Department of Planning and Community Development
Statutory Approvals - Central City Planning
Delegation Report
Application No:
Land Address
Received:
Planning Scheme
More Information Requested:
2011/013728
839 Collins Street, Victoria Harbour, Docklands (Lot
S24A PS545345)
Permit application under s.4 7 of the Planning and
Environment Act 1987 (P&E Act).
Partial demolition of an existing wharf structure;
buildings and works for the development of a library
and community centre, and realigned wharf; public
realm works to create Dock Square, Bourke Dock
tram terminus and extensions to Collins Street and
Bourke Streets; and use of the land for the purpose of
Informal Outdoor Recreation .
22 December 2011
Melbourne Planning Scheme
No
More Information Received:
N/A
Application :
Proposal:
Purpose
1. To brief you on Planning Permit Application No.: 2011/013728 at 839 Collins Street, Victoria
Harbour, Docklands for the demolition of an existing wharf structure and buildings and works
for the development of a library and community centre, Informal Outdoor Recreation, and
public realm works to create Dock Square, Bourke Dock tram terminus and extensions to
Collins Street and Bourke Streets.
Background
2. The Minister for Planning (the Minister) is the Responsible Authority for assessing the
planning permit application under Clause 61.01 of the Melbourne Planning Scheme (the
Scheme) as the site is in the Dock lands area.
3. The applicant lodged Planning Permit Application No. : 201 1/013728 on 22 December 2011 .
4. There have been numerous meetings throug hout 2010 and 2011 regarding the issue of
Dock Square and the surrounds as part of the Victoria Harbour Development
Plan/Masterplan process. There have also been specific meetings relating to this
application. These have been attended by Cou
~Transport, and the developer tea
_ _ . . . Through these meetings, modifi
ns to the development as originally
proposed were made, leading to the current submission.
Page 1 of 14
5. On 31 January 2012 the applicant provided documentation (including a copy of the
Department's Process List) confirming that the proposal does not require a Cu ltural
Management Plan under the Aboriginal Heritage Act 2006, as the site has experienced
significant ground disturbance.
6. On 1 March 2012 the applicant advised that the maternal health and chi ld centre proposed
in the original planning application is to be replaced by multi-purpose meeting rooms which
form part of the community centre.
7. On 2 March 2012 the Department's Environmental Assessment Unit confirmed that the
proposal to demolish the existing wharf structure at Bourke Dock would not trigger the
requirement for an Environmental Effects Statement under the Environmental Effects Act
1978.
8. There have been no previous applications for planning permit for the subject site. However,
the Victoria Harbour Development Plan 2010 has been approved for this precinct and is
discussed in the report below.
Subject Site and Surrounds
9. The site is located in Victoria Harbour, Docklands at the Bourke Street/Collins Street
junction. To the east there are two mixed-use high rise developments 'V5 Convesso' and
'V6 Concave', the Yarra River to the south, and low-scale linear boat sheds and wharf
structures to the west. A site plan is provided below:
......
Dock Square
Library
Bourke Dock
Collins Street Extension
10. The site is owned by Places Victoria and has no restrictive development covenants.
Confirmation has been provided by the applicant that the owner has been notified of the
current planning application.
11 . Surrounding developments and proposals of note include:
•
East of the subject site is the 'V6 Concave' site at 870-892 Bourke Street, which has an
approval for a 31-storey residential building with ground floor retail. A number of retail
Page 2 of 14
•
tenancies (inc. food and drink premises) front onto the proposed Dock Square. The
Collins Street tram extends to Merchant Street with a level-access tram stop (super stop)
located adjacent to the ANZ commercial building at 833 Collins Street.
Adjoining the subject area are three sites yet to have developments approved. The
Victoria Harbour Master Plan 2010 approved by the Minister for Planning on 7 March
2011 gives the following guidance in relation to surrounding uses and built form:
• T1- (No formal address to date)- maximum height 110m, 458 apartments (with T2
and T3);
• Y7- (No formal address to date) - maximum height 90m, 250 apartments/hotel
rooms;
• C5- (847-869 Bourke Street)- maximum height 120m, 358 apartments; and
• The boat sheds located to the west of the subject site is proposed to be a community
boating hub, with rooms for local water based sports clubs and other community
facilities. The maximum building height is 12m.
Proposal
12. The proposal (designed by Clare Design, Hayball, and AspectOculus, developed by Lend
Lease) comprises major public realm works and a 3-storey community hub including a public
library. The proposed uses are informal outdoor recreation (park), place of assembly
(library, community activity room, and performance space), food and drink premises, and
tramway. Specifically, the proposal involves the following elements:
Public library and community centre
•
A 3-storey building (approximately 13.75 metres high above the existing wharf level, 56
metres long and 18.6 metres in depth), with a gross floor area of approximately 3, 138
sqm. The building is to be constructed predominantly of lightweight cross laminated
timber with frameless glass panels covering the northern and eastern facades.
•
A high canopy on the northern facade with a clearance of approximately 12.6 metres
from the Waterfront Promenade, to provide weather protection. The canopy will extend
to the outer edge of the proposed realigned wharf edge (see below). A low-level canopy
on the southern facade with a clearance of approximately 3. 7 metres above wharf level,
fronting Dock Square identifies the southern entrance;
•
The building will provide spaces for a number of uses including community activity room ,
library, and food and drink premises (Ground Level); staff rooms/offices , library and
gallery (Level 1); and performance area (80-100 seats), flexible activity space, north
facing outdoor reading space, music media area including 3 x studio rooms, community
space with kitchen, and 3 x multi-purpose community rooms (Level 2).
Works relating the harbour edge
•
Approval is being sought for the realignment of the harbour edge to incorporate a new
hardwood timber decking that extends into Victoria Harbour. The decking will require
new pilings to be installed into Victoria Harbour.
Dock Square
•
The proposal is for a new public park named Dock Square that will serve as a forecourt
to the public library. It is proposed to raise the Square 500mm, with a central park area
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and three smaller spaces or 'rooms' to the east of the Square and a outdoor library room
to the west of the Square. The combined area of the Square is approximately 2,000sqm .
•
DDA access is provided by two north-south ramps on the eastern and western side of
the Square. The proposal will create the pedestrian-only Tom Thumb Lane to the east of
the library and Sailmaker Way to the west as a shared space and service access for the
library.
Collins StreeUBourke Street Public Realm including tram extension
•
The current proposal is limited to extending Collins Street from Merchant Street along to
the west of Sailmaker Way. Provision will be made for a one-way traffic loop around the
boating hub building to access Sailmaker Way for emergency vehicles and pick up/drop
off of goods for the library building.
•
The Collins Street tram infrastructure will extend a double tram track from the current
termination adjacent to ANZ Tram Stop on Collins Street to the new termination point in
Bourke Dock. The tram track will enter Bourke Dock at the level of Bourke Dock
pedestrian plaza and will descend 290mm at the Bourke Dock terminus in order to meet
DDA requirements.
•
Bourke Street will be extended west approximately 35 metres to connect to the
intersection with Collins Street. The remainder of the Bourke Street extension will be
constructed as part of the V5 and V6 mixed use developments.
Bourke Dock
•
The proposal is to create a level-access tram terminus, pedestrian plaza, and associated
catenary lighting over the tram stop. The proposal includes a building structure to the
north of tram terminus to be potential used as a public toilet, bike storage, and small
cafe.
Statutory Controls- Zoning and Overlay Controls
13. The site is affected by the following zones, overlays and particular provisions under the
Melbourne Planning Scheme:
•
Docklands Zone, Schedule 2- Victoria Harbour Precinct (DZ2);
•
Docklands Zone, Schedule 7- Waterways (DZ7);
•
Design and Development Overlay, Schedule 12 - Noise Attenuation (DD012);
•
Design and Development Overlay, Schedule 50- Areas 6, 7, and 8 (Victoria Harbour
Precinct) (DD050) ;
•
Development Plan Overlay, Schedule 3- Victoria Harbour Precinct (DP03);
•
Heritage Overlay (H0915);
•
Clause 52.06 (Car parking);
•
Clause 52.07 (Loading and unloading of vehicles);
•
Clause 52.34 (Bicycle facilities) ; and
•
Clause 52.36 (Integrated public transport planning).
Page 4 of 14
Clause
Permit trigger(s)
Clause 37.05-2 (DZ2)
A permit is required to:
•
Clause 37.05-7 (DZ7)
Construct a building or car·ry out works
A permit is required to:
•
Construct a building or carry out works
•
Use the land for Informal Outdoor
Recreation
Zoning - DZ2 (Applies to all land excluding land adjacent to Victoria Harbour water body)
14. The purpose of the DZ2 is to provide for a range of commercial , residential, recreational,
educational, technology, business and leisure uses within a mixed use environment; to
encourage the refurbishment of existing wharves for public uses; and to provide a retail
focus and promenade environment for waterfront events and festivals.
15. Under the DZ2 a permit is required for buildings and works for the proposed development.
The proposed buildings and works associated with the library, Dock Square, Bourke Dock,
and Collins Street extension and tram infrastructure fall within the DZ2.
16. Under the DZ2 a permit is not required to use the land for Place of Assembly (inc. Library),
Food and Drink Premises, Informal Outdoor Recreation, and Tramway.
17. The proposal is exempt from the notice and appeal requirements of the Planning and
Environment Act 1987 (the Act) under Clause 2 (for applications for the use) and Clause 4
(for applications for buildings and works) of the DZ2.
Zoning- DZ7 (Applies to land adjacent to the Victoria Harbour water body)
18. The purpose of the DZ7 is to provide for integration with adjoining development, extensive
public access to the water, ensure the conservation of the general form of Victoria Harbour,
and to ensure that any use and development on the edge of the waterways is appropriately
designed, operated and maintained so as to retain an attractive waterfront.
19. The boundary of the DZ7 follows the edge of the Harbour. Under the DZ7 a permit is
required for those buildings and works associated with the new timber decking and the
library canopy.
20. The proposed decking will require new pilings to be constructed into Victoria Harbour, which
will cause disturbance of the bed of Victoria Harbour. Under the DZ7 disturbance of the bed
requires 'appropriate maritime archaeological investigations' to be submitted with the
application. The proposal triggers the need for a heritage permit (see below) which also
requires an archaeological investigation to be undertaken. In this instance such an
investigation has not been requested as it is considered that Heritage Victoria is best placed
to assess it through the heritage permit process.
21 . Under the DZ7 a permit is required to use the land for Informal Outdoor Recreation . In
accordance with the broader objectives for the precinct detailed in the Victoria Harbour
Development Plan 2010 (approved by the Minister for Planning on 7 March 2011) the
applicant will lodge a Stage 2 permit application for buildings and works for a pedestrian
walkway and public pool (considered to be Informal Outdoor Recreation) extending from the
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proposed hardwood timber decking into Victoria Harbour. The current proposal to realign the
wharf edge is considered to be an integral part of this larger proposal to use the area for the
purposes of Informal Outdoor Recreation, and therefore requires a permit for the use.
22. The proposal is exempt from the notice and appeal requirements of the Planning and
Environment Act 1987 (the Act) under Clause 2 (for applications for the use) and Clause 3
(for applications for buildings and works) of the DZ7.
Environmental Audit
23. Under the Docklands Zone (Clause 37.05-8 'Environmental audits') before a sensitive use
commences or before the construction or carrying out of buildings and works in association
with a sensitive use commences, either:
•
A certificate of environmental audit must be issued for the land in accordance with
Part IXD of the Environment Protection Act 1970, or
•
An environmental auditor appointed under the Environment Protection Act 1970 must
make a statement in accordance with Part IXD of that Act that the environmental
conditions of the land are suitable for the sensitive use.
24. The Potentially Contaminated Land General Practice Note June 2005 (PN30) identifies
'open space' as a sensitive use. As the proposal includes the provision of public open space
(i.e. Dock Square) a condition has been included on the permit requiring an environmental
audit of the site prior to the commencement of works associated with Dock Square.
Overlay- Design and Development Overlay Schedule 12 (DD012)
25. Under the DD012 a permit is required for buildings and works associated with noise
sensitive uses. As the proposed development does not include noise sensitive uses a
permit is not required under this clause.
Overlay- Design and Development Overlay Schedule 50 (DDOSO)- Areas 6, 7 and 8
26. The site is affected by DD050 - Victoria Harbour Precinct (Areas 6, 7 and 8). Pursuant to
this Clause a permit is not required for buildings and works, if the requirements of Table 1
(maximum building heights) and Table 2 (minimum widths of waterfront promenade) to the
schedule are met. The proposed development complies with these standards, and therefore
a permit is not required under this Clause.
Overlay- Development Plan Overlay Schedule 3 -Victoria Harbour Precinct (DP03)
27. The purpose of the Development Plan Overlay is as follows :
•
To identify areas which require the form and conditions of future use and development to
be shown on a development plan before a permit can be granted to use or develop the
land .
• To exempt an application from notice and review if it is generally in accordance with a
development plan.
28. The Victoria Harbour Development Plan 2010 was approved by the Minister for Planning on
7 March 2011. Part 6.4 of the Development Plan designates the site for human
services/community uses. Part 6.5 of the Development Plan shows a building on the subject
site to a height of between 20 and 35 metres. The current library proposal is generally in
accordance with the use, location, height and footprint as outlined in the Development Plan.
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The remainder of the land to be used for the purposes of Informal Outdoor Recreation and
Tramway is exactly as proposed in the Development Plan. Therefore, pursuant to Clause
43.04-2 the application is exempt from notice, decision, and review requirements of the Act.
Heritage Overlay - (H0915) - Victoria Dock Harbour Esplanade, Victoria Promenade,
North Wharf Road, Docklands Drive and Newquay Promenade, Docklands
29. The site is affected by H0915. A permit is not required to develop a place listed on the
Victorian Heritage Register. As Victoria Harbour is listed on the VHR (ref: H1720), a permit
is not required.
30. The applicant confirmed that an application has been made to Heritage Victoria. The
application was accompanied by a Heritage Impact Assessment (Lovell Chen, December
2011) confirming that the existing wharf structure, sea wall and pilings will not be affected by
the proposal. The decking however will require new pilings to be installed into Victoria
Harbour.
Particular Provisions
Clause 52.06 (Car parking)
31. Car parking rates for the Docklands Zone are based on a maximum provision of car spaces
for each land use category. As no car parking is proposed for the library component it meets
the requirements of Clause 52.06.
32. Notwithstanding this, the Victoria Harbour Collins Street Extension Traffic, Transport, and
Parking Report (GHD , December 2011) states that car parking for users of the library and
adjacent public spaces will be provided by kerbside parking on Bourke Street, Collins Street.
and Collins Street Wharf. Disabled parking will be provided along Collins Street and Collins
Street Wharf.
Clause 52.07 (Loading and Unloading of Vehicles)
33. Clause 52.07 states that no building or works may be constructed for the manufacture,
servicing, storage or sale of goods or materials unless a space is provided on the land for
loading and unloading of vehicles.
34. Pursuant to Clause 52.07 it considered that the proposed library does not generate a
requirement for space for loading/unloading. Notwithstanding this, the plans indicate a
loading area adjacent to the west of the library building on Sailmakers Way. A condition on
the permit requires further details on the access arrangements and design of this area.
Clause 52.34 (Bicycle facilities)
35. The purpose of Clause 52.34 is to encourage cycling as a mode of transport and to provide
secure, accessible and convenient bicycle parking spaces and associated shower and
change facilities.
36. Under Clause 52.34-2, a permit is required to reduce or waive the standard bicycle parking
requirement.
37. The minimum provision of bicycle spaces, showers, and change rooms is listed at Tables 13 to Clause 52.34-3. An assessment of these requirements is as follows:
Page 7 of 14
Use
Employee
Visitor/Shopper
Library
1 to each 500 sqm
of net floor area
4 plus 2 to each 200
sqm of net floor area
Floor
Area
3,138 sqm
Spaces
Required
Actual
Provision
6 spaces
(employee)
none
38. Based on the above assessment, a m1mmum of 35 visitor spaces (bicycle rail} and 6
employee spaces (bicycle locker/lockable compound) should be provided as part of the
library component of the proposal.
39. Under Table 2 to Clause 52.34-3 a shower is required if 5 or more employee bicycle spaces
are required (1 shower for the first 5 employee bicycle spaces, plus 1 to each 10 employee
bicycle spaces thereafter). There is no requirement to provide showers for visitors. The
proposal generates a requirement for 1 shower.
40. Under Table 3 to Clause 52.34-3 there is a requirement to provide 1 change room or direct
access to a communal change room to each shower. There is no requirement to provide
change rooms for visitors . This generates a requirement for 1 change room facility.
41 . The current plans do not indicate shower and change room facilities for employees, but a
condition has been included on the permit to provide bicycle spaces and facilities in
accordance with the abovementioned requirements of Clause 52.34.
Clause 52.36 (Integrated public transport planning)
42. Pursuant to Clause 52.36-1, an application must be referred to the Director of Public
Transport (OPT) for the following:
• A place of assembly comprising 400 or more seats or 600 or more square metres
of gross floor area; and
• Any alteration or development of public transport infrastructure or stops.
43. On 24 January 2012 the application was referred to the OPT (discussed under Referrals).
Referrals
44. The application was referred under Section 55 of the Act to Places Victoria (4 January
2012}, Parks Victoria (23 January 2012}, and the Director of Public Transport (24 January
2012}. The application was referred informally to the City of Melbourne ( 4 January 2012),
and DPCD Urban Design (24 January 2012).
45. Draft conditions were also circulated to Places Victoria on 14 March 2012.
46. Comments received are as follows:
Places Victoria
47. On 30 January 2012 Places Victoria provided a referral response , offering no objection to
the application subject to a number of conditions . The conditions are generally standard
conditions relating to materials and finishes, landscape plans (for Bourke Dock/Collins
Street and Dock Square), and ESD benchmark performance .
48. On 16 March 2012 Places Victoria provided further comments to draft conditions and
several conditions were redrafted .
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Parks Victoria
49. As required by the schedule to Clause 66.04 an application for works in the DZ7 must be
referred to Parks Victoria in accordance with Section 55 of the
Parks Victoria offered no
ction sub
to conditions .
50
Director of Public Transport
51 . On 27 February 2012 the Director of Public transport offered no objection to the application.
The OPT stipulated that the plans submitted with the application must not be endorsed in
their current form as ongoing detailed design is required on the functional layout, signal
phasing and intersection design. Yarra Trams will review and provide approval of detailed
plans relating to the proposed tram infrastructure extension. A condition has been included
on the permit to this effect.
DPCD Urban Design Unit
52. On 21 February 2012 the DPCD Urban Design Unit provided a referral response, generally
supporting the application. DPCD UD requested that conditions be included to address the
following main areas of concern:
•
Issues relating to the accessibility, permeability and legibility of the library and
Dock Square public realm ;
•
Materials and finishes of all hard and soft surfaces; and
•
Resolution of wind mitigation devises to the north-west and north-east of the
library;
53. Conditions have been included on the permit to address DPCD UD's concerns.
Citv of Melbourne
54. On 30 January 2012 the Department received referral comments from the City of
Melbourne, which supports the proposal subject to conditions. The main issues raised are
minor and are as follows:
•
Wind - preliminary wind testing indicates significant wind issues to the north side of
the library. A wind amelioration device will likely be required on the north west corner
of the library. A condition on has been included on the perm it requiring further wind
testing and recommendations to be incorporated into the design of the library and
public realm built form .
•
Layout/design of park/public spaces - concerns relate to the ground levels and
accessibility of Dock Square for the general public. The use of stairs within the park
should be minimal and soft landscaping should be used to address level changes.
The indicative plan for the bike kiosk and public amenities in Bourke Dock is not
Page 9 of 14
supported. A condition has been included on the permit requiring further detailed
design of the public realm works.
•
Bicycle parking - the proposal does not achieve the minimum 41 spaces for the
library required under Clause 52.34. A condition has been included on the permit
requiring the provision of bicycle spaces and facilities required by Clause 52.34.
•
Engineering - the traffic signalling and functional layout plans for intersections
requires approval to the satisfaction of Yarra Trams, City of Melbourne
(Engineering), and VicRoads. A condition has been included on the permit to this
effect.
ASSESSMENT
State Planning Policy Framework
55. The following policies are considered relevant to this application:
•
Clause 10.04 (Integrated Decision Making)
•
Clause 11 .03 (Settlement)
•
Clause 15.01-1 (Urban Design)
•
Clause 15.02-1 (Energy and .Resource Efficiency)
•
Clause 18.01 (Integrated Transport)
Local Planning Policy Framework
56. The following policies are considered relevant to this application:
•
Clause 21.02 (Municipal Profile)
•
Clause 21.03-1 (Vision)
•
Clause 21.04-2 (Retail, Entertainment and the Arts)
•
Clause 21.05-2 (Structure and Character)
•
Clause 21.05-3 (Public Environment)
•
Clause 21.05-4 (Parks, Gardens and Open Space)
•
Clause 21.05-5 (Sustainable Built Form)
•
Clause 21 .06-1 (Public transport)
•
Clause 21 .06-2 (Pedestrian Networks)
•
Clause 21.08-2 (Docklands)
•
Clause 22.18 (Urban Design within the Docklands Zone)
ISSUES
57. The main issues of the proposal relate to:
•
•
•
•
Compliance with State and Local Planning Policies
Victoria Harbour Development Plan 2010
Mix of Uses
Design, Built Form, and Urban Context
Page 10 of 14
•
•
Traffic and Access
Wind Assessment
Each of these matters will be addressed in turn .
Compliance with State and Local Planning Policies
58. The proposed development is considered to respond appropriately to State and Local
Planning Policy Frameworks, as follows:
• The proposed tram extension and terminus at Bourke Dock builds upon existing
infrastructure to improve the accessibility to community services, retail, and
employment opportunities located within the precinct. The proposal will further the
objectives of integrated land-use and transport planning , provide greater mobility
choices and improved access for all people, and improve the sustainability and
liveability of Victoria Harbour (Clause 18.01-1, 21 .06-1 );
•
The proposal provides community facilities, recreation and leisure opportunities, and
retail offers that are located in close proximity to residential and employment
opportunities and public transport. Taken together the proposal contributes to the
objective of a mixed use precinct that complements the Central City (Clauses 11 .044, 16.01-2, 21 .08-2);
•
The proposal responds adequately to an evolving mixed use precinct by providing
significant community infrastructure in the form of public open space, library and
community facilities, and tram upgrades (Clause 21 .02, 21.03). Overall, the proposal
provides a community benefit, offering a high level of accessibil ity for people of all
ages and abilities, and a high standard of urban design, amenity and energy
efficiency (Clauses 10.04, 11 .03). Further, the proposal will contribute positively to
local urban character and enhance the public realm (Clause 15.01 );
•
The proposal is consistent with the objectives of integrated land-use and transport
given the proposed co-location of the library and Dock Square, both key-trip
generators, with Bourke Dock tram terminus. Additionally, the proposal (with specific
conditions on the permit) provides adequate bicycle parking spaces and facilities,
encouraging transport modal shift (Clause 18.01 );
•
The scale of the proposed library building is considered appropriate having regard to
the evolving character of the area. The development responds positively to the public
realm by adopting active frontages along all four facades of the building. The
proposed mix of uses with active frontages to Dock Square and Waterfront
Promenade will contribute to the creation of a vibrant and well-serviced waterfront
precinct with a sense of place and identity for Victoria Harbour. Add itionally, the
library causes negligible overshadowing of Dock Square between 11 am and 3pm at
the equinox (22 September I 20 March) (Clauses 21.04-2, 21 .05-2, 22.18); and
The planning submission outlines a number of sustainability measures to be
incorporated into the proposal that are commendable. In particular, the library
proposal aims to achieve carbon neutral performance through the use of cross
laminated timber construction materials, passive climate control initiatives, and
photovoltaic cells and energy cogeneration . A condition has been included on the
permit that requires further reports that demonstrate how the development achieves
a high level of water and energy efficiency (Clauses 15.02, 16.01-1 , 21.03).
•
Page 11 of 14
Victoria Harbour Development Plan 2010
59. The Victoria Harbour Master Plan 2010 (the Plan) approved by the Minister for Planning on
7 March 2011 outlines a number of land use and built form objectives for the site including:
• 20-35 metre maximum height for the library site;
• Human Services/Community uses for the library site;
• Dock Square as the civic heart of Victoria Harbour;
• No loading docks or car park entries permitted along the interface between the
library and Dock Square;
• Nomination of the library building and Dock Square as a landmark building and
space; and
• A new tram terminus for Bourke Dock.
60. The proposal is generally in accordance with the objectives, uses, location , height and
footprint as outlined in the Victoria Harbour Development Plan 2010. Indeed the proposal
executes a key component of the Development Plan and justifies the extensive work put into
the Development Plan from all government stakeholders and the community.
Mix of Uses
61 . The proposal to develop the site with a 3-storey building for the purpose of library, Place of
Assembly, Food and Drink Premises, and public realm works to create the Dock Square,
Bourke Dock, and Collins Street/Bourke Street road and tram upgrades is consistent with
the purposes of the Docklands Zones 2 and 7 which encourage recreation and leisure uses
within a mixed use environment, to encourage the refurbishment of existing wharves for
public uses, and to provide extensive public access to the water.
62. The proposal to use the proposed hardwood timber decking forming the realigned wharf
edge for the purpose of Informal Outdoor Recreation triggers the need for a permit under the
DZ7. The proposed land use, which will form an integral part of the Stage 2 permit
application to construct a pool and walkway into Victoria Harbour, has been assessed
against the decision guidelines at Part 2.0 of the DZ7 and the objectives of the Victoria
Harbour Development Plan 2010, and is considered appropriate.
Design, Built Form, and Urban Context
Demolition
63. Under the DZ2 a permit is required for demolition or removal of buildings . The proposal
includes the demolition of a section of wharf structure (existing decking and pilings) to create
Bourke Dock stairs and promenade at the end of the proposed extension to Collins Street.
The proposal is consistent with the objectives and decision guidelines of the DZ2, in
particular the refurbishment will encourage public uses and improve the amen ity of the area,
and is therefore considered acceptable.
Design, Siting, and Heritage
64. The proposal has undergone an extensive design workshop process with Places Victoria
and City of Melbourne and the outcome of this has resulted in a commendable design
outcome.
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65. The proposal is generally consistent with the decision guidelines of the DZ2 and DZ7, and
the Victoria Harbour Development Plan 2010 in that the siting and design of the proposed
library building, publ ic realm works and tram and road upgrades sit well within the context of
the adjacent area; has a positive impact on visual amenity, landscape and streetscape of
the area; and demonstrates high quality design and treatment of the public realm.
66. The proposal is generally consistent with the objectives of the Design and Development
Overlay 50 - Victoria Harbour Precinct, in that it supports high levels of pedestria n amenity
in relation to daylight, sky views, wind , sunlight, safety and visual interest. In particular it
meets the following decision guidelines of the DD050:
•
The library building is sited and designed in a manner that causes negligible
overshadowing of the proposed Dock Square and adjacent pedestrian areas, and
allows views through to Victoria Harbour from these public spaces;
•
The library building will add to the interest of the built form in Docklands, and with
clear glazing to all four facades on the ground level encourages views through to
Victoria Harbour from Dock Square. Further, the design, scale and materiality of
the proposed library building and associated canopy and hardwood timber
decking is sympathetic to the heritage value of Victoria Harbour;
•
The wind effects of the proposed library are generally within the criterion for
walking comfort for most test locations. A condition has been included on the
permit requiring wind mitigation measures to be implemented to achieve wind
conditions appropriate for the various uses proposed for the public realm ; and
•
The proposal conserves the general form of Victoria Harbour and provides for
continuous public access along the waterfront area adjoining the Victoria
Harbour.
Traffic and Access
67. The proposal includes extensive road, tram and public realm works. The application
included a traffic management plan (GHD, December 2011 ). The City of Melbourne (Traffic
Engineering) reviewed the Plan and identified a number of traffic and access issues
(discussed below). The main concerns relate to the following:
•
Loading arrangements and access for the library building;
•
Potential conflict between vehicle movements and building structures and wharf
furniture , with particular concern about access from Colli ns Street/Waterfront
Promenade to Sail maker Way; and
•
Functional layout (including operation and signal phasing) of Bourke
Street/Collins Street and Merchant StreeUCollins Street intersections, Tom
Thumb Lane South, and tram access to/from Bourke Dock.
68. The main issues raised have been addressed through a condition on the permit requi ring a
revised traffic management plan.
Wind Assessment
69. The Wind Report (MEL Consultants, dated December 2011 ) modelled the wind conditions
for the proposed development within the surrounding buildings. Most of the tested locations
to the south of the proposed library building are within the walking criterion, however the
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north and west of the library building exceeds this criterion. An addendum to the report (MEL
Consultants, dated 22 December 2011) states that the wind conditions at the north west of
the library are up to dangerous levels. The Report recommends that wind amelioration
strategies be implemented to bring wind conditions at the north and west of the building to
within walking comfort. The report further recommends 3 metre high screening to the east of
the library building to achieve long term stationary wind conditions if outdoor dining is to be
established along Tom Thumb Lane (adjacent to Site V6 Concavo).
70. A 4 metre diameter dome wind amelioration device was tested showing that the north west
corner could be brought within waterfront conditions. A condition has been included on the
permit that requires detailed design details of the recommended wind amelioration devices.
Conclusion
71 . The proposed library/community hub, road and tram infrastructure extensions, and public
realm upgrades are generally in accordance with the provisions of the Melbourne Planning
Scheme and will provide a worthwhile addition to the community infrastructure provision in
Docklands. The proposal has the potential to positively influence the character and
desirability of Docklands and have relevance amongst the adjacent neighbourhoods. The
proposal is supported by all referral agencies (Parks Victoria, Places Victoria, Director of
Public Transport), the City of Melbourne, and the department's Urban Design Unit, subject
to conditions.
Recommendation
72. That you approve Planning Permit Application No.: 2011/013728 at 839 Collins Street,
Victoria Harbour for the development of a 3-storey building comprising of Place of Assembly,
and public realm works to create Dock Square, Bourke Dock tram terminus and Bourke
Street/Collins Street extension, subject to conditions.
Name
Title:
Phone
Ph
Date:
Date :
Approved by
Name:
Title:
Phone:
Date: 29/3/2012
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