Amendment C183 and Bunnings Planning Application PPA 2013-307 · 7.2.3 Traffic Growth 10 7.2.4...

Amendment C183 and Bunnings Planning Application PPA 2013-307

Expert Traffic Evidence Statement CG150578

Prepared for Benalla Road Enterprises Pty Ltd

20 July 2015

Amendment C183 and Bunnings Planning Application PPA 2013-307

Expert Traffic Evidence Statement CG150578

Amendment C183 and Bunnings Planning Application PPA 2013-307 Expert Traffic Evidence Statement

20 July 2015 ) Cardno ii

Document Information

Prepared for Benalla Road Enterprises Pty Ltd

Project Name Expert Traffic Evidence Statement

File Reference CG150578Panel001F02.docx

Job Reference CG150578

Date 20 July 2015

Contact Information

Cardno Victoria Pty Ltd

Trading as Cardno

ABN 47 106 610 913

Level 4

501 Swanston Street

Melbourne

Victoria 3000 Australia

Telephone: (03) 8415 7777

Facsimile: (03) 8415 7788

International: +61 3 8415 7777

[email protected]

www.cardno.com

Document Control

Version Date Author Author Initials

Reviewer Reviewer Initials

F02 20/07/15 Hilary Marshall Stephen Hunt

© Cardno. Copyright in the whole and every part of this document belongs to Cardno and may not be used, sold, transferred, copied or reproduced in whole or in part in any manner or form or in or on any media to any person other than by agreement with Cardno.

This document is produced by Cardno solely for the benefit and use by the client in accordance with the terms of the engagement. Cardno does not and shall not assume any responsibility or liability whatsoever to any third party arising out of any use or reliance by any third party on the content of this document.


20 July 2015 ) Cardno iii

Table of Contents

1 Planning Panels Victoria Guidelines 1

2 Introduction 3

3 Background 4

3.1 Planning Application 4

3.2 Delegate’s Report 4

4 Issues 5

4.1 Submissions 5

4.1.1 Fordyce Street 5

4.1.2 Proposed Access Arrangements and Traffic Impact 5

4.1.3 Adequacy of Car Parking 5

5 Proposed Development 6

5.1 General 6

5.2 Car Parking 6

5.3 Vehicular Access 6

5.4 Loading / Service Vehicle Access 6

6 Greater Shepparton Freight and Land Use Study 2013 7

6.1 Overview 7

6.2 Land Use 7

6.3 Issues 8

6.4 Relevant Findings 8

7 Midland Highway Traffic Impact Study 9

7.1 Overview 9

7.2 Issues Identified between Florence Street and Fordyce Street 9

7.2.1 Fordyce Street / Midland Highway Intersection 9

7.2.2 Florence Street / Midland Highway Intersection 9

7.2.3 Traffic Growth 10

7.2.4 Masters Development 10

7.2.5 Bunnings Development 10

7.3 Midland Highway Impact Study Conclusions 10

7.4 Discussion 11

7.4.1 Item 1 – Fordyce Street 11

7.4.2 Item 5 and 11 – Review of phasing / accidents at Midland Hwy / Florence Street 11

7.4.3 Item 8 – Formalise Eastbound Left Turn Lanes 11

7.4.4 Item 10 – Right Turn Lane on Florence Street and Bicycle Lanes 11

8 O’Brien Traffic Impact Assessment 12

8.1 Overview 12

8.2 Car Parking Assessment 12

8.2.1 Statutory Requirement 12

8.2.2 Empirical Assessment 12

8.3 Fordyce Street / Gilchrist Street Intersection 12

8.4 Bicycle Parking Assessment 13

8.5 Loading 13

8.6 Traffic Impact Assessment 13

8.6.1 Traffic Generation 13

8.6.2 Traffic Distribution 14


20 July 2015 ) Cardno iv

8.6.3 Traffic Impact 14

9 Traffix Peer Review of OBT Assessment 15

9.1 Background 15

9.2 Traffic Surveys 15

9.3 Parking Assessment 15

9.4 Car Park Design Review 15

9.5 Bicycle Parking 15

9.6 Traffic Generation and Impact 16

9.7 Traffic Distribution 16

9.8 Traffic Impact 16

9.9 Pedestrian Connectivity 17

9.10 Alternative Access Design 17

10 Proposed Masters Development 18

10.1 Development 18

10.2 Access 18

10.3 Car Parking Assessment 18

10.4 Traffic Impact Analysis 19

10.4.1 Traffic Generation Rate 19

10.4.2 Traffic Distribution 19

10.4.3 Traffic Impact 19

11 Car Parking Considerations 20

11.1 Statutory Parking Demand 20

11.2 Bunnings Case Study Data 20

11.3 Adequacy of Parking 20

12 Traffic Considerations 21

12.1 Purpose of Analysis 21

12.2 Assumptions 21

12.3 Existing Conditions 21

12.3.1 Parameters 21

12.3.2 Analysis 22

12.4 Traffic Generation 22

12.5 Traffic Distribution 23

12.6 Growth 23

12.7 Traffic Volumes 23

12.7.1 Proposed Development Traffic Volumes 23

12.7.2 Masters Traffic Volumes 24

12.7.3 Future Traffic Volumes Post Development 24

12.8 Future Intersection Operating Conditions 25

12.8.1 Methodology 25

12.8.2 Post Development Scenarios Analysed 25

12.8.3 Scenario 1 Results 26



12.9 Traffic Impact Summary 28

12.10 Review of OBT U-Turn Analysis at Watson Street 29

12.10.1 Intersection Geometry 29

12.10.2 OBT Assumptions 30

12.10.3 Sensitivity Analysis 30


20 July 2015 ) Cardno v

12.10.4 Summary 30

13 Response to Issues 31

13.1 Fordyce Street 31

13.1.1 Footpath Provision 31

13.1.2 Increased Traffic 31

13.1.3 Parking Restrictions 31

13.1.4 Fordyce Street / Gilchrist Street Intersection 31

13.2 Access Arrangements and Traffic Impact 31

13.2.1 Proposed Bunnings Access and Midland Highway / Florence Street 31

13.2.2 Request for Additional Intersection Analysis 32

13.3 Adequacy of Car Parking 32

14 Conclusions 33

Appendices

Appendix A Existing Conditions SIDRA Analysis – Saturday Midday Peak

Appendix B SIDRA Analysis Future Conditions Scenario 1

Appendix C SIDRA Analysis Future Conditions Scenario 2

Appendix D SIDRA Analysis Future Conditions Scenario 3

Appendix E SIDRA Analysis Future Conditions U-Turn Lane Capacity At Watson St

Tables

Table 5-1 Proposed Development Schedule 6

Table 7-1 VicRoads Crashstat Accident History Midland Highway / Florence Street Intersection 9

Table 7-2 Midland Highway Study Recommendations 10

Table 8-1 Proposed Bunnings Development Schedule 12

Table 9-1 Traffic Survey Comparison, Midland Highway west of Florence Street 15

Table 10-1 Proposed Masters Development Schedule 18

Table 10-2 Proposed Masters Development Schedule 18

Table 12-1 Rating of Degrees of Saturation 22

Table 12-2 Existing Conditions Intersection Analysis – Midland H’way / Florence St, Sat 30/11/2013 22

Table 12-3 Scenario 1 Future Conditions– Midland Highway / Florence Street, Saturday Peak Hour 26

Table 12-4 Scenario 1 Future Conditions – Midland Highway / Bunnings Access Saturday Peak Hour 26


Table 12-6 Scenario 2 Future Conditions – Midland Highway / Bunnings Access, Saturday Peak Hour 27


Table 12-8 Scenario 3 Future Conditions – Midland Highway / Bunnings Access Saturday Peak Hour 28

Figures

Figure 2-1 Locality Plan 3

Figure 6-1 Existing and Proposed Land Use in the Vicinity of the Site 7

Figure 6-2 Identified Network Issues 8

Figure 8-1 OBT Traffic Distribution 14

Figure 10-1 Masters Anticipated Traffic Distribution 19


20 July 2015 ) Cardno vi

Figure 11-1 Peak Car Parking Demand 20

Figure 12-1 Bunnings Saturday Peak Traffic Generation Rates 23

Figure 12-2 Bunnings Only Peak Hour Traffic Volumes (vph) 24

Figure 12-3 Masters Only Peak Hour Traffic Volumes (vph) 24

Figure 12-4 Future Peak Hour Traffic Volumes - Existing + Growth + Masters + Bunnings (vph) 24

Figure 12-5 Midland Highway / Watson Street Intersection Geometry 29


20 July 2015 ) Cardno 1

1 Planning Panels Victoria Guidelines

The following report has been prepared In accordance with the Planning Panels Victoria Guide to Expert

Evidence. My qualifications, expertise and instructions to undertake this work are summarised below:-

Name:

Hilary Anne Marshall

Address:

Cardno

Level 4, 501 Swanston Street

Melbourne Vic 3000

Professional Qualifications:

> Bachelor of Engineering (Civil) Hons, 1999, RMIT University

> Bachelor of Business (Management), 1999, RMIT University

Professional Experience:

> Senior Engineer – Cardno Victoria 2011 – present

> Associate – Urban Crossroads Irvine, California USA 2004 – 2006

> Senior Engineer – Grogan Richards Pty Ltd 2002 – 2004

> Engineer – Grogan Richards Pty Ltd 1999 – 2001

Areas of Expertise:

> Car parking, traffic and transportation.

> Traffic advice and assessment of land uses and development proposals to planning authorities,

government agencies, corporations and developers (including residential, retail, commercial, industrial,

institutional and mixed use projects).

Expertise to Prepare this Report:

My training and experience including involvement with all forms of development over a number of years

qualifies me to comment on the traffic implications of the proposal.

Instructions which defined the scope of this report:

I have been requested by Norton Rose Fulbright, on behalf of Benalla Road Enterprises Pty Ltd, on 1st July

2015, to provide my expert opinion, in regards to Amendment C183 and a 96A planning application for a

Bunnings warehouse on the site addressed as 90 Benalla Road and 15-33 Fordyce Street, Shepparton. .

I have been requested to provide my opinion on the following issues:

1. Review the O’Brien Traffic TIA dated April 2015;

2. Review the Masters endorsed plans and Planning permit and the GTA Traffic and Transport Design

Review prepared in support of the application;

3. Have regard to the Midland Highway Archer Street to Florence Street, Shepparton Cumulative

Traffic Impact Study prepared by Traffic Works dated 1 June 2015;

4. Have regard to the Greater Shepparton Freight and Land Use Study 2013 Framework Plan by

submitters; and

5. Review and respond to the Traffic Engineering Peer Review prepared for Council by Traffix dated

January 2014 and their subsequent report addressing signalised access dated 17 June 2014;



I have also been asked to provide my opinion on access issues, traffic impacts and parking, with particular

regard to:

Access arrangements into the site from Benalla Road;

Access into the site from Fordyce Street, including truck access;

Rates of car parking, having regard to other trade supplies uses of similar size;

Traffic generation and distribution and the impact on Benalla Road and surrounding streets.

Facts, Matters and Assumptions Relied Upon:

> Site visit, Saturday 11th July 2015;

> O’Brien Traffic report titled ‘Impact Assessment, Proposed Bunnings Warehouse, 90 Benalla Road,

Shepparton’ dated April 2015;

> Development Plans of the Bunnings warehouse prepared by Michael Carr Architects

> Greater Shepparton City Council Delegates Report, regarding application number 2013-307;

> Draft Planning Permit and Conditions;

> Traffix Group Peer Review titled ‘Proposed Bunnings Development, 90 Benalla Road, Shepparton’ dated

January 2014;

> Traffix Group letter to Greater Shepparton City Council (Ref: 16504L9612), titled ‘Traffic Engineering

Assistance – Signalised Access’ dated 17th June 2014;

> Planning Scheme Amendment and 96A application;

> Submissions by various parties;

> ‘Midland Highway Cumulative Impact Study, Archer Street to Florence Street’ prepared by Trafficworks

for Council, dated 1st June 2015;

> Greater Shepparton Freight and Land Use Study 2013 prepared by Aecom for Shepparton City Council;

> Masters Permit Plans and Traffic Report prepared as a letter by GTA consultants (Ref:14M1516000)

addressed to Masters Home Improvement dated 19th

December 2013;

> Austroads Guide to Traffic Engineering Practice – Part 5: Intersections at Grade.

Identity of Persons Undertaking the Work:

Hilary Marshall of Cardno, assisted by Stuart Valentine also of Cardno who prepared the SIDRA analysis.

I have made all the inquiries that I believe are desirable and appropriate, and no matters of significance,

which I regard as relevant, have to my knowledge been withheld from the Tribunal.

Hilary Marshall

Senior Engineer

for Cardno



2 Introduction

The subject site is located on the southern side of Benalla Road (Midland Highway) in Shepparton,

approximately 150 metres west of Florence Street, as shown in Figure 2-1.

Figure 2-1 Locality Plan

It is proposed to rezone approximately 2 hectares of land at 15-33 Fordyce Street from General Residential

Zone to Commercial 2 Zone and remove the Development Plan Overlay (Schedule 1) from the land.

In conjunction with the rezoning application a 96A planning permit was lodged for land addressed as 90-94

Benalla Road and part of 15-33 Fordyce Street Shepparton for the purpose of a Bunnings warehouse

development.

This report has been prepared in accordance with the Planning Panels Victoria Guidelines. In the course of

preparing this assessment, I have inspected the subject site and surrounding road network, researched

relevant case study data, analysed relevant traffic volume data, reviewed the proposed development plans

and referred to the documents and plans outlined in Section 1.

I believe the description of the subject site and the surrounding road network has been adequately

addressed within the 96A Traffic Impact Assessment prepared by O’Brien Traffic and does not need to be

repeated in this review.

My opinions with respect to the proposed development are set out in the following report.

Subject site



3 Background

3.1 Planning Application

A Section 96A planning application was lodged in March 2013, for the development of a Bunnings

Warehouse and rezoning of part of the land from General Residential to Commercial 2, which includes the

removal of a Development Plan Overlay (Schedule 1). The Application was supported by a Traffic Impact

Assessment prepared by O’Brien Traffic (OBT).

Council issued a Request for Further Information (RFI), which amongst other things requested the applicant

to undertake surveys of the existing Bunnings store to determine the existing traffic split and to also

undertake a sensitivity analysis to determine the number of u-turns that could be accommodated at the

western median opening.

Council engaged Traffix Group to undertake a peer review of the OBT application. The Traffix report is

discussed in further detail in Section 9, but concluded insufficient detail had been provided to warrant the

granting of a permit.

It is understood that negotiations between OBT, VicRoads and Council continued regarding access to

Midland Highway.

Traffix were also commissioned by Council to develop a concept plan for access which was included in their

letter of 17th June 2014.

The agreed treatment involves a traffic signal that will stop the westbound lanes only to allow right turn from

Midland Highway into the site.

OBT prepared a revised TIA in April 2015, which includes a concept plan of the proposed access.

The Amendment and 96A application were advertised and a number of submissions received.

3.2 Delegate’s Report

A Delegate’s Report was prepared for the original application and was subsequently updated following

provision of further information and submissions. A summary of Key Issues was identified at the end of the

report with the following issue relevant to this assessment:

After consultation between VicRoads, the applicant and Council, a traffic resolution requiring traffic

lights on Benalla Road was agreed upon.

In conclusion the Delegate’s Report stated that:

“The proposed developments impact on road safety has been reviewed by the Council engineers, O’Brien

Traffic and VicRoads and subject to compliance with conditions of the permit found to achieve acceptable

traffic outcomes.”

“Therefore it is recommended that a permit issue, subject to the rezoning being approved.”



4 Issues

4.1 Submissions

A total of 15 submissions were made in regards to the proposed amendment and planning application. The

issues raised in submissions, relevant to my assessment have been summarised as follows:

4.1.1 Fordyce Street

No footpath on Fordyce Street;

Traffic impact on Fordyce Street;

Object to ‘No Standing’ signs being installed along Fordyce Street as they currently use the on street

parking in the vicinity of their site for staff parking;

Confusion and illegal movements at the Fordyce Street / Gilchrist intersection.

4.1.2 Proposed Access Arrangements and Traffic Impact

Concerns about proposed access arrangements;

Impact on existing road network;

Application report didn’t account for other approved developments;

Analysis doesn’t include Shepparton Marketplace / Midland Highway / Florence Street intersection;

Impact of new signal on above intersection;

Only point of access is Midland Highway and any change to the existing traffic signals is not

supported;

Phasing of new signal to be linked to existing Marketplace / Midland Highway / Florence Street

intersection;

Increased traffic congestion at the following intersections:

a. Gilchrist / Fordyce Street

b. Watson Street / Benalla Road

c. Fordyce Street / Benalla Road

d. Callister Road / Benalla Road

4.1.3 Adequacy of Car Parking

Car parking requirement less than Masters for a larger store;

Bunnings customers may park in Shepparton Marketplace car park;

Customers will use Shepparton Marketplace car park;

Requested permit condition:

No pedestrian or vehicular access to be provided between Bunnings and Shepparton Marketplace.



5 Proposed Development

5.1 General

The proposed Bunnings warehouse development schedule as defined within the OBT Impact Assessment is

summarised in Table 5-1.

Table 5-1 Proposed Development Schedule

Use Area (sqm)

Warehouse 9921

Bulk Trade 2283

Plant Nursery 2925

Building and Landscape Supplies

1680

Timber Yard 2664

Total 19473

5.2 Car Parking

Car parking is proposed along the entire length of the site on the eastern side. A total car parking provision

of 417 spaces is proposed, comprising 404 standard bays, 9 disabled bays and 4 car plus trailer bays.

5.3 Vehicular Access

Access to the site is proposed as a new signalised intersection to Benalla Road allowing left and right turn in

and left turn out.

A second two way vehicular access is proposed in the southwest corner of the site, providing fully directional

access to Fordyce Street approximately 50 metres south of Gilchrist Street.

5.4 Loading / Service Vehicle Access

A loading area is proposed to be located in the southwest portion of the site adjacent to Fordyce Street. The

loading area will be separated from the parking areas and general public access. The loading area will take

access to Fordyce Street, immediately north of Gilchrist Street.



6 Greater Shepparton Freight and Land Use Study 2013

6.1 Overview

Aecom prepared the Greater Shepparton Freight and Land Use Study Framework Plan for Greater

Shepparton City Council dated 4th June 2013.

The purpose of the study was to identifying infrastructure needs and priorities primarily related to freight

movements through and around the City of Shepparton.

6.2 Land Use

The existing and proposed land uses within the vicinity of the subject site are shown in Figure 6-1.

Figure 6-1 Existing and Proposed Land Use in the Vicinity of the Site



As shown in the preceding figure, existing industrial land use is currently concentrated in the area north east

of the Shepparton town centre, including the area immediately north of the proposed Bunnings store.

Figure 6-1 also highlights (by the number 14) a large area of future residential growth south of the subject

site and west of Doyles Road.

6.3 Issues

The Framework Study identified a number of existing and potential issues. An excerpt of the Issues Map is

shown in Figure 6-2.

Figure 6-2 Identified Network Issues

Of relevance to this report is the identification of Florence Street, including its intersection with Midland

Highway, as having existing road network issues. It was noted that large vehicles such as B-Doubles

currently have trouble turning from Florence Street into Midland Highway. The report also stated that the

use of Florence Street, opposite the proposed Masters, as an informal truck stop was not appropriate.

6.4 Relevant Findings

The Framework Study stresses the importance of decreasing the reliance on Midland Highway as the

primary east west link though the Greater Shepparton area.

The Framework also identifies the Florence Street / Midland Highway intersection as needing an upgrade,

although no timing or priority was given as to what was required or when this should occur.



7 Midland Highway Traffic Impact Study

7.1 Overview

Greater Shepparton City Council commissioned Trafficworks Pty Ltd to undertake an investigation of existing

and future operating conditions along Midland Highway between Archer Street and Florence Street. In

regards to future operating conditions Trafficworks were specifically asked to take the approved Masters

store and the proposed Bunnings relocation into account.

The report prepared by Trafficworks is titled ‘Midland Highway, Archer Street to Florence Street, Shepparton,

Cumulative Traffic Impact Study’ dated 1 June 2015.

7.2 Issues Identified between Florence Street and Fordyce Street

Of relevance to the road network abutting the subject site, the cumulative impact assessment identified the

following existing issues:

7.2.1 Fordyce Street / Midland Highway Intersection

“The southern service road connections to Fordyce Street produce a cross road intersection immediately

adjacent to the highway intersection. This creates an inherently unsafe layout that is inconsistent with the

other service road terminal treatments in this area. It is recommended that the eastern section of this service

road be terminated with a connection to the Benalla Road WBC (westbound carriageway) prior to the

Fordyce Street intersection, thereby matching the service road terminal treatments east of Zurcas Lane,

Watson Street and Callister Street.”

7.2.2 Florence Street / Midland Highway Intersection

“Florence Street: very short green times for the minor (north and south) legs resulting in extended queuing

into The Marketplace and insufficient time to clear trucks entering the highway from Florence Street. It is

suggested VicRoads also investigate timing improvements at this site.”

Trafficworks undertook a review of the VicRoads Crashstat database which details all reported accidents, up

to the end of 2013. I have verified the data collected by Trafficworks and agree that all accidents have been

included between the time periods, 2009 to 2013 inclusive. A summary of the accident history in the vicinity

of the site is shown in Table 7-1.

Table 7-1 VicRoads Crashstat Accident History Midland Highway / Florence Street Intersection

Location1

Year of Accident

Accident Code Type of accident Number of Vehicles Involved

Severity2

Midland Highway & Florence Street

2013 121 Right Through

Right turning vehicle hit by through vehicle

2 Other Injury



2 Other Injury



2 Other Injury



2 Other Injury

2011 137 Left turn Sideswipe

Left turning vehicle hit by left turning vehicle

2 Other Injury



3 Other Injury

1 The information in the preceding table has been sourced from VicRoads Crashstat database 2009-2013, data is currently updated to

the end of December 2013. Only accidents at the intersection have been included.

2 In terms of severity, accidents are classified as a fatality, serious injury, other injury or not injured.

Although no serious injuries or fatalities have occurred, the incidence of 6 accidents over the past 56 years

would have identified this intersection as a VicRoad Blackspot.



7.2.3 Traffic Growth

The cumulative impact study referred to modelling that had been undertaken by Aecom for Midland Highway

that found:

“Highway volumes are approximately 6,500vpd in each direction at Archer Street, reducing to 5,500vpd at

Florence Street. These volumes are expected to increase by 8-10% over the next 10 years.”

7.2.4 Masters Development

The only concern raised by Trafficworks in regards to the Masters site was the potential for vehicles turning

right into the proposed Florence Street access to queue back to Midland Highway.

GTA included a SIDRA analysis of the proposed access to Masters on Florence Street, which indicated not

only the Masters development traffic but 10 years growth applied to existing through movements on Florence

Street. The results from this future analysis indicates 95th percentile peak queues of 2m during the Friday

PM peak and 5m during the midday Saturday peak. This level of queuing is equivalent to one vehicle or less

and in my opinion would be unlikely to queue back to the Midland Highway intersection on the basis of the

GTA analysis.

7.2.5 Bunnings Development

Trafficworks did not have the opportunity to review the OBT impact assessment for the proposed Bunnings

store; however they were able to review the proposed signalised access on Midland Highway. Trafficworks

stated that “the proposed left slip lane from the east can be considered minimal. There is scope for it to be

extended to store entering vehicle queues, which are likely to include car/trailer combinations, clear of the

westbound highway through traffic lane.”

The proposed intersection design shall be to the satisfaction of the Responsibly Authority (VicRoads) who

shall determine the appropriate lane lengths required for storage and appropriate deceleration.

7.3 Midland Highway Impact Study Conclusions

Trafficworks outlined a number of recommendations in Table 4 of their report with the following relevant to

the Bunnings proposal.

Table 7-2 Midland Highway Study Recommendations

Item Action Additional Description Responsible Priority

1 Review the service road connection to Fordyce Street

To remove the cross road layout and provide consistency of treatments

VicRoads and GSCC

Low

5 Investigate the five right through crashes at Florence Street

To develop appropriate countermeasure strategy

VicRoads High

8 Prohibit kerbside parallel parking wast of Callister Street intersection to Florence Street (north side) to:

Create a continuous bicycle lane;

Create left turn lanes at all intersections

GSCC

VicRoads and GSCC

High

High

10 Ancillary works for the Masters development to include a line marking scheme for Florence Street and bicycle lane treatment in Benalla Road

To address traffic congestion by providing a Type CHR right turn lane treatment in Florence Street at the car park entry.

Provide coloured pavements for the cycle lane crossings at the Benalla Road access points.

GSCC

GSCC

High

High

11 Investigate signal phasing improvements at Archer Street and Florence Street:

To reduce queuing in The Marketplace approach to Florence Street.

VicRoads High



7.4 Discussion

7.4.1 Item 1 – Fordyce Street

I agree with the suggested improvements at the Fordyce Street / Midland Highway intersection.

7.4.2 Item 5 and 11 – Review of phasing / accidents at Midland Hwy / Florence Street

I believe the recommendation to investigate the accidents at Florence Street / Midland Highway (Item 5)

would have to also include an investigation of the current phasing at this intersection (Item 11) and therefore

do not see these items as being independent of each other. I agree that given the number of accidents at

this intersection to date that a High priority rating should apply.

7.4.3 Item 8 – Formalise Eastbound Left Turn Lanes

I am not convinced it is necessary to remove all parking along the northern kerb of Benalla Road, however

the formalisation of a left turn lane from Benalla Road into Florence Street given the anticipated increase in

traffic due to the Masters development should in my opinion be included in the proposed modifications to this

intersection.

7.4.4 Item 10 – Right Turn Lane on Florence Street and Bicycle Lanes

As previously discussed the GTA analysis does not indicate that a CHR treatment is required adjacent to the

proposed car park entry to Masters on Florence Street.

I agree the bicycle lane should be as clear as possible past a potential conflict point with access into the

proposed Masters site.



8 O’Brien Traffic Impact Assessment

8.1 Overview

I have been requested to review the OBT traffic assessment titled ‘Traffic Impact Assessment, Proposed

Bunnings Warehouse, 90 Benalla Road Shepparton’ dated April 2015. The report was prepared to

accompany the planning submission for the proposed Bunnings store.

It is understood that this report supersedes an earlier application report.

8.2 Car Parking Assessment

8.2.1 Statutory Requirement

OBT assessed the statutory parking requirement adopting the land use of Trade Supplies and Restricted

Retail.

OBT applied the Trade Supplies rate to the entire site area and then added a further Restricted Retail rate to

25% of the floor area, as shown in Figure 8-1.

Table 8-1 Proposed Bunnings Development Schedule

Use Area (sqm) Rate Area / Number of Spaces

Trade Supplies 42850sqm 10% of site area 4285sqm

Restricted Retail 4868sqm 3 per 100sqm floor area 146 spaces

In order to determine the number of spaces that would be required within the 4,285sqm, OBT adopted a car

park area of 25sqm. An area of 25sqm equates to a parking bay 2.6m wide by 4.9m long with an allowance

of 4.71m of the aisle.

Cardno typically adopt an area of 29.38sqm which allows for a 2.6m bay by 4.9m long with an aisle of 6.4m.

Applying the two car bay areas to the 4,285sqm. results in a requirement of between 146 and 171 spaces.

As the Planning Scheme does not specify the methodology that should be adopted the OBT assumptions

are considered acceptable with the method resulting in a more conservative assessment of the car park

requirement.

The statutory parking requirement determined by OBT for the proposed Bunnings store was deemed to be

317 spaces.

I believe this is a reasonably conservative assessment of the Planning Scheme parking requirement.

8.2.2 Empirical Assessment

The OBT report states that Metropolitan Bunnings stores generate between 1.1 and 2.8 spaces per 100sqm,

with regional stores generating between 1.2 and 1.7 spaces per 100sqm.

The source of the data and size of the regional stores is not included.

The proposed parking provision of 417 spaces equates to a parking rate of 2.14 spaces per 100sqm. Based

on the preceding regional rates outlined by OBT the proposed provision appears to be appropriate.

8.3 Fordyce Street / Gilchrist Street Intersection

The OBT report outlines modifications to the Fordyce Street / Gilchrist Street intersection, including changes

to kerb alignment, linemarking and signage.

The proposed changes are supported and should be considered by Council regardless of whether the

Bunnings development proceeds or not.



8.4 Bicycle Parking Assessment

I agree with the OBT assessment that a statutory requirement for 64 staff and 38 customer bicycle parking

spaces seems excessive.

In my opinion sustainable transport choices should be facilitated wherever possible. Although the number of

customers choosing to ride to the store is expected to be minimal it is still a feasible option given the access

from Fordyce Street and bike lanes on Midland Highway. Likewise, bicycle parking for staff should be

provided to encourage less dependence on private vehicles.

The OBT proposed parking provision of 6 spaces for staff in a secure location with an additional 6 spaces in

a visible location close to the entry seems a reasonable provision.

In the event that the supply was being exceeded on a regular basis, I think it would be reasonable to assume

that additional space could be found on site to provide additional bicycle parking.

8.5 Loading

The OBT report states that the statutory loading requirement is 207.4sqm and that the area provided

exceeds that requirement. The plans of the loading area indicate dimensions of 59.29 meters by 47.99

metres resulting in an area of 2,845sqm, well in excess of the Planning Scheme requirement.

The swept paths provided within the OBT report are unclear, with no indication of a scale or specifications of

the design vehicle used.

Therefore I have undertaken a review of swept path movements for a 26m B-Double vehicle which can

comfortably manoeuvre through the loading bay without reversing and can also access and egress the site

from Fordyce Street in a forwards direction. I am satisfied that the loading area is appropriate for the

proposed use.

8.6 Traffic Impact Assessment

8.6.1 Traffic Generation

OBT commissioned traffic surveys at the existing Bunnings store on Friday 28th February and Saturday 1

st

March 2014. The existing store has a floor area of 9,569sqm. The survey results are summarised as

follows:

Friday 3-4pm 317 trips = 3.3 vehicle movements per 100sqm

Saturday 11am-12pm 612 trips = 6.4 vehicle movements per 100sqm

OBT did not adopt the traffic generation rates found at the existing store. Instead they relied on anecdotal

evidence supplied by Bunnings that customers to the new Bunnings would be no more than 50% higher than

the existing patronage.

Based on the preceding information OBT assumed that customers would increase by 60%. The projected

traffic generation of the Bunnings warehouse was estimated as follows:

Friday 510 trips

Saturday 980 trips

Although OBT did not convert these numbers into traffic generation rates, I think it allows an easier

comparison.

Friday 510 trips = 2.62 vehicle movements per 100sqm

Saturday 980 trips = 5.03 vehicle movements per 100sqm

Although I agree in principle that the proposed Bunnings store is unlikely to continue generating at the same

rate per 100sqm of floor area as the existing store, especially given the close proximity of the proposed

Masters store, I have undertaken an independent traffic analysis as detailed in Section 12, using case study

data.



8.6.2 Traffic Distribution

The anticipated traffic distribution adopted within the OBT report is based on traffic counts undertaken at the

existing Bunnings. The assumed distribution is shown in Figure 8-1.

Figure 8-1 OBT Traffic Distribution

The Freight and Land Use Study outlined a large area of future residential development south of the subject

site. New residential areas typically generate demand for home hardware and landscape type products and

as such could be assumed to be future customers of the proposed Bunnings store.

Furthermore there is a large area of existing residential development south of the subject site that would

have previously had to use Midland Highway to access the Bunnings. The provision of an access from

Fordyce Street would eliminate the need for these customers to use Midland Highway to access the site.

Therefore although I generally agree with the proposed distribution I think the 20% entering the southern

access on Fordyce Street would be likely to return the way they came, rather than having 6% of exiting

vehicles from Fordyce Street drive back to Midland Highway as proposed by OBT.

8.6.3 Traffic Impact

The OBT Assessment prepared in April 2015, does not include the results of their traffic analysis, which was

negotiated with Council and VicRoads prior to the preparation of their report. The report does state that:

“Benalla Road will operate satisfactorily when the Bunnings Warehouse opens and will continue to operate

satisfactorily even after 10 years of growth is applied to Benalla Road traffic. Fordyce Street will also

operate satisfactorily after the Bunnings Warehouse is developed.”

I have not been provided with a copy of the submission to VicRoads and Council or the SIDRA files of the

proposed access arrangement and therefore have undertaken an independent assessment of the traffic

conditions as detailed in Section 12.



9 Traffix Peer Review of OBT Assessment

9.1 Background

Traffix Group was commissioned by Greater Shepparton City Council to undertake a Peer Review of the

OBT report submitted with the planning application for the Bunnings warehouse.

Traffix prepared a report titled ‘Proposed Bunnings Development, 90 Benalla Road, Shepparton’ dated

January 2014. A subsequent letter was also prepared by Traffix on the 17th June 2014 to address further

issues that had been raised, particularly in regards to the proposed new traffic signal on Midland Highway.

The Traffix Peer Review is based on the OBT Traffic Impact Assessment dated November 2013 (Ref 14787).

I have not seen a copy the OBT report prepared in November 2013, and as such have based my review of

the Traffix peer review in the context of the current OBT application report dated April 2015.

9.2 Traffic Surveys

Traffix highlighted that the OBT traffic surveys had been undertaken on the Melbourne Cup long weekend

and may not be representative of typical conditions.

I agree with Traffix that this was not an ideal time to undertake traffic surveys. I have compared the GTA

peak hour turning movements at Midland Highway / Florence Street undertaken a couple of weeks later on

Saturday 20th November 2013 to the OBT Saturday peak hour traffic movements at the Midland Highway /

Service Road entry undertaken on Saturday 2nd

November 2013.

The comparison is summarised in Table 9-1.

Table 9-1 Traffic Survey Comparison, Midland Highway west of Florence Street

Direction OBT Sat 2/11/2013 (Melbourne Cup Long Weekend)

GTA Sat 20/11/2013 Difference

Eastbound 1023 vph 1101 vph 78 vph (8%)

Westbound 901 vph 1120 vph 219 vph (24%)

Total 1924 vph 2221 vph 297 vph (15%)

As shown in the preceding table the difference is not significant in the eastbound direction, however the GTA

results were 219 vph or 24% higher in the westbound direction, which is significant for the purposes of

analysing the proposed Bunnings access.

On this basis I have adopted the GTA traffic survey results to determine eastbound and westbound

movements past the subject site.

9.3 Parking Assessment

Traffix are satisfied the proposed car parking supply exceeds the statutory requirement. Traffix also

prepared a car parking demand assessment based on case study data and stated that :

“We are satisfied that the proposed car parking provision of 408 car spaces is appropriate and will be

sufficient to accommodate the peak parking demands generated by the development without any adverse

off-site impacts.”

9.4 Car Park Design Review

Traffix undertook a design review of the proposed car park and access and were satisfied that the layout met

or exceeded the relevant requirements.

9.5 Bicycle Parking

Traffix agreed with OBT that the statutory requirements for bicycle parking for this type of use are excessive.

Traffix suggested that the parking requirement for restricted retail be applied to 25% of the floor area,

resulting in a requirement of 8 spaces for staff and 10 spaces for customers.



As discussed in the previous section, I think OBT’s suggestion of 6 staff and 6 customer spaces is

reasonable. However the provision of an additional 2 secure staff spaces to increase the supply to 8 as

suggested by Traffix would not require a substantial increase to the area within the proposed building.

Based on my observations of various Bunnings stores the suggested provision of 10 bicycle spaces for

customers seems excessive.

9.6 Traffic Generation and Impact

The proposed rates in the OBT report that Traffix reviewed suggested that the proposed Bunnings would

generate traffic at the following rates;

3 .0 trips per 100sqm on a Friday PM peak hour; and

5.5 trips per 100sqm on a Saturday midday peak hour.

Traffix then went onto list a number of case studies that indicated an average rate of

3.6 trips per 100sqm on a Friday PM peak hour; and

7.1 trips per 100sqm on a Saturday midday peak hour

Traffix acknowledged that they had not collected any of the data themselves and as such were unsure of the

areas used to determine the rates. Therefore Traffix did a comparison of raw traffic numbers, suggesting

that the generated traffic by the proposed Bunnings was higher than all the stores surveyed during the

weekday PM peak and all except the Nunawading store on the Saturday midday peak.

On this basis Traffix concluded that the traffic assessment was appropriately conservative, but suggested

that a case study of the existing Bunnings would provide a more accurate estimate.

I disagree that surveying the existing store would provide a more accurate assessment. Rarely in traffic

terms can you double the floor area of a use and expect it to continue generating at the same rate per

100sqm, particularly uses of this magnitude.

9.7 Traffic Distribution

Traffix suggested that the traffic distribution should be based on the existing Bunnings store. Although this is

a reasonable approach, it should be noted that the existing store takes access from Midland Highway only,

whereas the proposed development will provide an additional access to the south, feeding directly into a

large residential catchment.

It is anticipated that a large portion of customers living to the south west of the Bunnings store who would

have previously made their way to the Midland Highway and approached from the west would now use the

local road network to Fordyce Street instead.

As previously discussed I think the OBT distribution is reasonable.

Traffix also state that:

“Distribution of 20% of site-generated traffic to / from the south via the local residential street network is

substantial.”

It would be reasonable to assume that half of the 20% arrived / departed via Gilchrist Street with the

remaining 10% using Fordyce Street to the south. This level of traffic is equivalent to a peak of around 98

vehicle movements per hour on a Saturday.

Unfortunately survey data is not available at Fordyce Street / Gilchrist Street intersection to determine the

likely future traffic volumes. However based on observations and a review of land use in the area I would

expect existing traffic volumes to be relatively low and able to accommodate the additional traffic.

9.8 Traffic Impact

The traffic impact section of Traffix peer review is not considered relevant to this assessment as it was based

on superseded traffic generation rates for the Bunnings development, a superseded distribution and road

network assumptions that are no longer valid, such as the ability to undertake u-turns at Mitchell Street.



9.9 Pedestrian Connectivity

I agree with the Traffix assessment that a pedestrian path should at least be provided from the entry to the

existing footpath along the southern service road along the Midland Highway frontage.

A pedestrian link between Shepparton Marketplace and the Bunnings store is considered reasonable,

however if this is not provided pedestrians still have the opportunity to visit both sites in a single trip by using

the footpath along the frontage of the site, which currently terminates at the western end of the Shepparton

Marketplace car park.

9.10 Alternative Access Design

I have reviewed the letter prepared by Traffix on 17th June 2014 regarding an alternative traffic signal design

which recommends a full traffic signal across Midland Highway allowing right turns out of the site.

It is my understanding that through negotiations with VicRoads and OBT that VicRoads’ preferred access

arrangement is the OBT design.

The only benefit of a fully signalised intersection at the Bunnings access is to facilitate right turns out of the

site. To accommodate right turns out, an additional phase would be required further reducing the time

allocated to through traffic on Midland Highway, which should have priority over all other movements.

In my opinion the full signalisation of the Bunnings access is not necessary, as traffic wishing to travel east

along Midland Highway can undertake a u-turn at the existing u-turn facility at the Midland Highway / Watson

Street intersection. I have analysed the capacity of the Watson Street u-turn lane against eastbound traffic

and are satisfied that the predicted u-turn traffic volume can be accommodated at this intersection.



10 Proposed Masters Development

10.1 Development

Based on the development plan prepared by Leffler Simes Architects (Reference TP02 Rev E) dated

22/4/2014, it is anticipated that the Masters site will contain a Masters store, 2 Pad sites and a separate

tenancy as shown in Table 10-1. The areas contemplated in the GTA Traffic Assessment (prepared

19/12/2013) predate the areas shown on the Architects plan provided. Therefore I have also included the

previously proposed areas which relate to the GTA traffic assessment.

Table 10-1 Proposed Masters Development Schedule

Use Anticipated Use Area (sqm) Areas Adopted in GTA Application Report

Masters 13,655sqm GLFA 13,521sqm GLFA

Tenancy Restricted Retail 501sqm 530sqm

Pad Site 1 1,200sqm NA

Pad Site 2 1,668sqm NA

Pad Site 3 Service Station / Convenience Restaurant

NA 2,000sqm

120 seats

Based on the GTA assessment a parking supply of 428 spaces is proposed.

10.2 Access

Access to the Masters is proposed via new access points to Midland Highway, Florence Street and

Enterprise Drive.

Additional access points are proposed adjacent to the eastern boundary of the site onto Enterprise Drive with

egress provided via a left out only access onto Midland Highway.

10.3 Car Parking Assessment

For the purpose of determining the statutory parking requirement for the Masters store, GTA applied the

following rates to the various components of the overall store.

Table 10-2 Proposed Masters Development Schedule

Use Area / Number Rate 10% of Area Number of Spaces Required

Restricted Retail 8231sqm 3 spaces / 100sqm 246 spaces

Trade Supplies 2195sqm 10% of total site area 219.5sqm 14 spaces 1

Landscape Garden Supplies

1951sqm 10% of total site area 195.1sqm

Total Requirement for Masters

260 spaces

Service Station 2000sqm 10% of total site area 200sqm 7

Restricted Retail 530sqm 3 spaces / 100sqm 15

Convenience Restaurant

120 seats 0.3 spaces per patron 36

Total Other Uses Convenience Restaurant + Service Station; Or

Convenience Restaurant + Restricted Retail

43 spaces or

51 spaces

1 GTA has assumed a car space area of 29.38sqm based on a 2.6m x 4.9m space including the entire aisle

of 2.6m x 6.4m.



10.4 Traffic Impact Analysis

10.4.1 Traffic Generation Rate

GTA outlined likely traffic generation rates for the proposed Masters as follows:

Friday 0.80 – 1.98 vehicle movements per 100sqm

Saturday 2.20 – 3.72 vehicle movements per 100sqm

The rates at the lower range were sourced from case study data collected at Masters in Box Hill, while the

upper rates were sourced from a case study undertaken at the existing Bunnings store in Shepparton.

It is noted that the traffic generation rates collected at Bunnings Shepparton are considerably lower than the

rates collected by OBT, which were 3.3 and 6.4 vehicle movements per 100sqm on Friday and Saturday

respectively.

Based on the range outlined above GTA adopted the average traffic generation rate as follows:

Friday 1.39 vehicle movements per 100sqm = 188 vehicle movements

Saturday 2.96 vehicle movements per 100sqm = 400 vehicle movements

In addition to the Masters site, an allowance for the restricted retail tenancy and Pad Site 3 were included,

with an additional 221 vehicle movements during the Friday PM peak and 226 vehicle movements during the

Saturday peak included.

10.4.2 Traffic Distribution

The GTA report did not discuss the assumed traffic distribution, but did include development only traffic

movements at each intersection including the Midland Highway / Florence Street intersection.

Based on the turning movements provided, GTA have adopted the distribution shown in Figure 10-1.

Figure 10-1 Masters Anticipated Traffic Distribution

As discussed above approximately one-third of traffic is related to the potential convenience restaurant which

would be located in the south east corner of the site with left out only access to Midland Highway.

The pad site has a significant effect on the overall traffic distribution specifically the 52% eastbound exit

movements along Midland Highway.

Given the permeability Florence Street offers to the north I think the assumed Masters distribution is

appropriate.

10.4.3 Traffic Impact

Although the GTA analysis indicates that the Masters will not have a detrimental impact on the existing

operating conditions of the Midland Highway / Florence Street intersection, it does not include the Bunnings

proposal and therefore does not address the issues raised in submission.

As previously stated I have undertaken a holistic analysis detailed in Section 12.

20%

12%

0% 0%

62%

36%

0%

0%

18%

52%

Proposed Masters Site

Midland Highway

Enterprise Drive

Flo

rence S

tre

et



11 Car Parking Considerations

11.1 Statutory Parking Demand

Based on the assessments made by OBT, GTA and Greater Shepparton City Council there seems to be no

clear consensus on the applicable planning scheme land use definitions that should apply to a Bunnings or a

Masters.

The methodology adopted by OBT is considered conservative as it applies the Trade Supplies parking rate

to the entire site and then applies the Restricted Retail rate to 25% of the floor area which has already been

included in the previous requirement for Trade Supplies, effectively double counting 25% of the floor area.

Furthermore the use of only 25sqm (rather than 29.38sqm) to calculate the number of spaces that would be

required by the 10% of site area, builds in further conservatism. The approach adopted by OBT is

considered reasonable. The statutory parking requirement determined by OBT for the proposed Bunnings

store was deemed to be 317 spaces.

11.2 Bunnings Case Study Data

A summary of case study data for Bunnings stores including data collected by Cardno and other consultants

and is shown in Figure 11-1.

Figure 11-1 Peak Car Parking Demand

The peak parking demands range from 1.2 to 2.5 spaces per 100sqm. The average demand as shown in

the preceding figure is 1.83 spaces per 100sqm.

The proposed parking provision is equivalent to 2.14 spaces per 100sqm. If the average rate is applied to

the application floor area of 19,473sqm it results in a demand of 356 spaces. The proposed parking

provision of 417 spaces exceeds the average demand by 61 spaces.

11.3 Adequacy of Parking

It is acknowledged that the case study data is based on conventional sized Bunnings stores and does not

include any stores as large as the proposal.

Car park demand is typically a function of the size of the facility, range of products available, catchment area

and the amount of competition. As highlighted within the OBT report relocating the Bunnings store

approximately 700 metres to the west will not change its current catchment area. Furthermore the addition

of a Masters on the same road within 200 metres will significantly increase the amount of competition in the

area. It is anticipated that the larger Bunnings will be able to provide a greater range of existing products

and increase display areas rather than introduce entirely new product lines that are not currently offered.

Based on the case study data and the preceding discussion the proposed parking rate of 2.14 spaces per

100sqm of floor area, equivalent to 417 spaces is considered satisfactory.

0

0.5

1

1.5

2

2.5

3

4,000 6,000 8,000 10,000 12,000 14,000 16,000

Park

ing

Rate

/ 1

00sq

m F

A

Floor Area (sqm) Peak Sat. Rate Average



12 Traffic Considerations

12.1 Purpose of Analysis

In light of the submissions outlined in Section 4.1, I have undertaken the following analysis to specifically

address the following concerns:

The application report did not account for other approved developments;

The analysis does not include Shepparton Marketplace / Midland Highway / Florence Street

intersection;

The impact of new signal on above intersection;

The only point of access is Midland Highway and any change to the existing traffic signals is not

supported;

The phasing of new signal should be linked to existing Marketplace / Midland Highway / Florence

Street intersection.

12.2 Assumptions

The following analysis is based on the following assumptions and information:

Existing traffic count data collected by GTA consultants at the intersection of Midland Highway /

Florence Street on Friday 29th and Saturday 30

th November 2013.

The GTA data results in higher through volumes on Midland Highway than the OBT traffic count and

as such has been used to factor up through volumes adjacent to the proposed Bunnings access.

Existing turning movements at the service road entry opposite the subject site have been sourced

from the OBT traffic assessment.

As demonstrated by the GTA traffic surveys, peak traffic volumes occur during the Saturday peak

period, including through movements on Midland Highway. The Saturday volumes are

approximately 31%higher than the peak on Friday. Therefore the following analysis is based on the

Saturday midday peak period.

A projected growth rate for Midland Highway of 8 to 10% over the next 10 years as outlined in

Trafficworks Cumulative Impact Assessment. Therefore a cumulative growth rate of 1% per annum

has been applied.

Site observations of existing operating conditions, including phasing and cycle times.

I have relied upon the data collected by GTA as I was unable to collect traffic volume data myself

due to the school holidays. The GTA data is higher than the OBT data and therefore considered

more conservative.

12.3 Existing Conditions

12.3.1 Parameters

The existing Saturday peak hour operating conditions of Midland Highway / Florence Street have been

analysed using the SIDRA Intersection program. The SIDRA computer package, originally developed by the

Australian Road Research Board, provides information about the capacity of an intersection in terms of a

range of parameters, as described below:

Degree of Saturation (D.O.S.) is the ratio of the volume of traffic observed making a particular movement

compared to the maximum capacity for that movement. Various values of degree of saturation and their

rating are shown in Table 12-1.



Table 12-1 Rating of Degrees of Saturation

D.O.S. Rating

Up to 0.6 Excellent

0.6 to 0.7 Very Good

0.7 to 0.8 Good

0.8 to 0.9 Fair

0.9 to 1.0 Poor

Above 1.0 Very Poor

It is considered acceptable for some critical movements in an intersection to operate in the range of 0.9 to

1.0 during the high peak periods, reflecting actual conditions in a significant proportion of suburban

signalised intersections.

The 95th Percentile (95%ile) Queue represents the maximum queue length, in metres, that can be

expected in 95% of observed queue lengths in the peak hour; and

Average Delay is the delay time, in seconds, which can be expected over all vehicles making a particular

movement in the peak hour.

12.3.2 Analysis

The existing conditions of Midland Highway / Florence Street intersection have been analysed using

SIDRA6.1, with the results attached in Appendix A and summarised in the following table. The turning

movements counted by GTA in November 2013, were used for this analysis

Table 12-2 Existing Conditions Intersection Analysis – Midland H’way / Florence St, Sat 30/11/2013

Approach Movement Degree of Saturation 95th

%ile Queue (m) Average Delay (sec)

Marketplace (S) R 0.47 42 10

T 0.28 27 23

L 0.72 38 41

Midland Hwy (E) R 0.72 69 36

T 0.68 74 27

L 0.32 16 31

Florence St (N) R 0.63 65 32

T 0.63 65 27

L 0.25 16 31

Midland Hwy (W) R 0.34 48 14

T 0.34 49 9

L 0.75 71 22

Intersection 0.75

As shown in the preceding table the Midland Highway / Florence Street intersection is operating with ‘good’

conditions in the Saturday peak hour.

12.4 Traffic Generation

In order to determine the likely traffic generation of the proposed Bunnings warehouse, I have collated case

study data for Bunnings stores collected primarily by Cardno but also including information sourced from

other consultants. The Saturday peak hour traffic generation rates by floor area have been plotted, with the

results shown in Figure 12-1.



Figure 12-1 Bunnings Saturday Peak Traffic Generation Rates

As shown in the preceding figure, the traffic generation rates range considerably from store to store. The

survey data outlined above ranges from 3.01 vehicle movements per 100sqm to 9.03 vehicle movements per

100sqm.

The size of Bunnings stores also varies from 7,434sqm to 15,851sqm. As previously discussed the

proposed Bunnings is considerably larger than any existing store Cardno are aware of.

In order to determine the likely traffic generation of the proposed store a line of best fit was applied to the

data, which indicates that on average the traffic generation decreases as floor area increases. The line of

best fit was projected to the proposed floor area of 19,473sqm, which indicates a rate only slightly higher

than the proposed rate of 5.03vm per 100sqm adopted by OBT. Based on the case study data the proposed

rate is considered appropriate.

12.5 Traffic Distribution

For the purpose of the following assessment I have adopted the OBT traffic distribution, which is generally

based on the traffic distribution of the existing Bunnings store. I have also adopted the proposed distribution

for the Masters site as determined by GTA and approved by Council.

12.6 Growth

A cumulative growth rate of 1% per annum has been applied to the through movements on Midland Highway

and also along Florence Street for a period of 12 years to bring the existing data (2013) up to 2015 and then

add 10 years growth, resulting in a design year of 2025.

12.7 Traffic Volumes

12.7.1 Proposed Development Traffic Volumes

The proposed Saturday peak hour traffic volumes for the Bunnings store (as per the OBT assessment) are

shown in Figure 12-2.

0

1

2

3

4

5

6

7

8

9

10

6,000 8,000 10,000 12,000 14,000 16,000 18,000 20,000

Movem

ents

/ 1

00 s

qm

Floor Area (sqm)

Peak Saturday Rate adopted by OBT (5.03vm/100sqm)



Figure 12-2 Bunnings Only Peak Hour Traffic Volumes (vph)

Of the 392 vehicle movements exiting the site, 82vph (21%) are anticipated to undertake a u-turn at the

Watson Street / Midland Highway intersection.

12.7.2 Masters Traffic Volumes

The anticipated traffic generation of the Masters site prepared by GTA consultants is shown in Figure 12-3.

Figure 12-3 Masters Only Peak Hour Traffic Volumes (vph)

12.7.3 Future Traffic Volumes Post Development

The total Post Development traffic volumes include, existing conditions + growth + Masters + Bunnings. The

total anticipated traffic volumes for the design year 2025 is shown in Figure 12-4.

Figure 12-4 Future Peak Hour Traffic Volumes - Existing + Growth + Masters + Bunnings (vph)

Midland Highway

Midland Highway

Midland Highway



12.8 Future Intersection Operating Conditions

12.8.1 Methodology

This assessment has been undertaken in SIDRA 6.1, making use of the network modelling capabilities

provided by this software package.

The networking capabilities in SIDRA account for additional considerations beyond a stand-alone

intersection assessment, such as the effect of upstream and downstream capacity constraints on the

performance of the intersection. Specifically, the two fundamental elements developed for and implemented

in the SIDRA Intersection software are:

The determination of the backward spread of congestion, as queues on downstream lanes block

upstream lanes; and

Application of capacity constraint to oversaturated upstream lanes for determining exit flow rates,

thus limiting the flows entering downstream lanes.

It should be recognised that in networked SIDRA models, queue lengths in excess of the available storage

distance will be passed on to upstream traffic lanes. That is. queue blockage from a downstream

intersection can apply to intersections further upstream, affecting both queue length and capacity at the

upstream intersection. The model also considers the effects that signal coordination and platoon dispersion

have on the performance of the network.

12.8.2 Post Development Scenarios Analysed

The following post development scenarios were analysed:

1. Existing geometry at Midland Highway ./ Florence Street and existing phasing, and proposed

geometry at Bunnings access (as per OBT);

2. Proposed geometry at Midland Highway / Florence Street (as per Masters plan) with existing

phasing and proposed geometry at Bunnings access (as per OBT);

3. Proposed geometry Midland Highway ./ Florence Street (as per Masters plan) with modified phasing

to fully control right turns from Midland Highway east and west approaches and proposed geometry

at Bunnings access (as per OBT).

Although accident history only related to right turns into Shepparton Marketplace, it has been assumed with

the additional Masters traffic that it would be prudent to also fully control right turns from the east approach

into Florence Street.



12.8.3 Scenario 1 Results

The results of the Post Development intersection analysis with the existing geometry at Midland Highway /

Florence Street and the existing phasing is attached as Appendix B and summarised in Table 12-3 and

Table 12-4.

Table 12-3 Scenario 1 Future Conditions– Midland Highway / Florence Street, Saturday Peak Hour




T 0.26 27 22

L 0.87 42 49


T 0.88 132 37

L 0.72 38 36


T 0.76 90 29

L 0.64 49 34


T 0.49 78 10

L 0.90 79 37

Intersection 0.90

Table 12-4 Scenario 1 Future Conditions – Midland Highway / Bunnings Access Saturday Peak Hour



Bunnings (S) L 0.73 82 23

Midland Hwy (E) T 0.08 8 9

L 0.66 120 9

Midland Hwy (W) T 0.41 0 1

R 0.89 15 45

U 0.89 15 47

Intersection 0.89

If the existing phasing and intersection geometry is retained, the intersections are anticipated to operate with

‘Fair’ conditions during the Saturday peak hour.




The results of the Post Development intersection analysis with the proposed modified geometry at Midland

Highway / Florence Street and the existing phasing is attached as Appendix C and summarised in Table 12-

3 and Table 12-6.





T 0.31 28 22

L 0.56 34 49


T 0.79 113 37

L 0.66 35 36


T 0.35 32 29

L 0.80 58 34


T 0.38 56 10

L 0.83 84 37

Intersection 0.83

Table 12-6 Scenario 2 Future Conditions – Midland Highway / Bunnings Access, Saturday Peak Hour





L 0.66 117 9


R 0.89 108 45

U 0.89 108 46

Intersection 0.89

If the intersection geometry is modified as proposed by Masters and the existing phasing is maintained the

intersection is anticipated to operate with ‘Fair’ conditions with slightly improved queues and delays on some

movements compared to Scenario 1.




The results of the Post Development intersection analysis with the proposed modified geometry at Midland

Highway / Florence Street and changes to the phasing to include fully controlled right turns on both Midland

Highway approaches, is attached as Appendix D and summarised in Table 12-3 and Table 12-6.





T 0.36 30 27

L 0.67 36 39


T 0.88 132 37

L 0.55 35 37


T 0.40 33 27

L 0.90 64 51


T 0.58 86 18

L 0.87 122 41

Intersection 0.90

Table 12-8 Scenario 3 Future Conditions – Midland Highway / Bunnings Access Saturday Peak Hour





L 0.66 120 8


R 0.89 108 45

U 0.89 108 47

Intersection 0.89

If the Midland Highway / Florence Street intersection is modified and the phasing changed to fully controlled

right turns on both the east and west approaches of Midland Highway the intersection is still expected to

operate with ‘Fair’ conditions.

12.9 Traffic Impact Summary

Bunnings and Masters typically generate peak traffic activity on a Saturday, whilst the road network typically

experiences the highest levels of traffic activity during the PM commuter peak hour. The traffic surveys

collected in the vicinity of the site, indicate that the through volumes on Midland Highway are over 30%

higher during the Saturday peak hour than during the Friday PM peak hour. Furthermore Bunnings and

Masters typically only generate half as much traffic during the Friday PM peak hour than on a Saturday

midday peak. What this means from a traffic analysis point of view is that the queues and delays associated

with the Saturday analysis are anticipated to be far higher than at any other time of the week.

The analysis indicates that if no change were made to the existing intersection geometry or phasing as per

Scenario 1, then the proposed Bunnings access signals and Midland Highway / Florence Street intersection

would continue operating satisfactorily.



The results of Scenario 2, which include the intersection improvements associated with the Masters site but

no change to the phasing are slightly better than Scenario 1, especially in terms of queue lengths on the

northern approach.

Scenario 3 includes the proposed intersection improvements as well as changing the existing phasing to

include fully controlled right turns on both the east and west approaches. The implementing of fully

controlled right turns should reduce the number of accidents involving right tuners entering Shepparton

Marketplace being hit by westbound through vehicles. Although the right turn from the eastern approach into

Florence Street does not have a history of accidents, it is considered reasonable given the expected

increase in traffic due to the Masters site. The disadvantage of fully controlled right turns from a traffic

analysis perspective is that it requires an additional phase to be implemented, which then decrease the

amount of green time available during each cycle.

The results of Scenario 3 indicate that the intersection will still operate satisfactorily with the fully controlled

right turns.

Based on the preceding analysis both the proposed Bunnings signals and the Midland Highway / Florence

Street intersection are expected to operate satisfactorily under all three scenarios analysed.

12.10 Review of OBT U-Turn Analysis at Watson Street

12.10.1 Intersection Geometry

I have been asked to undertake a review of the OBT analysis of increased u-turn traffic at the Midland

Highway / Watson Street intersection.

The Midland Highway / Watson Street intersection geometry is shown in Figure 12-5.

Figure 12-5 Midland Highway / Watson Street Intersection Geometry

As shown in the preceding figure, the Watson Street intersection is relatively complex, comprising two lanes

in each direction on Midland Highway, a u-turn lane on the eastern approach (approximately 60m in length),

a left turn deceleration lane into Watson Street, plus right and left turn out from Watson Street. A right turn

deceleration lane is provided on the west approach that provides access into Watson Street as well as right

turns into the service road, west of Watson Street.

Ideally the intersection should be analysed as a whole to determine the impact of additional u-turn traffic on

right turn movements out of Watson Street. However to my knowledge traffic volumes have not been

collected at this intersection.



12.10.2 OBT Assumptions

OBT undertook an analysis of the capacity of the u-turn against eastbound traffic on Midland Highway. The

OBT analysis assumed the following:

Eastbound traffic on Midland Highway during Sat peak hour = 1533vph

U-turns generated by Bunnings = 104 vph

Assumed existing number of u-turns = 60 vph

Critical gap acceptance and follow-up headway of 7.0 seconds and 4.0 seconds, respectively

Commercial vehicle percentage assumed to be zero.

On the basis of these assumptions, OBT anticipated that the u-turn would operate satisfactorily, with a DOS

of 0.75, a 95th percentile queue of 23m and an average delay of 33 seconds.

This analysis does not take into account the additional traffic generated by the proposed Masters site.

Nevertheless the adopted gap and headway values are considered very conservative and will create

substantially more capacity if lower gap and headway values were adopted.

12.10.3 Sensitivity Analysis

In order to evaluate the OBT findings I have undertaken an analysis of the u-turn lane. Unfortunately as

previously stated I am unable to incorporate the existing turning movements at this intersection into the

analysis and have had to rely on the OBT assumption that there may be in the order of 60 existing u-turn

movements.

My analysis is based on the following assumptions:

Eastbound traffic on Midland Highway during Sat peak hour = 1725vph (Based on post development

traffic volumes including GTA existing volumes + growth + Masters + Bunnings);

U-turns generated by Bunnings = 104 vph

Assumed existing number of u-turns = 60 vph

Critical gap acceptance and follow-up headway of 5.0 seconds and 3.0 seconds, respectively, based

on the left turn criteria from Austroads Guide to Traffic Engineering Practice – Part 5: Intersections at

Grade;

Commercial vehicle percentage assumed to be 5% both on U-turn and Midland Highway through

volumes.

The results of this analysis are attached as Appendix E and indicate a DOS of 0.48, 95th percentile queue

length of 4m and an average delay of 1 second.

12.10.4 Summary

In summary although I have used higher traffic volumes and made an allowance for commercial vehicles, the

results of the analysis are better than the OBT results, clearly indicating that the adopted gap and headway

values are the determining factor in the analysis.

The assumption that vehicles will wait for a 7 second gap in oncoming traffic flow on a 60kph road seems

overly conservative.

Based on the my own investigation I am satisfied that the u-turn has sufficient capacity to accommodate the

anticipated u-turns from the proposed Bunnings.



13 Response to Issues

As defined in Section 4, the submissions have been summarised into three main areas comprising Fordyce

Street, access arrangements and impact on surrounding road network, and adequacy of car parking. In view

of the preceding discussion and analysis my response to these issues is outlined as follows:

13.1 Fordyce Street

13.1.1 Footpath Provision

The Bunnings store has a limited frontage to Fordyce Street and is not expected to increase pedestrian

activity on Fordyce Street as pedestrians approaching from either Fordyce Street or Gilchrist Street can enter

the site via the southern access whilst all other pedestrians are expected to enter via the northern access

from Midland Highway.

The lack of a footpath along Fordyce Street is an existing issue that should be raised with Council.

13.1.2 Increased Traffic

Based on the OBT Traffic Assessment, it is anticipated that an additional 168 vehicle movements could be

expected on Fordyce Street south of the Bunnings access. If 20% arrive and depart from the south rather

than diverting 6% back to Midland Highway as proposed by OBT, then it could be expected that 196 vehicles

in the peak hour use the southern access to Fordyce Street.

Although not shown on the OBT distribution I think it would be reasonable to assume half of that traffic would

arrive and depart via Gilchrist Street with the remainder traveling south along Fordyce Street. Therefore a

maximum of 98 additional movements could be expected on Fordyce Street, south of Gilchrist Street and

Gilchrist Street in the Saturday peak hour.

Although the addition of 98 vehicle movements per hour is significant, it is anticipated that this level of traffic

activity can be comfortably absorbed by both Fordyce Street and Gilchrist Street. It should also be noted

that during the week anticipated Bunnings traffic volumes during the peak hour are in the order of half of the

Saturday peak.

13.1.3 Parking Restrictions

A submission was received stating that they object to ‘No Standing’ signs being installed along Fordyce

Street as they currently use the on street parking in the vicinity of their site.

It appears that No Standing signs are proposed on the western side of Fordyce Street immediately north of

Gilchrist Street as part of the improvements to the Fordyce Street / Gilchrist Street intersection.

Based on my review of the loading bay I believe the proposed No Standing restrictions are appropriate to

enable B-Double vehicles to egress from the proposed Bunnings loading bay.

13.1.4 Fordyce Street / Gilchrist Street Intersection

A submission was made stating that the current intersection of Fordyce Street / Gilchrist Street is confusing

and encourages illegal movements. I agree that the intersection is confusing and badly aligned. The

proposed changes described in the OBT Traffic Assessment that will be undertaken by Bunnings should

assist in defining priority and reducing the incidence of improper behaviour.

13.2 Access Arrangements and Traffic Impact

13.2.1 Proposed Bunnings Access and Midland Highway / Florence Street

I have undertaken a conservative analysis that takes into account the Bunnings development, the Masters

development, future growth on Midland Highway and coordination with the Midland Highway / Florence

Street intersection. The results of the analysis indicate that both intersections are expected to operate

satisfactorily.

Due to the close proximity of the proposed signals, the timing and phasing will be dictated by the Midland

Highway / Florence Street intersection. This level of coordination will ensure that priority to through



movements on Midland Highway is maintained. The proposed intersection will effectively operate in the

shadow of the adjacent intersection such that it will have minimal impact on the existing operating conditions

of Midland Highway.

13.2.2 Request for Additional Intersection Analysis

A submission was made requesting analysis of a number of additional intersections in the area. In my

opinion the analysis should be focused on the impact to Midland Highway adjacent to the site where the vast

majority of traffic is anticipated to access the site. This view is also presumably supported by VicRoads and

Council, who have not requested further intersections be analysed.

13.3 Adequacy of Car Parking

A parking provision of 417 spaces is proposed, which exceeds the Planning Scheme parking requirements

and is considered satisfactory.

The concern regarding Bunnings patrons parking in the adjacent Shepparton Marketplace car park does not

have merit in my opinion. It is understood that three separate access points will be provided to the Bunnings

store from the adjacent Bunnings car park, allowing convenient access from the majority of the car park.

In my opinion sufficient car parking has been provided such that future customers will not be reliant on

parking external to the site.



14 Conclusions

Based on the preceding discussion it is concluded that;

The proposed parking supply of 417 spaces is considered satisfactory;

The proposed bicycle parking supply of 12 spaces, comprising 6 for staff and 6 for customers is

considered appropriate, noting that additional bicycle parking could be provided in the future if

required;

The proposed Bunnings store is anticipated to generate in the order of 510 trips during a Friday PM

peak hour and in the order of 980 trips during the Saturday midday peak hour;

The proposed traffic signal on Midland Highway has been analysed taking into consideration the

adjacent Midland Highway / Florence Street signalised intersection;

The intersection analysis was undertaken for the Saturday peak period, as it was noted that existing

traffic volumes are approximately 31% lower during the Friday PM peak than the Saturday peak

hour;

The SIDRA analysis took into account the proposed Masters store to be located on the north east

corner of Midland Highway / Florence Street, the proposed Bunnings store and its signalised

intersection to Midland Highway as well as the growth anticipated over the next 10 years;

The results of the analysis indicate that both the Midland Highway / Florence Street intersection and

the proposed intersection can operate satisfactorily, with or without the proposed intersection

modifications recommended by GTA and any change to the existing phasing;

A fully signalised intersection to service the Bunnings site as proposed by Traffix, is in my opinion

not required, as there will be sufficient capacity for vehicles to undertake a u-turn on Midland

Highway if they wish to travel east after visiting the Bunnings store;

Of the three scenarios modelled the best result was achieved with the proposed modification to the

Midland Highway / Florence Street intersection including a left turn slip lane and formalisation of the

right turn on the northern approach, as well as the creation of a left turn deceleration lane on the

western approach, with no change to the existing phasing,

The Scenario 3 analysis indicates that if the right turn from the western approach into Shepparton

Marketplace was fully controlled, which is aimed at reducing the likelihood of additional accidents at

the intersection, would continue to operate satisfactorily.



Expert Traffic Evidence Statement

APPENDIX

A EXISTING CONDITIONS SIDRA ANALYSIS – SATURDAY MIDDAY PEAK



Existing Conditions SIDRA Analysis – Saturday Midday Peak

INTERSECTION GEOMETRY




APPENDIX

B SIDRA ANALYSIS FUTURE CONDITIONS SCENARIO 1



Scenario 1: Future Conditions SIDRA Analysis – Saturday Midday Peak




APPENDIX

C SIDRA ANALYSIS FUTURE CONDITIONS SCENARIO 2




APPENDIX

D SIDRA ANALYSIS FUTURE CONDITIONS SCENARIO 3




APPENDIX

E SIDRA ANALYSIS FUTURE CONDITIONS U-TURN LANE CAPACITY AT WATSON ST



U-Turn Capacity at Watson Street Future Conditions SIDRA Analysis – Saturday Midday Peak

Amendment C183 and Bunnings Planning Application PPA 2013-307 · 7.2.3 Traffic Growth 10 7.2.4...

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Transcript of Amendment C183 and Bunnings Planning Application PPA 2013-307 · 7.2.3 Traffic Growth 10 7.2.4...