
quality and diversity of the city; a place where people from around the world
can live, learn and unwind; and a place where people’s working days are
enriched through the variety and interests that a modern city can provide.
The Action Plan contributes to broader discussions about clear priorities and
common goals. This shared direction will help determine the appropriate level
of future public investment in the Greater Canberra City area over coming
years. At this stage, project funding remains subject to further consideration in
the context of future Government priorities, and the formulation of the
Territory’s annual budgets.
Your input is necessary to help finalise the Action Plan. The ideas and
opportunities described in the Plan are open for discussion and refinement
over the consultation period that ends on Tuesday March 2010.
Your comments will be considered, and appropriate suggestions will be
incorporated into the final plan that is expected to be prepared before the end
of June 2010.
Please look at the draft Action Plan and provide your comments and feedback to.
Email: rod.baxter@act.gov.au
12 February 2010
© Australian Capital Territory, Canberra 2010
This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced
by any process without written permission from the Territory Records Office, Community and Infrastructure
Services, Territory and Municipal Services, ACT Government.
GPO Box 158, Canberra City ACT 2601.
Produced by Publishing Services for:
Department of Land and Property Services
Publication No 10/0066
TABLE OF CONTENTS
Executive summary i
1.0 Purpose 1
2.0 The study area 1
3.0 Goal and development principles 2
4.0 Targets: Actions that achieve the goal 2
5.0 Nine targets for a more sustainable and diverse City 3
Target 1: Residential 3
Target 2: Employment 5
Target 3: Journey to work 7
Target 4: Active street frontages 9
Target 5: Public parking 11
Target 6: Short stay convenience parking 13
Target 7: The public realm 15
Target 8: The road network 17
Target 9: Cycle and pedestrian networks 19
6.0 Summary of projected development to 2016 2
7.0 The business case for road network changes 23
7.1 Proposed network changes 23
7.2 Performance of options 23
7.3 Benefit cost analysis 30
7.3.1 Selected network for economic analysis 30
7.3.2 Components of economic analysis 31
7.3.3 Summary of economic indicators 31
7.4 London Circuit and future bus priority measures 32
7.4.1 Background 32
7.4.2 Functions of London Circuit 32
7.4.3 Design options 32
7.5 Vernon Circle and City Hill 36
7.5.1 City Hill’s symbolic role 36
7.5.2 1950’s interpretation of Griffin’s plan 36
8.0 The business case for public realm investment 37
8.1 Proposed public realm enhancements 37
8.2 Priorities and sequencing 37
9.0 Mixed use outcomes 53
9.1 The advantages of mixed use development 53
9.2 Incentives that support mixed use development 53
10.0 Achieving long term results 55
10.1 Stakeholders and decision making 55
10.2 Leadership and public investment 55
10.3 Implementation 55
Bibliography 57
i
EXECUTIVE SUMMARY
The Canberra Plan identifies City (Civic) as the dynamic heart of Canberra. The
policy to build a stronger City heart in the context of the ACT’s town centre structure
is promoted in Territory and Commonwealth planning statutes and in more
comprehensive commentaries through The Canberra Plan ACT Government (2002)
and Canberra: A sustainable future. OECD, Paris (2002).
Recent progress towards strengthening the role of Civic has been driven by
Commonwealth Government policies around renewal of its departmental office
accommodation, significant retail and entertainment expansion around the Canberra
Centre, market demand for inner city apartments and an extension of the Australian
National University’s (ANU) activities into non campus land in City West.
Planning policies and land release programs of both the Commonwealth and
ACT Governments have supported significant development activity over the
past five years. By mid 2009 the development cycle levelled out to more
normal levels but, even at a reduced rate of growth, significant changes to the
Greater City Area must be anticipated over the next seven years to 2016.
To better understand the implications of future development, nine explicit targets
for the seven years from 2010 and 2016 are described. The targets are entirely
consistent with Territory and Commonwealth planning statutes, and are
supported by the best available data. The targets are integrated, and together
they work to:
Optimise utilisation of existing transport and other infrastructure;
Maintain City’s existing high level of accessibility and functionality;
Help improve Canberra’s environmental footprint;
Enhance City’s vitality and urban lifestyle by fostering growth in
employment, retail, entertainment and residential development;
Steadily achieve cohesive and robust urban design and public realm
improvements; and
Underpin continued land releases and new development to support the
growth and changing needs of Canberra’s ‘vital heart’.
Through natural growth alone the Greater City Area will, over the next seven
years, attract private sector investment in the order of $1,500 million
(Canberra Construction Snapshot September 2009). To support this growth,
and to enhance Civic as a modern and attractive city, options for public
capital investment in roads and public realm improvements have been
considered. Projects with relatively low cost and high benefits have been
prioritised into an action plan that incrementally achieves Commonwealth and
Territory planning objectives.
The business case for road network enhancements concentrates on eight road
improvement projects ranging in value from $0.5m to $5m. The probable order
of cost in 2009 dollars of Territory funded road improvements over the next
seven years is about $25.5m. An economic analysis of vehicle operating
costs, time costs and accident costs was undertaken, along with the financial
impacts of enhanced land release opportunities. The economic benefit of this
package of work at 7% discount rate over 30 years is more than seven times
the estimated $25.5m cost.
The Action Plan contributes to broader discussions that will lead to clearer
priorities and common goals. This shared direction will help determine the
level of public investment that is appropriate for the Greater Canberra City
area over coming years. At this stage, commitment to fund individual or
groups of projects remains subject to further consideration and decisions in
the context of future budgets.
1
1.0 PURPOSE
The purpose of this plan is to synthesise infrastructure and development issues
for the Greater City Area into a coordinated action plan that directs short, medium
and long term projects. The Plan’s objectives are to:
Optimise the utilisation of existing transport and other infrastructure;
Maintain existing high level of accessibility and functionality;
Steadily achieve cohesive and robust urban design and public realm
improvements; and
Underpin continued land releases and new development to support the
growth and changing needs of Canberra’s ‘vital heart’.
A goal of the Canberra Plan is for Canberra City to become the dynamic heart
of the region. A preeminent and vibrant regional centre is fundamental to the
ACT's competitiveness, and to its ability to encourage investment, attract and
retain a skilled and diverse workforce, and promote cultural enrichment. As
the social and economic heart of the region it is important that the growth and
evolving urban form of Canberra City achieve fundamental urban design
principles of:
Functional efficiency;
Commercial viability and economic sustainability;
Improved environmental health, particularly in regard to reducing the
ACT's overall carbon emissions;
Visual coherency and meaning; and
Social cohesion.
The principles are a standard part of the broad dialogue on city form and
urban design. To have any effect, more specific targets are needed that help
direct decisions, particularly in relation to land use, investment in transport
infrastructure and commitments to public realm improvements. This
Coordinated Action Plan is primarily concerned with integrating public
infrastructure enhancements with private sector investment in ways that
improve outcomes for the Territory as a whole.
Before discussion can progress to the detail of benefit cost outcomes and the
appropriateness of public investment, clear and measurable targets need to
be defined. While broadly considering capacity issues projected out to 2031
the plan specifically focuses on nine explicit targets for the seven years from
2010 to 2016.
The best available data has been used to establish trends, describe existing
conditions and create baselines from which specific targets can be monitored.
By building on the analysis of the current situation, targets for 2016 have been
determined through relevant studies and interpretations of development
outcomes that are likely to result from anticipated economic growth over the
next seven years.
As with the whole of the Greater Canberra City Coordinated Action Plan, the
targets are open for discussion and refinement through the period of public
consultation. Further, over the period of the Action Plan targets may be
added to respond to emerging issues.
3
Target 1: By 2016 the number of people living in the Greater City Area
will double to about 10,400
Current Estimate
The estimate of residential population as at April 2008 is 5,200 people (refer
Table 1). Source: ABS Estimated Resident Population (ERP) Catalogue
number 3218.0.
Possible strategies
Covenants on land sales requiring development for residential uses,
conversion of under utilised office sites to residential, addition of student
housing at ANU and Reid CIT, and redeveloping and upgrading existing
Territory owned housing stock.
Monitoring
ABS annual updates of the ABS ERP.
Target 2: By 2016, total employment in the Greater Canberra City Area will
exceed 45,000.
Current Estimate
June 2006 employment estimate is 36,400 people. Refer Table 2. ABS 2006 Census.
Possible strategies
Program land releases to meet the needs of Commonwealth departments, create
an ACT Government office complex, facilitate refurbishment / renewal of existing
office stock to achieve contemporary tenancy requirements and accommodate
growth with appropriate parking and access policies.
Possible future office locations generating more than 300,000m² of new office
space are shown in Figure 3. Projected impacts to 2016 on the study area’s
workforce are shown in Table 1.
Monitoring
ABS five yearly census. Three monthly real estate activity reports.
Current Estimate
Of people attending work the estimated mode split as at June 2006 is car driver, 56%
and all other modes, including car passengers, 44% (Source: ABS 2006 Census*). .
Refer Table 3 and Figures 4 and 5.
Possible strategies
Observe trend line in five years 2001 to 2006 where, for ACT residents, car by
driver has declined from 63% to 56%. This significant shift of 12% (of the
2006 base) will continue to be supported by increasing residential densities
within two kilometres of employment, continuing improvement to bus
frequency along higher density corridors, investment in bike paths and end of
trip facilities and improvements to the pedestrian path network.
Monitoring
Journey to work data from the five yearly ABS Census.
* Employed people not attending work are excluded in the graphical representations at
Figures 4 and 5. Note also that the data collection area is for Canberra City only, and not the
Greater Canberra City area.
8
4% 3%
11%
4%
15%
63%
Bus Car as driver Car as passenger Walked only All other methods Bicycle
3%
5%
17%
6%
13%
56%
Bus Car as driver Car as passenger Walked only All other methods Bicycle
Target 4: By 2016 external active frontages visible from the public realm
will increase by 50%
Current Estimate
At present active frontages (building entrances in view) are mainly located
around the retail area and in City Walk and the southern end of Northbourne
Avenue as depicted in Figure 6. Source Intelligent Space Partnership Ltd
(December 2006) Canberra Central Movement Study – movement economy
model and forecasting.
Possible strategies
Create a more robust planning and compliance framework that sets and achieves
outcomes that include:
Shops, cafes and showroom displays that extend activity from the building to
the street;
Clear glazing of street level windows;
Multiple entrances serving smaller tenancies;
Borrowed light from the shopfronts to illuminate the pedestrian verge; and
Signs that are consistent, and that complement the architectural design.
Monitoring
Five yearly update of the 2006 Canberra Central Movement Study.
10
Figure 6: External active frontages visible from the public realm (2006)
Intelligent Space Partnership (December 2006). Canberra central (pedestrian) movement
study. ACTPLA, Canberra
11
Current Estimate
Table 4 describes the existing parking supply. Currently the total number of parking
spaces in Central Canberra is 24,467, consisting of 14,186 public spaces, and
10,281 tenant only spaces. Source: Integral Services Group Pty Ltd (May 2009).
2009 Parking Survey.
Sites that currently accommodate the bulk of the study area’s public parking
are shown in Figure 7.
Possible strategies
Finalise the long term locations for public parking and prepare indicative urban
design guidelines that address pedestrian movement, vehicle entry and
egress and future built form. Include these requirements as conditions for
future land sales.
Focus on key locations that generate day and night time use, and that are
economically viable.
Braddon 18, 19, 20, 329 66 79.9% 1,164 296 74.6% 1,609 554 65.6%
21, 22, 28,
30, 52,
City East 19 & 5 478 110 76.9% 5,767 2,119 63.3% 5,595 2,336 58.2%
City West All 755 172 77.2% 3,114 358 88.5% 1,887 517 72.6%
Parkes 3 & 49 140 135 3.5% 1,443 484 66.5% 29 21 27.6%
north
Reid 7, 8, 9, 10, 185 150 18.9% 317 32 89.9% 313 63 79.9%
11, 14 & 33
Turner 24, 35, 36, 364 57 84.3% 148 20 86.5% 848 333 60.7%
37, 39 41,42,
43, 44, 45
Total 24,467 2,251 690 74.8% 11,935 3,309 70.0% 10,281 3,818 62.8%
Target 6: By 2016 a minimum 10% spare capacity in short stay (<3 hours)
public parking is evenly distributed across the Greater City Area between
12.00 noon – 2.00 pm on an ‘average traffic’ day.
Current Estimate
Current demand for short stay parking is summarised in Table 5. Existing
parking is illustrated in Figure 9.
Possible strategies
Finalise the long term locations for short stay public parking.
Focus on key locations that generate day and night time use, and adjust
parking charges as necessary in order to maintain the targeted vacancy rates.
Establish an integrated real time parking information system that better directs
people to available parking spaces.
Monitoring
Annual parking surveys.
Table 5: Supply and utilisation of short stay parking spaces (<3 hours)
SUBURB SECTIONS SUPPLY VACANT OCCUPANCY
Target 7: By 2016 at least half the study area’s public realm is upgraded
to higher standards of safety, serviceability and appearance.
Current Estimate
The total extent of pedestrian pavement within the study area is currently 22.1
hectares (Intelligent Space Partnership Ltd 2006). Approximately 4.6
hectares, or 21% of this area, includes paving, lighting and furniture that is
constructed to standards described in the Canberra Central Design Manual.
Areas that have recently been refurbished through both Territory and private
sector projects are shown in Figure 10.
Possible strategies
Review and update the Canberra Central Design Manual to ensure that latest
standards are readily available to government agencies and private
practitioners involved in public realm development.
Prepare necessary master plans to ensure that off site works for all
developments and redevelopments are accurately scoped, and adequate
allowance for construction costs is included at the time of Development
Approval. A rolling capital works program should operate in parallel with
privately funded off site works to inject Territory investment into public realm
improvements that are critical in achieving completion within precincts, and
that can’t be addressed by other means.
Monitoring
Two yearly condition audits and public realm inventory.
* Canberra CBD Limited administers the Canberra City Centre Marketing and Improvements
Grant, raised through a levy on property owners in the City Centre. It is a not-for-profit
company limited by guarantee, charged with improving and marketing the City Centre as a
pre-eminent retail, lifestyle and commercial precinct in the ACT.
16
Current Estimate
The 2009 performance criteria and 2016 projections extracted from the
Greater Civic Paramics micro simulation model are shown in Table 6.
(Source: SMEC Oct 2009).
Possible strategies
Progressively implement road network improvements that focus on new
connections and intersections, and aim to redistribute traffic more evenly
through the existing network. Seek to avoid creating additional traffic lanes at
the expense of the pedestrian environment.
Monitoring
Maintain the Paramics model and re calibrate and verify predictions against
actual network performance.
Current Projections
Vehicle Description of global measurement
Class extracted from the Greater Civic 2009 Base 2016 do 2016 with
Paramics micro simulation model nothing network
improvements
Target 9: By 2016 two kilometres of new and upgraded shared use path is
constructed to improve bicycle and pedestrian access through areas east of
Northbourne Avenue, and to improve connections between City East and City
West.
Current Estimate
The existing path and cycle network is shown in Figure 12.
Possible strategies
In consultation with Pedal Power and other interested groups finalise a cycle path
master plan for areas east of Northbourne Avenue, and improve connections
between City East and City West. Include master plan requirements as off site
works associated with new development, and supplement with capital investment as
required.
Monitoring
Two yearly condition audits and updated inventory. Annual cycle counts to monitor
changing demand and responses to improved facilities.
20
Figure 12: Existing and possible 2016 additions and upgrades to pedestrian and
cycle links
21
Over the next seven years, through natural growth alone, the Greater City Area may
attract private sector investment in the order of $1,500 million (Canberra Construction
Snapshot September 2009). The location of this projected development is shown in
Figure 13.
To support this growth, and to enhance a modern and attractive city, options for
public capital investment in road network and public realm upgrading are proposed.
26 public realm enhancement projects have also been considered. The total value
of these projects in 2009 is about $70m. In the main, sequencing of priorities is
linked to off site works being carried out as part of private sector investment where
the aim is to incrementally and cost effectively upgrade road verges footpaths,
parklands, public lighting and pedestrian malls. There are several exceptions to this
approach, such as the verges of London Circuit adjacent to Civic Square and Ainslie
Place where more significant ‘place making’ undertakings could be considered in the
context of landmark projects marking Canberra’s 2013 Centenary.
22
Figure 14: Summary of road network changes. Note that numbers correspond
to the numbering in Table 7.
Table 7: Possible road network changes
Item Description Benefits Interdependencies Funding
1. Upgrade Constitution Avenue in line with Completes the avenue of national Construction of ASIO headquarters C’wealth
National Capital Plan Amendment 60. The capital significance. and its off site works.
design utilises the 45m road easement Avoids the increasing constraints of Traffic management during
which currently poses a significant encroaching development. construction.
impediment to the orderly development of Avoids ad hoc and abortive work
both Territory and Commonwealth land. Removal of Territory owned parking
associated with adjacent new
on the alignment of the westbound
development.
carriageway.
Much needed improvements to the
cycle and pedestrian connections
between City and Russell.
2. Create a protected left turn from Vernon Improves Sect 63 entry / egress. Construction by City West Holdings of Territory
Circle into an extension of Edinburgh Creates a drop off for north bound public parking within the Edinburgh
Avenue. Similarly, allow a free left turn buses in City West. Ave easement.
from Edinburgh Avenue to Vernon Circle. Creates development opportunity for
Modify London Cirt road camber on Block 20 Sect 63
approaches to Edinburgh Ave intersection
25
3. Left turns through the intersection of Assists with distributing traffic off Edinburgh Ave construction over Developer
Knowles Place with Edinburgh Ave. London Cirt. public car park. Sect 63
Included as a development requirement for Assists with entry egress at peak times. Sect 63 development.
Section 63.
4. Realign Watson Street to create a 4 way Allows Turner traffic to turn right into Resolution of busway. Territory
signalised intersection with Barry Drive and Barry Drive providing more direct Resolution of parking and access to
Kingsley Street. connections to Belconnen. ANU’s Section 21 projects.
Avoids attracting traffic into to
Northbourne / Barry Drive intersection.
Table 7: Possible road network changes (continued)
Item Description Benefits Interdependencies and possible Funding
timing source
5. Bus priority measures between Barry Drive Belconnen bus services get priority Construction by ANU on the balance Territory
and City Interchange. Direct inbound and between the arterial road and the of Section 21 between the existing
outbound buses along the busway corridor interchange. student housing and Barry Drive.
to Barry Drive. Alternative routes of Rudd
Four travel lanes in Marcus Clarke
Street vs Alinga Streets to be tested as part
Street created for general traffic.
of the next design phase.
6*. Optimise lane capacity and verge conditions Improves bus priority. ACT Government office building on Territory
within London Cirt based on the existing Block 24 Section 19 (south of
Improves traffic general flow.
30m road easement and proposed 40m Assembly Building).
building face to building face for land Improves verges and pedestrian Proposed hotel on eastern side of
releases. For example, coordinating amenity and tree planting, particularly Northbourne Avenue and residential
signals, restrict kerbside parking in peak adjacent to proposed land sales. development on the western side.
times, bus signal priority and remove left Preserves kerb side parking for 2010 program to reconstruct road
turn lanes to and from Northbourne Ave convenient pick up and drop off.
north of City Hill. pavement.
26
7. Marcus Clarke Street upgraded to four Improves traffic efficiency on the main Construction of a dedicated bus Territory
lanes. City West distributor road. priority route between the bus
interchange and Barry Drive as per
Improves the dispersal of traffic to the
item 5 above.
arterial road network.
8. Left turn in and left out to north eastern Provides direct access to future parking Development of hotel, serviced Sect 19 off
intersection of Knowles Pace extension with and hotel from Northbourne Ave. apartments and public parking on site works
Northbourne. Block 23 Section 19 that will be
Spreads traffic to ease congestion at
released for sale in early 2010.
the intersection of London Cirt and
Northbourne Ave
* Plus verge works – refer to Items 17, 23 and 24 in Table 11: Possible public realm improvements.
Table 7: Possible road network changes (continued)
Item Description Benefits Interdependencies and possible Funding
timing source
9. Additional bus stops for future City West Improves bus services between the Review bus timetabling. Territory
bus operations. interchange and City West.
Sale of corner sites on Sections 19
Improve pedestrian amenity adjacent to and 63.
proposed new development.
City West Holdings development on
Section 63 and construction of
Edinburgh Ave extension.
10. Redistribute traffic to Moore Street / West Higher utilisation of existing roads Maintenance of existing bus priority. Territory
Row between Barry Drive and London running parallel with Northbourne Ave
Management of kerb side parking.
Circuit by removing unrestricted pedestrian on the western side of City.
priority adjacent to Alinga Street. Replace
Spread traffic to more intersections,
with bus activated priority signals. Consider
reducing congestion at the intersection
signals at West Row intersection with
of Northbourne Ave / London Cirt.
London Circuit.
11. Further investigation of left turn in and left Improves access from the arterial roads Release of the balance of Section 63. Territory
27
Cars in the network at simulation close 8,580 14,903 11,046 11,093 10,605 17,044
Total path distance [km] 150,100 101,211 142,016 137,746 134,493 72,356
CARS
Total travel time [hr] 7,715 10,012 9,204 9,366 9,236 12,850
Average delay per vehicle [s] 568 987 718 745 783 1,637
28
Total path distance [km] 749 449 754 732 781 327
Total travel time [hr] 49.1 67.8 59.4 57.2 54.7 75.3
BUSES
Average speed [km/hr] 15.3 6.6 12.7 12.8 14.3 8.3
Average delay per vehicle [s] 816 1,450 998 969 969 1,855
Table 9: 2031 traffic projections - Summary of Paramics micro simulation modelling
Current Projections
Vehicle Description of global measurement
Class extracted from the Greater Civic 2009 Base Scenario 1 Scenario 2 Scenario 2a Scenario 2b Scenario 3
Paramics micro simulation model 2009 demand 2031 Increased Incremental Scenario 2 but with Scenario 2 without Increase demand
and capacity. demand with 2009 improvements value major changes to Edinburgh Ave / and full Griffin
capacity. $25.5m London Cirt. Vernon Circ Legacy changes.
connection. Cost $100m.
Cars in the network at simulation close 8,580 15,581 15,617 14,379 12,329 17,220
Total path distance [km] 150,100 93,381 121,172 123,086 131,799 73,339
CARS
Total travel time [hr] 7,715 11,026 11,543 10,819 10,245 13,339
Average delay per vehicle [s] 568 1,163 986 924 978 1,749
29
Total path distance [km] 749 391 564 607 672 411
Total travel time [hr] 49.1 74.8 71.5 65.5 61.3 84.5
BUSES
Average speed [km/hr] 15.3 5.2 7.9 9.3 11.0 4.9
Average delay per vehicle [s] 816 1,779 1,328 1,228 1,247 1,957
30
Figure 15: Selected links for economic analysis of Scenario 1 (growth and no
investment in road network)
Figure 16: Selected links for economic analysis of Scenario 2 (growth with
investment of $25.5m to optimise operation of the road network)
31
Accident cost
Accident cost (AC) increases with the number of kilometres travelled. An
average crash cost per million kilometres travelled by road type is included in
the model.
Estimation of benefits
The expected benefits achieved from implementing Scenario 2 is estimated by
calculating the cost savings gained with the projects in place compared to the
operation of the network without the optimisation projects.
There have been suggestions that London Circuit road easement should be widened
from 30 to 40 metres, to accommodate additional lanes that would take a portion of
through traffic resulting from downgrading Vernon Circle. Proposals to widen London
Circuit to substantially increase its capacity to carry through traffic result in high
financial and economic costs, adverse impacts on heritage listed buildings, loss of
existing trees, deleterious effects on road network performance and reductions in
pedestrian amenity.
A more modest scheme that supports setbacks for new buildings to generally
widen London Circuit’s outside verge is included in this Action Plan. An
asymmetrical road cross section with an outside verge width of about 10m
allows a stronger tree planting theme to be established, and adds flexibility in
accommodating off road cycling.
Design Option 3: Equivalent five lanes – three clockwise / two anti clockwise
Three lanes in clockwise direction with kerb side bus lane.
Two lanes anti clockwise.
No median island with right turns made from inside travel lanes.
Narrowest verge width of three metres (Sydney and Melbourne Buildings).
No dedicated cycle lanes.
Advantages
Future bus operating arrangements are secured.
Challenges
Achieving real improvements in bus operations.
Reduction in pedestrian safety other than at signalised intersections.
Design Option 4: Two lanes in each direction with five metre wide
median with right turn lanes and pedestrian refuge
Two lanes in each direction
Five metre wide median island with right turn lanes as per Option 1.
Left turn lanes as per Option 1.
Narrowest verge width of three metres (adjacent to Sydney and Melbourne
Buildings) with a general width in excess of four metres.
No dedicated cycle lanes.
Advantages
More formal expression of an ‘urban boulevard’ as proposed in the
Commonwealth’s Griffin Legacy.
Challenges
Cost
Achieving acceptable service time for bus operations.
Maintaining reasonable levels of road network functionality for general traffic.
35
The tension between east west pedestrian movement and efficient north south
traffic movement has been at the centre of discussions about Central
Canberra since the 1950’s, as is briefly described in the following section.
Holford argued that Northbourne Avenue was the ‘….natural line for the city’s
main thoroughfare’ and that London Circuit made it ‘….difficult for traffic, and
altogether unsuitable for through traffic.’ Holford’s amended plan for Canberra
connected Northbourne Avenue to Commonwealth Avenue via Vernon Circle.
A parallel decision reduced Griffin’s 200 foot (approx 60m) London Circuit
road easement (matching that of Northbourne Avenue) to a road reservation
of 100 feet (approx 30m).
Within a year of his report, and under the governance of the newly created
National Capital Development Commission (NCDC), Holford’s
recommended road infrastructure was being constructed. The 60,000
vehicles a day that currently travel along the Northbourne / Commonwealth
Avenue corridor suggest that Holford was prescient in his concern.
37
For the most part, the success of the public realm enhancements relies on
replicating consistent outcomes, and properly resolving interfaces between
one project and another. Such projects are illustrated in Figures 21 to 23.
Several projects have the potential to deliver more than standard solutions,
and present opportunities to create unique and high quality civic spaces.
Foremost amongst these is the precinct extending from the Legislative
Assembly Building, along both sides of London Circuit and across
Northbourne Avenue to the Melbourne Building. Opportunities for this precinct
are illustrated in Figures 24 – 26.
A clear vision for the precinct, investment in hotels and office building on either
side of the North and South Buildings respectively, and an appropriate
development budget would attract significant interest in a major urban design
competition to transform this area.
Unlike proposed road works that have well established protocols for economic
analysis, investment in public realm improvements has benefits that are
difficult to quantify. These outcomes include:
Environmental improvements;
Enhanced business opportunities;
Increased land values and rates revenues;
Improved public safety;
Achievement of the Territory’s land release program;
Facilitation of possible land mark project(s) as a contribution to Canberra’s
centenary;
Enhancement of civic pride and social wellbeing; and
Improved inter-city competitiveness to attract new investment.
39
2. Glebe Park pavement replacement. Improve public safety and presentation of Nil Territory 1 ■■■
City’s premier park. 09/10. 2 ■■
Achieve required slip resistance of paving 3 ■■■
Design &
to improve public safety. construction 4 ■■
Support service vehicle access and 5 ■■
reduce maintenance costs.
40
Medium
Rectify drainage problems.
3. Upgrade surrounds of Sydney Better presentation of the historic Sydney Resolution with lessees of Territory 1 ■■■
Building. Building to East Row, City Walk and to building downpipes and 09/10 2 ■■
Northbourne Avenue. . stormwater connections. Design only 3 ■■
Repairs and interfaces to 4 ■
columns and edge pavers 5 ■■■
that sit within private leases.
Medium
Agree a Conservation
Management Plan.
*Explanation of numbered criteria and evaluation matrix
Evaluation criteria Criteria ranking method
1. Rectify immediate safety concerns such as trip hazards. ■■■ Fully achieves evaluation criterion.
2. Link projects with a significant adjacent upgrading to complete a ‘precinct’. ■■ Partly achieves evaluation criterion.
3. Robust ‘future proofing’ that avoids premature demolition to retro fit services. ■ Is capable of achieving evaluation criterion.
4. Stakeholder need, and strategies to manage potential negative impacts. X Fails to address criteria.
5. Link to a city wide pedestrian ‘safe routes’ strategy.
Table 11 (continued): Possible public realm improvements
Item Description Benefits Interdependencies Funding Evaluation*
4. Upgrade surrounds of Melbourne Better presentation of the historic As for 3 above. Territory 1 ■■■
Building. Melbourne Building to West Row, Alinga 09/10 2 ■■
Street and to Northbourne Avenue. Design only 3 ■■
4 ■■■
5 ■■■
High
5. Upgrade City Walk between Ainslie Improve pedestrian amenity. Possible changes to the Territory 1 ■■■
Avenue and Akuna Street. Improve access to business frontages. existing David Jones 10/11 2 ■■
frontage. Design only 3 ■■
Eliminate a significant ongoing
maintenance liability. 4 ■■■
5 ■■■
High
6 Mort Street between London Cirt and Establish the long term design of the Off site works by Territory 1 ■■
Bunda Street, excluding the western street given the changing land uses. developers. 2 ■■
verge of East Row adjacent to Design only 3 ■■
Pedestrian and cycle infrastructure Vehicle verge crossings and
Sydney Building. 4 ■■
41
review. parking.
5 ■■
Better coordinate developer’s off site
works. Medium
7. Upgrade City West Park Improve pedestrian amenity. Resolve cross section of Canberra 1 ■■■
Improve access to Canberra House London Cct. CBD Ltd. 2 ■■
shopping arcade. Future upgrading of 09/10 3 ■■
Eliminate a significant ongoing Canberra House. Design & 4 ■■■
maintenance liability. construction 5 ■■■
High
*Explanation of numbered criteria and evaluation matrix
Evaluation criteria Criteria ranking method
1. Rectify immediate safety concerns such as trip hazards. ■■■ Fully achieves evaluation criterion.
2. Link projects with a significant adjacent upgrading to complete a ‘precinct’. ■■ Partly achieves evaluation criterion.
3. Robust ‘future proofing’ that avoids premature demolition to retro fit services. ■ Is capable of achieving evaluation criterion.
4. Stakeholder need, and strategies to manage potential negative impacts. X Fails to address criteria.
5. Link to a city wide pedestrian ‘safe routes’ strategy.
Table 11 (continued): Possible public realm improvements
Item Description Benefits Interdependencies Funding Evaluation*
8. Alinga Street between Marcus Clarke Improve the pedestrian environment, Resolve traffic management Territory 1 ■■■
Street and West Row / Moore Street. particularly along southern verge. between Barry Drive and Determine 2 ■■■
Eliminate a significant ongoing London Cct along Moore St funding 3 ■■
maintenance liability with removal of the and West Row. priority. 4 ■■■
overhead pedestrian bridge. Alternative fire access for 5 ■■■
Upgrade carriageway and pedestrian the ACT Health building to
lighting to Australian Standards. allow removal of the level 1 High
pedestrian bridge that is
Complete the pedestrian and cycle
currently in disrepair.
connection between Childers Street
(ANU) and Northbourne Ave
9. Marcus Clarke Street verge on south Complete lighting and pedestrian Extension of parking Territory 1 ■■
eastern side of car park structure. improvements along Marcus Clarke structure. Determine 2 ■■■
Street between Rudd and Allsop Streets. Resolve levels adjacent to funding 3 ■■
Eliminate a significant ongoing outdoor café. priority. 4 ■■
maintenance liability. Integrate with design of 5 ■■■
existing construction project High
42
on Bl 8 Sect 68.
10. Moore Street between Barry Drive to Improve the pedestrian connection and Resolution of traffic Territory 1 ■■
London Cirt public safety as a main north / south link management between Barry 2 ■
from Turner to City. Drive and London Cct along Determine 3 ■■
Moore Street and West Row. funding 4 ■■
Resolution of bus priority priority.
5 ■■
lanes from Barry Drive to
City Interchange. Medium
11. Footpath and drainage along the Support pedestrian movement along the Path width & tree impacts. Territory 1 ■■■
eastern verge of Northbourne major north south corridor. 2 ■■■
Kerb crossing, drainage and Determine 3 ■■■
Avenue.
Disability Discrimination Act funding 4 ■■■
(DDA) compliance. priority.
5 ■■■
High
12. Master plan for footpath, lighting and Better understand the long term design Off site works by Territory 1 ■■
drainage to verges of Mort St of the street given the rapidly changing developers. 2 ■■
Braddon. land uses. Determine 3 ■■
Vehicle verge crossings and funding 4 ■■
Better coordinate developer’s off site parking. priority.
5 ■■
works.
Design only
High
13. Master plan for footpath, lighting and Better understand the long term design Off site works by Territory 1 ■■
drainage to verges of Lonsdale of the street given the rapidly changing developers. 2 ■■
Street Braddon. land uses. Determine 3 ■■■
43
16. Northbourne Avenue median Reinforce the experience of arriving in Upgrading Sydney and Territory 1 ■
between Sydney and Melbourne Civic. Melbourne Buildings. 2 ■■
Buildings. Include paving, lighting, Complement investment in Sydney and Development of Determine
funding 3 ■
furniture. Consider long term Melbourne Buildings. Northbourne Avenue / 4 ■
opportunities for the bus priority Complement investment in London London Circuit corner sites priority.
5 ■
measures, width of verges and the Circuit adjacent to proposed on Sections 63 and 19.
options for right turning vehicles. development sites either side of Low
A possible landmark project. Northbourne Avenue.
44
17. London Circuit Stage 1 from Better connect Civic Square to Ainslie Long term road cross Territory 1 ■■■
Northbourne Ave to the southern Avenue and City’s core. section for London Cct. 2 ■■■
boundary of Ainslie Ave. Determine
Improve pedestrian movement along the Private sector investment in 3 ■■
funding
A possible landmark project for western and southern verge of London the hotel, serviced priority. 4 ■■■
Canberra’s Centenary. Cirt. apartments and public 5 ■■■
Better connect new development on the parking on Bl 23 Sect 19.
High
southern side of London Cirt with Sydney Tour coach lay over area.
Building. Link with future intentions
for Civic Square.
*Explanation of numbered criteria and evaluation matrix
Evaluation criteria Criteria ranking method
1. Rectify immediate safety concerns such as trip hazards. ■■■ Fully achieves evaluation criterion.
2. Link projects with a significant adjacent upgrading to complete a ‘precinct’. ■■ Partly achieves evaluation criterion.
3. Robust ‘future proofing’ that avoids premature demolition to retro fit services. ■ Is capable of achieving evaluation criterion.
4. Stakeholder need, and strategies to manage potential negative impacts. X Fails to address criteria.
5. Link to a city wide pedestrian ‘safe routes’ strategy.
Table 11 (continued): Possible public realm improvements
Item Description Benefits Interdependencies Funding Evaluation*
18. Northbourne Avenue tree replacement Strategic replacement of ageing trees Implementation of the Urban Territory 1 ■■■
program. along major entry road. Forest Replacement 2 ■
strategy. 3 ■
4 ■■
5 ■
Medium
19. Civic Square. Integrated with 17 Create a more inviting, functional, As for 15 above plus: Territory 1 ■
above to create a possible landmark active and comfortable public space. Present more activity to the 2 ■■
project for Canberra’s Centenary. Determine
Square from the Assembly funding 3 ■
Potential as a national design Building and CMaG. 4 ■
competition. priority.
Access to Canberra Theatre 5 ■
and laneway design on the
Low
Square’s western edge.
ACT Government office.
20. Barry Drive northern verge. Accommodate pedestrian and cyclist Development within the set Territory 1 ■■■
volumes currently generated from back zone of existing Determine 2 ■■
45
21. Safety audits and urban design Improved waste management. Potential lessee investment Territory 1 ■■■
improvements to Bible Lane, Public safety improvements. in building upgrades. Determine 2 ■■
Tocumwal Lane and Verity Lane. Tennant coordination of funding 3 ■■
waster services. priority. 4 ■■
5 ■■
High
*Explanation of numbered criteria and evaluation matrix
Evaluation criteria Criteria ranking method
1. Rectify immediate safety concerns such as trip hazards. ■■■ Fully achieves evaluation criterion.
2. Link projects with a significant adjacent upgrading to complete a ‘precinct’. ■■ Partly achieves evaluation criterion.
3. Robust ‘future proofing’ that avoids premature demolition to retro fit services. ■ Is capable of achieving evaluation criterion.
4. Stakeholder need, and strategies to manage potential negative impacts. X Fails to address criteria.
5. Link to a city wide pedestrian ‘safe routes’ strategy.
Table 11 (continued): Possible public realm improvements
Item Description Benefits Interdependencies Funding Evaluation*
22. Bunda Street from Ainslie Avenue to Continue Bunda Street as the main Proposed redevelopment of Territory 1 ■■
Binara Street. pedestrian / shopping street through redundant office building at Determine 2 ■■
City East. Bl 1 Sect 52 to residential funding 3 ■
Extend into the Binara / Allara Streets uses. priority. 4 ■
connection across Parkes Way to 5 ■
Commonwealth Park.
Medium
23. London Circuit Stage 2 – City West, Improve pedestrian movement along Long term road cross Territory 1 ■■
Northbourne Ave to Farrell Place. the western and southern verge of section for London Cct. Determine 2 ■■
London Cct. Private sector residential funding 3 ■
Better connect new development on the development on block 13 priority. 4 ■■
southern side of London Cct with section 63. 5 ■■
Sydney Building.
Medium
24. London Circuit Stage 3 – City East, Improve pedestrian movement along Long term road cross Territory 1 ■
Ainslie Ave to Constitution Ave. the western and southern verge of section for London Cct. Determine 2 ■
London Cct. ACT Government office funding 3 ■
Better connect new development on the block Bl 24 Sect 19.. priority. 4 ■
46
Existing
Proposed
Figure 21: Before and after images of Project 1 – Bunda Street improvements.
48
Existing
Proposed
Figure 22: Before and after images of Project 11 – Footpath improvements and
drainage along the eastern side of Northbourne Avenue.
49
Existing
Proposed
Figure 23: Before and after images of Project 14 – City East recreational cycle
route and pedestrian improvements.
50
Existing
Proposed
Existing
Proposed
Figure 25: Before and after images of Project 17 London Circuit improvements
adjacent to the ACT Legislative Assembly.
52
Existing
Proposed
Figure 26: Before and after images of Project 17 London Circuit improvements
adjacent to Canberra Museum and Gallery
53
Ensure that the intensity of residential use does not restrict provision of
commercial uses;
Does not cause detrimental impacts, including overshadowing and
excessive scale; and
Reflect the service trades character of the area.
The variety and activity that can be generated through mixed use
development is depicted in the indicative design of public car parking shown
at Figure 27.
54
Figure 27: Concept design of a mixed use public car park including residential,
smaller floor plate office and local service retail. Restaurants, cafes, personal
services and child and health care can also be included.
Source: National Capital Authority 2009. Urban Design Guidelines. Illustration supplied by Fender
Katsalidis Architects Pty Ltd.
55
Private investment in the study area over the next seven years will be in the
order of $1.5b. Much of the public infrastructure supporting this investment
has been in place for almost 40 years. Paths, lighting and the design of the
open spaces need to be adapted to increasing usage levels and changes in
the urban character. Areas that were peripheral to the city are now integral to
the city’s urban form, and need to link into a unified whole.
In order to refresh the look and functionality of the study area and leverage off
the significant private sector investment, public leadership in alliances that
give effect to large scale civic improvements is essential.
10.3 Implementation
The plan as it currently stands is based on the knowledge that exists at the
start of 2010. Estimates are made about completion dates for major private
sector developments but in reality, those dates may slip by a year or two,
depending on leasing commitments, building costs and other investment
conditions. The programming of Territory funded works needs to be
sufficiently flexible to alter the sequencing in line the uncertainties impacting
on the total program. In practice, the delivery of each phase of the plan will
clarify the detail of subsequent phases.
56
Master planning for a number of higher priority projects at the outset provides
opportunities to accelerate detailed design of alternative projects, in response
to the roll out of new private investment.
Inherent uncertainty around long term investment decisions, and the need for
flexibility, demonstrate a need for monitoring and overall control. A clear
understanding about the implications of different outcomes helps with
streamlined decision making, maintains stakeholder engagement and
incrementally achieves the overall goal. This central project coordination role
is illustrated in Figure 28.
BIBLIOGRAPHY