THE TIME IS NOW Rail Grade Separation at Springvale...Contents 1.0 Executive Summary 1 1.1 The 3rd Rail 1 1.2 The Case for Grade Separation at Springvale 1 2.0 Introduction 3 3.0 Regional

THE TIME IS NOWRail Grade Separation at SpringvaleJuly 2007

THE TIME IS NOW Rail Grade Separation at Springvale July 2007 (131767)

Acknowledgements

Coomes Consulting Group Pty LtdUrban Design and Report Presentation

Economics and Planning Pty LtdPreliminary Cost Benefit Analysis Report

Contents

1.0 Executive Summary 11.1 The 3rd Rail 11.2 The Case for Grade Separation at Springvale 1

2.0 Introduction 3

3.0 Regional Context – Activity Centres and Public Transport 5

4.0 Background 7

5.0 Springvale – Strategic Barriers 95.1 General 95.2 Constrained Vision 95.3 Uneven and Lopsided Development 105.4 The Psychological Impact of the Railway Crossing 125.5 Springvale Road – Asset or Liability 13

6.0 Grade Separation 156.1 The Inadequacy of the Status Quo 156.2 Grade Separation – A Catalytic Project 156.3 Other Examples 166.4 A Busier Railway Line – Impacts 18

7.0 Urban Design – Analysis of Opportunities 19

8.0 The Economic Case 278.1 Economic Cost 278.2 Economic Benefits 278.3 Analysis Approach 288.4 Results 298.5 Conclusion 29

9.0 Conclusion 31


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11.1 The 3rd Rail

Springvale is a Major Activity Centre (‘Melbourne 2030’) in the heart of the south-eastern suburbs and is located at the junction of two of Melbourne’s busiest rail and road transport corridors.

The ‘Dandenong Rail Corridor Project’ initiative, of a 3rd rail line along the corridor between Caufield and Dandenong (which includes Springvale) is of State significance. Such a major project is welcomed and supported by Greater Dandenong City Council (Council).

The last 2 years has seen public transport patronage increase substantially in Melbourne, placing a strain on the existing network. Public transport must play an increasing role in moving people across the metropolitan area between areas of activity if the directions set in ‘Meeting Our Transport Challenges’ and ‘Melbourne 2030’ are to be met.

Five Major and one Principal activity centre are located along the corridor. The 3rd rail project provides an outstanding opportunity to capitalise on the directions set in these plans and to provide additional capacity for growth at these centres and across the transport system.

1.2 The Case for Grade Separation at Springvale

While the improved service levels and flexibility offered by a 3rd rail will be of significant benefit, the inclusion of grade separations at critical locations such as Springvale will greatly enhance the broader long term economic, social and environmental benefits of the project.

Springvale can be expected to develop over time in the directions set by ‘Melbourne 2030’, however its potential to grow into a vibrant, multi-facetted, and functionally superior centre is constrained by the current at grade rail and associated sub-standard train / bus transport interchange.

The inclusion of a 3rd rail, without a grade separation, may also limit the expected congestion benefits to Springvale Road with the opening of EastLink. This would be further aggravated when a 4th freight line is included at a later date.

At such time that the fourth (freight) line is required, grade separation will be essential to facilitate safe and sufficiently uncongested use of Springvale Road by vehicles and pedestrians. Therefore, undertaking grade separation now, will generate a saving by negating the need to grade separate at some point in the future.

1.0 Executive Summary

Conversely, the long-term development of Springvale and other Major Activity Centres along the rail corridor would be greatly enhanced by grade separation of road and rail. At Springvale this would consist of the railway being placed below Springvale Road.

The advantages created by a grade separation at Springvale are closely aligned with existing government policies, particularly ‘Melbourne 2030’ and ‘Meeting Our Transport Challenges’. These advantages are outlined below:

Land Use and Urban Development

Increasing the potential of Springvale to develop towards the upper end of what is possible for Major Activity Centres.

Providing a strong basis for improved economic growth and social cohesion of the centre.

Stimulation of commercial and residential development north of the rail corridor by removing the barrier of the rail line.

Enhancing, and improving the viability of higher density mixed-use development throughout the core of the centre, but particularly near a remodelled station.

Improving land-use integration across the centre, and facilitating the highest and best use of available land in and around the centre.

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Transport Network Function and Accessibility

Providing greater opportunities for efficient integration of transport modes, particularly public transport and walking, by the creation of additional north / south connections both east and west of Springvale Road.

Creation of a rail station at the heart of the centre, rather than to one side as it is now, which would create opportunities for an advanced and efficient intermodal public transport terminal.

Provision of opportunities to improve the accessibility of this Major Activity Centre by reducing future delays along Springvale Road for both private vehicles and the orbital bus route (SmartBus).

Ensuring that a 3rd (and 4th) rail line does not exacerbate the existing north / south division of the centre, by increased boom gate down times.

Increased safety for vehicles and pedestrians.

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Social and Environmental Benefits

Reduction in vehicle emissions due to easing of congestion on Springvale Road as well as facilitation of increased patronage on the public transport system.

Improved community connectedness, access to social infrastructure and encouragement of social interaction.

Improved residential amenity by reducing the additional noise created by increased train frequency (particularly when a 4th freight rail line is constructed).

Creation of safer and more liveable neighbourhoods, which encourage physical activity.

Facilitating the provision of a greater range and mix of vibrant businesses to encourage more local shopping as well as increased centre visitation from adjoining areas.

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The Time is NowIt is acknowledged that grade separations are costly. But amortised over the life of the infrastructure, the associated benefits of a grade separation at Springvale to current and future generations would be enormous.

Council investigations have shown that a grade separation at Springvale is economically, environmentally and socially beneficial. An economic benefit to cost ratio of 1.86:1 could be anticipated for such a project.

Not undertaking a grade separation as part of the 3rd rail project or, leaving it to “later”, will mean that Springvale (and other centres along the route which are not grade separated), as well as the broader community, will bear many additional costs. These include transport congestion, increased delays, safety issues, underperforming activity centres and poor social and environmental outcomes.

The 3rd rail project is a once-in-a-lifetime opportunity to create a significant legacy of high quality and well-considered infrastructure that will eradicate transport bottlenecks and stimulate the development of both Springvale and region for the next 50 years and beyond.

The time to seriously consider a grade separation at Springvale is now, while the 3rd rail project is being designed.

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2.0 Introduction

In late 2006 Council was approached by the Department of Infrastructure as part of its information gathering and consultation exercise, regarding the Dandenong Rail Corridor project.

Council understands that the project will provide for a 3rd rail between Caulfield and Dandenong and leave open the opportunity for a 4th rail to be built in the future dedicated to freight.

After digesting the potential implications and benefits of the project, Council came to the view that while it welcomed the project concept there could be a number of resulting and serious draw-backs at the Major Activity Centres of Springvale and Noble Park.

Accordingly, Council committed to its own strategic investigations into the potential benefits to be gained by grade separating the railway line on Springvale Road in Springvale and Heatherton Road in Noble Park.(A separate report is being prepared on the opportunities that exist at Noble Park).

The grade separation investigation has addressed the obvious impacts caused by the likely additional delays and congestion on the road network (caused by longer down time of boom gates) as well as the whole range of other factors that determine whether an urban centre is successful or not.

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These factors include:

Economic development and attractiveness to investors inclusive of a vibrant range and mix of businesses

Physical and social connectedness

Transport network function

Environmental sustainability

Urban form and liveability

Attractiveness to visitors

As an initial part of the investigation, Council engaged Sinclair Knight Merz (SKM) to test and assess the basic engineering and physical pros and cons of the various grade separation scenarios that could be expected at Springvale and also Noble Park.

Options considered and tested included:

Road over / rail at grade

Road under / rail at grade

Rail under / road at grade.

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For Springvale it was determined that a grade separation with the railway below Springvale Road was the superior long-term solution. Some reasons include:It could be undertaken with minimal physical impact on commercial and residential buildings.

It fully solved the fundamental north / south divide present in the Springvale Activity Centre.

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It was aesthetically and environmentally the best solution.

It had the potential to create additional air space or ‘land’ and pedestrian and road connections for the centre.

It would enable the creation of a superior intermodal transport interchange.

It would reduce the amenity impacts of a potential future freight line.

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The rail under scenario would involve a cutting either side of Springvale road of approximately 1km, depending on the final gradient chosen and the extent of a fully covered rail line around Springvale Road.

This report outlines the range of urban design, land use planning, economic, social, environmental and transport benefits and implications of a grade separation at Springvale.

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Springvale and Noble Park are two of the 6 major or principal activity centres clustered along the Dandenong rail corridor (i.e. Caulfield, Carnegie, Clayton, Springvale, Noble Park and Dandenong). The corridor forms part of the designated Principal Public Transport Network in ‘Melbourne 2030’.

Two of these centres (Caulfield and Dandenong) already have grade separations in place (with planned improvements at Dandenong) that facilitate accessibility. The other four activity centres are each located on arterial roads and suffer to varying degrees the barrier effect of the rail corridor and congestion at the at-grade rail crossings in each centre.

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3.0 Regional ContextActivity Centres and Public Transport

While each centre has a range of differing local issues to contend with, a common factor is that each is promoted in the State Government’s planning strategy ‘Melbourne 2030’as a key location for growth and development, particularly because each is close to good public transport services (the rail line and intersecting bus services).

The growth of each centre following ‘Melbourne 2030’ policies and directions is therefore intimately tied to the success of the rail corridor and the permeability, connectedness and integration of all the various transport modes on offer.

In other locations where improvements have been made to the rail and associated transport network, there have been positive regional impacts on the adjacent activity centres.

Additionally, successful well planned activity centres can have a positive influence on the use of public transport thereby underpinning the sustainability principles derived from State Government policies.

Figure 1 Regional Context

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Figure 2 Springvale context (Princes Highway to North and Heatherton Road to South Length of rail grade separation dashed

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7The Springvale Activity Centre (SAC) Draft Structure Plan was completed in 2005 with a key aim of developing Springvale so that it could fulfil its role as a Major Activity Centre as outlined in ‘Melbourne 2030’.

The objectives of the draft structure plan clearly align with ‘Melbourne 2030’ objectives. They include:

Improving, integrating and upgrading of public transport services.

Integration with the proposed Public Transport Network.

Providing a stable investment environment and improved synergies between private and public Investment.

Reducing car dependency.

Making neighbourhoods more liveable.

Creating more vibrant, interesting centres with a greater mix and range of uses.

Creation of opportunities for new housing and encouraging of higher density housing.

Achieving quality design outcomes.

Discouraging out of centre development.

Offering fair access for all to jobs, goods and services.

Encouraging a wider range of arts, cultural and entertainment facilities.

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4.0 Background

To fulfil the requirements of a Major Activity Centre, the structure plan outlines a broad range of actions and initiatives, from re-zonings, built form and massing guidelines to transport and housing proposals. In principle, the actions outlined in the draft structure plan, and the location of Springvale at the junction of two of Melbourne’s major transport corridors, stands it in good stead to fulfil ‘Melbourne 2030’ objectives.

However, a significant constraint identified in the Springvale Draft Structure Plan, is the effective separation of the centre into 4 distinct quadrants, north-south by the railway line and east – west by Springvale Road.

These barriers, and in particular the north-south barrier where there is only one crossing point for pedestrians and vehicles at Springvale Road, severely restrict the potential of Springvale to grow into a successful, multi facetted activity centre, that can best serve both the regional and local population.

While the availability of rail transport is fundamentally of value to Springvale (a significant 6% of trips to the Centre are by train, 2003 figures), the structure plan has also demonstrated reasons why the existing constrained connectivity between north and south makes it unreasonable to expect the achievement of Springvale’s full potential.

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Despite the best intentions of the structure plan, the balanced, overall development of the centre, and the capability of Springvale to fulfil its ‘Melbourne 2030’ role are fundamentally hindered and frustrated by the current at grade crossing of Springvale Road.

Note on structure plan status

The current SAC structure plan is in draft form, awaiting adoption by Council. Some relatively minor revisions are required, associated with ensuring the structure plan is in alignment with Council’s Buildings Strategy (which is investigating the future of Council’s key buildings and community facilities across the municipality, including Springvale).

A copy of the structure plan has been provided with this document.

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Figure 3 Springvale and its Quadrants

95.1 General

Springvale is located at the junction of The Dandenong / Pakenham rail line (one of the busiest in metropolitan Melbourne) and Springvale Road which is one of the key north / south arterial roads in the eastern part of Melbourne.

The ‘Melbourne 2030’ policy expectation is that Springvale will be a focus for high quality development, activity and living. This strategy foreshadows the development of a broad base of activities for Springvale as well as the centre being a location for a substantial amount of new housing. In strategic terms the SAC clearly has much to offer Melbourne but there are key issues to overcome in order to realise this potential.

5.0 Springvale – Strategic Barriers

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5.2 Constrained Vision

The draft SAC Structure Plan includes urban design proposals that are well supported by investigation and logical responses.

Whilst aspects of the urban design initiatives are prescriptive most of the content is a necessarily speculative vision of where market forces, business confidence and the policy environment will lead to, supplemented by strategies that Council should implement to assist attainment of this vision.

The structure plan is particularly visionary in highlighting the potential for the SAC to grow to the north of the railway line, including the potential for higher density residential development. However this vision is tempered by a pragmatic acceptance of the railway as a limiting factor and a ‘less than optimal’ residential and commercial development is assumed.

The structure plan cannot guarantee the appropriate pedestrian, cycle and road connectivity that the success of the Springvale activity centre depends on. This inability stems from:

Certainty that the form of the railway inhibits attainment of the true potential of Springvale

Uncertainty regarding just what are the feasible options for changing the form of the railway given current State government investigations into construction of a third track.

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5.3 Uneven and Lopsided Development

Historical photographs and anecdotal evidence suggest that an early prevalence of industrial uses north of the main rail line at Springvale, the branch line to Springvale Cemetery (1904-1952) and the more recent closure of the supermarket in the north of the centre have encouraged development of Springvale’s core commercial and community services in the south-west quadrant, south of the railway ‘barrier’.

To date, therefore, development of Springvale as an activity centre has seen the area south of the railway line and west of Springvale Road emerge as the stronger, more vibrant and attractive quadrant of the centre. Land use patterns and development conditions around the centre show a clear difference between the areas north and south of the railway.

In residential terms the northern hinterland of the centre is smaller than the southern area and its ability to develop is more strongly encumbered by the existing rail barrier than the south.

The northern commercial areas do not appear as prosperous as elsewhere and are physically separated from the balance of the centre. Properties are not as well maintained and their uses tend to be more specialised and unable to compete or command space in the core of the centre.

Spring Vale Station(Renamed Springvale in 1972)

1966 ‘activity centre’

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Figure 4 An early linear development

Figure 5 Present ‘uneven’ development

Current core retail commercial/residentialfocus and community services

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The majority of the uses have a stronger synergy with the traditional car based arterial road exposure, (e.g. furniture, bathroom supplies, etc) than with the immediate catchment of the activity centre. Some industry is also included among the mix in the northern area, and this may not be the highest and best use of the land in the longer term.

The impact upon land use, development and investment is clearly translated into the different patterns of activity and apparent levels of business confidence described above. There is a strong and weaker side of the activity centre differentiated by the railway line.

In essence, it seems that the railway line has effectively created two different Springvales, with commercial operations in particular taking different physical forms, presenting different aesthetics and focussing on different clientele.

Springvale is therefore at an impasse in its development. Either the centre continues to develop mainly in the south west quadrant with the existing rail constraints or it is planned with structural change in mind – grade separation of the railway would offer such an opportunity.

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5.4 The Psychological Impact of the Railway Crossing

The perception of Springvale by the general public and by business is strongly linked to its association with a busy Springvale Road and with congestion and frustration caused in part by the rail-crossing. This has an impact, not only on the divided physical characteristics of the centre, but also upon peoples’ experience and impressions when visiting and using the centre.

For many people, a pervading view of Springvale is of a place of delay, congestion, frustration, uncertainty and exposure. These emotions are substantially caused by the impact of the railway on visitors to the centre, brought on by the intrusive physical form and frequent interruptions of the rail line and its crossing. Pedestrians are particularly affected as there is only one pedestrian rail crossing point in the centre at Springvale Road.

By association with these perceptions, Springvale, for some, becomes a place to avoid, despite its other attractions.

The perception of a place is not a trivial issue, it matters. It affects business confidence and the willingness of businesses to take risks and invest.

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At grade crossing planned to be relocated here from 300mts to the west

700 mts

1000 mtsThere is only one pedestrian/road crossing of the railway in the SAC (Springvale Road)

Sandown Park Railway Station

Figure 6 There is only one pedestrian rail crossing point in Springvale

It also affects people’s (often emotionally based) decisions to visit the centre or whether they commit to a locality and put down roots for their family or move elsewhere to a ‘better located’ or ‘better functioning’ area.

As the perception of a place directly relates to the quality, integration and workability of its infrastructure, so therefore the perception of Springvale is currently influenced by the barrier and congestion associated with the railway line.

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5.5 Springvale Road – Asset or Liability

Vehicle trips make up 66% of the total visitation to the centre (57% as driver, 9% as passenger), and are by far the most popular form of travel. The number of visitors driving via Springvale Road are unknown but with some 36,000 vehicles per day, the road and its traffic are a major feature of Springvale, bringing both benefits and problems.

The traffic volumes give significant exposure for businesses fronting Springvale Road, but they also create a significant east-west barrier. In contrast to the railway barrier, however, there are 4 controlled pedestrian crossings in the retail core in addition to a well maintained and lit pedestrian underpass, which enhances east / west accessibility. A 40kph speed limit in the core, associated with the schools, also reduces the impact of the road.

It is expected that the opening of EastLink will initially reduce Springvale Road traffic by 30% with vehicle use increasing from this new base over time.

The reduced traffic volumes as a result of EastLink will present opportunities for the introduction of ‘bus only’ lanes along Springvale Road to the centre as well as increasing pedestrian priority at east / west crossings where possible.

Figure 7 Springvale Road pedestrian crossing points

ExistingSpringvaleRoad pedestrian crossing points

The above discussion demonstrates that in Urban Design terms, Springvale Road as an east-west movement ‘barrier’ is relatively permeable and can be more readily modified to the needs of the Springvale than the railway.

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156.1 The Inadequacy of the Status Quo

Springvale Station opened in 1880, encouraging an urban form (repeated throughout Melbourne) of a station with an at-grade railway crossing at a main road, in turn leading to linear commercial and residential development along the road.

Over a hundred years on, with increased land use intensity, increased focus on a broader mix and intensity of activities, greater road and rail traffic, increased support for public transport and modern attitudes to safety, the continuation of this historical model of a town centre is no longer desirable.

6.0 Grade Separation

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6.2 Grade Separation - A Catalytic Project

While there are many micro projects that are being implemented in Springvale to build its future, Council considers that of greatest benefit and stimulus to the centre would be the elimination of the rail crossing at Springvale Road by grade separation. That is, placing the railway line below Springvale Road.

In essence grade separation would:Facilitate connectivity, as opposed to fragmentation.

Act as a catalyst for expansion of activity centre functions including housing.

Free up movement and permeability throughout the centre.

Create a safer traffic and pedestrian environment in which greater convenience and ease of access to core functions would be enabled.

Benefit both local and regional businesses.

Benefit both local and regional residents.

Expand the commercial and visitation catchment of the centre.

Such a strategic and bold intervention would fundamentally change the perception and functionality of the centre for the better and enable it to reach its true potential as a major activity centre.

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The Box Hill example

The railway line through Box Hill opened in 1882 (Springvale Station opened in 1880), cutting the major north – south routes of Station Street and Elgar Road. The post World War Two period saw an intensification of lobbying for removal of level crossings and led to the grade separation of Elgar Road in the early 1970’s, the form of which (a rail bridge over the road) being criticised for being more about through traffic than enhancing commerce.

In 1970 a 7,000 signature petition fiercely advocated lowering the railway at Station Street. In the early 1980’s this became a reality, leading to:The covering of some 250 metres of track and station by multi-level development including a bus station.

The far sighted pedestrianisation of Main and Market Streets.

A positive change in the perception of Box Hill .

An upsurge in business confidence and accompanying development.

In 2007, 25 years on (see illustrations opposite)

Box Hill has built on its lead in the creation of pedestrian orientated spaces and has now nearly completed a redevelopment of Main and Market Streets to introduce new materials and features better suited to contemporary pedestrian expectations.

The recently adopted (18 June 2007) Box Hill Transit City Structure Plan makes provision for further development over the railway line east of Station Street.

Although Springvale has a different role and status in ‘Melbourne 2030’, Box Hill Transit City is an example of the benefits that improved physical connectivity, perception and confidence can bring in realising activity centre potential and in laying foundations for further positive change. It is arguable that without the grade separation in the 1980’s, Box Hill would be nowhere near as successful an activity centre today.

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6.3 Other Examples

There are good examples of both State and local government investing in rail grade separation projects in order to achieve considerable direct and indirect benefits to a broad area over a longer term. In Melbourne the social, economic and physical benefits of such an initiative are evident in the transformation of the Box Hill Activity Centre after the implementation of a similar project in the mid 1980’s.

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Station Street, Box Hill, looking north, 1950’s

Pedestrian orientated street south of the transport modal interchange, Carrington Road, Box Hill

Station Street, Box Hill, looking south, World War One

Station Street, Box Hill, looking north, today

Station Street, Box Hill, looking south, today

Box Hill Mall, pedestrian orientated area north of the transport model interchange

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6.4 A Busier Railway Line – Impacts

While this report argues the case that the existing railway line is a problem in its current form and use, it is probable that an at-grade 3rd or 4th rail line will lead to a magnification of the issues through:

Further loss of north / south connectivity as well as increased delays for pedestrians and vehicles with greater barrier down time at Springvale Road.

Residential amenity being impacted by the additional noise created by increased train frequency (particularly if a 4th freight rail line is to be considered).

Safety issues for pedestrians crossing rail tracks as frustration is heightened through increased delays.

The increasingly lop sided development of the main commercial uses being concentrated in the south west quadrant.

The railway station becoming even more peripheral to the main parts of the activity centre.

The opportunities for a more integrated modal interchange not being realised (see later comments).

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Notwithstanding these increased problems the SAC structure plan has endeavoured to take the most positive view of the opportunities created by an at grade 3rd rail. It anticipates that the construction of a third track would at the least:

Be a catalyst for the rebuilding of Springvale Station, hopefully west of Springvale Road.

Create the opportunity to incorporate some form of grade separated pedestrian crossing of the line.

Facilitate an improved Springvale Road crossing.

Enable the development of a bus interchange.

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However, none of these possibilities has yet been proposed as part of the Dandenong Corridor Project. Even if they were, they would still be a major compromise compared to what would be possible with a full grade separation.

Any proposed initiative of the scale and complexity of the 3rd project must be evaluated in terms of the longer term and the broader context. A long term view of the rail corridor would suggest that the elimination of at-grade separations should be achieved wherever possible.

It is clear that a 3rd rail line, while bringing benefits, will not solve, and is likely to exacerbate some of the key land use, urban form and functional problems Springvale faces unless it is combined with grade separation.

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7.0 Urban DesignAnalysis of Opportunities

The following section looks in more detail at how grade separation would enhance the urban design and functionality of the Springvale Activity Centre.

7.1 Grade separation – Enhancing Transport Network Function and Accessibility

A lowered rail line would entail rebuilding the Springvale Station below ground level. This opens up exciting urban design possibilities.

North south access along Springvale Road would then be possible at all times for both vehicles and pedestrians.

Recent discussion with DOI has highlighted the potential benefits of positioning any rebuilt station directly under Springvale Road.

The local Box Hill example was cited as a case in point of a quality transport interchange outcome from grade separation. A more contemporary and possibly even more relevant example would be that of Subiaco, in Perth.

The removal of road and railway barriers by grade separation and careful road traffic routing has radically enhanced the performance of the Subiaco activity centre and has been the subject of much investigation as an example for further proposals in central Perth (see following pages 20 and 21).

Grade separation therefore presents the key to the provision of effective and appropriate public and private vehicle access around a core of pedestrian orientated streets and within a more densely developed activity centre.

This would enable access to a safe, appealing and functional station constructed below ground level.

Safe and simple at-ground access to the rail station would be possible from all four quadrants of the activity centre without the need to cross Springvale Road at street level.

Springvale Road, is already a busy bus route and a key element in the orbital bus network. Smooth intermodal access between rail and bus would be simplified and made safer with an integrated transport hub. In essence, with a station located centrally below Springvale Road, both north and south bound buses need only veer left to access dedicated bus bays, which would in turn directly link to the station below and the adjoining commercial centre.

Figure 8 Springvale Station Intermodal Opportunity

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Perth Northbridge Link

The East Perth Development Authority November 2006 master plan for the Perth Northbridge Link looks at the benefits of covering over some 500 metres of rail that presently forms an artificial barrier between central Perth and Northbridge and in doing so also making available new CBD land for development.

Pedestrian, open space as well as commercial and transit orientated benefits are envisaged and the project planning to date confirms contemporary urban design approaches with a notable emphasis on the following stated design themes (East Perth Development Authority (2006 )Northbridge Link Draft Masterplan):

Enhancing arrival and movement

Reconnection

Vibrant public spaces

Enrichment of urban form

These and other projects provide credible templates for consideration in current Springvale Activity Centre investigations.

Images have been taken from the East Perth Development Authority 2006 Northbridge Link Draft Masterplan.

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The Northbridge Link study area

Urban form vision

Studies of enhancing perceptions of ‘arrival’ and movement have been undertaken

21Subiaco Central

The Subiaco Redevelopment Authority (SRA) was formed in 1994 to plan and implement the redevelopment of industrial areas separated from the ‘old’ Subiaco by the Perth – Fremantle railway, necessitating the sensitive grade separation of the latter in order realise a pedestrian and transport orientated urban rejuvenation.

Rail lowering was seen to be the only feasible way to achieve grade separation.

The 80 ha project attracted $5.0M federal ‘Building Better Cities’ funding and some $800M private sector investment at a cost to the SRA of $100M.

In 2003 it gained the UDIA Urban Renewal Award.

The area now interfaces comfortably with the pre-existing Subiaco, houses 2,000 new residents in 800 dwellings and provides 5,000 jobs in 90,000sq m of retail and commercial development. One of its centre pieces is the new station designed with pedestrian amenity, accessibility and security in mind.

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The rail ‘barrier’ before redevelopment

The new station from platform level

The new station from street level

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7.2 Grade Separation – Enhancing Land Use and Urban development

Grade separating the railway by lowering it below Springvale Road will create greater connectivity between areas north and south of the railway as well as improved urban consolidation outcomes for the centre.

Additional north / south road and generous pedestrian connections would be immediately possible with the opportunity of stimulating both residential and commercial development north of the current rail corridor and (and within a 400m walking radius of key points in the Activity Centre – such as the transport interchange) integrating this more closely with the more intensive development to the south.

The additional north / south connections could result from a northern extension of Buckingham Avenue (west of Springvale Road) and Warwick Ave (east of Springvale Road). Buckingham Avenue is developing into an Asian restaurant and foods strip, while Balmoral Avenue, with a planned future Community Services hub complex, would be a prime link for residents from the north into the centre.

Ultimately, this approach to the grade separation could result in a fully decked area in the order of 300m long, which could be developed for a mix of commercial, retail and residential uses incorporating new and much needed civic open spaces and connections. Staging the project so that decking is initially concentrated to the immediate road corridor and station envelopes would also be eminently achievable

The creation of this more integrated civic core with improved permeability and accessibility would also help stimulate a more balanced redevelopment of immediately adjoining residential areas with a mix of high and medium density housing. This development would be in accordance with the objectives of the SAC structure plan, but the outcomes would be far more comprehensive and beneficial than an at-grade solution could provide.

Springvale can become a truly pedestrian focussed centre, with an increased residential population driving a more vibrant and successful business community.

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Figure 9 Springvale Activity Centre Concept Plan with grade separation and the potential building envelopes for mixed use buildings

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Pedestrian Orientated Development

There is now acceptance at local and international levels of the importance of pedestrian activity to urban centres and neighbourhoods of all forms – a rethink of late 20th century car dominated approaches. State policy frameworks such as ‘Melbourne 2030’ confirm that this current promotion of pedestrian activity will endure and will continue to be refined.

For centuries business has appreciated the financial benefits of pedestrian flows. There is now an extensive body of local and overseas experience that links the attractiveness of centres with the scale and character of pedestrian activity.

Pedestrianisation has been credited with enhancing commercial performance and attracting more residential buyers and tenants to purchase and settle in Activity Centres.

A diversity of housing options, following the good design guidelines of the SAC structure plan, will improve liveability and encourage a greater residential population, which will also improve community safety.

Reduced air and noise pollution are also worthy outcomes of the grade separation proposal. A rail cutting will reduce the noise impact of trains, particularly freight trains, on local amenity, while reduced emissions from fewer idling cars at the rail crossing and less cars on the road, due to improved public transport options, can also be expected.

7.3 Grade Separation - Enhancing Social and Environmental Outcomes

Social and environmental sustainability considerations are increasingly seen as the equals of traditional urban planning and economic arguments regarding the optimal development of cities and urban environments. The SAC structure plan clearly articulates the importance of community infrastructure in Springvale and its role in servicing the culturally diverse community of the region.

Removal of physical barriers such as the rail line will not only improve access to local services, it will encourage pedestrianisation of the centre which in turn will drive greater community interaction, local business development and foster a greater sense of community safety. Improved pedestrian accessibility can also be expected to increase levels of physical activity, leading to a generally healthier community.

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8.0 The Economic Case

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This section translates the urban design and other significant social, economic and environmental outcomes of a grade separation project into estimated costs and benefits. SGS Economics and Planning were engaged by Council to undertake preliminary economic assessment.The following summarises the outcomes of this work.

8.1 Economic Cost

This report evaluates the proposal to underground the Dandenong rail line at Springvale Road in conjunction with the ‘third rail’ project. The technique used is cost benefit analysis which requires definition of a ‘base case’ – what will happen without project. A copy of the detailed Preliminary Cost Benefit Analysis (SGS, June 2007) is provided with this document. While the capital cost of the project is considerable, likely to be in the order of $150 to $200 million, the base case also has significant costs. The third rail will need to be provided in any event and this will precipitate major works on the station and the level crossing. Importantly, the underground option is still likely to be required in the future to accommodate a fourth line for freight. On this basis the net cost, for the purposes of this analysis, is estimated to be $120 million.

Importantly, the economic analysis assumes a future saving on the inevitable grade separation to accommodate a fourth line.

This project cost includes ancillary works to develop 300m of decking above the rail cutting and provide additional north – south connectivity at Warwick and Buckingham Avenues.

8.2 Economic Benefits

There will be a number of clear and obvious benefits flowing from the project, including: Significant improvements to the amenity of the area.

Reduced delays for traffic, buses, pedestrians and cyclists.

Reduced noise, especially from freight trains.

Reduced stop/start emissions from vehicles.

These direct benefits will precipitate investment in the activity centre in accordance with government and local policies. It is estimated that floor space in the centre will increase by 270% and there will be an additional 1,500 dwellings. This will result in shorter vehicle trips in the region and a mode shift to public transport.

Hence there will be induced benefits in the following areas: Reduced vehicle operating costs.

Reduced ‘externalities’ associated with vehicles including greenhouse gas emissions.

Urban consolidation benefits including reduced land consumption at the urban fringe, lower demand for infrastructure and higher building efficiency.

These benefits have all been quantified and valued in the analysis. There will be related benefits in the areas of increased personal safety, improved housing choice and reduced trauma for train drivers otherwise involved in level crossing accidents.

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8.3 Analysis Approach

The economic analysis estimates the overall costs and benefits of lowering the railway over the distance required to provide overhead clearance under Springvale Road at gradients suited to freight trains.

Key inputs to the analysis include estimated cost and other data supplied by the Department of Infrastructure on expected changes to rail services and also capacity and SAC revitalisation forecasts adapted from work developed by SGS in previous similar projects.

The method adopted is to value all of the benefits in financial terms using recognised valuation techniques. A discounted cash flow analysis is then used to express the values in ‘present value’ terms using the Treasury discount rate of 6.5% pa.

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Figure 10 Breakdown of Vehicle Operating Cost Savings

The methods adopted to value the benefits in financial terms are as follows:

Vehicle Operating Cost Savings:These are valued using the DoI Guidelines for Cost Benefit Analyses. The composition of the savings is shown in Figure 10 where it can be seen that reduced congestion, saved running costs and fewer crashes (and resultant trauma) make up the bulk of the benefits.

Urban consolidation Benefits:These are estimated from the value of land preserved for non-urban purposes, infrastructure savings and housing efficiencies.

Amenity: The value of improved amenity by reference to a proxy which is the rent increment associated with a fully developed and vibrant activity centre relative to the base case which is an undeveloped centre with a poor business and living environment.

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Business Efficiency: The value of improved business efficiency is estimated by reference to a proxy which is greater labour productivity measured in terms of wages growth.

Reduced Level Crossing Crashes:The value of this benefit is estimated by reference to data on the frequency of crashes and values contained in the DoI manual.

Noise Reduction: This applies to freight trains only.

Delay Savings: There will be time savings for vehicles, pedestrians, and cyclists accessing the activity centre and circulating locally. These are estimated from the time boom gates would otherwise be shut and the value of time from the DoI manual.

Stop/ Start Emission Reductions:The value of these is estimated from the volume of traffic not stopping at the level crossing.

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Congestion, $14,583,530

Pollution, $109,860

Nitrous Oxide, $68,656

Particulates, $22,549

Noise, $94,228

Vehicle Operating Costs, $7,297,380

Crashes, $1,634,009

Non-methane Volatile Organic Compounds, $13,862

Greenhouse Gas Emissions$86,739

Carbon Monoxide, $4,766

Waste to Water, $84,805

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8.4 Results

The results of the analysis are shown in Figure 11 and are summarised in Figure 12.

8.5 Conclusion

The results indicate a project worth implementing with a benefit cost ratio of 1.86 to 1. While the method is, of necessity, based on a ‘rapid appraisal’ approach and some key assumptions have had to be made; the sensitivity analysis of the four most significant Present Value benefits suggests that this is a robust conclusion.

The results must be viewed in the context of the discount rate applied. If a low rate is used, which gives more value to the values of future generations, the project is shown to be highly beneficial.

Figure 12 Summary of Results

Figure 11 Present Value Benefits

Benefits Present Value

Vehicle Operating Cost Savings $34,645,719

Urban Consolidation Benefits $17,095,211

Amenity $10,304,162

Business Efficiency $10,635,236

Reduced Level Crossing Crashes $4,723,339

Reduced Noise $3,914,802

Delay Savings $3,628,839

Stop and Start’ Emissions Reduced $261,812

Total Benefits $85,209,122

Total Economic Costs $45,784,796

Net Present Value $39,424,325

Benefit Cost Ratio 1.86 : 1

Internal Rate of Return 12.57%

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31Council believes that grade separation of the railway line at Springvale (and potentially elsewhere along the Dandenong rail corridor) is a model that should be seriously considered by the Victorian government.

Council appreciates that it is reasonable to expect that further more detailed analysis of the merits of such a project, would need to be undertaken, prior to any commitment to it by government.

However this report clearly demonstrates a wide range of local and regional benefits which could be anticipated from a grade separation project, while also outlining the probable consequences if it is not undertaken.

9.0 Conclusion

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The grade separation of the railway at Springvale is clearly aligned with Victorian government urban and transport planning policy and is economically viable. The current planning and design process for the 3rd (with a possible 4th) rail line presents a timely opportunity to develop and expand the thinking on the project to include grade separation as a serious alternative option at Springvale as well as other locations along the route.

The time is now to consider the options for grade separation before commitments are made to invest in an at-grade outcome.

Council commends this report to the Victorian Government for its serious consideration. Council is willing to provide any support it can to help in achieving the vision outlined in this report.

Documents

THE TIME IS NOW Rail Grade Separation at Springvale...Contents 1.0 Executive Summary 1 1.1 The 3rd Rail 1 1.2 The Case for Grade Separation at Springvale 1 2.0 Introduction 3 3.0 Regional