aPPendix C – TraFFiC engineering rePOrT · GTA Consultants was engaged in June 2015 to provide...

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Draft St Kilda Triangle Masterplan - 18 November 2015

aPPendix C – TraFFiC engineering rePOrT

St Kilda Triangle

Collaborative Design Process

Transport and Access Report

d r a f t

Client // ARM Architecture and Root Projects

Office // VIC

Reference // 15M1437000

Date // 28/10/15

© GTA Consultants (GTA Consultants (VIC) Pty Ltd) 2015

The information contained in this document is confidential and

intended solely for the use of the client for the purpose for which it has

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contained in this document remains the property of GTA Consultants. Bla

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St Kilda Triangle

Collaborative Design Process

Transport and Access Report

Issue: A-Dr2 28/10/15

Client: ARM Architecture and Root Projects

Reference: 15M1437000

GTA Consultants Office: VIC

Quality Record

Issue Date Description Prepared By Checked By Approved By Signed

A-Dr2 28/10/15 Draft Jacquelyn Viti /

Rory Rathborne Alex Blackett Tom Courtice

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Transport and Access Report // Issue: A-Dr2

St Kilda Triangle, Collaborative Design Process

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Table of Contents

1. Introduction 5

1.1 Background & Purpose 5

1.2 Subject Site 5

1.3 Local Attractions 6

2. Background Documents 7

2.1 St Kilda Triangle 2012 – A Framework for the Future 7

2.2 St Kilda Triangle – Car Park Investigation Study 11

2.3 St Kilda Triangle – Car Occupancy Study 11

2.4 Stage 1 Working Groups and Steering Committee - City of Port Phillip Worksheets 12

2.5 SmartRoads Network Operating Plan 13

3. Existing Transport Network and Travel Behaviour 15

3.1 Mode Splits 15

3.2 Pedestrian Network 18

3.3 Cycling Network 18

3.4 Public Transport 22

3.5 Local Car Sharing Services 24

3.6 Traffic Volumes 24

3.7 Car Parking 25

4. Issues & Opportunities 28

4.1 Overview 28

4.2 Mode Splits 28

4.3 Pedestrians 28

4.4 Cycling 28

4.5 Public Transport 29

4.6 Car Parking 30

5. Interim Master Plan 32

6. Transport Response 33

6.1 Overview 33

6.2 Car Parking 34

6.3 Public Transport Strategy 40

6.4 Abutting Road Network Strategy 41

6.5 Loading Strategy 44

6.6 Managing Peak Transport Demand 44

7. Quick Wins 45

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Figures

Figure 1.1: Study Area 5

Figure 1.2: Context Map 6

Figure 2.1: St Kilda Triangle 2012 Framework – Character Area Plan 7

Figure 2.2: SmartRoads Network Operating Plan / Road User Hierarchy 14

Figure 3.1: St Kilda SLA Map 15

Figure 3.2: Surveyed Average Mode Share of Palais Theatre Patrons 17

Figure 3.3: City of Port Phillip TravelSmart Map 19

Figure 3.4: City of Port Phillip Bike Network Map (Existing and Proposed) 20

Figure 3.5: Melbourne Bike Share Locations in and around St Kilda 21

Figure 3.6: City of Port Phillip Super Tuesday Locations and Number of Bikes 22

Figure 3.7: PTV Port Phillip Local Area Map 23

Figure 3.8: Local Car Share Pods 24

Figure 3.9: Yearly Car Parking Transaction and Demand Profile 25

Figure 4.1: Public Transport Accessibility to the East 30

Figure 5.1: Interim Land Use Masterplan (Jacka Boulevard Level) 32

Figure 6.1: U-turn Opportunities 42

Figure 6.2: Potential Future Cavell Street Cross Section 43

Figure 7.1: Summary of Transport Response 46

Tables

Table 3.1: VISTA 2009-2010 Data for Method of Travel by Destination SLA (St Kilda) on a

Weekend Day 15

Table 3.2: Tram Services at Stop 188 – Luna Park / The Esplanade (St Kilda) 23

Table 6.1: Statutory Car Parking Rates 34

Table 6.2: Summary of Weekday Mode Split Data 35

Table 6.3: Short-Term/Visitor and Long Term/Staff User Splits 36

Table 6.4: Site Specific Parking Rates 37

Table 6.5: Site Generated Car Parking Demands 38

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1. Introduction

1.1 Background & Purpose

City of Port Phillip is currently in the process of developing a realistic, fundable and deliverable

framework to develop the iconic St Kilda Triangle site (‘the site’). It is a key requirement that the

site is co-designed with and to the benefit of the whole community.

In this regard, Council has already undertaken extensive community consultation and research to

articulate a high level vision and set out supporting objectives for the site, which have been

included and adopted in the document titled St Kilda Triangle 2012.

More recently, Council commissioned a consultant team to realise the St Kilda Triangle vision,

through a collaborative design process that tested a number of concept designs, with the aim to

prepare a preferred concept, functional design brief and preliminary business case for Council to

move forward with.

GTA Consultants was engaged in June 2015 to provide traffic and transport engineering services

as part of the consultant team, led by ARM Architects and Root Projects Australia. This report

summarises the background information and supporting analysis used to outline the overall

transport approach for the preferred concept for the redevelopment of the St Kilda Triangle.

1.2 Subject Site

The St Kilda Triangle (subject site) is a triangular area of approximately 15,000sqm in St Kilda,

bounded by The Esplanade to the north, Cavell Street to the east and Jacka Boulevard to the

southwest. The land parcel is Crown Land and is currently used as an at-grade car park.

The subject site is shown in Figure 1.1, with a broader context map shown in Figure 1.2.

Figure 1.1: Study Area

Source: Melway Publishing Pty Ltd

Subject Site

1

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Figure 1.2: Context Map

Source: Google Maps

1.3 Local Attractions

The subject site is located in Port Phillip Bay and in the suburb of St Kilda, which is approximately

6km from the Melbourne CBD, making it a highly accessible beach front to Melbourne residents.

St Kilda is a diverse and vibrant suburb with a number of key local attractions generating

significant resident, worker and visitor populations:

Palais Theatre (forms part of the subject site and seats approximately 3,000 people)

Luna Park (directly to the east)

St Kilda Beach (directly to the south, which generates 1.38 million visitors per year1)

St Kilda Pier

Acland Street Precinct

Fitzroy Street Precinct

Catani Gardens

St Kilda Marina

1 As indicated in the St Kilda Triangle Waterfront Access Study, International Comparison Report by RELMstudios, dated 5 June 2015.

Subject

Site

6km

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2. Background Documents

2.1 St Kilda Triangle 2012 – A Framework for the Future

In 2012, Port Phillip City Council released St Kilda Triangle 2012 – A Framework for the Future. The

framework sets out a vision for the St Kilda Triangle and provides guidance on how to achieve it. It

was developed after extensive community consultation and engagement, to capture and

understand the broad range of views and aspirations for the site.

The purpose of the framework is to ensure the future development of the St Kilda Triangle is

consistent with the overarching vision, design philosophy, objectives and principles, which

consider and build on the sense of place and balance the need for a strong iconic identity with

local character and heritage.

The framework seeks to:

“outline Council’s vision and design philosophy for the site

clearly identify constraints and opportunities

define the extent of any possible future Palais expansion on the Triangle site

map out an implementation process for development

outline various funding scenarios

inform a Planning Scheme Amendment.”

The overarching vision of the framework is:

“The St Kilda Triangle is a loved seaside place that acknowledges and builds on the local

character and location. It is a public place supported by a mix of uses to make it attractive and

welcoming. It makes St Kilda a great place.”

Figure 2.1: St Kilda Triangle 2012 Framework – Character Area Plan

Source: Figure 1 – Character Area Plan within the St Kilda Triangle 2012 – A Framework for the Future

2

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Transport Vision

“How do we balance traffic circulation and parking with public transport? How do we improve

connections for pedestrians? How do we get to the beach or Fitzroy and Acland streets?”

Objectives / Principles:

Encourage as a first choice (prioritise) access to the St Kilda Triangle by walking, cycling

and public transport.

Transform walking and cycling links from / to the site, The Esplanade, foreshore, Fitzroy

and Acland streets, as well as ensure they are provided to bus and tram stops.

All car parking (except for special needs, taxi set-down areas and drop-off zones) on

the St Kilda Triangle site is out of view (i.e. underground or screened).

Consideration should be given to the parking requirements needed to support the

operation of the Palais Theatre and any other development proposed on-site.

Desired Access and Movement Environment

“The St Kilda Triangle site must welcome pedestrians and bike riders through the creation of safe

and attractive promenades, pathways and vantage points. It must be easy to get to and

around, with seamless connections to existing and future planned movement networks in the

surrounding area. Movement networks must lead the visitor on a journey through the site and its

various activities.”

In order to support the desired access and movement environment, the proposals must:

prioritise and provide for pedestrian movement to, from and within the St Kilda Triangle

site, preserving identified pedestrian desire lines, particularly between:

the tram superstop on The Esplanade and the Palais Theatre forecourt

The Esplanade and St Kilda Triangle via the new access zone

the foreshore and St Kilda Triangle, across Jacka Boulevard

St Kilda Triangle site and existing and future planned car park areas

provide for recreational bike riding connections to, from and within the site that

connect to the existing bicycle network

use design innovations and solutions to manage out potential conflicts in spaces used

by pedestrians and bike riders and/or vehicular movements

provide a continuous accessible path of movement within the site, and to and from

nearby facilities and activities including Fitzroy and Acland streets

ensure the design of the site integrates access in a way that is convenient and

aesthetically pleasing

ensure wayfinding is consistent in its design and is applied in a logical way that will help

people navigate their way through or within the site

create a seamless, shared area along the Lower Esplanade, accommodating

pedestrian and recreational bike riders’ movements, temporary performances and

limited vehicular movements

be universally accessible.

Connections to the Foreshore

“The improvement of crossings along Jacka Boulevard should consider innovations for reducing

traffic speed and improving the pedestrian connection to the foreshore. The interface with Jacka

Boulevard needs to be activated and of a high design quality. Any built form or structure must

engage with Jacka Boulevard and not present its ‘back’ to the interface.”

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In order to transform and improve connectivity between the St Kilda Triangle and the Foreshore,

proposals must:

investigate rationalising or moving the existing traffic signals on Jacka Boulevard to

connect with the promenades and designated arrival points

consider traffic improvements to reduce traffic speed

transform the visual appearance of the St Kilda Triangle interface with Jacka Boulevard

by using vegetation to create an enhanced tree lined address to the site and St Kilda,

as well as improving the driver experience

widen pedestrian footpaths as part of the promenades

consider paving options and other visual cues to create a more pedestrian-friendly

environment

provide a setback to allow for a wider footpath and greater separation from traffic. This

would encourage a spill-out space to take advantage of the afternoon sun, as well as

expand views to Luna Park from the northern approach along Jacka Boulevard

provide an activated, high quality design outcome along the interface between Jacka

Boulevard and St Kilda Triangle.

not compromise Council’s long term vision to see a pedestrian connection to the

foreshore over or under Jacka Boulevard.

Key Access and Arrival Points

Entry points will require special treatment and thought to provide open access to the site. A

proposal must:

ensure access to the Triangle site is provided at a logical and convenient location on

the intersection, which does not require the pedestrian to walk out of their way

enable 24 hour access through to the St Kilda Triangle site if internalized

be designed to ensure clear view lines from the intersection through to the St Kilda

Triangle site to ensure visual connectivity and personal safety

ensure built form edges are activated and engaging to the pedestrian

be well lit and activated at night time

resolve any ground level changes to ensure seamless and accessible integration with

the rest of the Triangle site.

Car Parking

“While limited short stay car parking (e.g. disabled parking, pick-up and drop-off parking, loading

zones, emergency vehicles, events or servicing) may remain in part of the Lower Esplanade,

general parking will not be visible on the site.”

The design of any on-site car parking must:

remove general car parking on the Lower Esplanade

incorporate disabled access parking and some limited short-stay parking in the western

or eastern ends of the Lower Esplanade

rationalise car parking on Cavell Street in a way that reduces its visual dominance

obscure any ground level car parking from view through design and/or landscaping

not be accessed via Jacka Boulevard

have a one metre minimum berm surrounding the Palais Theatre

be constructed to allow for significant vegetation and buildings to be located on top it

respect the existing form of Catani slopes

leave parts of the site unexcavated to allow for large trees and deep rooting

vegetation.

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Bicycle Parking

“Any proposal should anticipate high levels of recreational bike riders visiting the site and should

design in bike parking and end-of-trip facilities at convenient locations around the site and near

the site’s key access points.”

To suitably support bicycle use in accessing the site, a proposal must:

provide bicycle parking and end-of-trip facilities at convenient locations and entry

points to the site

provide publicly accessible shower and change room facilities

provide secure bike parking and end-of-trip facilities (ideally within any on-site car

parking facilities).

Loading and Taxi Facilities

A proposal must:

Loading access for both the Palais Theatre and future site activities will be supported on

Cavell Street and the western end of the Lower Esplanade area.

Loading and access will be controlled to minimise the impact on the site’s activities and

adjoining land uses.

Taxi set-down areas and drop-off zones will be provided near the Palais Theatre

forecourt, The Esplanade or the intersection of the Lower Esplanade area and Cavell

Street.

Wayfinding Signage

“Wayfinding is how people orient themselves within a physical space and navigate from place to

place. To assist wayfinding throughout St Kilda Triangle and beyond, well-integrated signage and

devices should direct people through the site and promote local destinations along the

foreshore.”

Signage must:

be consistent and embedded within the public realm throughout the precinct

be concentrated at popular pedestrian nodes and landmarks make a positive and innovative contribution to the urban environment.

Changes following release of St Kilda Triangle 2012

A number of things have changed since St Kilda Triangle 2012 was released. These include:

Amendment C106 to the Port Phillip Planning Scheme was prepared based on the

document. It was exhibited for 5 weeks from May to June in 2013. Council considered

submissions to this amendment, of which there were 8. They raised issues such as the

development envelopes, flexibility, views, vistas and Jacka Boulevard.

A review of contamination on-site demonstrated that the contamination is more serious

than previously thought.

A commercial feasibility study was undertaken for the site.

Further traffic studies were undertaken to understand the demand of the Palais Theatre

on parking within the precinct.

Public Transport Victoria (PTV) announced the Route 96 Project which will see part of

Acland Street closed to traffic.

The Stokehouse (restaurant along the St Kilda Foreshore adjacent to the site) was raised

and will be redeveloped in a new building on the same footprint.

St Kilda Life Saving Club will be redeveloped by the same architects as the Stokehouse.

Donovans recently caught fire.

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A draft structural condition report for the Palais Theatre identified structural issues which

posed an immediate public safety risk. Scaffolding has been erected around the

building to ensure pedestrian safety.

2.2 St Kilda Triangle – Car Park Investigation Study

In June 2012, Arup published a Car Park Feasibility Study for the St Kilda Triangle. The study was

commissioned by the City of Port Phillip and aimed to provide guidance about whether it was

suitable to provide car parking on the St Kilda Triangle, and if so, how much parking should be

provided on site.

Council adopted a number of options to be part of the assessment. These options were:

Option 0: “Do nothing”. This is the base case against which all other options were

compared. The car parking facilities will remain as they are today and only basic

maintenance of the car park is provided.

Option 1: Provide 200 car parking spaces.



The study found that the current site presented two issues: underground contaminated material,

and a relatively high water table. The type of the contaminated material (Type C or Type B) has

relatively high removal costs and would be likely to impact on the project’s commercial viability.

The water table impacts the design and construction cost.

A qualitative assessment and a financial analysis were conducted for each option. The results are

as follows:

Without additional revenue created by the presence of commercial space associated

with the car park, the project has no financial merit. The design and content of this

commercial space needs to be in line with the community vision for the site.

With additional revenue created by the presence of commercial space:

Option 1 ranks highest from a qualitative and financial point of view.

Option 2 does not score as highly as Option 1 in the qualitative analysis and has

less financial merit than Option 1, but could be considered viable for construction

in a Type C contaminated material configuration.

Option 3 has a very low qualitative score and no financial merit and should not be

pursued in its current configuration.

There was an update to the Car Park Feasibility Study in 2014 by Arup, based on further detail

about the extent and type of soil contamination that exists. Essentially it identified that the soil

contamination is more significant than first anticipated, which essentially makes it unfeasible to

excavate the site for car parking, even to support commercial activities. Rather, at-grade /level

parking is recommended to make the provision of car parking on-site feasible.

2.3 St Kilda Triangle – Car Occupancy Study

Car parking demand and duration of stay surveys were undertaken during the following periods

on the St Kilda Triangle and proximate publicly available car parking areas:

Wednesday 20 February 2013, from 8.00am to 6.00pm, in 2 hour increments

Sunday 24 February 2013, from 10.00am to 8.00pm, in 2 hour increments.

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The results of the surveys are summarised as follows:

There were a total of 341 spaces located on-site, including a disabled space, which

have P ticket 8am to midnight restrictions ($5 per hour or $12 per day).

Weekday demands ranged between 3% at 8am and 16% at 2pm, with average

duration of stay of 0.6 hours.

Weekend demands ranged between 64% at 10am and 100% at midday, with average

duration of stay of 4.2 hours.

The Esplanade, Lower Esplanade, Cavell Street and Shakespeare Grove experience

similar demand profiles, i.e. lower weekday demands and up to 100% on weekends,

and generally have paid parking restrictions.

Jacka Boulevard also has similar demand profiles and paid parking restrictions, except

on the weekend it peaks at 70% between 2pm and 6pm.

Car parking demands within the adjacent retail areas associated with Fitzroy Street and

Acland Street have similar weekday and weekend demand levels, but weekends still

higher and generally reach theoretical capacity of 85% for on-street parking areas.

Given the above, there are currently two distinct car parking demand generators, with those

associated with retail land uses in the area during the weekday, and evening / weekend

demands generated by the local attractor (i.e. Luna Park, Palais Theatre, market, tourists, beach-

goers, etc.).

2.4 Stage 1 Working Groups and Steering Committee - City

of Port Phillip Worksheets

Various worksheets were prepared in September 2014 as part of the Stage 1 Working Groups and

Steering Committees convened by the City of Port Phillip. The worksheets attempt to reflect the

view of the community gained through the various consultation sessions. A summary of the

relevant transport and access considerations for Stage 2 is provided as follows.

2.4.1 Car Parking

While there are varying views as to whether car parking should be replaced on the St Kilda

Triangle, it is considered that some form of car parking is needed adjacent to the Palais Theatre

to support its operation.

Council needs to balance the needs of the Palais with the community’s desire to have it hidden

and out of sight.

The St Kilda Triangle Car Park Investigation Study by ARUP assessed the viability of a car park on

the site in 2012 (as discussed in Section 2.2).

It was recommended that car parking should be provided underground with 200 spaces, which

will be landscaped on top. Two envelopes of commercial retail space have also been suggested

to make this car park more viable.

In 2014, ARUP updated their study in light of new contamination information. The analysis showed

that an above ground car park continued to be marginal unless supported by commercial retail

space. However, it was also noted that the cost of remediating any contamination will be

substantial and will influence the final configuration of the project.

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2.4.2 Traffic and Jacka Boulevard

Jacka Boulevard is viewed by the community as a physical barrier between St Kilda and the

Foreshore and as a result a pedestrian under-bridge or over-bridge on Jacka Boulevard has been

suggested to improve the connection to the beach. The likely cost of this option, however, has

been identified as a key project constraint.

Council needs to improve the amenity of Jacka Boulevard and the connectivity to the foreshore

whilst maintaining safety of pedestrians and road users, but without affecting the financial

viability and timing of the project.

Preliminary work has been undertaken by Council in relation to the potential for crossing

realignments and a bridge connection to the foreshore.

St Kilda Triangle 2012 advocated for measures, such as an overbridge or lowering Jacka

Boulevard, be considered to improve the foreshore connection and amenity.

Recent discussions with VicRoads have indicated a willingness to look at options for Jacka

Boulevard subject to funding and Council having a feasible project.

2.4.3 Activation

Future development proposals that will address the objectives and principles of the design and

development requirements set out in St Kilda Triangle 2012 will need to be further guided by more

detailed site development, urban design and open space guidelines and parameters.

The site should be realised as an activated public place and be delivered with private sector

support. Council needs to promote its vision for The Triangle in a way that attracts the appropriate

State and development interest for funding and development support.

The new uses should build on the sites local character, seaside location and entertainment history

while complementing the existing attractions such as the Palais Theatre and Luna Park.

Opportunities for cultural and recreation activities may include events, galleries, stage

performances and entertainment. The area should provide for a variety of leisure and

recreational activities.

There are good examples or urban parks and public spaces in Australia and overseas that could

inspire and help inform potential uses and activities for the Triangle in terms of the design and

build form, initial funding and ongoing maintenance and management. Some examples are:

River Quay, Southbank, Brisbane

Darling Quarter, Darling Harbour, Sydney

High Line, New York, New York, USA

Miami Beach Soundscape, Florida, USA

Olympic Sculpture Park, Seattle, USA

Tongva Park, California, USA

2.5 SmartRoads Network Operating Plan

SmartRoads is a VicRoads policy which sets ‘modal’ priorities on the road network and underpins

many of the strategies significant to the operational directions that support broader strategies

around land use and transport.

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“There is no single solution to managing congestion on our roads. Sustainable management of

congestion will require an integrated approach involving better management of the existing

network, building new infrastructure, visionary land use planning, encouraging sustainable transport

modes, and changes in behaviour by individuals, businesses and a level of government.”

All road users will continue to have access to all roads. However, certain routes will be managed

to work better for cars while others for public transport, cyclists and pedestrians during the various

peak and off-peak periods. In this regard, the following is noted by VicRoads for the various

modes assigned to arterial roads across the network that form part of the Network Operating

Plans:

“Facilitate good pedestrian access into and within activity centres in periods of high

demand

Prioritise trams and buses on key public transport routes that link activity centres during

morning and afternoon peak periods

Encourage cars to use alternative routes around activity centres to reduce the level of

‘through’ traffic

Encourage bicycles through further developing the bicycle network

Prioritise trucks on important transport routes that link freight hubs and at times that

reduce conflict with other transport modes”

The VicRoads SmartRoads Network Operating Plan for the area surrounding the subject site has

been reproduced in Figure 2.2.

Figure 2.2: SmartRoads Network Operating Plan / Road User Hierarchy

Figure 2.2 illustrates that:

Jacka Boulevard is a nominated pedestrian priority area, between Fitzroy Street and

Shakespeare Grove as well as being a Bicycle Priority Route

Fitzroy Street is also a pedestrian priority area from The Esplanade in the west to the

St Kilda Sports Club in the east

Beaconsfield Parade, Fitzroy Street, Jacka Boulevard and Marine Parade are bicycle

priority routes

The Esplanade, Acland Street, Fitzroy Street and Carlisle Streets are tram priority routes

Barkly Street is a designated bicycle and bus priority route.

Study

Area

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3. Existing Transport Network and Travel

Behaviour

3.1 Mode Splits

3.1.1 VISTA 09

The Victorian Integrated Survey of Travel and Activity 2009 (VISTA 09) survey of travel and activity

was conducted across Victoria by the then Department of Transport. Randomly selected

households were asked to complete a travel diary for a given week. Their personal travel

information (i.e. the mode split for all trip purposes) was collected and the results summarised to

provide a holistic data set that enable interrogations to identify specific travel characteristics.

In this regard, Table 3.1 shows VISTA 09 data for the number and percentage of people travelling

to the St Kilda Statistical Local Area (SLA) on a weekday and weekend day.

Table 3.1: VISTA 2009-2010 Data for Method of

Travel by Destination SLA (St Kilda)

on a Weekend Day

Figure 3.1: St Kilda SLA Map

Method of Travel %

Weekday Weekend

Vehicle Driver 46% 33%

Vehicle Passenger 15% 20%

Total Private Vehicle 61% 53%

Public Bus 1% 0%

Train 7% 1%

Tram 5% 2%

Total Public Transport 13% 3%

Bicycle 4% 1%

Walking 18% 42%

Total Active Travel 22% 43%

Total Other 4% 1%

Total 100% 100%

This table shows that 61% and 53% of people accessing the St Kilda SLA on a weekday and

weekend day are doing so with a private vehicle, respectively. Only 13% and 3% are taking

public transport, and 18% and 42% of individuals are walking on a weekday and weekend day,

respectively.

This shows that there are a significant amount of people already accessing the area through

alternatively transport modes to cars, especially on the weekend, when almost half do. It also

shows that on weekends more people tend to walk than use public transport, which is most likely

reflective of more people that reside in or live proximate to the St Kilda SLA are accessing the

area. However, given the very low public transport use in the weekends, there is considered to be

a significant opportunity to increase its mode share into the future.

3

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It is also important to note that the St Kilda SLA encompasses more than the retail strips where

public transport exists, but the suburb of St Kilda, which includes a large amount of residential

land.

3.1.2 Survey Results

More recent and proximate mode split survey data to the St Kilda Triangle has been included in a

number of recently released documents, namely with the proposed Route 96 upgrade. A

summary of these survey results are provided below:

Acland Street Upgrade – Community Engagement Summary Report – Phase 1 (p. 14):

Walk = 50%

Public Transport = 22%

Car = 17%

Cycle = 10%

Other = 1%

Acland Street, St Kilda – Traffic Study Summary – Surveys, Page 1:

68% on Thursday and 70% on Saturday of respondents used public transport,

walking or cycling to access Acland Street.

3.1.3 Palais Theatre Intercept Surveys

In 2013, the City of Port Phillip commissioned Austraffic to carry out pre-show intercept surveys of

patrons entering the Palais Theatre. This included the following events:

Wednesday 20 March 2013: ‘The Gala Proudly Supporting Oxfam’ (162 respondents)

Wednesday 3 April 2013:- Status Quo (182 respondents)

Friday 5 April 2013: Guy Sebastian (163 respondents)

Key findings from the incept surveys are provided below.

Mode Share

Figure 3.2 shows the average mode share of Palais Theatre patrons over the three surveyed days.

It is noted that car (as driver or passenger) varied from 61% to 77% of any one survey day. This

variation could be attributed to a varying demographic and/or specific day of week

considerations.

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Figure 3.2: Surveyed Average Mode Share of Palais Theatre Patrons

Source: Austraffic Intercept Surveys, 2013

Car Occupancy

Car occupancy was only surveyed on Wednesday 3 April 2013, however from the sample of 144

who answered the question; average car occupancy of 2.28 persons per vehicle was identified.

On the following day, a similar question was asked being “If you travelled by car or public

transport, how many people were in your group?” This identified an average group size of 2.34

persons.

The above car occupancy figures are well above the typical 1.1 persons per vehicle adopted for

general private car use. However, it is relatively consistent with other empirical data for ‘places of

assembly’ land uses.

Parking Location

Respondents were asked to indicate the location where they parked. Responses indicated that

on average across the three survey days almost 90% of patrons parked on the St Kilda triangle

car park or in the proximate public car parking areas in St Kilda Sea Baths, Cavell Street,

Shakespeare Grove, The Esplanade and the Irwell Street / Belford Street car park. The other 10%

was spread throughout the proximate area, but seemed to indicate that there was very little

intrusion of the parking demands into the surrounding residential areas.

Conclusion

It is noted that as a regional attractor, the mode split is likely to reflect the availability of

convenient car parking options. It is likely that patrons of the Palais would be relatively resilient to

changes in parking or access arrangements (i.e. they would still travel to the theatre even if they

had to do so by modes other than private vehicles).

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3.2 Pedestrian Network

The existing pedestrian network is quite extensive with footpaths on both sides of roads around

the study area, as well as along the St Kilda Foreshore and throughout the various parks within the

St Kilda Area.

Currently, Jacka Boulevard presents a large barrier for pedestrians between the study area and

the St Kilda Foreshore due to significant traffic volumes. There are three locations where formal

pedestrian crossing facilities exist along the site frontage as follows:

Signalised T-intersection of Jacka Boulevard and Cavell Street in the southeast corner of

the site

Pedestrian operated signals at the entrance to the Rotary Playground in the centre of

southwest boundary of the site

Pedestrian operated signals at the Boulevard Ice Creamery Kiosk in the northwest

corner of the site.

Access between the foreshore and Jacka Boulevard also represents an issue for pedestrian

movements due to the height difference between them. The Esplanade accommodates tram

routes 3a, 16 and 96, with two super tram stops located at the east and west extents of the site,

and is the primary public transport access point for the foreshore area in general.

3.3 Cycling Network

Figure 3.3 shows the existing broader bicycle network of St Kilda and Figure 3.4 shows both the

existing and proposed bicycle network in the vicinity of the site. These images show the following

existing bicycle paths and lanes adjacent to the site:

Jacka Boulevard has an on-road bike lane southbound in all of St Kilda and northbound

between Fitzroy Street and Shakespeare Grove

The St Kilda Foreshore has an off-road shared path in both directions

Fitzroy Street has a two-way separated bicycle facility on the northwest side between

Beaconsfield Parade and approximately 200m north of Canterbury Road, with on-road

bicycle lanes further to the north

Barkly Street has on-road bicycle lanes between Acland Street and Marine Parade

Brighton Road and St Kilda Road have on-road bicycle lanes in each direction

A number of proposed bike paths and lanes have been proposed nearby the site, including:

Along the southeast side of Acland Street

On-road bicycle land along the southwest side of Jacka Boulevard to the south of

Shakespeare Grove

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Figure 3.3: City of Port Phillip TravelSmart Map

Source: City of Port Phillip TravelSmart Map

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Figure 3.4: City of Port Phillip Bike Network Map (Existing and Proposed)

Source: City of Port Phillip Bike Plan 2011-20

3.3.1 Melbourne Bike Share

Directly in front of the Palais Theatre on the Lower Esplanade a Melbourne Bike Share Station is

provided (St Kilda – Luna Park). This station contains a total of 20 bike docks. The other nearby

Bike Share Station locations are shown in Figure 3.5. Anecdotally, the bike share station is very well

utilised.

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Figure 3.5: Melbourne Bike Share Locations in and around St Kilda

Source: Melbourne Bike Share Website

3.3.2 Super Tuesday

Cyclist counts within Port Phillip have been undertaken in the form of “Super Tuesday” counts.

Super Tuesday is an initiative of Bicycle Network, and is Australia's biggest visual bike count, which

is held in March each year. The counts are designed to offer a snapshot of commuter usage on

an average Tuesday and allows Councils to better understand the existing usage of their

commuter cycle path network.

On Tuesday 3 March 2015 between 7am and 9am, counts were undertaken in 8 locations within

the City of Port Phillip (Figure 3.6). While no counts were taken nearby the St Kilda Triangle, the

data gathered can assist in learning the trends within the municipality. The following was

identified:

The busiest site (St Kilda Road at Domain and Albert Roads) had a total of 1,191 bicycle

riders.

Female riders represented 24% of bicyclists across the municipality.

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Figure 3.6: City of Port Phillip Super Tuesday Locations and Number of Bikes

3.4 Public Transport

There are a number of public transport services near or adjacent to the study area, which are

shown in Figure 3.7. Trams are the primary mode of public transport access to the site, with two

stops adjacent to the site – Stop 188 Luna Park / The Esplanade at the east end of the northern

site boundary and the Robe St / The Esplanade stop at the west end of the northern site

boundary. These stops are serviced by the 3a2, 16 and 96 tram routes, which take approximately

30 minutes to get to the CBD (Southern Cross Train Station). The frequency and hours of these

tram services are shown in Table 3.2.

2 The 3a tram service is a weekend only service. The weekday 3 tram services do not operate via St Kilda.

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Figure 3.7: PTV Port Phillip Local Area Map

Source: PTV Port Phillip Local Area Map

Table 3.2: Tram Services at Stop 188 – Luna Park / The Esplanade (St Kilda)

Ro

ute

No

.

Route

Description

Hours of Operation Freq.

On/Off

Peak

Weekday Saturday Sunday

Inbound Outbound Inbound Outbound Inbound Outbound

3a

Melbourne

University –

East Malvern

Does not operate via

St Kilda on weekdays

5:45am to

12:45am

7:00am to

1:55am

7:25am to

11:10pm

8:45am to

12:25am

na / 13

mins

16 Melbourne

University – Kew

via St Kilda Beach

5:35am to

12:40am

6:00am to

1:30am

5:35am to

1:40am

6:05am to

2:30am

6:45am to

12:00am

7:55am to

12:10am

10 mins /

18 mins

96 East Brunswick –

St Kilda Beach

5:30am to

12:45am

5:20am to

12:40am

5:30am to

1:45am

5:20am to

1:40am

7:50am to

12:30am

7:45am to

12:20am

6 mins /

17 mins

Yarra Trams have released 2014 annual patronage data for all of their routes. The patronage for

the three lines adjacent to the St Kilda Triangle are as follows3:

Route 96 – 15.4m (approx. 300k per week)

Route 16 – 8.2m (approx. 150k per week)

Route 3/3a – 5.5m (approx. 100k per week)

Yarra Trams have stated that approximately 3.5 million trips occur on the network, with 14.3% of

these trips occurring on weekends. Specific information relating to the sections of the routes that

travel through St Kilda has not been able to be sourced at this time.

3 http://www.yarratrams.com.au/about-us/who-we-are/facts-figures/

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Tram

Stop 138

Robe St

Tram Stop

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In addition to these three tram routes, there are a few bus routes that travel near the site,

including:

606 – Elsternwick Station to Fisherman’s Bend

623 – Glen Waverley to St Kilda via Mount Waverley, Chadstone, Carnegie

970 Night Rider – City to Frankston

3.5 Local Car Sharing Services

There are six nearby car sharing services (operated by GoGet, FlexiCar and GreenShare Car)

within 400m of the site, as shown in Figure 3.8.

Figure 3.8: Local Car Share Pods

3.6 Traffic Volumes

3.6.1 Jacka Boulevard (VicRoads Controlled)

Jacka Boulevard lies to the southwest of the study area and functions as an arterial road. It is

located within a Road Zone (Category 1) in the Port Phillip Planning Scheme. It is a two-way road

aligned in a north-south direction and configured with two separated two-lane carriageways

totalling 12 metre, set within a 19 metre wide road reserve (approx.). Jacka Boulevard

experiences significant volumes, with approximately 33,000 vehicles per day4.

4 Source: 2013 data, VicRoads’ Traffic Volume Data for Victoria, prepared by Information Management and Technology in July

2014.

FC

FC GS

GG GG

GG

Subject

Site

LEGEND:

GoGet

GreenShare Car

FlexiCar

GG

GS

FC

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3.6.2 Local / Council Roads

A number of council operated roads exist within the vicinity of the site. These include The

Esplanade to the north, Lower Esplanade to the immediate north, Cavell Street to the immediate

east and Shakespeare Grove to the east.

3.7 Car Parking

3.7.1 Seasonal Variation in Parking Demands

Visitor activity in the St Kilda precinct is highly seasonal, and by extension so too are parking

demands on the existing at-grade car park. Figure 3.9 illustrates the yearly variation in car parking

demand for the existing on-site car park, using the paid parking transactional information

sourced from the City of Port Phillip (presented in the Arup 2015 report - St Kilda Triangle Carpark

Investigation Final Report).

Figure 3.9: Yearly Car Parking Transaction and Demand Profile

[1]

Total Theoretical Unconstrained Demand = Constrained Transactions + Additional Unconstrained Demand

Source: St Kilda Triangle Carpark Investigation Final Report (Arup, 2012)

Based on Figure 3.9 and other information presented in the Arup 2012 report, the following is

noted:

The summer holiday period (approximately November to January) experience a

significantly higher demand than the remainder of the year.

Due to parking reaching capacity, there is additional ‘latent demand’ anticipated of

up to approximately 4,200 vehicles which are not accounted for in the recorded

transaction data due to supply side constraints.

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A moving average applied across the monthly data indicates that parking demand

generally correlates with the typical peak tourism seasons. It is not apparent why

parking demands dropped significantly in February, however there may be an

association with the return to school after which demand increases again around

Easter.

3.7.2 Weekly Variation in Parking Demands

In addition to the above seasonal variation in car parking demands experienced on-site and

within the proximate area, there is also variation across the week, with weekdays generally

experiencing a lot lower demand than on the weekends.

More detailed information on this weekly variation in parking demand is outlined below.

On-Site

There are currently 341 spaces located on-site, including one disabled space. All spaces have

P ticket 8am-midnight restrictions ($5 per hour or $12 per day). Based on car parking surveys

completed in February 2013 by BVY Traffic Survey of the on-site car parking facilities, the following

was identified:

Weekday demands range between 3% at 8am to 16% at 2pm, with an average

duration of stay of 0.6 hours (36 minutes).

Weekend demands range between 64% at 10am to 100% at midday, with an average

duration of stay of 4.2 hours (4 hrs, 12 minutes).

The recorded parking demands on-site indicate that weekday and weekend parking demands

differ significantly. Essentially, the on-site car park has little use during typical weekday business

hours, but when major events are on at the Palais Theatre and weekends during the summer, on-

site car parking reach capacity. During these peak parking events, it is expected that demand

will far outstrip supply, and whatever car parking is provided will be filled. As such, consideration

will need to be given to priority of use for on-site parking and how it is best managed during peak

periods.

Off-site

In the St Kilda precinct very is a variety of parking opportunities. A summary of the various car

parking surveys undertaken for Council of the precinct are provided in the traffic data report

reprepared by Ratio Consultants in August 2015, which indicates the following:

There are a number of publicly available on-street paid parking locations surrounding

the site, including The Esplanade, Lower Esplanade, Cavell Street, Shakespeare Grove

and Jacka Boulevard.

These locations experience similar demand profiles to the on-site parking, i.e. lower

weekday demands and up to 100% on weekends, and generally have paid parking

restrictions.

Jacka Boulevard is slightly different with weekend parking peaking at 70% between

2pm and 6pm, but this is most likely reflective of the lower theoretical capacity for on-

street car parking areas to large off-street car parks and its low attractiveness as it

moves away from the key attractors in the area.

Moreover, car parking demands around the nearby retail areas of Fitzroy Street and Acland

Street have more comparable weekday and weekend demand levels, but weekend demands

are still higher, at least during and generally reach theoretical capacity of 85% for on-street

parking.

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Essentially, this indicates that the majority of the public car parking facilities in the area reach

capacity during peak periods, which commonly results in excessive vehicle circulation in search

of a vacant car space and intrusion into the surrounding residential areas. Consideration will

need to be given to how this is managed into the future, especially if additional attractors are

proposed as part of the St Kilda Triangle.

It is noted that due to the relatively low occupancy of car parks for the majority of the time, it

may not be efficient or desirable to provide significant additional car parking to service peak

demands. Rather, demand management strategies should be considered for peak times, to

better balance supply and demand for parking across weekly and seasonal variations. Indeed,

there is already a strong community expectation that parking is likely to be available during the

week and in off-peak times, but not during busier times when non-car modes may need to be

used.

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4. Issues & Opportunities

4.1 Overview

Based on the transport related information presented in the previous sections of this document,

the following issues and opportunities exist with the access of the St Kilda Triangle (subject site).

4.2 Mode Splits

While the mode split data indicates that almost half of people accessing the study area are

already using alternative transport modes to driving a car, public transport and bicycle use are

considered to be modes that are underperforming and could be better supported to further

reduce the reliance on private car use (particularly during peak times of the year, when demand

for car parking outstrips supply).

The mode splits also identify that St Kilda services a more local catchment in the weekends, with

a high proportion of pedestrian trips into the centre. For a state or national significant

development to be accommodated on the St Kilda Triangle site, a significant focus on how

visitors from further abroad will access the site needs to be undertaken.

4.3 Pedestrians

Specific with the subject site, there are a number of pedestrian connectivity issues as follows:

High traffic volumes and speeds on Jacka Boulevard, with only limited number of

crossing opportunities through signalised crossing facilities that prioritise traffic

movements (despite the designation as a pedestrian priority area in the network

operating plan).

Height differential between The Esplanade and Jacka Boulevard, noting that The

Esplanade accommodates tram routes 3a, 16 and 96, which present a challenge for

integration between the Esplanade and the foreshore.

Given the above, pedestrian connectivity to and through the site should be investigated and

improved where possible. It is noted that Jacka Boulevard between Fitzroy Street and

Shakespeare Grove is a ‘Pedestrian Priority Area’ based on the Port Phillip Network Operating

Plan5. As such, pedestrian movements should have priority over vehicle movements along this

section of road.

4.4 Cycling

Cycling to, from and through the site already occurs however can be significantly improved on

inference to the following:

While there are existing bicycle facilities that travel parallel with the foreshore, there are

limited facilities that extend perpendicular to the foreshore that link through to the large

residential population in the area, especially between Barkly Street and Fitzroy Street,

which would directly connect with the site.

5 Further details provided at https://www.vicroads.vic.gov.au/traffic-and-road-use/traffic-management/smartroads

4

https://www.vicroads.vic.gov.au/traffic-and-road-use/traffic-management/smartroads

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There is an existing Melbourne Bike Share Station on the Lower Esplanade with limited

Wayfinding to it from the local attractors and public transport stops. Moreover, there

are two others in St Kilda, but nothing in the nearby suburbs (Prahran, Windsor,

Balaclava, Elwood and South Yarra) where visitors to St Kilda live and could cycle from.

The Beach Road cycling corridor, which includes Jacka Boulevard, attracts significant

recreational road cyclists most weekends. Iconic landmarks and cafes in St Kilda

regularly form meeting points at the start and end of these rides.

There are two main bicycle routes to the CBD from the site, one via Beach Road and

the Route 109 Tram Corridor (primarily off-road and suitable for less confident cyclists),

and directly via St Kilda Road (less safe due to conflicts with traffic and parked cars).

There is an opportunity to promote visitor / tourist access to St Kilda from the CBD via

bicycle, particularly via the Route 109 / Beach Road route.

4.5 Public Transport

The subject site is considered to have a high level of accessibility by public transport. However,

the mode split data for the area tends to indicate that its use is relatively low. This is considered to

be in part on the basis that public transport access to St Kilda is only really available through tram

routes 3a, 16 and 96, which all go through the Melbourne CBD and take approximately 30

minutes to get to St Kilda.

It is noted that Balaclava is only a 12 minute train ride from Flinders Railway Station and provide

access from the remainder of the rail network by linking with tram routes 3a and 16, as is

indicated in Figure 4.1. This is a key opportunity for the centre as a whole, particularly during peak

times where demand for parking outstrips supply.

Access by public transport from the south is considered to be of a good standard, given the

presence of a number of bus routes and the ability to transfer via Balaclava Station.

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Figure 4.1: Public Transport Accessibility to the East

4.6 Car Parking

The car parking surveys for the site and surrounding area indicates that the majority of the public

car parking facilities reach capacity during peak periods associated with the Palais Theatre and

weekend summer beach goers, but that there is also very low demands generated during

weekday days, especially in the winter months.

However, during the peak parking periods the unconstrained parking demands that could

potentially be attracted to the St Kilda precinct (i.e. if we provided an unlimited number of car

parking spaces) are not expected to be able to be feasibly accommodated on-site, at least

without eliminating the potential to redevelopment the site (i.e. would need to construct a multi-

deck car park on-site to accommodate the peak unconstrained parking demand generated by

the precinct).

On this basis, consideration of what on-site car parking facilities will be provided should be

focused on who the land use and users being supported are and how to prioritise their use. While

the existing on-site car parking facilities do currently support the broader precinct, at least in

peak times for those accessing the beach and Palais Theatre, its overall provision of 341 spaces is

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some 10% of the overall supply in the area. As such, there is considered to be ability to

investigate parking at a precinct wide level, to improve management and better utilise this

significant asset.

Moreover, in the context of the overall precinct, the Triangle Site is not considered to be the best

location to provide a significant level of car parking, as it would attract increased traffic volumes,

which are not likely to be able to be supported by the surrounding road network and result in

increased levels of congestion, which also has negative amenity impacts on the area. It would

be considered to be preferable to provide consolidated parking opportunities on the fringes of

the overall precinct and encourage walking and public transport use within the centre. While this

may be outside the scope of this project, a wider appreciation of parking management

throughout the centre (including how to manage peak seasonal demands) may provide benefit

to the site and reduce the need to provide parking on site.

Having regard for the above, it is recommended that the on-site parking provisions are designed

to achieve the following:

Prioritise its use to customers of the on-site land uses, including the Palais Theatre

Investigate opportunities to provide for staff to park in proximate off-street car parking

facilities that have suitably well connected pedestrian access to the site.

Try and coordinate activities on-site to generate peak parking demands when there

are high vacancies in the surrounding public parking provision (i.e. weekdays).

When on-site events do occur when peak parking demands in the surrounding precinct

also occur, the use of ‘event’ based transport management arrangements should

implemented to help manage the parking demands and reduce private car use in

accessing the area.

For understanding and guidance on what additional car parking demands might be generated

by the on-site facilities currently being proposed, indicative car parking rates have been

identified in Section 6.2.

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5. Interim Master Plan

The St Kilda Triangle Stage 2 Interim Master Plan (September 2015) establishes a framework for the

connections, broad land uses, massing and location of built form arrangements for the site.

These various aspects are generally shown in Figure 5.1, and include the following land uses:

a cultural facility ranging from art galleries, music and performance venues, or

artisans studies (approx. 17,000sqm)

a hotel (approx. 3,500 sqm)

ancillary uses such as visitor facilities, retail, food and beverage and live music

(approx. 3,000sqm)

Figure 5.1: Interim Land Use Masterplan (Jacka Boulevard Level)

The interim Master Plan also provides some strategies for scalability of land uses through varying

the built form, such as ‘pushing’ or ‘pulling’ the design envelopes up and down on different

portions of the site.

In addition, a subterranean car park of some 350 car parking spaces (based on an estimate of

36sqm/space and 13,600sqm footprint) and a loading dock that can accommodate vehicles up

to and including 19.0m long semi-trailers is envisaged. Access for both these facilities are currently

proposed to occur from Cavell Street.

It is noted that the above level of detail is consistent that normally provided for a masterplan.

Further detail and potential facility options and treatments are discussed in Section 6. However,

all aspects of the proposal are still subject to further investigation and change, with a number yet

to be fully tested from a design, approval and feasibility perspective.

5

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6. Transport Response

6.1 Overview

Based on the findings and analysis presented in this report, vehicular access to and parking

availability in the precinct is limited, particularly during peak periods. At a fundamental level, it is

not appropriate or feasible to significantly increase traffic capacity or the supply of parking on-

site or in the overall St Kilda precinct. Moreover, it is not considered feasible to provide sufficient

parking to meet the unconstrained demand of the precinct and that additional parking would

only encourage even more people to drive. As such, providing significantly more parking would

result in an even more car dominated environment and further exacerbate the negative effects

(such as poor pedestrian amenity and congestion) that exist, as well as continue to have low

utilisation of car parking facilities during the majority of the year.

On this basis, there are a number of aspects of the parking and access strategy for the St Kilda

Triangle site which are best considered as part of a wider precinct-based approach to transport

and land use activity. There is also a need to provide a reasonable level of car parking on-site to

support the proposed and existing land uses. However there is a need to separate out the existing

precinct wide issues that should not restrict the potential redevelopment of the St Kilda Triangle,

especially given the broader benefits it will likely provide.

The peak visitation periods for the precinct represent both a challenge and a key opportunity for

the site. In this regard, it is proposed to manage these busier times of the year through ‘event

management’ type strategies, rather than ‘supply side’ measures, including encouraging visitors

to use modes other than private vehicles, where possible.

The following points outline the general response to the overall challenges facing the wider

precinct, as well as the site and its development:

The seasonal ‘feast or famine’ situation has resulted in inefficient use of transport assets,

as well as limiting its level of attraction to the wider community as a place to visit due to

a lack of accessibility and parking.

The redevelopment of the Triangle provides a significant opportunity to increase the

level of activity during the quieter periods, but could also exacerbate congestion and

amenity issues during the peak activity periods.

The type of land use proposed for St Kilda Triangle is likely to have a strong regional,

interstate and potentially international attraction capacity, and as such is well placed

to encourage strong public transport and organised tour group mode share.

The Triangle will need to ensure that it accommodates its typical weekday activities

(either on site or in the wider area), and help implement ‘event management’ transport

measures and marketing to ensure peak period congestion and a lack of parking don’t

detract from user experience and success of the site.

The transport response should ideally be linked to the overall transport and economic

objectives for both the site and wider precinct, and should be delivered in an

integrated manner. Specifically, the interaction of any car parking management

changes, incentives for public transport use, and other limitations on private vehicle

travel (such as congestions, parking pricing and availability) should be coordinated to

achieve a progressive shift to more sustainable transport modes.

6

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6.2 Car Parking

6.2.1 Development Generated Car Parking Demands

There are a range of potential land uses that have been proposed as part of the various options

for the site, which can be expected to generate various car parking demands. In this regard, this

section sets out what the statutory car parking rates are for each proposed land use, as well as

an outline of what the anticipated site specific car parking demands would likely be.

Statutory Car Parking Rates

Statutory car parking rates are set out in Table 1 to Clause 52.06-5 of the Port Phillip Planning

Scheme. The statutory parking rates for the currently proposed land uses are listed in Table 6.1.

Table 6.1: Statutory Car Parking Rates

Use Rate

(column A) Measure

Cultural / Other

Art & craft centre 4 To each 100 sq m of site area

Education Centre 0.4 To each student permitted

Place of assembly except amusement

parlour (includes gallery/museum &

function centre)

0.3 To each patron permitted

Ancillary Uses

Food and Drink

Convenience restaurant 0.3 To each patron permitted

Food & drink premises 4 To each 100 sq m of leasable floor area

Restaurant 0.4 To each patron permitted

Retail

Market 8 To each 100 sq m of site area

Restricted retail premises 3 To each 100 sq m of leasable floor area

Shop 4 To each 100 sq m of leasable floor area

Commercial

Office 3.5 To each 100 sq m of net floor area

Hotel

Residential Hotel [1] 0.5 To each room

[1] No rate is specified in the Planning Scheme for a Residential Hotel. As such, empirical data has been used in this instance

The above ‘Column A’ statutory parking rates are applied throughout Victoria (i.e. consistent with

the Victorian Planning Provisions), except within activity centres where a parking overly has been

adopted and lower ‘Column B’ statutory parking rates (typically 12.5% to 25% lower).

Decision Guidelines

With regard to the statutory parking requirements, the Planning Scheme indicates that a Car

Parking Demand Assessment can be undertaken to support lower car parking rates. The

assessment considers the following:

“The likelihood of multi-purpose trips within the locality which are likely to be combined

with a trip to the land in connection with the proposed use.

The variation in car parking demand likely to be generated over time.

The short-stay and long-stay car parking demand likely to be generated.

The availability of public transport in the locality of the land.

The convenience of pedestrian and cyclist access to the land.

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The provision of bicycle parking and end of trip facilities for cyclists in the locality.

The anticipated car ownership rates of visitors to or occupants of the land.

Any empirical assessment or case study”

The combination of these factors often results in different car parking rates being generated for a

specific site to the statutory rates. A high level assessment of the likely car parking rates for the St

Kilda Triangle is presented below.

Site Specific Considerations

Mode Splits

At a broad level, car parking rates for the St Kilda Triangle could be expected to differ

proportionally from the statutory rates based on the comparative car (as driver) mode shares.

In this regard, Table 6.2 has been prepared to summarise the readily available mode split data for

the study area and Metropolitan Melbourne (i.e. where statutory rates are generally applied).

Table 6.2: Summary of Weekday Mode Split Data

Method of Travel Metropolitan

Melbourne[1]

St Kilda

SLA[1]

Palais

Theatre [2]

Acland

Street [3]

Acland

Street [4]

Vehicle Driver 55% 46% 58% -

Vehicle Passenger 21% 15% 13% -

Car + Other (non-public transport) - - 2% -

Total Private Vehicle 76% 61% 73% 17% 32%

Public Bus 1% 1% 0% 2%

68%

Train 5% 7% 2% -

Tram 2% 5% 11% 20%

School Bus 1% 0% - 0%

Mixed Public Transport/Other - - 5% -

Total Public Transport 9% 14% 18% 22%

Bicycle 2% 4% 0% 10%

Walking 13% 18% 4% 50%

Total Active Travel 14% 22% 4% 60%

Total Other (taxi,

motorcycle/scooter) 1% 3% 5% 1%

Total 100% 100% 100% 100% 100%

[1] VISTA 2009-2010 average for the Melbourne Statistical Division

[2] Austraffic Palais Intercept Surveys, 2013

[3] Acland Street Upgrade – Community Engagement Summary Report: How survey respondents usually travel to Acland Street.

(Note: more than 85% of respondents live in St Kilda)

[4] TrafficWorks – Acland Street, St Kilda – Traffic Study Summary

While St Kilda SLA and metropolitan Melbourne have relatively high car mode share of 61% and

76% respectively, the Acland Street surveys indicate a much lower level of car use in St Kilda (17%

to 32% depending on the survey used). By comparison, the mode share data recorded at the

Palais Theatre is similar to that observed in the VISTA data for the St Kilda SLA.

In light of the available data, a ‘car as driver’ mode share of around 50% is considered

reasonable as a starting point for the subject site, noting that it may differ based on the type of

land use proposed.

On this basis, it is considered reasonable to reduce the statutory car parking rates to be reflective

of the site location, proximity to activity centres and accessibility by alternative transport modes.

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It is considered appropriate to adopt a reduction of the short-term / visitor rates as they are often

part of multi-purpose trips (visiting more than one destination in a single trip or already being

within walking distance of the site) as well as the ability to share parking facilities with other uses in

the centre. Long-term / staff parking demands, are also proposed with a similar reduction to the

statutory rates.

On the above basis, it is recommended that a 25% reduction from the statutory rates is

warranted.

Short-Term / Long-Term Splits

Table 6.3 provides the typical user splits between short-term / visitor and long-term / staff parking

demands for the currently proposed land uses.

Table 6.3: Short-Term/Visitor and Long Term/Staff User Splits

Use Visitor / Short-Term Staff / Long-Term

Cultural / Other

Art & craft centre 80% 20%

Education Centre 75% 25%

Place of assembly except amusement parlour (includes

gallery/museum & function centre) 80% 20%

Ancillary Uses

Food and Drink

Convenience restaurant 80% 20%

Food & drink premises 80% 20%

Restaurant 80% 20%

Retail

Market 80% 20%

Restricted retail premises 80% 20%

Shop 80% 20%

Commercial

Office 10% 90%

Hotel

Hotel 90% 10%

Site Specific Parking Demand Rates

By applying the indicated reduction factors and the user splits to the statutory parking rates, the

anticipated St Kilda Triangle parking rates are provided in Table 6.4.

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Table 6.4: Site Specific Parking Rates

Use Visitor / Short-Term Staff / Long-Term Measure

Cultural

Art & craft centre 2.4 0.6 To each 100 sq m of site area

Education Centre 0.23 0.08 To each student permitted

Place of assembly except

amusement parlour (includes

gallery/museum & function centre)

0.18 0.05 To each patron permitted

Ancillary Uses

Food and Drink

Convenience restaurant 0.18 0.05 To each patron permitted

Food & drink premises 2.4 0.6 To each 100 sq m

Restaurant 0.24 0.06 To each patron permitted

Retail

Market 4.8 1.2 To each 100 sq m of site area

Restricted retail premises 1.8 0.45 To each 100 sq m

Shop 2.4 0.6 To each 100 sq m

Commercial

Office 0.26 2.36 To each 100 sq m

Hotel

Hotel [1] 0.34 0.04 To each room

[1] No reduction applied to the empirical car parking rate used

It should be noted that the above reflects a high level assessment of potential site specific car

parking rates. Further refinement and consideration of the specific land use mix and transport

initiatives incorporated as part of this project is expected to be undertaken.

At a minimum, empirical data for similarly located land uses should be undertaken once they

have been confirmed, to understand in more detail who and how people will access the site (i.e.

what proportion will travel from out of state and through tour groups).

As such, the above rates are considered to only be indicative and for master planning purposes.

Site Generated Car Parking Demands

Due to the nature of the Interim Master Plan and application of car parking rates, the resulting

car parking demand estimates are preliminary in nature. Notwithstanding, the indicative parking

demand estimates have been provided in Table 6.5.

Table 6.5 indicates that in the order of 332 to 607 visitor (short-term) and 85 to 154 staff (long-term)

car parking demands could be expected to be generated.

Consideration of how this might be suitably managed is discussed in the subsequent below.

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Table 6.5: Site Generated Car Parking Demands

Description Adopted Land

Use

Size Car Parking Demand

Low Estimate High Estimate Short Term Long Term

Cultural Facility

(art galleries, music and

performance venues, or

artisans studios)

Place of

Assembly

17,000sqm 153 to 306

spaces 43 to 85 spaces

850 patrons [1] 1700 patrons [2]

Hotel Residential Hotel 3,500sqm

24 to 48 spaces 3 to 6 spaces 70 rooms [3] 140 rooms [4]

Ancillary Uses

(such as Retail, food and

beverage. Live music)

Restricted Retail 1,500sqm 500sqm

155 to 253

spaces 39 to 63 spaces

Food and Drinks

Premises or Shop 1,000sqm 500sqm

Restaurants [5] 500sqm

(333 patrons)

1,000sqm

(666 patrons)

Market 500sqm 1,500sqm

TOTAL 332 to 607

spaces

85 to 154

spaces

Note: Parking demand estimates are subject to a number of assumptions, including land use estimates which are subject to external

considerations and significant further design development. They are provided for context during the collaborative design process only,

and should not be relied upon for any other purpose or reproduced.

[1] Assuming a visitor density of 10sqm floor area per person

[2] Assuming a visitor density of 20sqm floor area per person

[3] Assuming a 50sqm floor area per hotel room

[4] Assuming a 25sqm floor area per hotel room

[5] Assuming 3sqm restaurant gross floor area per seat

6.2.2 Parking Management Approach

Car Parking Supply

As noted in Section 5, the interim Master Plan envisages that a parking supply of approximately

350 spaces would be able to be provided within the subterranean car park. An indicative layout

plan has been developed which demonstrates that these spaces could feasibly be achieved,

noting that there is currently no consideration of structural (column) impacts and provision of

pedestrian facilities through the car park has been provided.

While this level of provision is generally consistent with what is currently provided on-site, it is less

than the car parking demand estimates for the proposed land uses. As such, there will likely be at

peak times a need for users to utilise the surrounding car parking facilities. The extent to which

reliance on surrounding car parking supply is not considered significant, especially if the

programing of events align with periods that parking demands in the area are low (i.e. during the

working week).

It is also expected that events at the Palais Theatre will also be programed to utilise periods when

car parking demands in the area are low, or at least not result in any significant change to its

existing operational impact.

Appropriateness of Unconstrained Parking Demand

During peak activity periods, parking occupancy on the site and its surrounds becomes saturated

with minimal availability. This ‘constrained parking demand’ scenario and the relative

inconvenience of driving acts as a ‘push factor’ toward public transport use, walking, cycling

and car-pooling. There may also be a decentralising effect involving parking demand shifting

further afield to nearby areas.

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On the above basis, it not considered practical nor desirable to design for periods of peak

parking. It is more desirable to encourage use of car-alternate modes for accessing the precinct.

Whilst decentralised on-street parking may be a management issue for Council, it is within their

control to manage the asset for the desired user category (such as through permit restrictions).

Alternatively, should Council consider that on-street car parking (a Council resource) and its

availability is not a right for residents in isolation, then some on-street parking may be made

available for the activity centre more generally by deregulation of permit schemes.

Alternatively, decentralised off-street car parking could be provided in off-street locations where

large vehicle volumes accessing the dedicated facility do not detract from the public realm or

other road users.

Displaced Car Parking Demand

Future development on the site would be entitled to restrict car park usage on-site to those

accessing the associated land uses via fee structures; parking validation or allocated parking

measures (although this may not be in the best financial interests of the operator). Even in the

absence of the above, during periods of high parking demand it would be likely that new

parking demand generated by land uses on the site would displace existing parking demands

that are currently accommodated on-site.

It is considered reasonable that at a precinct level these displaced car parking numbers are

supported through any or all of the following:

changes in mode choice away from private car use, either through restriction in the

provision and/or through improved alternative transport offerings

changes in car parking restrictions and / or costs

provision of additional car parking facilities in the precinct (i.e. multi-deck car park)

Off-Site Car Parking

Following from the above, there are considered to be other, more feasible sites able to be used

for providing additional parking. These sites identified for further consideration include:

Cavell St

Shakespeare Grove

2 Belford Street

36 Jackson Street

Peanut Farm Reserve

Fitzroy Street Car Park

The above sites may be considered in further detail by others at a future stage.

In addition to the above, there is also the possibility that existing and future private car parking

facilities help support parking provision in the precinct, such as those within the supermarkets on

Acland Street and Fitzroy Street, or office blocks that make their parking available in weekends.

Parking Demand Management

There are many ways to improve the manage car parking demands and facilties through parking

restrictions, fee schemes, and other regulatory or incentive frameworks, as discussed below.

Prioritise visitor parking demands: Visitor parking demand is typically shorter term in

nature and generates more revenue on a per unit of time in comparison to other uses

of car parking (such as commuter car parking). Visitor parking demands can be

prioritised through paid parking schemes which provide free short term parking (such as

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less than 2 hours) and more expensive fees for medium to long term parking. The

objective of this is to facilitate increased turnover and more efficient parking assets.

Encourage longer stay demands to move to alternative transport modes: Similar to the

above, fee structures that are not compatible with long stay parking demands can act

as a ‘push factor’, making other transport modes more affordable and convenient for

some users. There is empirical evidence that it is also easier to push long stay parking

users to alternative transport modes than short-term ones.

Link precinct parking arrangements with other transport services: A precinct based

parking arrangement which utilises decentralised car parking could be promoted

through introduction of a free shuttle bus or free tram zone during peak periods.

Parking ticket validation: Parking ticket validation machines can enable viable

customer and shopper parking demands to be exempt from parking fees. In theory, this

limits the ability of visitors from accessing free parking when they are not a visitor of the

destination, but rather the precinct more generally.

Statutory Parking Controls

Whilst not part of this study, there are a variety of mechanisms available within the context of the

Victorian Planning Provisions by which car parking can be managed. This includes:

Parking Overlay: Including the potential for reduced car parking rates below that the

‘standard’ Column A and Column B rates specified in Clause 52.06 of the Planning

Scheme, as well as other guidelines and requirements.

Cash-in-lieu schemes: A cash contribution can be made by new developers in lieu of

providing physical car parking on a site. This essentially funds the provision of off-site

publicly available parking resources which can be more efficiently shared between

different user groups over the course of the day. This could include a contribution from

the future developer of the St Kilda Triangle site for car parking demands directly

associated with the proposed uses which could be provided in a decentralised

location as to not detract from the foreshore precinct.

Wayfinding and Parking Guidance Signage

Parking wayfinding and guidance signage become increasingly relevant and effective when

parking occupancy is very high. They can reduce driver search times (and thereby reduce

circulation) as well as increasing the ‘effective’ utilisation. For instance, as a rule of thumb 85%--

90% is considered the theoretical maximum occupancy (accounting for turnover etc.) however

with guidance signage this can be increased to perhaps 95%. It would also be recommended

that the on-site car park be fitted with boom gate control and a detector system in order to

prevent circulation into the car park when it becomes full.

6.3 Public Transport Strategy

Access to the precinct by private vehicle already exceeds the available capacity during peak

periods. As such, there is a need to facilitate a greater share of trips to and from the precinct by

non-car transport modes, particularly high capacity options such as public transport.

As such, broad level public transport opportunities have been indicated for further consideration

which could strengthen the accessibility of the precinct and ultimately contribute to its success.

These include investigation of:

the feasibility of running additional tram services directly between Balaclava Station

and The Esplanade via Carlisle Street, instead of traveling along and terminating on

Acland Street

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improving intermodal connectivity between train, tram and/or bus services, such as

those associated with Balaclava Station

marketing programs of promotion of the existing public transport connectivity and

services

the ability to run new, upgraded or additional services.

Further investigations of public transport marketing and service improvements may be

undertaken as a separate exercise to the main master planning exercise, potentially once further

details are available regarding the end user or tenant for the site.

6.4 Abutting Road Network Strategy

Cavell Street

Shared Zone

The northern end of Cavell Street has been earmarked as a shared zone, facilitating an improved

front door to the Palais Theatre and acting as a pedestrian gateway to the St Kilda foreshore and

triangle precinct, particularly for those arriving via the adjacent tram stop along the Esplanade.

The following complementary works would also assist in promoting a successful shared zone:

Provision of an on-site loading area, so heavy vehicles do not need to access The

Esplanade

Closure of the median break on The Esplanade to prohibit right turn movements into

and out of Cavell Street. This would also provide safety benefits tot eh pedestrian

crossing and tram services on The Esplanade.

It is understood that the reason the right turn movements into and out of Cavell Street are

currently provided is that they support local residents to the north access Jacka Boulevard.

However, it is noted that various U-turn opportunities are available along The Esplanade that

could be used for this purposes, as illustrated below in Figure 6.1.

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Figure 6.1: U-turn Opportunities

Aerial from Nearmap

On-Street Parking

It has been proposed that the existing parking along the east side of Cavell Street be

reconfigured to parallel kerbside parking, facilitating an increased footpath width. The resulting

additional width could be used for street markets during certain times of year, or simply for an

improved pedestrian realm and urban design outcomes.

If pursued, it would be recommended that kerbside parking spaces be provided at

approximately 2.3m wide by 6.0m long.

The existing road reserve of Cavell Street appears to be approximately 25.5m wide, with its cross

sectional configuration from east to west including (approximately) a 4.0m wide footpath, a 2.3

parallel parking lane, an 9.0m carriageway, a 5.2m row of angled parking, and 5.0m footpath. As

such, there is significant potential to improve walking amenity through introduction of

landscaping features such as planting and trees, seating, and other street furniture such as

bicycle parking.

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Figure 6.2: Potential Future Cavell Street Cross Section

Created using Streetmix.net

Jacka Boulevard

Variable 40km/h Speed Environment

It is recommended to install dynamic signage to introduce a 40km/h speed limit along Jacka

Boulevard between Fitzroy Street and Shakespeare Grove when pedestrian crossing volumes are

high (i.e. summer weekends) or once the site is developed given that it is a ‘Pedestrian Priority

Area’ based on the Port Phillip Network Operating Plan.

Pedestrian Permeability

It is proposed that the existing pedestrian crossings along Jacka Boulevard be rationalised to

provide wide and high amenity crossing points along key pedestrian desire lines. The nature of

the crossings would be similar to those that already exist across Jacka Boulevard and The

Esplanade at the southern end of Fitzroy Street. The specific locations of the crossings will be

subject to the design of the site and connectivity with the various facilities on the southern side of

the road.

Coach Access

The proposed land uses are likely be a significant tourism attractions and generate a requirement

for coach vehicle stopping locations. Cavell Street is not considered appropriate for such

activities as it may detract from pedestrian amenity and streetscape improvements outlined

above. Rather, it is preferred that a coach stop be provided on the northeast side of Jacka

Boulevard adjacent the site. Given the configuration of the adjoining network, and depending

on the number of bus movements generated to and from the site, a bus U-turn slot (northbound

to southbound) may be necessary from kerbside including a dedicated traffic signal phase. Such

as the current arrangement on St Kilda Road outside the National Gallery of Victoria and in the

shadow of the signalised pedestrian crossing.

This treatment would involve some realignment of the road including closure of the existing

median U-turn bay, which predominately exists to provide access to the left-in/left-out car park

access point and will be unneeded in future.

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6.5 Loading Strategy

It has been identified that a loading area would be provided on the southwest side of the Palais

Theatre. Loading associated with the Palais Theatre is currently accommodated along Cavell

Street, and managed by use of bollards. The future on-site loading arrangement would provide

for both the Palais Theatre and future development on the St Kilda Triangle Site. The advantage

is that large vehicles would not need to travel north along Cavell Street to exit via The Esplanade.

At this time, the proposed loading area is expected to be able to accommodate vehicles up to

and including 19.0m long semi-trailers.

6.6 Managing Peak Transport Demand

The precinct experiences particularly high activity during summer and the transport network lacks

capacity at these times (particularly car parking availability and traffic congestion). Whilst it is not

practical or desirable to design the road network and parking supply these periods, there is

potential to manage access to the precinct through various ‘event management’ style initiatives,

such as:

Dedicated park and ride facilities such as a shuttle bus between an informal off-site

parking facility and the St Kilda foreshore

Roadside variable messaging to educate drivers of delays and/or limited parking

availability, with alternate suitable parking locations being recommended.

Marketing of public transport, walking and cycling options to access the precinct

Improvements or additional public transport services during peak times

Introduction of variable parking rates for peak and off-peak periods.

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7. Quick Wins

There are a number of projects that could be investigated and implemented in the short term to

improve the existing conditions, as well as the future development of the St Kilda Triangle.

The identified short term projects are listed below, and illustrated in Figure 7.1:

Install dynamic signage to introduce a 40km/h speed limit along Jacka Boulevard

between Fitzroy Street and Shakespeare Grove when pedestrian crossing volumes are

high (i.e. summer weekends) given that it is a ‘Pedestrian Priority Area’ based on the

Port Phillip Network Operating Plan.

Initially, investigate and improve key pedestrian desire lines across Jacka Boulevard

through a wide signalised crossing facility.

Improve Wayfinding and connectivity of the existing Melbourne Bike Share station on

Lower Esplanade to other major attractions in the area.

Promote tourist / visitor cycle access from the CBD via the Route 109 Tram easement

and Beach Road (potential partnership opportunity with bike share operator).

Investigate the potential for a local cycle route perpendicular to the foreshore through

the residential areas between Acland Street and Fitzroy Street.

Develop and distribute travel material for access to the area from the east via public

transport. This could be distributed through links on the websites of the major attractors

in the area and tickets to shows at the Palais Theatre (potential partnership opportunity

with PTV, similar to the Chadstone – Oakleigh Station promotional material).

Implement the proposed shared zone and (if desired) the parking reconfiguration at

the northern end of Cavell Street.

7

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Figure 7.1: Summary of Transport Response

LEGEND

DYNAMIC TIME-BASED 40KM/H ZONE

PROPOSED PEDESTRIAN SIGNALS

WIDEN PEDESTRIAN CROSSING

RECONFIGURE TO PARALLEL PARKING ON BOTH SIDES

SHARED ZONE

RESTRICT TO LEFT-IN/LEFT-OUT AS PART OF TRAM STOP UPGRADE

CAR PARK ACCESS POINT

LOADING ACCESS POINT (LEFT-IN/RIGHT-OUT ONLY)

COACH STOPPING ZONE

INVESTIGATE SIGNALISED U-TURN FROM KERBSIDE FOR BUSSES

IMPROVE CYCLING CONNECTION

Melbourne

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MELBOURNE VIC 3000

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Brisbane

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Adelaide

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Townsville

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Sydney

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CHATSWOOD NSW 2067

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Canberra

A Tower A, Level 5,

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Canberra ACT 2600

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Gold Coast

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PERTH WA 6000

P +618 6361 4634

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