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Metropolitan Canberra

Policy Plan
Development Plan

National

Capital

Development

Commission

Canberra, July 1984

National Capital Development Commission
Canberra, ACT Australia.

Foreword

The Commission’s first metropolitan planning report was published
in 1965 under the heading of The Future Canberra. Its objective was
to define a pattern of future urban development sufficient to accom¬
modate an ultimate population of 250 000, and to create a structure
of separate urban districts which would avoid the adverse consequences
of urban sprawl. The 1965 Outline Plan made provision for ‘satellite
towns’ to be developed at Woden, Belconnen and Majura, separated
from one another and from existing urban areas at North and South
Canberra by continuous non-urban (rural) belts and recreational open
spaces.

In 1970 the Commission published a revised metropolitan plan
under the heading of Tommorow’s Canberra. This was the so-called
‘Y-Plan’ which rearranged the satellite towns into a linear pattern in
order to obtain a more efficient transport system. The Y-Plan was
influenced by the application of land use/transport planning techniques
which were popular amongst engineers and town planners in the 1960s.
It reflected the clear acceptance of the private car as the principal mode
of transport for all trips, particularly the journey-to-work. It also aimed
at the segregation of the private car network and the public transport
network with the object of keeping public transport movements as
free as possible from traffic congestion. In particular, an objective
of the Plan was to protect the essential features of the Griffin Plan
and maintain a dignified setting in the Central Area for the
Parliament.

Unlike metropolitan planning schemes prepared for other
Australian cities the Y-Plan has, for the most part, been closely
adhered to and has worked much as the planners intended at the time
it was formulated in the late 1960s.

When the time came to review the Y-Plan towards the end of the
1970s it became increasingly apparent to the Commission that it was
no longer possible to produce a single report on metropolitan planning
that would do justice to all of the key issues. Physical expansion was
no longer the most important issue in the way that it had been in 1965
and 1970 when the two previous reports had been prepared. Social
and economic issues were now more pressing.

As a consequence the Commission in 1980 published a Discussion
Paper in order to elicit views from the community on a variety of
metropolitan planning issues occurring in physical, social and
economic realms. As a result of the submissions received the
Commission decided that it would produce a series of reports on a
fairly regular basis dealing with different but related aspects of
metropolitan planning and development. The more significant reports
which have been published since 1980 have dealt with the following:

• Civic Centre Policy Plan and Development Plan

• Parliamentary Zone Development Plan (two reports)

• Murrumbidgee River Corridor Draft Policy Plan and Development

Plan.

This present report is intended to be an ‘overview’ document which
draws on some of the material previously published in the 1980
Discussion Paper, but updated to reflect recent trends and the latest
demographic data from the 1981 census. It is not meant to be an
exhaustive report on all aspects of metropolitan planning. More detailed
information is - or will be - contained in specific reports on designated
areas or explicit issues of the kind indicated above. In some instances
there are bound to be gaps in the sense that some issues, particularly
in social and economic realms, can be identified as problems but the
solutions are either not clear to the Commission or lie outside the scope
of its statutory responsibilities. In such circumstances the Commission
tries to act in an advocacy role or seeks to establish collaborative
arrangements as a way of tackling complex social and economic
problems, thus it is necessary to look beyond the scope of this report
in relation to such matters.

This report confirms the basic structure of the Y-Plan as a
continuing and valid basis for guiding metropolitan development at
population capacities up to 400 000. It indicates that as Canberra’s
population reaches a level of 250 000 in a few years time, and as
remaining lands in Tuggeranong are serviced and occupied, it is
necessary to start now the planning and development of a fourth ‘new
town’ at Gungahlin. In addition the existing commercial/retail centres
at Civic and Woden are fast approaching employment/accessibility
thresholds which means that - particularly in the case of Civic - major
investment in roads, public transport and parking facilities will be
needed from now on in order to maintain their functional effectiveness
in infrastructure terms. Otherwise congestion, air pollution and other
adverse environmental impacts will increasingly be experienced.

Such issues are touched on in this report but will be the subject
of further, more detailed, reports as current study programmes are
completed. In particular, reports on the Tuggeranong Town Centre,
Gungahlin and the Parliamentary Zone will be published progressively
over the next year or so. The concept of the National Capital Open
Space System will be further refined in conjunction with the Department
of Territories and Local Government, and a report published for
public discussion covering both the development and management
aspects.

The Commission is aware of the fact that, periodically, different
community groups raise fundamental questions about the validity of
specific principles or policies contained in the Y-Plan and it is
conscious of the possibility that some of these questions might not
be satisfactorily dealt with in this report. To some extent this happens
either because the question posed is inherently difficult to answer or
because it could take months or even years of investigation to validate.

In other words there are limitations on what planners can hope
to achieve in their efforts to satisfy the diverse needs and demands
of their client communities. While it is not possible to produce a
metropolitan pian that will be ‘all things to all men’ it is reasonable
to expect, however, that the Commission as the authority responsible
for the planning and development of the National Capital does provide
clear statements of its policies and an explanation of their underlying
reasoning. This is what this report aims to do.

In the final analysis the crucial judgements to be made about
planning are whether or not Canberra provides a large measure of
satisfaction as an environment for living so far as its residents are
concerned, and as an effective seat of government so far as the
Parliament and the executive government are concerned. In the
Commission’s opinion it does achieve both these things in large
measure and has good prospects for continuing to do so.

A.J.W. POWELL

Commissioner July 1984

Contents

Page

Foreword iii

Introduction 1

Background 1

Purpose of the Report 3

The Planning Area 3

Summary of Conclusions and Proposals 5

Introduction 5

Nature and Contents of the Report 6

Existing Situation, Trends and Forecasts

Generation of Alternative Plans 12

Evaluation of Alternative Plans 15

The Preferred Plan 20

Policy Plan 21

Development Plan 26

Background 31

The Y-Plan (1970) 31

Metropolitan Issues Report (1980) 36

Existing Situation and Forecast Change 41

Existing Land Use Plan and Location of Key Activities 41

Social and Economic Aspects of the City 46

Transport 76

Waier Resources and Energy Services 97

Physical and Environmental Aspects of the City 101

Planning for Growth and Change 109

Approach to Planning 109

Generation of Alternative Plans 115

Framework for Evaluation of Alternative Plans 122

Transport Evaluation 123

Centres Evaluation 139

Aims Achievement Evaluation 157

The Preferred Plan 169

Policy Plan 171

Introduction 171

Principles of Urban Structure 172

Subjects of the Plan 178

Development Plan 207

Introduction 207

Development Proposals 209

Implementation 227

Chapter 1

Introduction

Background

Canberra has a history of long-term metropolitan planning. In
1911 the Federal Government launched a world-wide design competition
to produce a plan of layout for Canberra as the Seat of Government
and National Capital of Australia. The competition was won by
Walter Burley Griffin, an architect and landscape designer and his
plan for a city of 75 000 was far sighted, serving Canberra until the
mid-1950s. The Griffin Plan was concerned primarily with the formal
layout of the Central Area as a setting for the Parliament House and
location of the main functions of government. The Plan also established
a number of important principles relating to the pattern of urban
development and its relation to topographic and landscape elements,
which have been incorporated into all subsequent plans for the City.

When the Commission was established in 1957, its immediate tasks
were to assume responsibilities for those projects already in progress,
establish a construction programme for the approved public service
transfers and consequent development and to launch the necessary
long-term planning studies for the future extension of the City.
Preliminary forecasts made by the Commission when it first assumed
office indicated that the population of the Canberra City Area would
reach 100 000 by June 1974. The results of the 1959 Population Count
provided more precise information concerning the rate of public service
transfers, and more detailed research into population growth showed
the original estimate to be conservative. The Commission was faced
with the problem of a population of 100 000 being reached by 1969-70.

Given this situation and the fact that the Griffin Plan was only
intended to accommodate 75 000 people, the Commission undertook
a series of studies to define a long-term metropolitan strategy for the
future expansion of the City. These studies indicated that the choice
lay between the intensification of densities at existing population centres
coupled with the extension of the urban fringe areas in the traditional
growth pattern of Australian cities or preserving the open character
of the City by limiting the extent of the existing population area and
forming new residential districts in the surrounding rural areas.

The Commission chose the latter and produced an Outline Plan
for a population of 250 000 and a diagram showing possible growth
patterns beyond this level. The main reason for this choice was that
it preserved the integrity of the Griffin Plan along w ith Griffin's concept
that Canberra should be a Garden City in a landscaped setting with
the topography the dominant element in the City structure.

In 1963, Rankine and Hill and De Lcuw Cather undertook the
Canberra Area Transportation Study (CATS) to examine the Outline
Plan for 250 000 people. The study showed that the Plan would break
down when growth occurred beyond this level, and it was recognised
that a new plan would be needed to cater for Canberra's long-term

growth prospects. In 1965 Alan Voorhees was approached to undertake
a study to develop a series of long-term test plans and to evaluate
their relative effectiveness.

Analysis of the test plans resulted in the development ot the Y-Plan
which was published in Tomorrow's Canberra in 1970 (Figure 1).

In 1980 the Y-Plan was reviewed and the Commission concluded
that it was a viable strategy at least up to a population level ot 500 000
people. Within the broad framework of the Y-Plan there were,
however, a number of important policy and development issues which
needed resolution. These issues were canvassed in the Metropolitan
Issues-Public Discussion Paper which was published in 1980. I he most
important question raised in this report was the location and staging
of future development. One aspect of this was the issue of whether
or not West Murrumbidgee should be developed and it so, how
adverse environmental impacts should be handled.

Since the Metropolitan Issues Report was published in 1980,
continuing studies by the Commission, coupled with a resurgence ot
development and employment growth, have shown that by the end
of this decade it will be necessary to have population settlement in
the new town of Gungahlin. This has significant implications lor both
the government and private sector in terms of funding and investment
decisions. From the viewpoint of government, considerable funds will
be required to finance major urban infrastructure, especially hydraulic
serv ices and roads and for land servicing.

Also by 1990 the overall operational requirements of the City are
likely to result in the need for additional funds and investment to
upgrade the metropolitan road network, to prov ide additional public
transport facilities and to prov ide for structured car parking at major
metropolitan shopping and employment centres.

The key issues dealt with in this Report relate to the location and
staging of population settlement and employment centres, the provision
of major retail facilities, the provision of a metropolitan park through
the establishment of a National Capital Open Space System and the
provision of a metropolitan road network and public transport system.
Related key issues are the preservation of the natural environment,
in particular the preservation of the Murrumbidgee River and the land
immediately to the west in Tuggeranong, the need to ensure adequate
air and water quality and the costs associated with maintaining and
protecting the intrinsic value of the existing built environment, in
particular the Central Area which contains the main activities of the
Parliament and the government.

While this Report discusses many of these issues and proposes steps
to resolve them through forward planning, development programmes
and policies, several issues remain unresolved. The Commission
recognises that ultimately certain of these remaining issues involve
political decisions which must be made by governments, influenced
to some extent by the Commission’s technical assessments and
community opinion and representation. Other issues, such as
redevelopment of inner-city areas are referred to in the Report, but
not conclusively dealt with because by their very nature, they demand
an iterative approach to the formulation of detailed planning policies
and development control.

Any plan for Canberra cannot be implemented by the NCDC
alone. Such a plan will need the guidance and support of the
Australian Parliament through the Joint Parliamentary Committee
on the ACT; the people of Canberra through the ACT House of
Assembly; the Department of Territories and Focal Government; the
Canberra Development Board; and other government agencies involved
with Canberra’s development. It will need the continued support of
Canberra’s private enterprise sector which makes major investment

f igure 1 Strategy Plan for Metropolitan

Growth (The Y-Plan)

NSW

Figure 2

decisions. It will also require support from the various private sector
organisations such as the Canberra Association for Regional Develop¬
ment, the Chambers of Commerce and other business associations.

Canberra

NSW

Purposes of the Report

The purposes of the Metropolitan Planning Report are to:

• describe the background to the existing Metropolitan Plan (Y-Plan)

• describe the existing land-use structure of the City and the location
of key activities

• prepare forecasts of future growth and change

• predict the future needs of the City based on such forecasts

• show how these needs can be accommodated in alternative plans
and analyse the implications of the alternatives

• describe a preferred strategy for future growth and change
indicating the main metropolitan policies and development
programmes needed to guide the long-term development of
Canberra

• describe how the public and private sectors can carry out urban
development both jointly and individually.

0 20 km

l_i i i i

The Planning Area

The planning area for this report is the Australian Capital
Territory. The subject matter is mainly concerned with Metropolitan
Canberra which comprises the existing urban areas of Canberra plus
those settlement areas which will accommodate the population
expected during the next twenty years. Population, employment, land,
housing, retailing and transport have all been analysed on this basis.

The planning area is shown in Figure 2.

Chapter 2

Summary of Conclusions
and Proposals

Introduction

The Commission’s role is to formulate planning policies and to
carry out development which meets the social and economic needs
of the resident and business community. It is the Commission's aim
to have policies and development programmes which are comp¬
lementary to private enterprise investment.

The Plan for Metropolitan Canberra comprises both a Policy Plan
and a Development Plan. The subject matter of the Plan can be
described as follows.

• The Plan focuses on physical development. It meets a specific need
to provide advice on physical development and should be
understood as being complementary to other planning activities
within the City.

• The Plan is long range. It focuses on the future needs of the
community, insofar as it is possible to make reasonable judgements
as to what these needs will be. The Plan can be seen as a statement
of long-term targets to which short-term decisions should be geared.
As conditions and circumstances change, the targets might also
change.

• The Plan is comprehensive with respect to physical elements of the
urban environment.

• The Plan relates the major physical proposals to the basic policies
of the Plan.

The Plan thus deals with the overall physical planning and develop¬
ment of Canberra, although it also considers social and economic
aspects.

The Metropolitan Policy Plan and Metropolitan Development Plan
essentially comprise the Commission’s strategic plan, which not only
illustrates the physical and functional end-result, which is an urban
development pattern, but also defines the policy base for regulating
both public and private sector development. The Metropolitan Policy
Plan shows the principles and policies adopted by the Commission to
guide future urban development and to regulate redevelopment.

Nature and Contents of the Report

The Report covers four main aspects, namely:

• background, which outlines the Y-Plan, and the review of the Plan
which has occurred over the past four years

• the existing situation and forecast change

• the generation and evaluation of alternative plans for Metropolitan
Canberra leading to a preferred plan for the long-term development
of Canberra

• planning policies and development programmes needed to
implement the preferred plan.

The existing situation is described in terms of the major
metropolitan structural elements, such as land and housing, retailing,
transport, etc. Relevant trends have been analysed in terms of
demographic, economic, land use and transport factors, in order to
identify likely future needs.

In the light of such needs, forecasts of future development have
been formulated and alternative plans have been derived to show how
development might be accommodated within the next twenty years,
which is the plan period for this Report.

The preferred plan has been prepared as a Policy Plan to indicate
the Commission’s intended location for future development in
Canberra. A Development Plan has been prepared to show how the
more significant policies might be implemented by both the public
and private sectors.

Policy Plans comprise broad statements of planning policy, as a
basis for making decisions about urban development by both the
public and the private sector. Where possible, the objectives and
principles underlying the policies are indicated, as well as the
environmental and town planning standards to be met.

Development Plans show development intentions and proposals
for works by the Commission, as well as possible development by the
private sector. They focus attention on the Commission’s intentions
for development within the broad context of the Policy Plan.

Generally, Development Plans relate to Commission programmes
for expenditure and are, therefore, short-term, while Policy Plans have
a longer time frame.

Existing Situation, Trends and Forecasts

The following section summarises the existing situation and
forecast change for Metropolitan Canberra, together with those trends
or issues which bear directly on the formulation of the Policy Plan
and Development Plan. The method of analysis is based on the
separate treatment of subject areas, such as employment and retail.

Social and Economic Aspects

Em ployment

• At June 1983, the labourforce of the ACT was approximately
115 700 of which 7 700 were unemployed. In addition, approxi¬
mately 6 000 jobs were located in Queanbeyan.

• In the next twenty years the Canberra/Queanbeyan workforce is
projected to increase to about 186 000.

• The distribution of employment is a key planning variable
influencing the length and cost of the journey to work; the level
of noise, air and water pollution; and the level of investment
required to implement the plan.

Population

• Between 1971 and 1975, the average annual population increase
in the ACT was 11 000, of which about three-quarters was a result
of net migration. Between 1976 and 1982, net migration averaged
only 1 000 per annum, or 22 per cent of the growth of the period.

• At June 1983, the population of Canberra was estimated at
234 900, and that of Queanbeyan at 20 150.

• At June 1983, the population of Inner Canberra had fallen to
below' 60 000 from a peak population of 83 000 in 1967. The
population of Woden-Weston Creek had begun to decline, w hile
Belconnen’s population was stable at about 77 000. Tuggeranong’s
population had grown to 38 450 in June 1983 since its settlement
commenced in 1973.

• Canberra’s population is projected to increase to 292 000 by 1991,
and to 378 000 in twenty years time.

• The population over 60 years of age is projected to increase from
15 100 in 1981 to about 37 000 by the turn of the century.

• The growth of the population, its location and characteristics
produce demands for schools, shops, employment, land, housing,
hospitals and other community facilities. Its distribution has a
bearing on the level of investment required, the environment and
the relative accessibility of the population to commercial,
community and recreational facilities.

Land and Housing

• At June 1983, there were an estimated 63 900 occupied single
residential dwellings and 11 200 occupied medium-density
dwellings in Canberra.

• Annual occupations of single residential dwellings have fallen from
3 100 in 1976-77 to 1 570 in 1982-83. Medium-density dwelling
occupations have varied from between 500 and 750 per annum
over this period.

• Land for development in the existing towns and in North-East
Tuggeranong is expected to be largely developed by 1987-88. By
this time, land is required for development in another settlement
area, with the choice being either Canyon or Gungahlin. Under
the population growth projected in the plan period, there is
insufficient time to have serviced land in Gungahlin available in
1987-88. The planning and development pipeline for a new tow n
is six-and-a-half years between initial planning and first settlement.

As a consequence, first land turn-off in Gungahlin is unlikely to
occur until 1989-90. Lanyon, as a result of its more advanced stage
of planning (Conder, its first suburb, is already gazetted) can be
available for settlement in 1987-88. Therefore, as North-East
Tuggeranong reaches capacity, the development frontier will move
to Lanyon.

Retail

• At September 1982, Canberra had an estimated 369 000 m 2 of retail
floorspace or 1.6 nv per capita according to the Commission’s
definitions and measurements, although the ABS 1979-80 Retail
Census suggested that there was only 1.4 nr per capita.

• The provision varied from 1.8 nr per capita in Inner Canberra
(excluding Fyshwick) to 0.23 nr per capita in Tuggeranong.

• There was movement of expenditure between each of the towns
in response to the retailing opportunities available. The level of
expenditure outflow from Tuggeranong was the most pronounced,
with only 23.5 per cent of Tuggeranong residents’ retail expenditure
occurring in Tuggeranong in 1980.

• Relative to the State Capitals, Canberra’s level of floorspace
provision per capita in 1980 was not excessive, being less than
Melbourne, Adelaide, Perth and Hobart. Sales per square metre
were higher than in all Capitals except Sydney.

• It appears that the Canberra population can support retail
floorspace of about 1.4 nr per capita in planned centres.

• The level of floorspace provision in Gungahlin and Tuggeranong
will be related primarily to the floorspace supportable by the
residents of these districts, but will also be subject to the overall
metropolitan supply of retail floorspace.

• The distribution of population indicates that Civic is more central
than any other centre to the metropolitan area. Civic may be able
to capitalise on this accessibility advantage for goods requiring
a metropolitan population threshold.

Leisure and Recreation

• Outdoor leisure opportunities in Canberra include those available
in neighbourhood and district parks, and rivers, lakes, nature
reserves and other components of the National Capital Open Space
System. Leisure opportunities are also provided by the surrounding
region which includes the NSW South Coast and the Snowy
Mountains.

• The rate of daily use of river and lakeside recreation has remained
static since 1975 at about 165 visits per 1 000 population. On this
basis, in twenty years the daily participation will be about 67 000
people. As recreation pressure increases, development of additional
swimming areas may be required to enable the continued use of
the lakes for swimming.

• Rising maintenance and management costs of municipal open
space have resulted in greater mechanisation, and changes in
maintenance standards.

• The Canberra population is served by a wide range of indoor
leisure and recreation facilities, including tenpin bowling alleys,
community halls, basketball stadiums, the National Exhibition
Centre, National Sports Centre, Canberra Theatre Centre,
Theatre 3 in Acton, cinemas in Civic and Manuka, and indoor
soccer, cricket and riding facilities.

• There has been increasing demand for indoor leisure facilities,
often incorporating gynmasiums, swimming pools and squash
courts. Each of the towns is served by at least one of these facilities.
In Inner Canberra there is the YMCA in Civic Centre and the
Deakin Health Spa; there are Lifestyle centres in Woden and

Belconnen; YMCA in Woden; Kippax Sports World in Belconnen;
and the Erindale Centre in Tuggeranong. The Commission will
continue to assist in their provision through the selection of
appropriate sites.

• According to the Domestic Tourist Monitor Survey, the estimated
number of tourists to the ACT in 1980-81 was 1.9 million. Popular
attractions included national works and government-operated
activities such as the National Library, High Court, War
Memorial, National Gallery and Parliament House.

• Annual tourist numbers could increase by some 600 000 by 1988,
and double in twenty years. Accommodation and entertainment
services currently provided would need to increase proportionally
to cater for the increased needs.

• Tourism provides an opportunity to diversify Canberra’s economic
base. As the national areas will remain the focus of tourist activity,
Civic and adjacent areas are well placed to serve the tourist demand
for accommodation, entertainment and recreation.

Transport

Road System

• The car is the dominant form of transport for all purposes except
for journeys to and from school. About 75 per cent of trips are
made as a car driver or passenger, 7.5 per cent by bus, 15.4 per
cent walking or cycling, and 1.5 per cent by taxis or motorcycle.
Bus travel accounts for 8.5 per cent of all work trips, and from
15 per cent to 18 per cent of work trips to the office/retail core
of each town centre.

• Canberra’s hierarchical road strategy of local access streets,
distributor roads, arterial roads and parkways has resulted in
improved residential amenity and contributed to Canberra's
relatively low accident rate - 11 fatalities per 100 000 population
compared to the Australian average of 20 fatalities per 100 000
population.

• Congestion is being experienced in Civic Centre on both the
primary access roads and the internal distribution system. Growth
in Civic employment and retailing will exacerbate problems in the
absence of additional road capacity or policies to reduce traffic
demand. A computerised traffic signal system is currently being
installed to improve traffic flow in Civic. There are currently
localised traffic congestion problems at the Woden and Belconnen
Town Centres.

• Traffic congestion results in increased fuel consumption,
encourages the use of minor roads, reduces residential amenity
and causes safety problems. Roads on which there are undesirable
traffic volumes include Strickland and Stonehaven Crescents, Kent
and Govder Streets, and Limestone, Macarthur and Wakefield
Avenues.

Public Transport

• The public transport system is based on a line-haul and feeder
concept. Local bus services or feeders provide a basic transport
service between each suburb and the closest town centre. Express
buses provide a line-haul service between the centres. A public
transport interchange at each of the town centres enables the
efficient transfer of passengers.

• The bus network covers 800 route kilometres. Most residents live
within 400 m of a bus stop. Annual bus patronage is about
20 million passenger trips.

• Over the past decade the public transport deficit has increased,
being $12.5 million in 1981-82. In 1980 the subsidy per passenger
in the ACT was 52 cents. This compared to 50 cents per passenger

in Melbourne, 79 cents in Brisbane, 59 cents in Adelaide, 60 cents
in Perth, 46 cents in Hobart and 52 cents in Sydney.

• The future mode split between car and bus transport will be
influenced by factors such as the relative cost of each mode,
availability of fuel, supply and cost of parking, household income
and car availability, and the quality of the public transport system.

Car Parking

• Parking controls have been introduced in Civic Centre and the
Woden Town Centre to enable the provision of short-stay parking
in convenient locations. Long-stay parking charges will need to
be introduced to modify parking demand and to assist in the
financing of new facilities.

• A parking structure is proposed for Civic in the next two to three
years to relieve parking pressures. As employment grows in Civic
further parking structures will be required. Structured parking
costs in the order of six times more than surface parking.

Sum m ary

• Transport facilities in Canberra have been planned to complement
the City’s urban structure and provide a basis for future growth
and development. Canberra is serviced by a high-quality parkway
and arterial road network which provides for reduced travel times,
lower congestion, reduced fuel and operating costs, a reduced
accident rate and less air pollution.

• The public transport system, which is based on trunk inter-town
services between bus interchanges at town centres and local feeder
routes within towns, provides a high-quality and flexible service
to meet both off-peak and peak-hour needs.

• Car parking provision at most employment centres is currently
adequate to meet demand although Canberra is entering a stage
of development where it will not be possible to provide parking
at a scale to meet unrestrained demand.

Water Resources and Energy Services

W ater Supply

• The three dams on the Cotter River and the Googong Dam on
the Queanbeyan River, have a capacity to serve a Canberra/
Queanbeyan population of 450 000.

• A high proportion of consumption in the ACT is for watering
public parks and private gardens. Given the high cost of dam
construction and their environmental impact, consideration is
being given to techniques for reducing demand and to recycling
of waste water.

Sewerage

• The Lower Molonglo Water Quality Control Centre, which treats
all of Canberra’s sewage, has a capacity of 400 000 population.
Augmentation of some existing sewers is necessary as their capacity
is exceeded at times.

Stormwater

• Urban runofl is a source of pollutants which may impact on the
water quality ot local lakes and streams. Progressive provision of
stormwater control measures will need to be undertaken in
Tuggeranong and Gungahlin and there will be a need to modify
some existing infrastructure.

Physical and Environmental Aspects of the City

Ecological Resources

• Population and employment expansion will place additional
pressures on the Territory’s ecological resources, the
Commission’s environmental aim is to ensure the luture develop¬
ment of the ACT is in harmony with the general environment.

Water Quality

• Parts of Take Burley Griffin exhibit considerable water quality
stress at times due to low flows into the lake and the discharge
of Queanbeyan sewage effluent. The impact on waters downstream
of the ACT has been virtually eliminated as a result of the high
quality of effluent treatment provided by the Lower Molonglo
Water Quality Control Centre.

Air Quality

• Emissions from motor vehicles comprise Canberra’s major source
of air pollution. World Health Organization air quality standards
for carbon monoxide and ozone have occasionally been reached
or exceeded in Civic Centre. The Commission's planning
philosophy of developing town centres to disperse employment
and retail opportunities and providing peripheral parkways, has
assisted in the prevention of a marked deterioration in Canberra’s
air quality.

Noise Quality

• The impact of noise in Canberra has also been lessened by the
development of the road hierarchy and peripheral parkway system.

Generation of Alternative Plans

Two plan options for a Canberra/Queanbeyan population of
approximately 400 000 were developed for detailed testing and
evaluation. Each option assumed a total retail floorspace of about
585 000 m 2 and a total employment of 185 600. The population
distribution under each plan was the same and included the develop¬
ment of North-East Tuggeranong, Lanyon and Gungahlin.

The Concentrated Plan

In the Concentrated Plan (Figure 3), a significant level of employ¬
ment and retail floorspace was concentrated in the Central Area and
in the Woden and Belconnen Town Centres. The essential features
of the Concentrated Plan were:

• employment in the Central Area would grow by about 33 000 to
78 000, with employment in Civic Centre growing by 19 000 to
35 000 and retail space at the centre increasing by almost 50 000 nr

-A

NSW

0 1.0% 1 800
3.1% 18 000m 2

< 20 6% 84 000

NSW

35 000
25 000

Employment
Q Retail
<i Population

% Share of Canberra/Queanbeyan Totals

5 km

Figure 3

Population, Major Employment and
Retail Nodes - Concentrated Plan

o o

• employment at the Woden and Belconnen T own Centres would
grow by about 8 000 and 10 000 respectively, with retail floorspace
increasing by 22 000 nr in each centre

• Gungahlin and Tuggeranong new towns would not receive signif i¬
cant levels of comparison retailing or employment. These districts
would be provided with expanded group centres of 18 000 nr and
21 000 m 2 respectively.

The Dispersed Plan

The Dispersed Plan (Figure 4) was based upon continuing to
disperse employment and retail opportunities along the lines envisaged
by the Y-Plan and successfully carried out in Woden and Belconnen.
The main features of the Dispersed Plan were:

• town centres with significant retailing and employment would be
established in both Tuggeranong and Gungahlin. Tuggeranong
Town Centre would include employment of 17 000 and retail
floorspace of 50 000 nr , and Gungahlin Town Centre would
include 9 000 employment and 47 000 nr of retail floorspace

- 120 000
- 80 000
- 40 000

Employment
Retail
< Population

% Share of Canberra/Queanbeyan Totals

NSW

4.8%

8 . 0 %

9 000
47 000m 2

<20.6% 84 000

20.3% 83 000 >

° n 9lo

14.7% 60 000O

2.3%
4 300

7.4% 13 800
11.9% 69 800m 2

4.4% 8 100

<15.2% 62 000

13.5% 25 000
12 9% 75 700m 2

8.1% 15 000f j

v_yn

4.3%W
25 000m 2

5 9% 10 900

4 8% 9 000
8 8% 50 200m 2

6.2% 11 500
12.0% 70 400m 2

7.4% 30 000 >

4 3% 8 000
6.8% 40 000m 2

21.8% 89 000 >

2.2% 4 000

0 0.9% 1 700
2.4% 14 000m 2

9.2% 17 000
8.5% 50 000m 2

NSW

5 km

Figure 4

Population, Major Employment
and Retail Nodes - Dispersed Plan

employment in the Central Area would grow by 20 000 to 64 000.
Civic’s employment would grow' by 9 000 to 25 000, and the retail
space in the centre would increase by 15 000 nr

employment at the Woden Town Centre would grow by 2 200 and
at Belconnen Town Centre by 5 800. Retail floorspace at each
centre would increase by 2 500 nr

the Central Area would remain dominant in relation to employ¬
ment and retailing opportunities. The town centres in Belconnen,
Woden, Tuggeranong and Gungahlin would primarily serve their
respective town catchments.

Evaluation of Alternative Plans

The plan forms were assessed in relation to transport, centres and
the Commission’s metropolitan aims.

Transport Evaluation

The provision of a transport system is one of the most expensive
components of urban infrastructure. Decisions relating to road
capacity, the level of parking provision and the level of service and
quality of the public transport network, all influence the efficiency
and distribution of costs within a city.

Evaluation of the plan forms indicated that the Dispersed Plan,
relative to the Concentrated Plan, would confer substantial benefits,
including:

• it would have less physical impact, as it would not require the
construction of a third crossing of Take Burley Griffin and as a
lower level of road capacity would be required

• lower concentrations of air pollutants, a lower incidence of noise
pollution and lower traffic volumes in residential streets would
occur

• a more efficient use of the road system. The reverse loading on
roads would be higher and there would be fewer congested traffic
links

• there would be a 12 per cent saving in user fuel costs

• a saving of at least $120 million on the investment required for
urban arterials and parkways

• fewer structured car parks would be required, producing a saving
of $80 million to $100 million

• a lower public transport deficit, as peak-hour demand would be
lower and the Dispersed Plan would more evenly balance
directional flows

• the Dispersed Plan proposes a more equal provision of retailing,
employment, and community facilities. In doing so, it would
reduce the length and cost of journeys by the residents of all towns,
in particular, those of Gungahlin and Tuggeranong.

Centres Evaluation

The level of employment and retail floorspace at Civic Centre and
the Woden and Belconnen Town Centres was evaluated in relation to:

• development thresholds, i.e. the availability of vacant land

• transportation thresholds, i.e. the capacities of the arterial road
system feeding each centre and of each centre's internal road
network

• Canberra’s urban structure goals

• the effect on Canberra’s retail system.

Development Thresholds

Under the Dispersed Plan, employment at Civic Centre and the
Woden and Belconnen Town Centres would increase by 17 000 in
total, and under the Concentrated Plan, these centres would grow by
37 000. At their existing development densities these centres could
accommodate an additional employment of 10 000 to 14 000. The
intensity of development at the centres, particularly Civic Centre and
Woden Town Centre, would need to be increased considerably by
large-scale redevelopment if the employment proposed in the
Concentrated Plan were to be accommodated. It was considered,
however, that the employment associated with the Dispersed Plan
could be accommodated with only limited redevelopment occurring
in Civic Centre and Woden Town Centre.

Transportation Thresholds

Road Network Thresholds

The employment capacity of the centres, based on the capacity
of the road network, was evaluated. The results are summarised in
Table 1.

Table 1 Employment Capacity

Existing

Existing Road Network

Road

Plus Doubling of Bus

Centre

Network

Patronage

Civic Centre

27 000 (1)

29 000

Woden Town

Centre

13 200

17 000

Belconnen

Town Centre

23 000

30 000

(1) Assumes construction of Monash Drive and duplication of
Coranderrk Street.

The existing road networks could handle a total additional employ¬
ment of 30 000 at the three centres, and an extra 43 000 employment
if the mode split to the centres doubled, which is considered unlikely.

Civic Centre and the Woden Town Centre were not designed for
the levels of employment proposed in the Concentrated Plan. As a
consequence, both centres would require modifications to their road
networks if the Concentrated Plan were pursued.

The road system in Civic would require two arterial by-pass routes,
which could have significant environmental impacts, and major
improvements to the distributor road system. Bus-only lanes would
be essential as well as an extension of the bus interchange.

In Woden Town Centre, Hindmarsh Drive would need grade
separation from Ainsworth Street to Melrose Drive inclusive at a cost
of about $5 million.

Car Parking Thresholds

The Dispersed Plan would require lower investment in car parking
structures than the Concentrated Plan (Tables 2 and 3).

Table 2 Number of Structured Car Parking Spaces at 15 Per Cent
Mode Split

Dispersed Plan Concentrated Plan

Centre

Spaces

Civic Centre

8 100

Woden Town Centre

(excluding Woden East)

1 500

Belconnen Town Centre

1 500

Total

11 100

Cost

($ millions)

Spaces

Cost

($ millions)

18 000

110

7 000

3 000

28 000

170

At 15 per cent mode split, equivalent to the current level, the
Concentrated Plan would require additional car parking investments
of S100 million compared to the Dispersed Plan. In the Dispersed Plan
8 100 structured car parking spaces would be required in Civic assuming
15 per cent mode split, while in the Concentrated Plan 18 000 structured
spaces would be required in Civic. This represents an additional cost
of $60 million.

Table 3 Number of Structured Car Parking Spaces at 30 Per Cent
Mode Split

Dispersed Plan Concentrated Plan

Centre

Spaces

Cost

($ millions)

Spaces

Cost

($ millions)

Civic Centre

3 200

11 000

Woden Town Centre
(excluding Woden East)

3 000

Belconnen Town Centre

1 500

Total

3 200

15 500

100

Urban Structure

A major strength of Canberra’s urban structure is its system of
centres. Combined with the transport network they produce a relatively
efficient and congestion free city despite its apparent widespread
character. Other cities such as Perth and Brisbane have proposed
subsidiary centres in their plans for future development in order to
achieve some of the benefits Canberra already experiences.

The continuation of the system of town centres would:

• reduce construction costs for new metropolitan roads and structured
car parks

• reduce travel and car operating costs and air quality problems in
Civic and the Central Area

• limit the increase of the public transport deficit

• provide opportunities for people to live and work in the same town

• provide opportunities to achieve a more equal distribution of shop¬
ping, community and other facilities and services across the City.

The evaluation confirmed that employment levels similar to those
in the Dispersed Plan, which limits the growth of existing centres in
order to enable new centres to be established, would ensure the
continued attainment of these benefits in the future.

Retail Evaluation

The Dispersed Plan, by proposing retail centres in Tuggeranong
and Gungahlin at a level comparable to the other towns, would improve
the accessibility of the residents of these districts to retailing
opportunities.

The provision of a Tuggeranong Town Centre would reduce
pressures on the Woden Town Centre to expand, thereby assisting
Civic’s function as the main metropolitan centre.

Aims Achievement Evaluation

Each Plan was evaluated in relation to how it met the Commission’s
metropolitan aims of image, social and economic need, environment,
choice, conservation, movement, flexibility and implementation.

This evaluation drew in part from the transport and centres
assessments and from qualitative assessments of issues relating to the
social, economic and environmental impacts of the Plans. The
evaluation was aimed as a broad overview of the impacts of the
alternative Plans in order to ensure that adequate consideration had
been given to the other systems of the City.

On balance, the evaluation indicated that the Dispersed Plan would
perform better than the Concentrated Plan in relation to transport and

centres issues and, overall, also perform better in achieving the stated
aims for the future Canberra. This performance is briefly described
as follows:

Image

The Concentrated Plan would place greater transport pressure on
the Central Area due to the greater concentration of employment. It
also has the potential to generate increased traffic intrusion into
residential streets in Reid, Braddon, Turner and Barton because of
increased parking demands and to cause a greater deterioration of air
quality in the Central Area. The Dispersed Plan is therefore favoured,
as it would be more likely to enhance Canberra’s image as the National
Capital.

Social and Economic Need

Economic implications relate to such factors as the level of invest¬
ment required to implement and operate the Plan for the City. Social
implications include consideration of such issues as the lengths and costs
of journeys to work, school, shopping, recreation and community
facilities, and housing choice and cost. The Dispersed Plan would
require less total infrastructure for transport facilities, offers the
potential for a more efficient and less costly public transport system,
and would result in lower average private travel costs.

Environ mcnt

Because development in Gungahlin and south-eastern Tuggeranong
is common to both the Concentrated and Dispersed Plans, there are
no major differences between the options, in terms of the impact on
ecological resources, open space and recreation areas, or the viability
of rural land use. The issues of greatest concern with respect to
ecological resources involve the impacts of peripheral parkways and
arterial roads, which will need to be given due consideration in planning,
design and construction.

Both Plans would significantly increase traffic noise in the inner
city suburbs of Ainslie, Reid and Braddon, particularly along Limestone
Avenue. On a comparative basis, the Concentrated Plan would have
a marginally greater impact, notably in the Yarralumla area and in
North Canberra along Antill Street, Wakefield Avenue and Barry
Drive.

A water resources evaluation indicated that there was no significant
difference between the two plan options with respect to infrastructure
costs in water use implications.

On balance, the Dispersed Plan is favoured, as it would have less
impact on the environment.

Choice

Because of the greater dispersal of employment opportunities and
retail floorspace in association with community facilities to the new
town areas, the Dispersed Plan is seen as offering the greatest potential
choice for living, working and shopping.

Movement

The Dispersed Plan would prov ide the potential for shorter journeys
for Tuggeranong and Gungahlin residents and considerably lower
average metropolitan travel times for journeys to work, and shopping
activities. It would be less costly to implement in terms of road
infrastructure and car parking provision, offers the potential for a more
efficient and less costly public transport system and would result in
lower average private travel costs. The Concentrated Plan would also
require a third crossing of Lake Burley Griffin and a new distributor
road in Civic Centre for the movement system in the Central Area to
function.

Conservation

Both plan options would have the same level of impact on the rural
areas and natural systems of the ACT such as the lakes, rivers and
streams. In the urban areas, because of the greater concentration of
employment opportunities and retail floorspace in the Central Area
and in the Woden and Belconnen Town Centres, the Concentrated Flan
would have a significantly greater impact on the existing built environ¬
ment adjacent to these areas, and on Inner Canberra in particular. The
Dispersed Plan is therefore favoured.

Flexibility

The provision of town centres in the new towns of Tuggeranong
and Gungahlin and the greater dispersal of employment opportunities
and retail floorspace in the Dispersed Plan are seen as offering a more
flexible framework for allowing future changes and alternative phasing
possibilities to occur than the Concentrated Plan.

Implementation

The Dispersed Plan would require a lower level of government
investment to implement than would the Concentrated Plan. However,
the Dispersed Plan would require considerable support and assistance
from the Department of Administrative Services and other government
departments in achieving the decentralisation of offices to Tuggeranong
and Gungahlin. The private sector would also need to be supportive
in making new investments in these areas.

While a high level of employment dispersal would be beneficial to
the functioning of the City as shown by the evaluation of alternatives
and would lead to a more cost efficient programme of development,
it would be difficult to achieve because it involves the establishment
of two new town centres. The relocation of departments and the
establishment of private sector offices in a new area can be a difficult
and slow process.

The Preferred Plan

Since the testing was undertaken, the Commission has reviewed its
planning for Tuggeranong and 4 000m of retail floorspace is now
considered the appropriate size of the Erindale Centre.

The reduction in the size of the Erindale Centre will increase the
viability of a retail release at the Tuggeranong Town Centre and allow
major comparison shopping opportunities to be consolidated at the
one centre, and to be co-located with offices, service trades and other
community facilities.

The reduction in the size of Erindale Centre from 14 000m 2 to
4 000m 2 of retail floorspace and its employment from 1 700 to 700 will
have minimal impact on the results of the testing that was undertaken.
Changes of this magnitude are not significant in terms of trip generation
on the metropolitan road network.

The evaluation of the Plans clearly shows the benefits of employ¬
ment dispersal, although the ability of the Commission to attain the
benefits of the Dispersed Plan will depend on the co-operation of
government authorities, the private sector and community groups.

Having regard to the level of dispersal the Commission was able
to achieve between 1968 and 1983 at the Woden and Belconnen Town
Centres, the nature of office growth, and the other activities which
have been located at town centres, the likely range of employment
located at major nodes at the end of the plan period could be as shown
in Table 4.

Table 4 Planned Employment Levels at Major Nodes

Civic Centre
Parkes/ Barton
Woden Town Centre
Belconnen Town Centre
Tuggeranong Town Centre
Gungahlin Town Centre

25 000 - 27 000
15 000 - 18 000

11 000 - 13 000
13 000 - 15 000

12 000 - 17 000
7 000 - 12 000

Policy Plan

The policies of the Plan are dealt with in Chapter 6 in two parts.
The first relates to the policy with respect to the urban structure of
the City, and the second to the significant elements of urban structure,
namely:

• National Works

• Employment

• Offices

• Industry

• Population, Land and Housing

• Retail

• Transport

• National Capital Open Space System

• Recreation and Tourism

• Community Facilities

• Urban Environment

• Rural and Non-Urban Areas

• Public Utilities

The Polieies should be read in conjunction with the Policy Plan
(Figures 5 and 6) in order to gain a fuller appreciation of the proposed
overall urban structure of the City.

On the basis of the evaluation carried out and after consideration
of the public submissions on the 1980 Metropolitan Issues-Public
Discussion Paper , the Commission's preferred metropolitan strategy
is that which retains the basic urban structure principles of the Y-Plan.

The strategy for urban growth is based on the development of new
towns with town centres, combined with consolidation and redevelop¬
ment. The features of the strategy are as follows:

• The Central Area will remain the dominant metropolitan employ¬
ment centre, but the existing policy of decentralising employment
opportunities to the new towns will be continued through the
dispersal of government offices to town centres in each of the
towns.

• Civic Centre will be encouraged to develop as the most specialised
retail centre serving both the metropolitan market and special
markets such as tourism. Decentralisation of retail floorspace will
be continued and will be related to consumer needs, retail
economics, transport accessibility and equity considerations.

• Tuggeranong and Gungahlin will both be provided with town
centres to service many of the retail, community and recreational
needs of the town populations. The eventual size of the
Tuggeranong Town Centre is intended to be between 12 000 and
17 000 employment and between 40 000 nr and 50 000 nr of retail
floorspace.

• Tuggeranong, that is, the existing planned development east of
the Murrumbidgee including Lanyon, w ill expand to the order of
85 000-90 000.

• While the main suburban development frontier will be in
Tuggeranong and Gungahlin, the existing urban area will be
consolidated by development of suburbs such as Florey, Mckellar,
Stirling, Isaacs and O'Malley. Throughout the period of urban
expansion in Tuggeranong and Gungahlin, redevelopment of the
older parts of Canberra will be increasing.

• The hierarchical system of roads developed in the existing new
towns of Canberra and comprising parkways, arterials, sub-
arterials, and distributor, collector and access roads, will be
continued in the future development of the City and existing road

patterns in other parts of Canberra will be improved to reflect this
system where practicable. Traffic congestion will not be promoted
as a method of traffic management or to encourage the use of
alternative transport modes. The parkway and arterial system will
be improved and extended to meet movement demands as they
arise.

The metropolitan road system will need to be extended during the
plan period by the following major elements:

a) the first stage of the Eastern Parkway will be required to
service traffic demands generated by Tuggeranong residents
by the time Tuggeranong’s population reaches approximately
55 000-60 00(T

b) the existing parkways, Tuggeranong Parkway and Parkes
Way, will be progressively upgraded as traffic demands
warrant. The further development of Glenloch Interchange
will be undertaken in conjunction with these works

c) Monash Drive and John Dedman Parkway will be required
to service traffic resulting from population settlement in
Gungahlin

d) other major roads, including Erindale Drive, William Slim
Drive, Caswell Drive, Bindubi Street, Flemington Road,
Morshead Drive, Fairbairn Avenue and Athllon Drive will be
upgraded to provide necessary access and to improve the
efficiency of the metropolitan road system.

Routes for a segregated form of public transport to serve the major
movement corridors will continue to be investigated.

Industrial land will continue to be developed in Fyshwick, Hume
and Mitchell. The Canberra Technology Park is reserved for
development of high technology industries.

Tourist facilities will be directed, where possible, into Civic Centre
or the Special Tourist Commercial Area at North Watson,
consolidating the existing tourist-oriented facilities in these areas.

The National Capital Open Space System will be progressively
developed to accommodate the diverse demands made upon it by
Canberra residents and visitors.

] National Capital Open Space System
- Major Roads
Special Use Areas
Rural and Non-Urban Areas
Water Catchment Areas

Urban Areas

0 2 4 6 8 10km

i-1-i-i_i_i

Figure 5 Metropolitan Canberra

Policy Plan (ACT)

NSW

Principles of Urban Structure

The principal concepts of the Y-Plan which have been con firmed

as those to guide metropolitan growth and development are as follows:

• The role of the City as the National Capital remains paramount.
The National Capital role demands that national functions are
located in a prominent position where they may operate effectively
and efficiently. The National Capital role also demands that high
environmental and aesthetic standards are applied, particularly in
the Areas of Special National Concern.

• The metropolitan growth of Canberra is based on the develop¬
ment of separate urban districts or towns, in a linear arrangement
in the form of a ‘ Y'. Each town is intended to be relatively self-
contained and provide for most of the needs of its residents
including employment, retail, community facilities, leisure and
recreation. Each town is separated from adjacent towns by hills,
ridges and other major open spaces.

• The hierarchy of centres will be maintained, with each town having
a centre acting as a focal point for higher order retail functions,
commercial services, offices and community facilities. Civic Centre
is intended to be the highest order commercial, entertainment and
tourist centre in Canberra. It will also accommodate the majority
of specialised functions and continue to develop as the Central
Business District and administrative centre of Metropolitan
Canberra.

• Large volume vehicular trajjic is carried on a peripheral parkway
system, reducing the amount of traffic on the internal systems of
the towns. A public transport right-of-way will be developed linking
the town centres on an internal spine.

• Industrial estates will continue to be located on the edge of the
urban areas in locations which conveniently serve the workforce
of the towns and have good accessibility for long-distance freight
movements.

• The hills and ridges within and around the urban areas of Canberra
will be kept largely free of urban development both to act as a
backdrop and setting for the City and also to provide a means
of separating and defining the towns. Special use areas and rural
and non-urban areas also form part of the buffer zone between
the towns and a land bank for future land use and activity needs
associated with the growth of the National Capital.

Parliamentary Zone
Civic Centre/Existing Town Centres
Future Town Centres
Existing Urban Areas

Future Urban Areas

National Capital Open Space System

Major Roads

Inter-Town Public Transport Route

Existing Industrial Areas
Future Industrial Areas
Special Use Areas
Airport/Railway Uses
Rural and Non-Urban Areas

0 1 2 3 4 5 km

l-1-1-!_I_I

Figure 6 Metropolitan Canberra

Policy Plan (Urban Area)

Lake ,
inninderr.l

Canberra

Burley

Central

Woden

\Valley

NSW

1 I

■

Halt

Gungahlin

Airport

Oaks

Estate

I Lake ^Smmmm

| Tugger anong

■■

Tuggerant

/ Queanbeyan

NSW

Tharwa

Development Plan

The purpose of the Development Plan is to indicate those develop¬
ment proposals which should be implemented to meet needs arising
from population growth or change. The development proposals
indicate the main public works that will need to be carried out by
the Commission and other public authorities, as well as indicating
development opportunities for the private sector, particularly in terms
of new housing, offices and retail facilities. The ability to implement
the public works will be subject to adequacy of continuing annual
appropriations from the Budget.

The Metropolitan Development Plan has been prepared to:

• identify the Commission’s intentions for major development works

• inform other public authorities and the private sector of Canberra’s
expected growth and development over the next twenty years or so

• inform the public of proposed development works

• highlight the range, t\pe and location of development
opportunities likely to arise for private enterprise during the plan
period.

The Development Plan translates the needs forecasts (outlined in
Chapter 4 in terms of housing units, retail floorspace, etc.) into spatial
and programme terms.

In implementing the Development Plan the Commission will give
priority to:

• consolidating development in the existing towns and promoting
the orderly expansion of the City

• encouraging the development of Civic Centre as Canberra’s
metropolitan centre (Central Business District)

• providing activity centres in the newly developing areas to meet
the needs of the local community

• providing adequate traffic access to employment and service
centres as Canberra’s population grows

• continuing the development of the National Capital Open Space
System

• minimising undesirable impacts on the environment, enhancing
and protecting the desirable qualities of the existing environment
and ensuring that projects, when approved, contain adequate
environmental safeguards.

The Development Plan provides the basis for two related streams
of action. For its part, the Commission will seek programme status
and funding for public works. For the private sector, specific develop¬
ment opportunities will need to be identified, through consultations
between the Commission and industry and in conjunction with the
promotional activities of the Canberra Development Board. Where
possible, projects which should or could be carried out by private
enterprise are identified in the Development Plan.

The development proposals cover the whole of the ACT, and
because of the different amounts of detail to be illustrated the
Development Plan has been prepared in two parts:

• Metropolitan Canberra Development Plan (ACT), dealing with
the rural areas (Figure 7)

• Metropolitan Canberra Development Plan (Urban Area), dealing
with the town areas (Figure 8).

1 Progressive Development of the National Capital
Open Space System - the National Capital Open
Space System will be progressively developed
to protect the river systems, maintain visual
quality, provide recreational opportunities,
maintain ecological diversity and ensure the
ecological stability of urban lands.

2 Investigation of Pine Plantations - economic,
planning and landscape studies will be under¬
taken to determine the selective replacement of
pine plantations by native species.

3 Protection of Water Uses - water quality in lakes
and streams will be protected to ensure their
designated uses which may include water supply
and recreation uses.

4 Augmentation of Water Supply - the limits on
water resources in the ACT require the protection
of possible future sources of supply such as the
Naas-Gudgenby Catchment, the restriction of
allocation of water to the sub-region and a
programme to reduce water consumption.

5 Federal Highway Duplication and Upgrading -
improvement works will be undertaken to tie in
with associated works in New South Wales.

6 Reconstruction of Monaro Highway - the road is
being progressively upgraded to facilitate move¬
ment to and from the Snowy Mountains.

7 Upgrading of Cotter Road - the road will be
upgraded to improve safety and provide over¬
taking opportunities.

8 West Belconnen-Uriarra Road Connection - a
road connecting Stockdill Drive with Uriarra Road
will improve access for Belconnen residents to
Murrumbidgee and Cotter River recreation areas.

9 Brindabella Road-Mt Franklin Road Upgrading,
Mt Franklin Road-Corm Road Connection - these
works will complete a tourist route from Cotter
to Tharwa via the Brindabella Road, Picadilly
Circus, Mt Franklin and Corin Dam.

I 0 Boboyan Road Upgrading - work will continue to

upgrade and seal the road to the ACT border.

II Relocation of Naas Road - if the Naas-Gudgenby
Catchment is required for water supply and the
Tennent Reservoir is constructed, the northern
part of Naas Road will need to be relocated
higher up the slopes of Mount Tennent.

Proposed Commonwealth Works

0 2 4 6 8 10 km

I-1_I_I_I_I

Figure 7 Metropolitan Canberra

Development Plan (ACT)

Parliamentary Zone Development - works will be undertaken to
meet the needs of Parliament, national institutions, tourism and
public administration.

Museum of Australia Development - development of Museum
at Yarramundi Reach, road access from Lady Denman Drive and
complementary works such as car parking and landscaping.

Development of the National Sports Centre - progressive develop¬
ment as a sport and recreation venue and training facility.

Development of the National Botanic Gardens - further develop¬
ment including a Visitor Information Centre to enhance its
landscape and visitor facilities.

Inner Canberra Land Settlement and Urban Consolidation -
development of North Lyneham, further redevelopment of
Kingston.

Central Area Employment Expansion - Employment expansion
of between 19 450 and 24 450 of which between 17 650 and
22 650 will be in Civic, Parkes/Barton and Russell/Campbell
Park

Civic Centre Employment Expansion and Retail Development
- Civic Centre employment will grow by between 9 000 and
11 000 and its retail floorspace in the order of 15 000m 2 .

Woden-Weston Creek Land Settlement - development will be
consolidated by the development of Isaacs, Stirling and East
O'Malley ana vacant medium-density sites

Woden Town Centre Employment Expansion and Retail Develop¬
ment - employment will grow to between 11 000 and 13 000, and
its retail floorspace by up to 2 500m 2 .

Belconnen Land Settlement - development will be consolidated
by the development of vacant residential land including McKellar,
Florey and the Belconnen Naval Station

Belconnen Town Centre Employment Expansion and Retail
Development - employment will grow to between 8 000 and
13 000. and retail floorspace by up to 2 500m 2

12 Tuggeranong Land Settlement - the development of remainder
of North-East Tuggeranong, the Town Centre and Lanyon.

13 Erindale Centre Retail Development - a 4 000m 2 retail centre will
be open by the time Tuggeranong's population reaches 50 000

14 Tuggeranong Town Centre Development - the town centre
development will commence within 2 years and will eventually
have between 12 000 and 17 000 employment and between
40 000-50 000m 2 of retail floorspace.

15 Gungahlin Land Settlement - settlement will commence in
1989-90 and the town will grow to an eventual population of
84 000.

16 Gungahlin Town Centre Development - the centre will commence
as a 5 000m 2 group centre when the town's population is 20 000
and will eventually have employment of 7 000-12 000 and
47 000m 2 retail floorspace.

17 Industrial Development - Fyshwick. Mitchell and Hume and the
Canberra Technology Park will be developed to cater for likely
demands over the next two decades.

18 Development of Special Tourist Commercial Facilities - tourist
facilities will be directed where possible to Civic and North
Watson.

19 Metropolitan Roads Upgrading or Development - the road net¬
work will be expanded to cater for expected population and
employment growth.

20 Upgrading of Airport and Railway Facilities - these facilities will
be upgraded to cater for growth in tourist, business and govern¬
ment traffic.

21 Development of Major Electricity Network - the network will be
expanded to cater for expected population and employment
growth

22 Water Resources Infrastructure - the water, sewerage and storm¬
water networks will be expanded to cater for the expected
population and employment growth.

Proposed Commonwealth Works
Potential Private Enterprise Works

01 234 5km

Figure 8 Metropolitan Canberra

Development Plan (Urban Area)

Gungahlin

Ginhmderra

Burley

Weston
TCreek ;

Queanbeyan

x Tuggerattong

Tharwa

Chapter 3

Background

Belcon

Majura

Jerrabombi

Tuggeranong

Cooma

Yass andT
Melbourne

y\J\ \r°.

/< —^

Weston

TW:

'Wodenl

Creek -

A •

Valley

Goulburn
and Sydney

Existing Urban Districts
Propcsed Urban Districts
Possible Urban Districts

Industrial Areas

Existing and Proposed Institutions and Special
Use Areas

Possible Institutions and Special Use Areas

Civic Centre

District Centre
Arterial Roads

0 10 km

I_l_ l _ I-1-1

Figure 9 The Outline Plan as Published in
The Future Canberra

The Y-Plan (1970)

When the Commission was established in 1957, its first task was
to establish planning proposals and development programmes to meet
the immediate and pressing needs of Canberra in relation to land,
housing, offices, schools, shopping, transport, social and community
facilities, and essential National Capital components.

Once this task was completed the Commission turned its attentions
to the question of the longer-term strategy needed to cope with
Canberra’s long-term growth. A strategy was prepared for accom¬
modating a population of 250 000 by about 1980 and was published
in The Future Canberra in 1965 as the Outline Plan (Figure 9). In
order to ensure that this Plan was a satisfactory and efficient strategy
the Commission, in conjunction with Rankine and Hill and De Leuw
Cather, undertook the Canberra Area Transportation Study (CATS).
The study showed that as the population of Canberra grew beyond
250 000 the Plan would break down and the City would be over¬
whelmed by transport pressures and traffic congestion. This was
because most of the major employment and retail facilities in the Plan
were concentrated in Civic and the national area of Parkes and Barton.
This meant that the 1965 Plan was of limited effectiveness beyond
a population threshold of 250 000.

In recognition of this limitation the Commission in 1966 set about
developing objectives for a revised plan for the City that would not
only avoid the problems of the 1965 Outline Plan, but would result
in a plan that would be economically, socially and environmentally
acceptable at population levels well beyond 250 000. The objectives
were to:

• allow Canberra to develop as a dignified setting for the Seat of
Government

• be amenable to one-stage, short-term development so that the
environment desired for a particular area could be achieved at an
early stage and stabilised thereafter, without the need for costly
reconstruction

• provide variety in the metropolitan area so that reasonable choices
of modes of living, working and travelling could be made

• meet future social and technological change by means of a simple
but flexible framework for urban development and redevelopment

With these objectives in mind, the Commission in 1966 undertook,
in conjunction with Alan M. Vorhees and Associates an American
firm of land use and transport consultants, studies to develop a plan
which would lead to the establishment of an efficient public transport
system and which would reduce potential traffic congestion. The main
variables tested related to location and levels of employment; distri¬
bution and levels of retail floorspace; the metropolitan road network

alternatives including the principal freeway and arterial systems of
the luture urban areas; and possibilities for a rapid public transport
system between future urban districts and major centres.

Four theoretical plan forms catering for an ultimate population
of 1 000 000 were formulated as a basis for detailed transport testing.
These were a ‘Diamond’ shape, confined to the Australian Capital
Territory; a ‘Linear’ shape, extending to the north-west; a ‘Linear’
shape, extending to the north-east; and a ‘Fan’ shaped form, extending
to the north-west and north-east (Figure 10).

A Development in concentric form close around
A B Inner Canberra

B Linear development with expansion to the north¬
east of Canberra

C Linear development with expansion to the north¬
west of Canberra

D Development in a fan shape northwards from the
existing Civic Centre

Figure 10 Theoretical Plan Forms Tested in
the 1966 Metropolitan Planning
Studies

To test these theoretical notions for growth six optional land-use
patterns consisting of different arrangements of towns of 50 000 to
150 000 people were devised. The first four were based on the
theoretical plan forms and the remaining two were modifications to
the Diamond plan, developed in order to test the effects of increasing
residential density and central area employment. The options were
then evaluated with respect to retail and market potential, transport
efficiency and employment distribution. The conclusions from this
work were published in Tomorrow’s Canberra in 1970.

The preferred plan became known as the Y-Plan because of the
proposed form of development which was a linear pattern in the shape
of a ‘Y\

The essential features of the preferred option (Figure 11) which
emerged from this testing can be summarised as follows:

• The Central Area: This area, comprised of the national area of
Parkes and associated parts of Barton; Civic Centre, the Australian
National University, CSIRO, Royal Canberra Hospital and
Braddon Service Trades Area; and Defence Headquarters, Russell;
was to be planned to accommodate an employment level of 60 000
persons at a metropolitan population of 500 000, and 90 000
persons at a metropolitan population of 1 000 000. These levels

NSW

- 0 - 20 000 Vehicles per day

- 20 - 40 000 Vehicles per day

■— 40 - 60 000 Vehicles per day
mam Over 60 000 Vehicles per day
Public Transport Route
Town Centres
Regional Centres
O Lower Order Centres

Figure 11 The Preferred Option for 1 000 000
Population

were considered to be the optimum if the area was to function
efficiently and not be overwhelmed by traffic congestion.

• The Regional Structure: The regional structure was to be formed
by directing growth into a series of new towns grouped into three
corridors, north, north-west and south-west of the Central Area
and forming a ‘Y’ shape. This would require and in turn support
a clearly structured transport system. The growth corridors would
occupy natural valley systems and possess a sense of self¬
containment by virtue of the surrounding hills.

• Towns and Town Centres: Each town was intended to ha\e a
population of about 100 000-120 000 people. This level w as arrived
at having regard to the thresholds necessary to support certain
social, economic and municipal developments. For example, towns
of this size could support a large shopping and employment centre,
hospital, Court of Petty Sessions, and police station and would
be convenient units in which to operate municipal and social
welfare services. In addition such population units could become
local government or Federal electorates.

With regard to the distribution and level of retail shopping,
comparison goods space of between 110 000 nr and 136 000 m

was considered to be the range required for Civic Centre. This
would be supported by a town centre in each of the new towns
which would contain retail space appropriate to the needs of the
town population. In order to provide the opportunity for people
to work close to where they lived each town centre was to be
designed to accommodate between 10 000 and 15 000 employees.
Decentralisation of employment and retail opportunities was seen
as providing relief from traffic congestion in the Central Area;
competition for comparison goods shopping; and more efficient
use of the road network system through reverse loading and reduced
journeys to work.

• The Transport System: The transport system was to comprise an
express public transport route connecting the town centres and
running through the built-up spine of each town. It would be
supported by local feeder bus systems. The notional central express
route connected the Belconnen and Gungahlin Town Centres to
Civic Centre, Russell, the Woden Town Centre, and the
Tuggeranong Town Centre with stops placed not less than one and
a half kilometres apart, except within the town centres themselves.
The main element of the road network was a system of peripheral
parkways situated for the most part outside the built-up areas.

• Landscaped Open Space: A landscaped open space system was
to be used to reinforce the natural hill and ridge systems in order
to define a clear boundary between urban areas and rural areas.
Within the town areas landscape treatment was to be used to
enhance the localised natural features, provide recreation spaces
and provide colour and contrast within the built-up area.

0 - 20 000 Vehicles per day
20 - 40 000 Vehicles per day

The total population capacity of the Y-Plan, which extended across
the ACT/NSW border, was up to 1 000 000. From this generalised
concept for urban growth an Intermediate Plan at the 500 000
population level was developed as a basis for forward planning for
the immediate and mid-term futures (Figure 12).

In formulating an Intermediate Plan to the 500 000 population
level the distribution of key activities was guided by two development
objectives. The first was to strengthen the Central Area so that it
achieved, as soon as possible, the indisputable appearance and
function of the main focus of the region. The second was to concentrate
development in as few of the towns as necessary to provide a
reasonable choice for the future residents and businessmen of the City.
It was considered that concentration of growth would permit
economies ot large-scale construction programmes and provide early
attainment of the final built-environment for the occupants of the
new towns.

—— Over 40 000 Vehicles per day
Public Transport Route
Town Centres
Lower Order Centres

Figure 12 The Intermediate Plan for 500 000
Population

The build-up of the Central Area had also to be controlled to
ensure that imbalances in the location of home and work locations
during the various stages of the City’s development would not produce
higher traffic volumes on the inner road network than those forecast
for the 1 000 000 population level. Testing indicated that to achieve
an acceptable balance between town development and Central Area
employment, the Central Area at the 500 000 population level should
not exceed 60 000 employees or two-thirds of its ultimate size. This
was because the adjacent towns would provide a higher proportion
of their employment to the Central Area than would the more distant
towns. With regard to the build-up of town populations, the study
showed that if the population of a town could be built-up to
40 000-50 000 in the first five years, this would support a first stage
of its town centre in terms of retail and employment activity. During
the following five-year period, it was intended that the population
should continue at a fairly rapid rate to provide firm support for the
continued expansion of the town centre (Figure 13). At the growth

Per Cem of Ultimate Development

100

Non Retail

Figure 13 Town Development Strategy for the
Intermediate Plan

rates being experienced in 1967, this implied the commencement of
a new town approximately every ten years.

The evaluation showed that highway facilities should be
programmed in accordance with the needs of both traffic demands
and access requirements. The general strategy postulated was to build
only the internal or central arterial during the initial development of
the town with the extension of the peripheral parkways and arterial
feeders giving access to the town centre, being provided after the tow n
had achieved 50 to 70 per cent of its growth.

The principal conclusion derived from the evaluation was that an
urban form based on linear corridors containing a series of towns and
radiating from the Central Area in the shape of a ‘Y’ would be the
best form for long-term growth of the City. It would facilitate extension
of the urban area and would protect the integrity of the Griffin Plan.

Metropolitan Issues Report (1980)

All plans need to be reviewed at regular intervals. In the ten years
after the publication of Tomorrow’s Canberra dramatic changes
occurred in many crucial factors the most important of which were
population growth rates, car ownership and household size. With this
in mind, the Commission in 1980 undertook a review of the Plan’s
performance to date, and identified the significant existing and
emerging metropolitan issues. In April 1980 a ‘green paper’ was
published on metropolitan issues which was the subject of discussions
at a seminar attended by members of the Canberra community, the
ACT House of Assembly, local parliamentarians, shire councillors,
representatives of special interest groups and other authorities
concerned with Canberra’s future development.

Following the seminar, in June 1980, a publication titled
Metropolitan Issues - Public Discussion Paper was released. To assist
in understanding the paper the Commission placed a series of adver¬
tisements in Saturday editions of The Canberra Times and mounted
static displays in the Monaro Mall, Civic; Belconnen Mall; Woden
Plaza; and the Erindale Centre, Tuggeranong. In addition, detailed
briefings were arranged for a number of business, community and
trade union organisations.

The main issues canvassed were as follows:

• Changed assumptions about population growth rates which,
during the late 1960s and early 1970s, had been expected to
continue at 8 per cent per annum, with the likely prospect that
by AD 2000, Canberra’s population would exceed 500 000;
however, by 1976 there had been a dramatic decline in this growth
rate and by June 1981 it had fallen to 1.3 per cent. In absolute
terms this represented a fall from a peak annual increase of 12 000
people in 1972 to 4 500 people in 1980 (Figure 14).

• Associated w ith this decline of population growth rates there was
also a slowing dow n in most sectors of economic activity (Figure
15). The workforce in the building industry decreased from over
9 000 in 19/5 to about 4 000 in 1980. This was a direct result of
the reduction in housing demand, the cessation of government
housing construction and a significantly reduced construction
programme tor schools, health and community facilities generally.

• Canberra’s private enterprise economy also moved from a position
of high growth to low growth with the result that in one 12 month
period to April 1980 there was a 4.7 per cent decline in private-
sector employment. This represented a loss in one year of 1 500
jobs and was directly related to reductions in the level of govern¬
ment activity. Between 1971 and 1973 private-sector employment
growth exceeded government-sector employment, while between
1976 and 1980 private-sector employment declined each year at
an average of 3 per cent, in response to the containment of the
government sector.

• The decline in the growth rates of population and employment
also resulted in more significant and persistent imbalances in the
provision of shopping facilities, housing and land than would have
been the case under the anticipated high growth scenario of the
Y-Plan assumptions because any oversupply in the provision of
facilities would be quickly absorbed under conditions of higher
population growth (Figure 16).

• Other significant issues were:

a) the decline of population in Inner Canberra, the early
indicators of this problem being declining enrolments in
schools in Woden, Weston Creek, Belconnen and the first
settlement area of Tuggeranong

b) the reduced capacity of the Y-Plan caused by changed
population structure and household formation rates

5 1 — 1 — 1 —■—i—i—i—i—i—i_i_i_i_i_i_i_i_i_i_i_ i i i i i i '

58 60 65 70 75 80 83

Year

Total Population Increase -Net Migration

Figure 14 Growth Indicator - Population/
Migration

Year

Figure 15 Growth Indicator - Residential
Land Sales

Population 1000 si

800

700 -/

600

500

400

300

Year

Figure 16 Population Growth Projections
from Tomorrow’s Canberra ;
Actual Population Growth to
1983

c) the relative imbalance between population and retailing
facilities in the City

d) the need to maintain air and water quality

e) the need to construct significant elements of the road network
in environmentally sensitive areas.

In developing revised long-term planning and development policies
to correct the imbalances noted above, the 1980 Review of the Y-PIan
included an examination relating to the future phasing of the Plan.
This examination assessed whether population settlement should
continue in Tuggeranong or be switched to Gungahlin, and three
options w'ere identified and analysed for discussion purposes
(Figure 17).

Option 1

The first option proposed the continuation of the policy which
had guided the development of Canberra for the previous decade.
Essentially, this option involved the development of North-East
Tuggeranong, Lanyon and the northern part of West Murrumbidgee
to a population level of 109 000, prior to the commencement of the
next new town, Gungahlin. It implied the development of
Tuggeranong Town Centre, and new employment opportunities in
that centre and the Hume Industrial Estate, in order to achieve the

Option 1

To continue existing policy which is to complete the
development of Tuggeranong including the early
settlement of Lanyon and West Murrumbidgee and
O the development of the town centre.

Option 2

To develop northern Tuggeranong to a population of
70 000 (i.e. including development in Kambah.
Wanniassa, Monash, Gowrie, Chisholm, Gilmore.
Fadden, Macarthur, Oxley, Richardson, Calwell.
Theodore, Isabella Plains), with a town centre, and
then commence the settlement of Gungahlin. The
development of Lanyon and West Murrumbidgee
would be postponed until after Gungahlin.

_ Existing Land Settlement

Land Settlement 1980-1995

_| Industrial Areas

; r Central Area
O Town Centres

Option 3

To develop north-eastern Tuggeranong (i.e including
the occupation of existing serviced blocks as well as
the completion of servicing in Gilmore and Oxley) with
a small centre - and then settle Gungahlin The
development of Lanyon and West Murrumbidgee
would be postponed until after Gungahlin

Figure 17 Land Settlement Options - 1980

policies of partial self-containment and a balance between the location
of new employment and housing to meet the needs of the expanding
population.

The advantages of this option were seen as: making the optimum
use of the trunk services already built in Tuggeranong; enabling
Tuggeranong to be provided with a full urban structure and fulfilling
the expectations of Tuggeranong residents, albeit at a slower rate than
originally planned; and enhancing the opportunity to develop
Tuggeranong Town Centre, at least to a scale comparable with other
town centres in Canberra.

Option 2

Option 2 proposed that Tuggeranong would be developed to a
capacity of 70 000 people, prior to the commencement of Gungahlin.
The development envisaged completion of Kambah, Wanniassa,
Monash, Gowrie, Chisholm, Gilmore, Fadden, Macarthur, Oxley,
Richardson, Calwell, Theodore and the Isabella Plains area. A town
centre was also to be established, while the development of Lanyon
and West Murrumbidgee would be postponed until the completion
of Gungahlin.

The advantages were seen as providing the opportunity to develop
the Tuggeranong Town Centre to a size comparable with other town
centres; fulfilling the majority of the expectations of Tuggeranong
residents for community and other facilities; and in curtailing growth
in the south so that lines of communication would not be extended
prematurely or out of balance with development to the north.

Option 3

Option 3 proposed that development in Tuggeranong would be
constrained to the north-east sector at the 50 000 population level,
at which point, settlement would commence in Gungahlin. This
differed from Option 2 in that some land in North-East Tuggeranong
(subject to potential cost, servicing or environmental problems) would
be left vacant until after the completion of settlement in Gungahlin,
i.e. only land within the existing Tuggeranong development front and
already provided with trunk services would be developed. In this
option, the development of the Tuggeranong Town Centre was to be
deferred until after the completion of Gungahlin and after commence¬
ment ot the second stage of Tuggeranong development.

The advantages of this option were: it recognised the potential
servicing difficulties, environmental problems and high costs
associated with developing certain areas within North-East
Tuggeranong; it would be less difficult to implement; it would provide
a reasonable choice of housing environment; and it would optimise
the community facilities provided at the Erindale Centre in the short
and intermediate term.

Following release of the Metropolitan Issues Report and the
advertisements in The Canberra Times , 198 responses were received
from the Canberra community and special interest groups.

The submissions included comments on a wide range of issues,
including the eight specific topics identified by the Commission for
review:

• Priorities for Future Growth

• Settlement Options

• The Tuggeranong Option

• Urban Consolidation

• Town Centres

• The Natural Environment

• Transport

• Economic Development

Some of the submissions included general comments only, while
others produced very detailed analyses and judgements on a number
of both conceptual and specific issues.

In view of the fact that, traditionally, many residents and interest
groups do not express their opinions about long-term planning
intentions until particular proposals affect their neighbourhood, the
Commission was impressed with the research and documentation
contained in many of the submissions.

Business groups generally focused their attention on the subject
of consolidation. Most felt that because of energy costs, declining
school enrolments, transport and other reasons, the Commission
should concentrate on measures which would increase settlement
within existing areas of development. They also pointed to several
areas (e.g. those occupied by the CSIRO Division of Plant Industry’s
Ginninderra Experiment Station and the Belconnen Naval Station,
and McKellar) which they felt the Commission should assess before
extending development beyond the present urban periphery. Several
older residential areas were recommended for redevelopment to
increase use of existing schools, shops and community facilities.
Business groups also favoured restricting further major retail releases
until existing centres were more fully used.

Community groups and residents generally agreed with making
consolidation a higher priority, although some mixed feelings regarding
Inner Canberra redevelopment were evident. Some concern about the
nature of the redevelopment and its effects on the character of older
neighbourhoods was expressed.

Within the wide range of issues presented by community groups,
several conservation groups asked that the Murrumbidgee River
Corridor be protected from development and maintained as a low-
intensity use, recreational reserve.

The submissions received on the settlement options issue were quite
varied. No option was enthusiastically received in its entirety. Major
comments made in relation to the settlement options issue included
the following:

• a considerable number of respondents expressed general support
for settlement Option 3, because of a stated belief that limiting
Tuggeranong development would protect the Murrumbidgee River
environment and that consolidation should take priority oxer fur¬
ther peripheral development, in Canberra

• comments were made that consideration should be given to the
expectations of the present residents of Tuggeranong. It was
suggested these expectations include a population of at least 50 000
to 70 000 to support a town centre (even if on a smaller scale than
was originally planned) and the development of Tuggeranong Lake

• comments were also made that the Commission should utilise
Tuggeranong’s existing infrastructure in order to achieve any
economies of scale.

Generally, residents felt that it should be possible for the present
inhabitants of Tuggeranong to have access to facilities comparable
in range and level of facilities to those they had anticipated when they
purchased houses in the area. Because Woden Town Centre is nearby,
however, a major town centre in Tuggeranong was considered to be
unnecessary for some time by many respondents.

The comments were both encouraging and useful and formed a
significant input into later work, which involved a more detailed
analysis of the issues raised in 1980.

One of the most important issues highlighted the distribution of
activities between town centres. People commenting on this issue
focused, to a large extent, on the particular problems facing Civic
Centre. Consequently, the Commission resolved to undertake a major
review of planning and development policies for Civic Centre. The
Civic Centre Policy Plan and Development Plan was published in
February 1984.

Another important issue was the provision of shopping and
community facilities for Tuggeranong. In general, those commenting
on the issue agreed that the residents of Tuggeranong should have
an appropriate range of faeilities, but did not favour a major town
centre in Tuggeranong at this time. The Commission, accordingly,
investigated in detail the range of facilities which could appropriately
be located at the Erindale Centre, bearing in mind both the needs of
the residents of Tuggeranong and the current viability of commercial
development and retailing throughout Canberra. A report outlining
the findings of this review was published in July 1983.

The Commission also continued work on the National Capital
Open Space System and focused on the need for closer integration
of planning and management, based on aesthetic, environmental and
symbolic (national capital ethos) considerations. Open space
requirements were assessed in relation to existing and likely future
populations and also to meet the special needs of the National Capital.
Information on key elements of the natural environment of the ACT
was collected to enable an assessment of the impact of urban develop¬
ment on the various ecosystems and on rural lands. The boundaries
of the system are being progressively defined.

In the period since the 1980 publication of the Metropolitan Issues
Report further studies have shown that the issue of future land
settlement sequence is still a key issue, not so much in terms of whether
the next major development stage should occur in either Tuggeranong
or Gungahlin but rather in terms of how soon and in what form should
the development of Gungahlin be carried out.

This in the Commission's view is the most important metropolitan
planning issue raised in this present Report. Its significance lies in
the fact that to start a new ‘development front’ in Gungahlin has
substantial fiscal implications for the government. Also the development
ol Gungahlin could defer but would not resolve the question of
whether or not rural lands in Tuggeranong west of the Murrumbidgee
River are to be preserved, and whether rural lands in NSW north of
the ACT will eventually become urbanised and incorporated into
Canberra.

Chapter 4

Existing Situation and
Forecast Change

Existing Land Use Plan and Location of
Key Activities

Existing Land Use Plan

The Existing Land Use Plan (Figure 18) provides a brief description
of the metropolitan structure of Canberra, depicting, in very broad
terms, the location of such key activities as the main settlement areas,
employment and retail nodes, recreation facilities and the network
of transport routes connecting them.

Employment and retail activity is distributed among town centres
and employment nodes within and adjacent to the towns, and leisure
and recreation facilities are dispersed both within the town areas and
within the metropolitan open space system connecting the main hill
and valley systems, which surround and pass through the town areas.
The main road system consists of a central arterial spine connecting
the major centres and a peripheral parkway system carrying inter-town
traffic to the major activity nodes.

The Towns

The main settlement areas comprise the original Federal Capital
City of Inner Canberra, Woden-Weston Creek (Canberra's first new
town), and the additional new towns of Belconnen and Tuggeranong.

In June 1983, the total population within the settled area of the
Canberra City District was estimated at 234 900. The structure of the
towns may be summarised as follows:

• Inner Canberra

In 1958, Canberra had a population of 39 000. North Canberra
consisted of five suburbs and South Canberra had six suburbs
which were partly developed. Between 1958 and 1969 another seven
suburbs had been developed and the total population increased
to 82 000.

The population in June 1982 was 59 400, a reduction of 22 000
over the previous 14 years. The decline was the result of mortality
and out-migration to new developing areas. All Inner Canberra
suburbs have declining household occupancy rates. Inner Canberra
also has a significantly higher proportion of one and two-person
households and older age groups.

• Woden-Weston Creek

Woden was the first new town designed by the Commission.
According to the principle established by the Outline Plan and later
the Y-Plan, it is physically separated from, but conveniently related
to, Inner Canberra. Woden was originally planned as a discrete
unit, but the development of an adjoining valley, Weston Creek,
increased the population to a level where Woden could support
a larger town centre and provide better town facilities.

The structural concept for Woden consists of twelve
neighbourhoods located on the valley slopes. In the floor of the
valley are the Town Centre, playing fields, large school grounds,
and transport facilities. The Town Centre is located at the intersec¬
tion of the main traffic routes through the valley. Weston Creek
consists of eight neighbourhoods.

The development of Woden-Weston Creek is substantially
complete. The population peaked in 1976 at about 63 000 people.
Most suburbs in Woden are already experiencing a population
decline and enrolments have begun to decline at some schools. The
population of Woden-Weston Creek at June 1982 was 59 950.

• Helen nnen

Belconnen was the second town designed by the Commission. The
Town Centre is close to the geographical centre of the area,
adjacent to an artificial lake, Lake Ginninderra. The road system
is based on a grid pattern.

The development of Belconnen is not yet complete. The suburbs
of Florey and McKellar are still to be settled and extensions to
other suburbs such as Kaleen and South Bruce are yet to be
constructed. When the Naval Station is relocated land will become
available for an additional suburb. The planning structure of
Belconnen allows for all of these future residential areas. Because
development has been spread over a number of years, the older
suburbs such as Aranda and Cook are experiencing a fall in
population before housing development is completed in the newer
areas. The population at June 1982 was 77 000.

• Tuggeranong

The planning of Tuggeranong has been based on the concept of
‘territorial units’ rather than neighbourhoods. The boundaries of
territorial units are either defined by physical features which occur
naturally such as ridges or significant stands of trees, or are man¬
made, for example, floodways which do not have visual links with
the adjacent areas. Because these features normally follow the
topography, territorial units in Tuggeranong vary in size. Areas
such as Kambah with weaker physical constraints tend to be less
contained and larger whereas areas with more striking landscape
features such as Macarthur tend to be smaller and have greater
identity.

At February 1984, Tuggeranong had eight local centres and two
larger centres (Kambah Village and Wanniassa). No retail facilities
have as yet been provided at the group centre or town centre level
although the recently announced retail developments at the Erindale
Centre and the Tuggeranong Town Centre will provide for the
higher order shopping needs of Tuggeranong residents.

Tuggeranong experienced the greatest impact from the slowdown
in metropolitan growth. The population at June 1982 was 32 800
people, although it is increasing at a rate of about 5 000 people
per year.

Major Metropolitan Centres

The locus ot each Iully developed town is a town centre. The town

centres are at the following stages of development.

• Civic Centre

Civic Centre is the highest order commercial centre for Canberra
and the region, and in addition, provides the greatest concentration
ot employment opportunities. It has always been envisaged as the
main local administrative and commercial centre and as an area
important tor tourists and visitor-associated uses. It accommodates
Canberra’s major cultural, leisure and entertainment facilities, is
the main legal, financial and medical centre, and contains the
majority of Canberra’s professional and specialist functions.
Employment in Civic Centre at June 1982 was approximately
16 000. There was 60 800nr of retail floorspace in Civic at
September 1982.

Parliamentary Zone

Civic Centre/Town Centres

Urban Areas

Public Open Space

Major Roads

Industry

Special Uses

Airport/Railway Uses

Rural and Non-Urban Areas

Forestry

Water Catchment Area

2 4 6 8 10 km

j -1-1_i_ i

Metropolitan Canberra

Existing Land Lise Plan

Gungahlin

Belconnen

Canberra

Majura

eston

reek

/Queanbeyan

Jerrgbomberra

Valley

COTTER

TIDBINBILLA

NATURE

RESERVE

CATCHMENT

Tharwa

NATURE

NSW

h.U

■'u ~ n >

AREA

GUDGENBY

- RESERVE

NSW

• Woden Town Centre

Woden Town Centre was the first major centre to be constructed
outside Inner Canberra. Existing development includes a mixture
of government and private enterprise offices, retail facilities and
service trades, community services, leisure and recreation facilities,
and a major bus depot and interchange. Employment in the centre
at June 1982 was approximately 9 300. There was 67 900m : of
retail floorspace in Woden Town Centre at September 1982.

• Belconnen Town Centre

Existing development in Belconnen Town Centre comprises a retail
mall, service trades, offices, institutions, bus depot and inter¬
change, and flats and townhouses. Employment at the centre at
June 1982 was approximately 8 000. This figure excludes the
CCAE which is not part of the town centre. There was 67 300m’
of retail floorspace in Belconnen Town Centre at September 1982.

Industry has been developed in estates, to accommodate manu¬
facturing, processing, storage, regional service trades and public
utilities.

The estates have been sited on the edge of the urban areas but
in locations which conveniently service the workforce of the new towns
and have good accessibility for interstate freight movements. Industrial
estates are currently located at Fyshwick, Elume and Mitchell. In
addition, Queanbeyan has an important role in industrial develop¬
ment with two major industrial estates.

At June 1982 Fyshwick had an employment level of 8 300 and was
substantially completed. Hume is being developed to provide a
location for rail-oriented industries. Development is also continuing
at Mitchell, particularly for transport and road-haulage firms and
those needing direct access to road links with Sydney and Melbourne.

In addition to the town centres and industrial areas, employment
has been dispersed to locations between the towns and adjacent to
the public transport spine. These have become centres for office
employment and a variety of activities including hospitals and
educational establishments. Employment concentrations are located
at:

• Parkes/Barton

• Russell/Campbell Park

• Bruce

• South-West Deakin

The National Capital Open Space System

Within the metropolitan area, the hills and ridges have generally
been kept free of urban development. They act as a backdrop for the
City, and provide a means of defining the towns so that each might
develop a distinctive character.

The National Capital Open Space System comprises these hill
reserves and ridges, together with Canberra’s lakes and foreshores,
the river corridors of the Murrumbidgee and Molongo Rivers, the
distant mountain areas west of the Murrumbidgee, and other major
open spaces.

The System provides not only a pleasing and unifying visual
background to the Capital, but also a diverse recreational, cultural
and ecological resource.

The Transport System

At the metropolitan level, the system derived from the Y-Plan has
two complementary components: an inter-town public transport route

connecting the town centres and running through the urban areas;
and a peripheral road system designed to keep the major inter-town
vehicle movements out of the urban areas.

Water Resources

The ACT forms part of the Upper Murrumbidgee Basin. The
climate is essentially continental with hot summers and cold winters.
Although the low rainfall (450-550 mm per year) is generally
distributed throughout the year, the region experiences extended
drought periods in common with the rest of inland Australia.

Under the Seat of Government Acceptance Act 1909 the
Commonwealth has paramount rights to the w aters of the Queanbeyan
and Molonglo Rivers.

The regulation and diversion of streams for municipal water supply
purposes is undertaken in the Cotter River to the w'est, and the
Queanbeyan River to the east. The Naas-Gudgenby catchment to the
south has been identified as a potential future source of water supply.
This system and the associated network of bulk supply mains reflect
to a considerable degree the development of the Y-Plan.

The metropolitan trunk sewerage system comprises a network of
tunnels and interceptor sewers servicing Tuggeranong, Woden-Weston
Creek, Inner Canberra, and Belconnen. Provision exists to service
Gungahlin. In view of the high standard of wastewater treatment
required to protect inland waters, and in the interests of economy,
wastewater treatment in the ACT is largely undertaken at one plant
(the Lower Molonglo Water Quality Control Centre).

The system of lakes and streams incorporated into the National
Capital Open Space System is also required to transport urban storm¬
water and rural floodwater through the metropolitan area. The
management of surface water includes the reservation of flood plains
along the major drainage routes, and the provision of stormwater
drains within the urban areas. These systems represent significant
constraints on the configuration of metropolitan development. The
waters of the ACT are generally suitable for a range of uses including
swimming, boating and other forms of recreation.

Social and Economic Aspects of the City

Introduction

Expansion of the Public Service workforce has been the fundamen¬
tal reason for the growth in Canberra’s employment and population.
As a consequence, changes in government policy have resulted in
sudden shifts in the level of economic and social activity in Canberra
with consequent effects on the population.

The level and types of population-based demands in the future
will be closely related to the likely population and employment growth
and the future characteristics of the population, particularly in terms
of age and income.

Population and Employment

Aspects of population and employment are relevant to forecasts
for planning and assessments of social needs. This section describes
the following:

• existing employment, its distribution and structure

• recent trends in employment, which need to be studied to gain an
understanding of the effects of likely future growth

• labourforce characteristics, and unemployment - two important
sets of social indicators

• the existing population, its structure and distribution, and recent
population trends including population decline in the older areas
of Canberra

• income and expenditure effects

• population and employment balance

• population and employment forecasts.

Existing Employment

As at June 1983, the labourforce of the ACT was 115 700, of which
7 700 were unemployed. In addition, an estimated 6 000 jobs were
located in Queanbeyan.

Employment Distribution

Although the employment distribution is strongly biased towards
Inner Canberra, a fundamental goal of Canberra’s planning has been
the dispersal of employment away from the Central Area to the new
towns so as to reduce the costs associated with the journey to work,
congestion and pollution.

While the strategy for dispersal includes industry and retail
floorspace, otfice decentralisation is emphasised because of the
structure of Canberra’s workforce. The estimated employment
distribution in the ACT and Queanbeyan is shown in Table 5.

Table 5 Estimated Emplovment Distribution ACT and Queanbeyan -
1981

Employment

Inner Canberra (I)

67 700

60.9

Woden-Weston Creek

16 000

14.4

Belconnen

15 000

13.5

Tuggeranong

1 600

1.4

Other ACT

4 900

4.4

Queanbeyan

6 000

5.4

Total

111 200

100.0

(1) Includes Fyshwick.

I able 6 Major Employment Nodes - 1982

Civic Centre

16 000

Acton

7 300

Woden Town Centre

9 300

Belconnen Town Centre

8 000

Parkes/Barton

10 650

Russell/Campbell Park

6 600

Fyshwick

8 300

Queanbeyan

6 000

The major employment nodes within these districts are shown in
Table 6.

Employment Structure

Canberra’s employment structure is markedly different from other
urban areas in Australia (Table 7). The most notable features are the
minor manufacturing (secondary) component in the ACT and the
comparatively high component of public administration and defence,
which accounted for 32.5 per cent of employment in 1981.

Table 7 Employment Structure of the ACT 1971-1981 and Australia
1981 (°7o)

Industry Type

ACT

Australia

1971

1976

1981

Agriculture/Mining

1.0

0.8

0.9

7.4

Manufacturing

5.6

4.7

3.6

17.7

Electricity

0.7

2.0

Construction

10.3

9.0

5.0

6.3

Wholesale/Retail

12.9

17.4

Transport/Storage

2.5

2.3

2.7

5.2

Communications

1.6

1.5

1.6

2.0

Finance etc.

Public Administration/

6.0

7.1

7.6

8.4

Defence

32.6

31.7

32.5

5.6

Community Services
Recreation/Personal

17.6

19.1

22.3

14.9

Services

6.2

4.8

5.9

5.2

Other

3.0

5.7

4.3

7.7

100.0

The decline in construction employment from 9 per cent of the
workforce in 1976 to 5 per cent of the workforce in 1981, reflected
the downturn in the ACT economy during that period.

In 1981, the public sector accounted for 59 per cent of total
employment in the ACT compared to 25 per cent for Australia (Fieure
19).

The dominance of the government sector makes the ACT economy
and social structure susceptable to changes in government policy. This
has led to calls for diversification of Canberra's economy.

Private sector activity in the ACT has essentially served the growth
of the public sector.

Figure 19 Government Share of Total
Employment - 1981

Australia

Recent Trends in Employment Growth

Expansion of employment opportunities is the prime determinant
of a city’s population growth. High levels of employment and
population growth occurred in Canberra in the 1960s and early 1970s,
in response to high levels of government employment and investment
(Figure 20). The transfer of government departments, and the sub¬
sequent growth of those departments, has been the mechanism behind
the growth of private sector employment.

Public and private sector employment grew strongly until the
mid-1970s when growth rates slowed considerably. During 1971-76,
public sector employment increased by nearly 16 000 and the private
sector by 15 000. In the following five years, 1976-81, employment
in the private sector declined by some 250 positions, while the public
sector increased by about 10 000.

Expansion in Public Service Act (PSA) employment has been the
major impetus for employment change. During the last twenty years,
PSA employment growth rates and total employment growth rates
have been almost identical during both high and low growth periods.

C/O

1961 66 1966 71 1971 76 1976 81

Year

] Population Growth J Employment Growth

Source: A8S

The transfer programme has accounted for the majority of PSA
employment growth in recent years. From 1971 to 1976, the transfer
programme accounted for about one per cent of PSA growth. Since
1976, it has represented over 60 per cent of growth (Figure 21).

At June 1983 PSA employment accounted for 36 per cent of total
employment and 64 per cent of the public sector employment within
Canberra.

Labourforce Characteristics

Major features of the ACT labourforce are:

• High Participation Rates

The labourforce participation rate (the proportion of people 15
years and over in the labourforce) is high by Australian standards.
At June 1982, the labourforce participation rate in the ACT was
68.8 per cent, compared to 60 per cent for Australia. This reflects
the age composition of the population and job availability in the
ACT. Between 1966 and 1982, the female labourforce participation
rate rose from 45 per cent to 55 per cent in the ACT, while the
Australian average rate rose from 35 per cent to 44 per cent. In
Australia, between 1971 and 1982, male participation fell from
82.5 per cent to 77.2 per cent, as a result of earlier retirement,
increased participation in full-time education and age structure
change. In the ACT, male participation fell from 84.7 per cent
to 82.1 per cent (Figure 22).

• Highly Educated

At June 1981, 14.1 per cent, of the population over 15 years had
a Bachelor’s degree, or higher, compared to the Australian average
of 4.1 per cent (Figure 23). The high levels reflect the nature of
employment available in the ACT. The retention rate to Year 12
in the ACT in 1981 was 68 per cent compared to 35 per cent for
Australia.

• Relatively High Income and Expenditure

Average male weekly earnings in the ACT, at March 1983, were
$406.30 compared to the Australian average of $345.00, reflecting
the occupational structure of the workforce.

• Increasing Part-Time Employment

In the ACT, the share of part-time employment (people working
less than 35 hours per week) increased from 11.7 per cent to 19.6
per cent between 1971 and 1981. Over the same period, the part-
time employment share of Australia’s total employment increased
from 10.5 per cent to 16.3 per cent. Eighty per cent of employment
growth between 1976 and 1981 was in part-time employment.

figure 20 Population and Employment
Growth

4 -

71 72 73 74 75 76 77 78 79 80 81 82 83 84

Year

I Annual Increase fcn&l Positions Transferred

Source ABS

Figure 21 Public Service Act Employment
ACT 1971-1983

- 1966 - 1976

- 1971 - 1981

Source: ABS

figure 22 ACT Labourforce Participation
Rates 1966-1981

Per Cent

1 1 Australia 1 1 ACT

Source: ABS

Figure 23 Educational Qualifications
Australia and ACT - 1981

Figure 24 Age Distribution of ACT

Unemployed Persons 1976 and 1981

Between 1976 and 1981, female part-time employment increased
from 29 per cent to 37 per cent of total female employment. Male
part-time employment increased from 4.4 per cent ot total male
employment in 1976 to 11.2 per cent in 1981. Part-time employment
is particularly prevalent in the retail, community service and
entertainment industry sectors.

Unemployment

Between the 1976 Census and 1981 Census, the unemployment rate
increased from 2.6 per cent to 5 per cent of the labourforce (Figure
24). As at May 1983, the unemployment rate was estimated to be 7.8
per cent in the ACT. This compared to 10.3 per cent for Australia.

The impact of unemployment is uneven in the community, being
higher for the young, females, migrants, the disabled, and the less
well educated.

The ACT Employment Task Force Report (1983) outlines this
uneven impact. While the overall unemployment rate in the ACT is
below the Australian average, the level of teenage unemployment is
substantially above average. At December 1982, teenage unemploy¬
ment in the ACT was 35.8 per cent compared to the Australian average
of 26.3 per cent. High unemployment among teenagers is a product
of their lack of experience and skills, and has also been influenced
by increases in teenage rates of pay. The higher youth unemployment
in the ACT is partly a product of the Territory’s industrial structure
which requires relatively high levels of skills.

At November 1982, 8.0 per cent of females were unemployed and
7.7 per cent of males. However, the duration of unemployment is less
for females. At November 1982, the average duration of unemploy¬
ment for females was 20.7 weeks and for males 34.2 weeks.

The duration of unemployment increases with age. The median
duration for teenagers is 17 weeks, compared to over 34 weeks for
persons 45 years and over.

The 1981 Census indicates that for ACT residents who were born
overseas the unemployment rate was 6.3 per cent compared to 4.5
per cent for persons born in Australia. The unemployment rate for
migrants is influenced by their time since arrival in Australia. The
Vietnamese in the ACT, for example, had an unemployment rate of
38.4 per cent at the 1981 Census.

The age a person leaves school also influences the likelihood of
unemployment, particularly for males. Males who leave school at 15
have double the unemployment rate of those who leave school at 17.

The level of unemployment in June 1981 was higher at 6.3 per
cent, in Inner Canberra than in the other towns. This compared to
4.9 per cent in Belconnen, 4.5 per cent in Woden, 4.1 per cent in

Age Age

Tuggeranong and 4.0 per cent in Weston Creek. The unemployment
level, in part, is related to the age structure of suburbs and the location
of government housing. At 1981, the suburbs with unemployment
above 7.0 per cent were Lyneham, O’Connor, Turner, Ainslie,
Kingston, Narrabundah, Melba and the Division of Belconnen.

Existing Population

As at June 1983, the Canberra population was estimated at
234 900, and the population of Queanbeyan was estimated to be
20 150.

The distribution of the Canberra population at June 1983 was as
shown in Table 8.

Table 8 Population Distribution - 1983

Inner Canberra

700

Woden-Weston Creek

700

Belconnen

700

Tuggeranong

450

Other ACT

350

Compared to the Australian pattern, the age structure of
Canberra’s population (Figure 26) has:

• a much lower proportion aged over 65 years

• a lower proportion in all age groups aged over 45 years

• a higher proportion of those aged 0-14 years.

Although Canberra’s population shows a younger age distribution,
a number of changes have occurred during the past twenty years, the
most significant being:

• the proportion of 0-4 year olds has steadily declined. This is con¬
sistent with national trends

• the proportion of those aged over 45 years has steadily increased.

Nationally, the change for these groups has been only marginal.

The ageing of the population is indicated by the increase in the
median age of the population from 23.6 years in 1971 to 27.1 years
in 1981. In 1981, median age for the Australian population was 29.7.

Population Trends

Since 1975, the rate of population and employment growth has
fallen sharply in response to contraction in the rates of growth in
public sector employment.

From 1966 to 1975, the average level of population growth was
11 000 per annum, of which 73 per cent was a result of net migration.
Between 1976 and 1982, inward net migration has averaged 1 000 per
annum, only 22 per cent of the growth in that period (Figure 27).

Migration flows to the ACT have been dominated by young adults
and children, although between 1961 and 1976 there were net gains
in all age groups. Between 1976 and 1981, there was a net outflow
in the 45-59 age groups (Figure 28).

It has been characteristic of Canberra’s settlement that the new
towns have been settled rapidly by households at a similar life cycle
stage.

The age pyramids of the towns reflect their time and pace of
development. The towns exhibit a ‘bi-modal’ profile - that is, initial

80 -

^ — Belconnen

60 - L -

Figure 25 Population Distribution by
Settlement Area 1960-1983

Age

12 10 8 6 4 2 2 4 6 8 10 12

Per Cent

Source ABS

Figure 26 Age Structure of Population
ACT and Australia - 1981

14 -

2 ---

72 73 74 75 76 77 78 79 80 81 82 83

Year

I 1 Natural Increase [^j Net Migration

Source: ABS

Figure 27 Annual Population Increase
1972-1983

Population 1000 si

>2 i_i_i_i_i_i_i_i_i

0 5 15 25 35 45 55 65 70

Age

1961 -66
1966-71

-1971-76

- 1976-81

Source: ABS

Figure 28 ACT Net Migration Age
Distribution 1961-1981

Figure 29 Age Structure by Town - 1981

settlement of the towns by young adults in the child-bearing ages
(Figure 29). Over time, the migration of children when they reach the
15-24 age groups to form new households in or outside the ACT and
the impact of mortality, produce a marked population decline. I he
population of Inner Canberra has declined from a population peak
of 83 000 in 1967 to below 60 000, reflecting the impact of out¬
migration and mortality. The process of demographic change in Inner
Canberra is illustrated in Figure 30.

A survey undertaken by the Commission in North Canberra found
evidence of ‘regeneration’ in the older suburbs, as reflected in the
increase in 0-4 year olds in these areas since the 1976 Census. This
‘regeneration’, however, is insufficient to counteract the influence of
out-migration and mortality. The new households being formed will
have a lower ‘peak’ family size than the households they are replacing.

Age

Population 1000 si

Age

Population 1000si

Source ABS

Approaching/Over 4 Persons
Falling from 4 Persons
Falling below 3 Persons

Figure 30 House Occupancy North
Canberra 1961-1981

The impact of ageing and the trends towards smaller family size
are reflected in town household occupancy rates (Table 9). Inner
Canberra achieved peak household occupancy rates of 4.2 persons
per household, while Woden and Belconnen peak household occupancy
rates were 3.9 and 3.8 respectively.

While occupancy rates of 4 persons per household will be
approached in individual suburbs, the slower pace of town develop¬
ment and demographic change will result in average town household
occupancy rates of below 4 persons per dwelling. The pattern of
Canberra’s suburban development, characterised by rapid population
build-up, has resulted in concentrations of population in specific age
groups. This creates high short-term demands for age-specific facilities
such as pre-schools and later primary schools and high schools. The
under-utilisation of school space in the older areas of Canberra is a
result of the demographic change that is taking place.

Table 9 Dwelling Occupancy by District 1961-1981 (1)

1961

1966

1971

1976

1981

North Canberra

4.2

4.1

3.4

2.9

2.6

South Canberra

4.2

4.1

3.4

3.0

2.6

Woden

3.9

3.4

3.0

Weston Creek

3.5

3.7

3.4

Belconnen

3.8

3.6

3.4

Tuggeranong

3.3

3.5

Other ACT"

n.a.

3.2

3.0

Average ACT

4.2

4.1

3.6

3.3

3.1

(I) Average number of persons per occupied dwelling.
(Source: ABS Census, various years)

Income and Expenditure Effects

The characteristics of the ACT population and labourforce outlined
above affect the demand for facilities. The level of income a household
has at its disposal is an indicator of well-being and determines the
degree of access to a wide range of goods and services. The ABS
1975-76 Household Expenditure Survey found that weekly household
expenditure in the ACT was 40 per cent higher than the Australian
average. This higher household expenditure,in part, reflects the higher
participation ot women in the labourforce, which has implications
tor the demand and supply of childcare facilities and the demand for
retail facilities outside normal trading hours. Higher household
incomes result in the majority of the ACT population being affluent
and mobile. Car ownership rates are high; retail sales per capita are
on par with Melbourne, the highest of the State Capitals; and school
retention rates for Years 11 and 12 and participation in tertiary
education are above average.

Household income levels are lowest in Inner Canberra. The older
North Canberra suburbs of Ainslie, Turner, Braddon and Reid had
median household incomes of below $18 000 at the 1981 Census. Other
areas with low median household incomes were Barton, Kingston,
Lyons, Narrabundah, Macquarie, Charnwood and the Division of
Belconnen (Figure 31). This pattern is largely related to the distribution
of government housing.

In part, higher average wages in the ACT are offset by higher living
costs. An indication ot the relative cost of living between urban areas
in Australia can be obtained trom established housing and food cost
data. Canberra is the second most expensive capital, after Sydney,
in terms of the median cost of established houses (Table 10).

The average retail price for selected food items in the June quarter
1982 placed Canberra as the second most expensive capital after
Hobart (Table 11).

fable 10 Median Price of Established
Houses - May 1983

Sydney

82 500

Canberra

68 400

Melbourne

55 750

Brisbane

55 750

Perth

51 500

Adelaide

49 600

Table 11 Retail Prices Index of Selected
Items - June 1982

Melbourne 100.0

Sydney 102.2

Perth 103.1

Adelaide 104.5

Brisbane 104.5

Canberra 105.5

Hobart 108.3

The economic recession led to greater inequality in the Territory
than had previously existed, and increased unemployment created
greater demands for social welfare payments and services. Between
1974-75 and 1981-82, welfare expenditure by the Department of
Territories and Tocal Government increased from $2.6 million to $8.6
million (per 1981-82 prices). Over this period expenditure on rental
rebates increased from $0.8 million to $5.6 million, indicating the
increased need for subsidised housing.

Less than $18 000

$18 001 to $22 000

$22 001 to $26 000

More than $26 000

Source: ACT Employment Task Force

0 1 2 3 4 5 km

i_i_i_i_i-1

Figure 31 Annual Median Household Income
by Suburb - 1981

:harnwood

Melba

Macgregor

Giralang

Lalham

McKellar,

Florey /<

Belconnen

Kaleen

Scullin

Watson

Belconnen

Downer

Bruce

Hackett

Hawker

'neb am

Macquarie

Dickson

Aranda

O Connor

Turne ' /Braddon

"Canberra .

Acton

Cam obeli

.Russell

Yarralumla

Central

J Barton

Kingston

Deakrrs / Forrest

Griffith

Curtin

Fyshwick

Narrabundah

Hughes j

/ Holder / \

ffy { I \

\ j Weston \

Weston" Creek

Rlvett /'Stirling \
^Warramanga

Garran

Woden Va le’

ph '"'p y

O'Maftev

Fisher

Mawson

orrens

Farrer

Population and Employment Balance

The greater the co-ordination between population build-up and
employment provision in a new town, the greater the likelihood of
people living and working in the same town. Traditionally, employment
has lagged behind population growth. Belconnen began settlement in
1967, while the first offices opened in 1975. Tuggeranong is yet to
attain offices, although settlement began in 1973. The imbalance
between population and employment build-up has resulted in higher
levels of cross town commuting than would have otherwise resulted.

The essential justifications for the dispersal of employment are:
to reduce the length and cost of the journey to work; to minimise
traffic congestion; to reduce public investment; and to provide

opportunities for people to live and work in the same town. The
greater the co-ordination of employment and population, the greater
the benefits are likely to be.

Proximity to work is, of course, only one aspect of a household’s
location decision. The workplace of other members of the household;
access to housing and finance; attributes of the house; house price;
accessibility to other urban activities such as educational facilities,
retailing and recreation; and the amenity of an area; all impact on
residential location decisions. Once a residential location decision is
made, there is considerable inertia to adjust that location.

In order to facilitate employment dispersal, functional groupings
of government departments have been located in particular centres.
Thus, Woden Town Centre has been nominated as the location of
social welfare departments such as Social Security and Education.
Defence functions are located at Russell/Campbell Park, major policy
departments at Parkes/Barton, service and technical departments at
Belconnen Town Centre, and civic and administrative functions in
Civic Centre.

Between 1968 and 1983, the Belconnen and Woden Town Centres
attained 55 per cent of the growth in PSA office employment, the
main vehicle for the dispersal of employment.

Private enterprise office employment remains concentrated in
Civic, while employment in statutory authorities and other govern¬
ment agencies remains concentrated in the Central Area.

To evaluate the employment dispersal policy an analysis of the
journey to work data from the 1981 Census was undertaken.

The analysis indicated the dominance of Inner Canberra as an
employment location. While Inner Canberra had 26 per cent of the
Canberra/Queanbeyan resident workforce, the district had 61 per cent
of Canberra/Queanbeyan employment. Tuggeranong on the other
hand was the residence of 11 per cent of the Canberra/Queanbeyan
workforce yet had less than 2 per cent of the Canberra/Queanbeyan
employment.

North Canberra had the highest proportion of residents who lived
and worked in the same town (self-containment) - 56.5 per cent
compared to only 7.5 per cent in Tuggeranong (see Table 12).

Tuggeranong residents, however, took a relatively high proportion
of the jobs that were available in Tuggeranong. Tuggeranong,
Belconnen and Queanbcyan residents took over 60 per cent of the
jobs available in their respective towns. This compared to less than
35 per cent in both Inner Canberra and Woden-Weston Creek (see
Table 13).

The unequal distribution of employment between towns is reflected
in the work locations of the residents of each of the towns. North
and South Canberra comprise the dominant employment location for
the residents of each of the towns except Queanbeyan (see Table 14).

The 1981 Census also indicated that 69 per cent of jobs at the
Woden Town Centre were taken by residents of Woden, Weston Creek
or Tuggeranong, and that 60 per cent of jobs at the Belconnen Town
Centre were taken by Belconnen residents.

The analysis indicates that the distance from home to work is a
major factor in a household’s location decision. The policy of employ¬
ment dispersal increases the locational choice available to a household.

The implications of the locational imbalance between employment
and population are discussed in Chapter 5.

1 able 12 Level of Self-Containment by
District - 1981 ( r o )(1)

North Canberra 56.5

South Canberra 45.3

Woden 28.0

Weston Creek 10.8

Belconnen 30.0

Tuggeranong 7.5

Queanbeyan 40.3

(l) Self-containment is the ratio of people
who live and work in a district to the
resident workforce of the district.

fable 13 Proportion of Jobs in a District

Taken by Residents of that District
- 1981 (%)

North Canberra

27.1

South Canberra

15.3

Woden

34.2

Weston Creek

51.8

Belconnen

67.5

Tuggeranong

60.3

Queanbeyan

63.1

Population 1000si

500

Table 14 Work Location by Residence - 1981 (%)

1981

Figure 32

1986 1991

i i

1996 2001 2006

Year

Population Forecasts for Canberra
1981-2006

Primary

Second

Third

Employment

Residence

District

Other

North Canberra

56.5(NC)

19.9(SC)

9.4 (B)

14.2

South Canberra

45.3(SC)

30.6(NC)

8.6 (W)

15.5

Woden

29.1(NC)

28.0 (W)

26.3(SC)

16.6

Weston Creek

27.5(NC)

25.1(SC)

19.8 (W)

17.6

Belconnen

37.5(NC)

30.0 (B)

18.0(SC)

14.5

Tuggeranong

26.8(SC)

26.4(NC)

20.5 (W)

16.3

Queanbeyan

40.3 (Q)

24.1 (SC)

15.4(NC)

20.2

Population and Employment Forecasts

The extent to which Canberra will grow will be determined largely
by the number of new jobs which will be created. The level and
composition of Canberra’s existing population indicates that over the
next twenty years natural increase alone will add some 60 000 people
(Figure 32). If these are to remain in Canberra, employment
opportunities will need to expand. On the other hand, natural increase
creates a domestic demand for goods and services which, in turn, leads
to new jobs, so that even under the circumstances of only modest
economic growth there is at least a partial self-sustaining effect from
natural increase and from changes in the population composition.

Two factors indicate that the rates of growth in population and
employment prior to 1975 will not be repeated:

• the current PSA employment transfer programme, although not
yet completed, is largely accomplished and is a non-recurring event

• the requirement for government office buildings, land, housing
and associated facilities, which created many jobs in the con¬
struction industry at the time when new buildings were required
to accommodate whole departments, will not recur.Future demand
will be incremental and probably more constant at a lower level.

On the other hand, there are other factors which have not been
part of the historical experience, but are likely to have an impact in
the future. These include:

• less propensity for retirees to leave Canberra

• a greater propensity for older people to move to Canberra to join
their relatives or for other social and economic reasons

• the effects of deliberate policies to attract private enterprise
investment and a consequent diversification of employment, which
will not only create new jobs, but also provide better opportunities
for local people to stay in Canberra

• world-wide trends for white-collar tertiary employment to increase

• increasing demands by society for government intervention, which
may outweigh ‘small government’ pressures. For example, govern¬
ment employment has shown an overall increasing proportion of
total employment, even during the 1976-81 period

• the ACT has, over the past decade, continued to increase its share
of both total Commonwealth and PSA employment, although at
a slower rate during the past 5-6 years. This trend has arisen
through transfers, continued growth of policy elements of depart¬
ments and responses to specific government initiatives

• notwithstanding the suggestions of some commentators, the
National Capital will not be complete when the New Parliament
House is built.There will be new national institutions - of which
the Museum of Australia is one that has already emerged - and
there are others which will expand or relocate. Cultural and
representative institutions of all kinds are continuing to locate in
national capitals, not necessarily because of government initiative
or funds, and it is not unreasonable to predict similar trends for
Canberra

• the potential for growth in the tourist industry in Canberra has
not yet been fully exploited. The comparatively small steps taken
in the last year or two show what can be achieved by promotion
and effort

• continued strong growth in the South-East Region of NSW,
particularly areas close to the ACT and the South Coast, is likely
to lead to increased demands for Canberra-based goods and
services.

Government Employment

On balance, the historical evidence and indications of future social,
political and technological changes point to the likelihood that govern¬
ment employment will continue to increase. It is not unreasonable
to consider a long-term relationship between government activity and
national population growth. The latest official population projections
for Australia, prepared by the Department of Immigration and Ethnic
Affairs for Commonwealth Government planning purposes, suggest
a population by the year 2006 of over 21 million (1.4 per cent per
annum growth). The additional propensity of the population to seek,
and the government to provide, additional services would tend to
increase jobs above this base level as would further concentration of
government employment in Canberra.

On the basis of the factors giving rise to government employment,
the Commission’s assessment is that an average annual growth rate
of 2.1 per cent in government employment over the plan period is
a tenable basis for forward planning. This would represent an increase
of 33 000 government jobs over twenty years (averaging approximately
1 700 per annum). The level of growth suggests an upturn approaching
the end of the decade associated with the completion of the New
Parliament House. After that, more stable growth is forecast which
would be below the rate generally experienced from 1961-81 (Table
15).

Private Sector Employment

The natural increase in population, the population settlement
pattern, and the level of growth in government employment, will all
have an effect on the levels of employment in the private sector.

In its simplest terms, growth in the population generates employ¬
ment expansion in the private sector, through demands for additional
goods and services in manufacturing, construction, retail, finance and
recreation, roughly in proportion to the population increase as shown
in Table 16.

Table 16 Relationship Between ACT Population Growth and Private
Sector Employment 1961-1981

Population

Private Sector
Employment//)

Population to
Employment ratio

1961

58 800

10 400

5.7

1966

96 000

18 400

5.2

1971

146 000

26 000

5.6

1976

203 100

35 900

5.7

1981

227 300

36 400

6.2

Table 15 ACT Government Employment
1961-1981 and Forecast Growth
1981-2006

1961

1966

1971

1976

1981

1986

1991

1996

2001

2006

13 300
22 600
35 700
51 200
61 600
65 400
77 900
85 600
95 000
104 500

(Sources: ABS; SCDC 1971 to 1982 Population
Estimates; \CDC Population Forecasts, February
19831

(1) As there is not a consistent series of Census-based government and
private sector information from 1961-1981, those industries where
private sector employment predominates (manufacturing, construction,
wholesale/retail, finance and recreation) have been used as an indicator
of long-term private sector employment trends.

(Source: ABS Census)

There are other factors which generate increases in demand for
local services. For example, in the five-year period 1976 to 1981, the
population of Canberra increased by 24 000, but in that same period,

Table 17 ACT Private Employment 1961-
1981 and Forecast Growth 1981-2006

1961

n.a.

1966

n.a.

1971

27 800

1976

42 600

1981

42 400

1986

48 000

1991

55 200

1996

63 400

2001

71 400

2006

79 300

(Sources: ABS; NCDC 1971 to 1982 Population
Estimates; NCDC Population Forecasts, February
1983)

Table 18 ACT Population and Employment
1961-1981 and Forecast Growth
1981-2006

Population

Employment

1958

41 100

n.a.

1961

58 800

24 000

1966

96 000

42 000

1971

146 000

63 400

1976

203 100

93 800

1981

227 300

103 900

1986

249 000

113 400

1991

292 300

133 100

1996

327 200

148 900

2001

365 400

166 300

2006

403 700

183 800

(Sources: ABS; NCDC 1971 to 1982 Population
Estimates; NCDC Population Forecasts, February
1983)

some 40 000 people settled in new housing, mainly in I uggeranong
and Belconnen. The direct reason for this difference is the decline
of population in older inner areas due to mortality and out-migration
to developing areas.

The employment effects of this settlement pattern manifest
themselves in areas such as house building, new shopping centres,
schools, sales of household products, extension of postal services,
public transport, and other municipal services at a level which is well
above that indicated by the absolute increase in population.

The other important, but rather more speculative, area of new
employment is the development of ‘export’ industries in Canberra.
There are encouraging signs of interest from tourist and high
technology industries but their future development in the National
Capital is uncertain.

The Commission’s forecast of the private sector employment
growth over a 25 year period from 1981 to 2006 is an increase of 37 000
or about 1 500 per annum. This represents about 2.5 per cent per
annum and reflects an assumption that, over the next 25 years, the
private sector’s relative contribution to the Canberra economy will
increase marginally from 40 per cent today to 43 per cent by 2006
and, in this period, will provide 47 per cent of new jobs. Following
the slight decline in private sector employment from 1976-81, growth
in this sector is expected to recover, but at levels below that experienced
from 1961-76 (Table 17).

The combined results of the Commission’s forecasts of employ¬
ment and population over the next 25 years are shown in Table 18.
Information for the years 1958-81 is shown for purposes of
comparison. During this period, the ACT population increased by
186 000 (averaging some 8 000 per year), while the next 25 years is
forecast to see an increase of 177 000 (averaging some 7 000 per year).

It is useful to note that on these forecasts Canberra’s population,
as a proportion of the national population, will increase only slightly
above its current level and at a slower rate than previously. From 1961
to 1981, the ACT proportion of the Australian population increased
from 0.55 per cent to 1.51 per cent. Under the forecasts included in
this report and the latest official national projections, the ACT share
will increase to only 1.89 per cent by 2006.

Age Structure Change

Canberra’s age structure is projected to change substantially during
the plan period. In 1981, 0-14 year olds represented 29 per cent of
Canberra’s population. This proportion is expected to decline to about
25 per cent by 1991, and 23 per cent by 2006.

Those aged 60 years or more represented about 7 per cent of the
population in 1981. By 2006, this age group may increase by over
30 000 people, or to about 12 per cent of Canberra’s population
(Table 19).

able 19

Forecast

Age Structur

e Change

1981-2006

0-14

15-29

30-44

45-59

60 +

Total (1)

1981

65 800

60 900

55 700

28 600

15 100

226 000

1986

67 500

63 600

64 100

33 800

20 000

249 000

1991

73 300

75 900

73 900

43 700

25 500

292 000

1996

79 700

81 500

77 300

58 600

30 100

327 000

2001

86 700

86 600

85 400

69 400

37 300

365 500

2006

94 200

90 700

94 800

77 300

46 900

403 500

(1) Discrepancies due to rounding.

The ageing of Canberra’s population will result in increased
demands for health and medical services. Leisure and recreation
requirements will alter, as will the type of housing required. The
absolute increases in school age population will require additional
education investments to be made. The altered age structures,
particularly at a district level, will result in changes in expenditure
patterns, particularly in relation to retail goods and services.

Land and Housing

Existing Situation

At June 1983, there were some 63 900 occupied single residential
dwellings and 11 200 medium-density dwellings in Canberra. Within
the existing towns, including North-East Tuggeranong, there was land
on which a further 16 100 single residential dwellings and 6 100
medium-density dwellings could be occupied (Table 20).

Table 20 ACT Housing June 1983

Single Residential Blocks

Occupied

To be Occupied

Total

Inner Canberra

17 300

200

17 500

Woden-Weston Creek

16 000

1 200

17 200

Belconnen

19 900

4 200

24 100

N-E Tuggeranong

10 700

10 500

21 200

Total

63 900

16 100

80 000

Medium-Densitj l nits ( 1 )

Occupied

To be Occupied

Total

Inner Canberra

4 700

800

5 500

Woden-Weston Creek

3 300

900

4 200

Belconnen

2 900

2 300

5 200

N-E Tuggeranong

200

2 100

2 300

Total

11 200

6 100

17 300

(1) Discrepancies due to rounding.

Recent Trends

During 1982-83, 1 300 single residential blocks and land on which
120 medium-density units could be constructed were sold.

Land sales have fluctuated greatly in response to factors such as
the availability of finance and perception of the likely future supply
of land. In 1980-81, 2 370 single residential blocks were sold,
compared to less than 1 000 blocks in both 1979-80 and 1981-82.

The level of new housing occupations has been a better indicator
of the demand for new housing. Occupation of single residential dwell¬
ings has fallen from 3 100 in 1976-77 to 1 570 in 1982-83. Medium-
density dwelling occupation has been relatively stable, despite the
decline in the overall housing market. In 1982-83, 620 medium-density
units were occupied.

The supply of serviced land has declined markedly in recent years.
At June 1983, the supply of serviced single residential blocks was nearly
exhausted with about 350 single residential blocks available for sale
at the Department of Territories and Local Government. The supply
of medium-density sites was adequate to meet demand.

Performance of Recent Activities

In response to the population decline occurring in Inner Canberra,
and the under-utilisation of schools, retail facilities and open space

that this produces, the following attempts have been made to arrest
population decline:

• redevelopment of single residential blocks for aged persons units
has occurred in Brad don

• government houses have been refurbished in Inner Canberra to
ensure that young families are able to move back into the area

• part of the Narrabundah area has been regenerated with some
houses being refurbished, some being replaced by the government
and some by private enterprise

• vacant land has been released for medium-density housing and
additional land is to be released

• a redevelopment area has been designated in Kingston for medium-
density housing and flat development.

The Kingston area was selected for redevelopment in 1967, because
of its age and pressure from residents, property owners and
commercial interests for change. Despite longstanding interest among
lessees, firm redevelopment proposals were not submitted until 1974.
Prior to that, lower prices for newly serviced land, combined with
the high prices demanded by lessees, restricted opportunities for
private enterprise redevelopment. The redevelopment experience in
Kingston suggests that the process of redevelopment is slow and that
the benefits of consolidation are in the long term. Despite increases
in the dwelling stock at Kingston, population fell, due to declining
occupancy rates and vacancies. In fact, the early stages of the Kingston
experience were characterised by declines in the dwelling stock, due
to demolitions.

Redevelopment generally takes the form of medium-density
housing and the demolition of existing standard dwellings. As such,
redevelopment dwellings will be at a cost disadvantage to dwellings
constructed on vacant land.

Given the overall size of the medium-density market, currently
500-600 dwelling occupations per year, and the supply of vacant sites
in the new towns, the pace of redevelopment is likely to remain slow.

Medium-density dwellings have not been attractive to family
groups. A medium-density housing survey by the Commission in 1980
found that medium-density housing was most attractive to young
adults without children and that there was increasing attractiveness
of this housing form to people 50 years and over.

Forecasts

Over the next twenty years, it is estimated that land on which
60 000 dwellings could be constructed will be required.

Between 1976 and 1983 medium-density dwelling occupations and
sales have been about 25 per cent of total occupations and housing
sales. Compared to previous periods, this has been a relatively high
market share and may reflect the limited housing choice available in
Canberra over the period and changed lending criteria of financial
institutions. The future demand for medium-density housing will
depend of factors such as price and the rate of household formation
among young adults.

The current size of the market for medium-density housing in
Canberra is about 500-600 units per year whereas the demand for
standard housing is about 1 500 houses per year. For reasons of cost,
lower occupancy rates and limited market share, redevelopment for
medium-density housing cannot be relied upon to make much
impression upon declining population lex els as the various districts
age.

It is likely that the medium-density housing share will be between
20 per cent and 25 per cent of total demand. This suggests that
medium-density land sales will be 12 000 - 15 000 between 1982 and
2001, with the demand for standard housing being 45 000 - 48 000
blocks.

Retail

Introduction

Retailing forms a major component of the system of town, group
and local centres which contributes to the social and economic life
of the City. This section describes:

• existing floorspace and its distribution

• expenditure and the factors affecting it

• turnover of the various levels of the hierarchy

• the performance of elements in the retail system which have
implications for planning

• industry trends

• forecasts.

Existing Floorspace

At September 1982, there was approximately 369 000m : of retail
floorspace in Canberra, a provision of about 1.6m 2 per capita. The
retail provision per capita varied from 2.06m 2 per capita in North
Canberra to 0.2m 2 per capita in Tuggeranong. (These floorspace
estimates relate to actual operating retail floorspace). The distribution
of floorspace by hierarchy level and functional type varies substantially
between districts (Tables 21 and 22). The distribution over the whole
metropolitan area was as follows:

• 53.2 per cent of the floorspace was located in town centres; 20.5
per cent in group centres; 11.1 per cent in local centres; and 15.2
per cent at Fyshwiek and Mitchell

• in terms of functional types, 25.1 per cent of the floorspace was
in the department and variety store category; 15.2 per cent in
clothing, fabric and furniture stores; 13.0 per cent in household
appliance and hardware stores; 23.3 per cent in food stores; 13.4
per cent in other retail; and 10.0 per cent in services.

Table 21 Distribution of Retail Floorspace by District (nr) - September
m2(l)

Town

Group

Local

Total

North Canberra

60 700

9 400

8 600

78 700

South Canberra

24 500

6 200

30 700

Woden-Weston Creek

67 900

20 300

10 900

99 100

Belconnen

67 400

16 500

12 700

96 600

Tuggeranong

5 000

2 600

7 600

Total

196 000

75 700

41 000

312 700

(1) Excludes Fyshwiek

and

Mitchell.

Table 22 Distribution

Per

Capita of

Retail Floorspace (nr) -

■September

19826/>

Town

Group

Local

Total

North Canberra

1.59

0.25

0.22

2.06

South Canberra

1.16

0.29

1.45

Woden-Weston Creek

1.13

0.34

0.18

1.65

Belconnen

0.88

0.21

0.16

1.25

Tuggeranong

0.15

0.08

0.23

Total

0.85

0.33

0.18

1.36

(1) Excludes Fyshwiek and Mitchell.

Table 24 Expenditure Containment

North/South Canberra
Woden-Weston Creek
Belconnen
Tuggeranong
Queanbeyan

Expenditure

Canberra residents’ retail expenditure in 1980 (private dwellings
only) was $582 million, an expenditure level of $2 725 per eapita. Ol
this, 93 per cent or $545 million was spent in the ACT.

There was an expenditure inflow into the ACT of approximately
$38 million, of which $10.8 million was by Queanbeyan residents.

The level and distribution of expenditure is influenced by such fac¬
tors as:

• time since settlement of an area. North Canberra’s average per
capita expenditure of $2 378 reflects its older age structure while
Tuggeranong’s per capita expenditure of $3 024 reflects its early
stage of growth (Table 23)

Table 23 Expenditure by District - 1980

Per Capita

Per Household

Total

($ Millions)

North Canberra

2 378

6 195

85.0

South Canberra

3 088

7 560

59.8

Woden

2 972

8 750

96.2

Weston Creek

2 672

9 280

74.5

Belconnen

2 613

8 975

193.5

Tuggeranong

3 024

9 165

73.3

Average

2 725

8 205

582.3

• provision of facilities and floorspace in an area.

Less than one-

quarter of Tuggeranong residents’ total retail expenditure, only
58 per cent of their group centre expenditure, and 64 per cent of
their local centre expenditure, is spent within the town. This is
the lowest of all districts for all categories (Table 24)

• the location of a centre in relation to its catchment. South
Canberra and Weston Creek, which have large group centres, but
no town centre within the district, have a higher than average share
of expenditure at the group centre level (Table 25)

• the competition a centre receives from other centres. For example,
48 per cent of South Canberra residents’ expenditure at town
centres occurs at Civic and 45 per cent at Woden Town Centre
(Table 26).

10 (To)

Table 25 Expenditure Patterns by District -

1980 (To)

63.7

Town Group

Local

66.1

Centre Centre

Centre Other Total

59.4

North Canberra

47 26

14 13

100

23.5

South Canberra

31 40

15 14

100

66.3

Woden

50 27

13 9

100

Weston Creek

41 31

16 12

100

North Belconnen

58 17

14 11

100

South Belconnen

49 29

13 9

100

Tuggeranong

40 30

10 20

100

Canberra

47 28

14 11

100

Table 26 District Expenditure at Town Centres

Percentage of District

Expenditure at Town

Centres to ‘First’ Town

Centres to 'Second'

Centre

Town Centre

North Canberra

64 (Civic)

23 (Belconnen)

South Canberra

48 (Civic)

45 (Woden)

Woden

76 (Woden)

19 (Civic)

Weston Creek

76 (Woden)

17 (Civic)

Belconnen

68 (Belconnen)

23 (Civic)

Tuggeranong

83 (Woden)

11 (Civic)

Turnover

In 1980, the average retail turnover per square metre in the ACT
was $1 600.

Average turnover in 1980 at town centres, excluding service trade
areas, was $1 460 per nr . The turnover averages per square metre
were: Civic $1 300; Belconnen $1 350; and Woden $1 740. Turnover
at the town centre service trades areas was $520 per m 2 in Civic and
Belconnen and $880 per nr at the Woden Town Centre (Table 27).
Average turnover at group centres was $2 190 per nr and at local
centres $1 920 per nr . Turnover rates reflect, in part, the type of
floorspace found at each hierarchy level. The lower turnover rates
at town centres reflect their functional mix, in particular, the high
level of comparison goods floorspace.

Table 27 Turnover Per Square Metre at Town Centres - 1980

Retail Core

Service Trades Area

($)

Civic Centre

1 296

520

Woden Town Centre

1 742

887

Belconnen Town Centre

1 346

523

Town Centres Average

1 460

733

Performance of Elements in the Retail System

Civic Centre

From the earliest days of Canberra’s retail planning, Civic was
intended to be the location of goods and services requiring a
metropolitan catchment and to meet the town centre requirements
of the Inner Canberra population.

As the retail hierarchy has evolved and the distribution of
population has changed, the retail function of Civic has altered.
Presently, Civic is one of the three town centres serv ing the population.
Fyshwick, with concentrations in household appliance and furniture
sectors, and Kingston and Manuka, are additional centres performing
a metropolitan role.

Competition from the Belconnen and Woden Town Centres has
led to 36 per cent of North Canberra and 52 per cent of South
Canberra’s tow n centre retail expenditure occurring outside Civic. The
presence of Kingston and Manuka has also led to South Canberra
residents spending only 31 per cent of their retail expenditure at the
town centre level compared to the Canberra average of 47 per cent.

In performing its town centre role, Civic’s trading has been
affected by the ageing of its catchment. Whereas average household
expenditure in Canberra in 1980 was $8 205, in North Canberra it
had declined to $6 195.

The net result ot the increased competition and ageing has been
for Civic’s trading position to decline.

The Civic Centre Policy Plan and Development Plan outlines
options for improving Civic’s retail performance including residential
intensification, increased employment and an improvement in Civic’s
retail structure.

Tuggeranong

As indicated earlier, Tuggeranong’s retail provision is 0.2m 2 per
capita as compared to the Canberra average of 1.6m 2 per capita. A
retail survey by the Commission in 1980 found that in response to
this low provision, Tuggeranong residents’ expenditure within

Tuggeranong was only 23.5 per cent of their total retail expenditure,
compared to the average in Canberra districts ol over 60 per cent.

As a result, Tuggeranong residents incurred higher travel times
and costs in gaining access to shops. Between 1980 and 1983
Tuggeranong’s population has increased by 14 000, most ol which
was in areas even further from the existing centres. 4 he recent release
of centres in Monash, Cowrie and Richardson will improve accessibility
to local convenience retailing.

Tuggeranong residents still rely on centres outside the district for
comparison shopping and weekly grocery shopping. T he provision
of larger-scale shopping centres, including the Tuggeranong Town
Centre, will help overcome these deficiencies.

The restriction of floorspace in Tuggeranong not only places
Tuggeranong residents at a disadvantage, but also has the effect of
creating pressures for the expansion of the Woden Town Centre. In
1980, 83 per cent of Tuggeranong residents’ town centre expenditure
was in Woden. This inflow represented 24 per cent of Woden Town
Centre’s retail turnover and contributed to the substantially higher
turnover at the Woden Town Centre relative to the other town centres.
This ‘overtrading’ at Woden is expected to balance out when town
centre retailing is established in Tuggeranong.

Fyshwick

The emergence of Fyshwick as a retail centre was not intended.
It grew in response to weak lease purpose clauses, and the non¬
enforcement of purpose clauses. In 1980, it attracted about 11 per
cent of Canberra’s retail expenditure, gaining expenditure from all
districts in response to the retail opportunities available there.

At September 1982, 65 per cent of Fyshwick’s floorspace was in
the clothing and furniture, and household appliance categories, as
compared to the total Canberra proportion of 38.5 per cent. Fyshwick
had almost 35 per cent of Canberra’s clothing and furniture sales
floorspace and 30 per cent of the household appliance sales floorspace.

These activities generally require single-level and low-rent
floorspace. From a metropolitan planning viewpoint, the location of
such floorspace at Fyshwick is not desirable. It is not central to the
current and future population distribution and has led to a higher
level of retail floorspace in Canberra than was intended. There is a
demand for low-rent space for the types of retail activities carried out
in Fyshwick and the demand should be met at locations more central
to the established population.

Performance of Local Centres

Local centres are provided to meet the day-to-day shopping
requirements of consumers. Currently, there is pressure from some
supermarket chains for the expansion of the supermarkets located at
local centres. The reasons advanced are that it is necessary to incor¬
porate a wider range of goods, to provide more storage and display
space and to achieve greater efficiency. However, from the overall
planning viewpoint larger supermarkets would require the wider spacing
of centres which would result in longer journeys to local shopping
opportunities, penalising those with low mobility.

Analysis of the ABS 1980 Retail Census indicates that the
traditional local functions, such as chemists, butchers and new sagents,
require an average population for support of below 3 500 people.
However, these functions are not only found at the local level. Their
continued viability at the local level will depend largely on the retail
hierarchy found in each district and the attractiveness of the centres
to their catchments.

Industry Trends

A number of broad trends in retailing have either been reinforced
or have emerged during the 1970s, and play a major role in any
consideration of the future of retailing in Canberra. All are common
to Australian cities.

• The Suburbanisation of Retailing

This has occurred in response to increased mobility and affluence.
Retail developments are generally of a larger size to accommodate
an increased number of retail and self-service check-out systems.

• Decline of Investment in Traditional ‘Flagship’ Department Stores

From an investment point of view, the late 1970s have seen a
decline of interest in building major new department stores, with
emphasis being placed on the refurbishing of existing stores, or
a switch of strategy towards the promotion of discount-type
subsidiaries.

• Discount Store Retailing

While retail sales in Australia in the five years to 1978-79 grew
by 12.9 per cent per annum compound, discount stores grew at
a rate of 31 per cent per annum compound.

• Continued Prosperity of Mall Retailing

The good performance of mall retailing has been due to locations
in suburban areas, management techniques, and the economies
attained in the substitution of floorspace for labour.

• ‘Theme Centre Retailing'

There has been a marked swing in speciality retailing towards the
development of ‘bazaars’ and ‘village’ environments, where shop¬
ping is conducted in a relaxed, well-designed environment, and
where high quality materials and finishes combine in a mix of
coftee shops, speciality food, clothing, giftware outlets, etc. Civic’s
Centrepoint exemplifies this trend.

• Technological Change

Already in evidence is the advent of bulk purchasing by retail
chains. Not so evident are the equivalent mass distribution
mechanisms, and retailers are still forced to evolve a hierarchy of
distribution outlets. The advent of television and data
storage/retrieval systems may radically change distribution of basic
goods. The growth of ‘non-shop’ shopping will be assisted by
increasing transportation costs, continued high levels of employ¬
ment of married women and the relative high cost of in-store
service.

• Substitution of Floorspace for Labour

There has been a trend to substitute floorspace for labour in the
ACT. Floorspace per worker on ABS estimates increased from
27m : in 1976 to 36m : in 1980. While the floorspace increased by
about 50 per cent between 1976 and 1980, retail employment in¬
creased by only 13 per cent from 7 790 to 8 789.

• Size of Supermarkets

The larger supermarket chains indicate that supermarkets of about
3 000m ; are an efficient size for their operations. A population
of about 20 000 is required for their support. As the supermarkets
operated by the major chains have formed the major component
of group centres, changes would be required in the spacing of
group centres for these supermarkets to be accommodated. This
would have impacts on the provision of community facilities and
other retailing opportunities found at group centres.

Retail Forecasts

The 1980 level of retail floorspace provision in the ACT was not
excessive, relative to the majority of State Capitals. Similarly, turnover
in the ACT is above average, as is the retail expenditure per capita
(Table 28).

Table 28 Comparative Retail Performance (!)

1980 Retail Floorspace

Sales Per

Per Capita(nv)

nr ($)

Capita ($)

Canberra

1.43

1 420

2 035

Sydney

1.23

1 632

2 011

Melbourne

1.49

1 377

2 036

Brisbane

1.32

1 333

1 695

Adelaide

1.74

1 132

1 943

Perth

1.49

1 352

2 012

Hobart

1.45

1 315

1 897

(!) These comparisons are based on the ABS 1980 Retail Census. ABS and
Commission estimates vary, as the Commission’s definition of ‘retail’
includes services such as restaurants, photographers and laundromats.
The Commission’s estimate of retail floorspace per capita in Canberra
in 1980 was 1.6m 2 ,compared to the ABS estimate of 1.43m 2 .

Little information exists on the cost side of retailing. The ABS
1980 Retail Census indicated that wages were the equivalent of 10.5
per cent of retail sales in Canberra, the lowest of any of the State
Capitals. Comparative data on rent and other overhead costs were
not available. These costs could be expected to be higher in Canberra,
given the recent construction of much of the floorspace.

Another measure of retail health is the level of vacancies. From
a peak of 361 premises vacant in June 1979, the number of vacancies
fell to 90 by September 1982. This represents about 5 per cent of total
retail premises. Of the 90 vacant premises, 36 were in Fyshwick or
in town centre service trades areas, locations not intended for retailing.
Wolinski (1) indicates that a vacancy rate of 4 per cent is an average
level of vacancy in a retail system.

The ageing of the Canberra population (by the year 2001, 29.2
per cent of the population will be 45 and over, compared to 16.9 per
cent in 1981) will have the effect of reducing the per capita expenditure
below its current level of $2 725. However, counteracting this is the
projected increase in tourist numbers, which will increase the level
of retail expenditure in the ACT. Further, the trends to substitute
floorspace for labour may lead to an increase in the supportable
floorspace.

The industry in the ACT expressed concern in 1980 over the level
of trading, particularly at town centres. Canberra does have a relatively
high provision of department and variety store floorspace.

As a guide to future planning, a provision of about 1.4nT per
capita appears supportable in planned retail centres, under the
Commission’s wider definition of retail floorspace (Table 29). Cur¬
rently personal service floorspace comprises about 10 per cent of
Canberra’s retail floorspace. This equates to a level of 1.25m : per
capita, if personal service floorspace is excluded.

Table 29 Planned Retail Floorspace 1982-20036

Population

Floorspace Support¬
able in Planned Retail
Centres (nr)

Total Increase in
Floorspace from
1982 (nr)

1982

229 500

313 000

1991

292 500

410 000

97 (X)0

2003

378 000

529 000

216 000

(I) Excludes Fyshwick and Mitchell.

(1) G. Wolinski, Retail Floorspace Demand Supply Analysis for Canberra 1980-90,
Wolinski Planning. A Study Prepared for the NCDC. 1980.

Community Facilities

The Commission plans and builds a range of community facilities
for client departments or authorities, and defines sites for welfare,
youth, cultural, leisure, sporting, educational, health and municipal
services.

The Commission’s closest working relationship with respect to
social and community services is with the Department of Territories
and Local Government. The Department’s most significant
administrative responsibilities are the maintenance and operation of
municipal facilities and metropolitan functions such as childcare. The
Department’s role is to co-ordinate and facilitate the development of
appropriate services and act as a client authority to the Commission
in this regard.

The Commission directly liaises with the Department on matters
of capital works and programming for the accommodation of user
groups within a client umbrella. Ongoing discussions are conducted
with the Department and community groups to determine the need
for additional facilities in the metropolitan area.

At the metropolitan level, the most important community facilities
that the Commission plans and develops for client authorities are
health and education facilities.

The Capital Territory Health Commission assesses the need for
and administers health facilities. There are three public hospitals in
Canberra: Royal Canberra, Woden Valley and Calvary. There were
950 beds available at these hospitals in June 1982. In addition, there
were 51 beds at the John James private hospital. Each of these
hospitals serves a metropolitan-wide catchment and also provides
services to people outside the ACT.

An important community demand to be met is that of aged persons
accommodation. This accommodation is generally provided by
community groups such as the Goodwin Homes or church groups,
with government financial assistance. The form of aged person
accommodation varies with the degree of mobility of the aged, ranging
from self-care units to nursing homes for those requiring substantial
medical supervision. At January 1983, there were approximately 1 170
beds in nursing homes, aged persons hostels and self-care units. About
55 per cent of the beds were in Inner Canberra which is approximately
the same as Inner Canberra’s share of the population aged 65 years
and over. The Commission attempts to site these facilities near centres
and on public transport routes. Most aged people still live at home
and there are attempts by several community organisations to
encourage the aged to remain at home through the provision of
domicilary services such as Meals On Wheels and emergency
housekeeping.

Welfare services are provided by the Department and organisations
such as the Salvation Army, St. Vincent de Paul Society and the Smith
Family. The demand on their services has increased in recent times
as the impact ot the economic recession has deepened.

Primary and secondary schools form a basic element of the
Commission’s neighbourhood planning. The size of a neighbourhood
is largely determined by the desirable size of primary school and shop
catchments, and considerations of convenient walking distances. The
emphasis on the primary school is based on its role as a focus for
community activity. Primary schools are generally located near local
centres. Three or four primary schools form the catchment for a high
school.

Religious groups also participate in primary and secondary
education with about 30 per cent of pupils enrolled at private schools.

The Catholic school system has about 85 per cent of private school
enrolments.

The Anglican Church of Australia operates three Grammar schools
in the ACT providing pre-school, infants and primary, and high school
facilities. A number of other private schools operating include the
AME school at Weston, the Trinity Christian School at Wanniassa
and the Seventh Day Adventist School at Mawson.

School enrolments have declined in the older areas of Canberra.
The Schools Authority has been faced with a situation of surplus space
in older areas, while there are emerging demands for facilities in the
newer areas. The enrolment decline has been associated with increasing
schooling costs per pupil. The Schools Authority is currently reviewing
its options in relation to this demand and supply imbalance.

Tertiary education facilities are located in Inner Canberra, Woden-
Weston Creek and Belconnen. The Australian National University
(ANU) which had 4 896 undergraduate enrolments in June 1983, is
located adjacent to Civic Centre. The Canberra College of Advanced
Education (CCAE) with enrolments of 5 874 students at June 1983,
is located near the Belconnen Town Centre. The home residence of
about 40 per cent of the ANU students and 15 per cent of the CCAE’s
pupils is further than 40 km from Canberra. There is also movement
of students out of the ACT in response to the educational
opportunities available, but on balance Canberra has a net inflow of
students.

Canberra’s three Technical and Further Education (TAFE)
Colleges serve a more localised need with 95 per cent of their 23 326
pupils resident in either the ACT or Queanbeyan. They are located
near Civic Centre and the Woden and Belconnen Town Centres.

The Schools of Music and Art are also located near Civic Centre.
The location of tertiary education facilities adjacent to major centres
allows their efficient servicing by public transport, and contributes
to the interest, vitality and economic well-being of each of the centres

Community facilities such as libraries, health centres, childcare
facilities and police, ambulance and fire stations tend to be found
in or near centres. Together with recreation facilities such as swimming
pools, indoor leisure centres and clubs, they interact with the retailing,
offices and personal services to provide a focus and opportunity for
social interaction at the centres.

Sites for Scout and Guide halls are generally provided in or near
neighbourhood parks. Rural camps for these organisations are also
set aside.

Many cultural, community, sporting and welfare organisations do
not require a specific site, and are located in available space at existing
centres.

The settlement of Tuggeranong, particularly south of Erindale
Drive, has coincided with the economic downturn and reduced levels
of funding. As a result the provision of community facilities in the
district has lagged behind population growth. The Erindale Centre
has provided a focus for activity as it is the location of a secondary
college and community centre including an indoor pool, meeting
rooms, theatre, squash courts, childcare facilities and a gymnasium.
This role will be reinforced by the 4 000m 2 shopping release at the
centre.

The existing facilities at Erindale, however, are inadequate to cater
for many community demands. The deficiency in facilities in
Tuggeranong is being addressed. Shops are now open in Cowrie and

Monash and the Richardson shops should be trading later in 1984.
Sites have been identified for future shops, childcare facilities and
community meeting halls.

To assist the public with enquiries and to ascertain community
needs, the Commission has opened an office at the Erindale Centre.
The establishment of the Tuggeranong Community Council, on which
major community groups such as Tuggeranong Family Action and
the South Tuggeranong Progress Association are represented, will
assist the Commission in the future planning of the district.

Leisure and Recreation

Open Space

Canberra’s open spaces comprise two distinct types which cater
for a wide variety of leisure and recreation pursuits:

• municipal open spaces (active sports areas, parkland and flood¬
way easements) totalling about 1 700 ha

• the National Capital Open Space System, which includes certain
defined metropolitan parklands and special areas totalling about
28 000 ha, and the regional open spaces of the Cotter catchment
area, and Tidbinbilla and Gudgenby Nature Reserves, all lying
west of the Murrumbidgee River and, together with forest
plantations, totalling about 1 400 km' .

M nnicipal Open Space

The Commission’s standard prov ision of municipal open space
includes playing fields, local and district parks, ancillary open space
(floodways, etc.) and an allowance for future club facilities for tennis,
lawn bowls, etc. The minimum provision in planning for these forms
of open space is 4.0 ha per 1 000 population (Figure 33). In addition,
provision is made for golf courses and other open spaces, which serve
a wider role.

In the area of public recreation, there has been sustained pressure
in recent years to reduce maintenance and management costs. This
has resulted in changes both to management practices and to design.
An example is the maintenance of open space, where mechanisation
and the greater use of contractors have resulted in substantial cost
economies.

There have also been changes in the standards of maintenance.
Lovwuse areas are being mown less often, long grass along fences and
paths is more readily tolerated, and areas not suited to mechanised
maintenance have been redesigned. All of these measures will result
in a different character for open space designed now and in the future.

With regard to recreation patterns, it appears there is a preference
for greater diversity and more passive forms and an increase in the
development of organised sporting facilities at the work place.

Over the past ten to fifteen years, there have been significant
changes in most of the factors affecting leisure activities, particularly
time, disposable income and mobility, and new leisure activities are
continually developing. Some sports have emerged and displayed
astounding growth, emphasising the need for planning multi-purpose
playing fields, etc. Touch football is an example of a new sport which
has emerged as a year-round activity. Other examples are baseball,
and skateboard and BMX riding, which have grown in popularity to
the point where special purpose sites are warranted. However, the large
peak demands of new activities must be balanced against the probable
long-term demands, which may be quite low in the case of some
‘novelty’ activities.

Recreational cycling has become popular in recent years, and
experience at Lake Burley Griffin has demonstrated the extent to

Town and District Parks
0 4 Hectares/1000 People

Ancillary Space
0 4 Hectares/1000 People

Demand Space
0 2 Hectares/1000 People

Playing Fields
1_B Hectares/1000 People

Local Neighbourhood Parks
1 2 Hectares/1000 People

Total 4 0 Hectares Per 1000 People

Figure 33 Formulae for Provision of

Parkland and Public Open Space

which the provision of cycleways can positively encourage cycling.
Other activities and demands are likely to emerge and develop in the
future, with increasing leisure time.

National Capital Open Space System

Setting

The mountain ranges that rise on the western side of the
Murrumbidgee River and the lines of ridges and high hills on the east
that contain and shape Canberra’s urban areas form the most striking
quality of the City. This mountain and tableland scenery is an essential
part of the City’s landscape character and frames the views of the
National Capital.

There is much to be gained by deliberately retaining certain
essential physical elements of the broad landscape setting of Canberra
for special design and landscape consideration. This does not mean
that these areas should not contain development and that the land
remain entirely public open space. Rather, the concern should be for
the planning, development, landscaping and land management of these
areas to be carried out consistent with clearly defined relationships.
The aim would be to retain, reinforce and enhance the landscape and
scenic quality of the Nation’s Capital.

Failure to do this could well lead to the destruction of the environ¬
ment that might not be felt for many years, but which would deprive
future generations of scenic and recreational advantages that Canberra
presently enjoys and diminish the quality of the National Capital for
all time.

For most cities, the aim of preserving the quality of the landscape
setting of the city would be impracticable. The uniqueness, however,
of the planning and land administration arrangement in the ACT with
public ownership and control of land, gives the Commonwealth wide
powers of decision and the community ample opportunity to influence
a large range of issues that affect the use, care and management of
lands in the Territory.

This situation makes it possible to propose that the hills and river
corridors on the periphery of the Canberra metropolitan area, and
the mountain and bushland areas west of the Murrumbidgee, should
be designed and managed as an integrated open space system. These
areas are collectively known as the National Capital Open Space
System. This open space system represents a relatively large land area,
being about 170 300 ha or 72 per cent of the ACT (Figure 34). The
various components are shown in Table 30.

Table 30 Composition of National Capital Open Space System

Inner Area ha

Hill Areas (dense forest or cleared land) 13 100

Hill Areas (pine forest) 3 600

Murrumbidgee River Corridor

(including water area) 8 900

Molonglo River Corridor
(including lake area and lakeside

parkland) 1 390

Lower Gudgenby River Corridor

(including water area) 440

Lake Ginninderra and Ginninderra

Creek Corridor 370

Total 27 800

Other Areas ha

Cotter water supply catchment area 46 900

Tidbinbilla Nature Reserve 5 060

Gudgenby Nature Reserve 60 000

Other forests and pine plantations 30 540

Total 142 500

Gudgenby

Nature

Reserve

River Corridor
] Hill Areas

Mountain and Bushland Areas

\ \ J 0 5 10 15 20km

Figure 34 Distribution oi National Capital
Open Space

Role and Function

Not all of the open space system is or should be public open space.
Most of the area could remain in productive use for either forestry
or grazing. Only about 1 800 ha would be suitable for the develop¬
ment of intensive or extensive recreation areas, mainly in the river
corridors where there are suitable beaches with flatter margins that
are suitable for recreation development.

In addition to their recreation value, the areas forming the open
space system contain diverse ecological resources with scientific value
and cultural resources which have historic significance.

George Seddon, in his report An Open Space System for Canberra,
(NCDC 1979) defined the role and functions of the National Capital
Open Space System under the following headings:

• symbolic - the natural landscape setting of the City’s surrounds
is one of the major symbolic elements of the National Capital

• showpiece - some of the elements of the open space system form
primarily a display function, offering viewpoints and opportunities
for pedestrian experience of Griffin’s plan

• tourist and educational facilities - the open space system offers
opportunities to visitors for picnicking, pleasure driving and other
recreational pursuits in the easily accessible countryside surrounding

Visitors lOOOs)

0 i_i_i_i

1970 1980 1990 2000

Year

Figure 35 Demand L.evel for Metropolitan
Open Space

Canberra; and local educational institutions use the open space
system for a range of purposes including physical, historical and
ecological studies

• social - the open space system serves a social function, giving
privacy to those who seek it, and giving opportunities for mixing
to the gregarious

• social science value - Canberra has the opportunity, and, therefore,
a responsibility to develop an integrated open space system as a
model for other Australian cities

• natural science studies - the open space system contains many
valuable ecological resources, including flora and fauna, natural
habitats and geological monuments

• water catchment and environment protection - the hill areas, as
well as providing a buffer zone between urban development and
the surrounding countryside, and providing wildlife movement
corridors, help to modify the effects of air pollution in Canberra
by providing a breathing space between towns

• land bank - Canberra, as the National Capital, must have adequate
land reserved to meet unpredictable, as well as predictable, future
needs, thereby allowing flexibility in land use planning

• recreation - in Canberra, the ease of access to the countryside and
the high level of car ownership has led to a pattern of recreation
in which the car trip is a major component of the outing. Visual
open space plays an important role during the scenic drive. An
integrated open space system can cater for both active and passive
recreation, and it can contain planned activities and opportunities
for spontaneous ones.

It is the Commission’s intention to develop the open space as an
integrated system in terms of policy management and design and to
constantly review use, cost and degree of user impact. The concern
will be not only the preservation of the landscape and environmental
quality of the ACT but also the enrichment of the recreational and
environmental experience, recognising that different people use the
open space system in different ways.

Trends and Forecasts

The Commission has conducted a monitoring programme on open
space and recreation use since 1970. A ten-year time series is now-
available to help identify trends and make projections for future
demands. Some of the trends identified to date are:

• In 1970, 26 000 people visited river and recreation areas on a
typical fine summer Sunday. This number increased by more than
50 per cent to almost 40 000 by 1980, as shown in Table 31.

• The daily participation rates for river and lakeside recreation have
remained stable since 1975, when compared to the
Canberra/Queanbeyan population at 165 people per 1 000
population. On this basis, it is predicted that daily visitation to
lakes and rivers will increase from 40 000 in 1980, to about 67 000
in twenty years (Figure 35).

• Parkland associated with water attracts the major usage. More
than 80 per cent of demand is concentrated on Lake Burley Griffin,
Fake Ginninderra and the recreation areas on the Murrumbidgee
River.

• Lake Burley Griffin and Lake Ginninderra are drawing an increas¬
ing proportion of water-related recreation use, thereby reducing
pressure on the more environmentally sensitive areas (Table 32).

• It became apparent in the late 1970s that travel distance was emerg¬
ing as a strong influence on people’s recreation habits, due to rising
fuel prices.

• During the 1975-80 period, picnic areas close to urban develop¬
ment showed the greatest increase in popularity, w ith some of the
more remote recreation areas experiencing reductions in use.

Table 31 Fine Summer Sunday Outdoor Recreation Participation -
1970-1980

Casuarina Sands

Cotter Playground

Cotter Pool

Other areas in Cotter/

Pierces Ck. area

Cotter Camping area

Uriarra Crossing

Kambah Pool

Pine Island

Point Hut Crossing

Tharwa area, inch Smith Rd

Bridge Area

Murrays Corner

Flints Crossing (Riverlea)

Tanners Flat

Woods Reserve

Gibraltar Falls

Corin Dam

Brindabella Ranges
Stromlo Forest
Uriarra Forest
Pierces Creek Forest
Kowen Forest
Molonglo Gorge
Coppins Crossing
Coppins Crossing North

Angle Crossing
Hall, park and showground
Tidbinbilla Nature Reserve
Gudgenby Nature Reserve
Canberra Nature Park
Googong Dam Foreshores
Ginninderra Falls
Lake Ginninderra
Lake Burley Griffin

Total

Number of Visits Likely on a Fine
Sunday in Summer

Recreation

Demand

1970 (1)

1975 (2)

1980 (3)

4 000

3 500

3 300

3 000

4 000

3 000

2 500

2 600

790

560

630

530

1 200

1 050

1 500

1 300

1 390

1 600

2 100

2 400

500

840

550

100

200

250

560

590

210

100

310

100

140

150

300

120

400

550

120

500

560

700

200

450

700

150

250

300

340

180

200

250

300

250

150

200

220

1 000

1 200

500

700

500

800

700

600

1 950

8 000

10 500

14 000

26 200

34 000

39 960

(1) Changing Land-use in the Canberra Region, R. W. Baden. PhD Thesis.
ANU. 1971.

(2) Outdoor Recreation Demand Study: Murrumbidgee River Corridor
Tuggeranong, ACT, Canberra, J.G. McMastet. 1978.

(3) River Recreation Demand Study, 1980 by J.G. McMaster on behalf of
the National Capital Development Commission.

• 1 here is increasing demand for leisure activities requiring special

facilities.

• Car occupancy at riverside and lakeside sites has decreased steadily
since 1970. In 1970 one hundred recreationists required 26 car
spaces; in 1980 they required 33 spaces.

• The peak attendance occurs between 2.00 p.m. and 3.00 p.m. on
Sunday afternoons. On average, there is a turnover of 3 vehicles
for each car park space.

• Between 1975 and 1980, the Commission developed new areas at
rivers and lakes at the rate of 140 new car park spaces per annum.
To meet the projected daily demand of 46 600 visitors in 1990,

Table 32 Water-Related Recreation Use 1970-1980

1970

1975

1980

Lake Burley Griffin

8 000

10 500

14 000

Lake Ginninderra

1 950

Total Water-Related
Recreation

23 850

30 160

35 050

Lakes as Proportion of

Total

33.5%

34.8%

45.5%

new areas are required at the rate of 85 new car park spaces per
annum.

• Examination of the estimates of recreation activity in ACT forests
made by officers of the Forests Branch of the Department in
1974-75 and 1979 shows a steady increase in the use of forests for
picnics and barbecues. Forests offer a special environment suited
to some activities, and forests near urban areas are a well-used
recreation resource. Stromlo forest, for example, is heavily used
for horse riding, orienteering and educational excursions, in
addition to its use for picnics and barbecues.

• Upgrading of the Brindabella Road has encouraged an increasing
use of the area. Visits are concentrated into a short winter period
when recreation in the snow- can be enjoyed.

• Visitation to Tidbinbilla Reserve is seasonal in character, and tends
to peak in autumn and spring. The number of visits has increased
from 97 084 in 1970 to 147 768 in 1980.

• The importance of Lanyon Homestead as an historic feature is
indicated by the steady stream of visitors since 1975. On peak days
in 1977, more than 1 500 visitors were recorded.

• Tourists comprise a large component of the use of the National
Capital Open Space System. In 1977 it was observed that 39 per
cent of all visits were made by tourists from outside the
Canberra/Queanbeyan area.

Other factors will also have implications for future open space

demand and supply:

• The most significant demographic change in Canberra's
population over the next fifteen years will be a marked increase
in the numbers of people forty years and older. This ageing of
the population will influence the recreation preferences of
Canberrans, their ability to pay for commercial recreation, and
their expectations in terms of the public provision of facilities.

• Overcrowding occurs at most of the major river recreation areas
on peak days, but even on peak days, there is capacity available
at other, less popular sites. Some redistribution of demand would
alleviate crowding and congestion on these days; on typical
summer Sundays any crowding is usually localised.

• There have been problems with water quality in Lake Burley
Griffin during the 1970s, causing lake closures for varying periods.
The nature of the problems has been diverse, but it is clear that
the threat to lake recreation is not diminishing.

• Increasing pressure from a growing Canberra population on the
limited areas available w ill make preservation of w ater quality a
paramount objective. As the development of recreation areas
around the lakes intensifies, the closure of the lake waters for
swimming will become increasingly unacceptable. One option is
to develop swimming lagoons in purpose-built structures where
water quality can be controlled. This concept has been developed
in California quite successfully.

Indoor Leisure and Recreation

Indoor leisure facilities in Canberra include community halls,
indoor recreation centres, tenpin bowling alleys, gymnasiums, squash
courts, a basketball stadium, indoor riding schools and indoor
swimming pools.

Many of these facilities are provided by private enterprise,
community groups or incorporated as part of educational
establishments.

Each town is served by at least one centre providing a range of
these facilities:

• Inner Canberra - YMCA, Civic; Deakin Health Spa

• Woden-Weston Creek - L ife Style Centre; YMCA

• Belconnen - Kippax Sports World; L ife Style Centre

• Tuggeranong - Erindale Centre

Special purpose leisure facilities include the National Sports Centre
and the National Exhibition Centre. Cultural facilities include the
Ginninderra School House, Theatre 3 Acton, the Schools of Music
and Art, Canberra and Erindale Theatres, cinemas in Civic Centre
and Manuka, the Australian War Memorial and Lanyon Homestead.

Tourism

According to the Domestic Tourist Monitor Survey, the estimated
number of tourists to the ACT in 1980-81 was 1.9 million, comprising
61 per cent domestic tourists, 7 per cent international visitors and 32
per cent daytrippers.

Table 33 gives the total number of people visiting the main tourist
attractions in the ACT during 1981.

Table 33 Attendance at Major Tourist Attractions - 1981

Attraction

War Memorial
National Library
Royal Australian Mint
Parliament House
Regatta Point
Black Mountain Tower
High Court
Tidbinbilla
Botanic Gardens

(1) Figure is for guided tours only.

(2) Estimate.

Number of Visitors

848 100
298 800
246 500
222 900 (1)
213 800
449 900
389 700
142 400
200 000 ( 2 )

The favoured tourist attractions in Canberra appear to be national
works and government-operated activities such as the National
Library, High Court, War Memorial, National Gallery, Parliament
House and the Mint. These institutional elements, when coupled with
the natural attractions of mountains, river corridors, urban lakes and
nature reserves, offer a range of visitor attractions that has contributed
to the growth of Canberra’s tourist industry.

Tourists, as well as business visitors and politicians, require
accommodation. Commercial tourist accommodation available in
Canberra in February 1981 is shown in Table 34.

There is a strong concentration of tourist accommodation in the
central areas and along the northern and southern approach routes
to the City.

Table 34 Tourist Accommodation in
Canberra - 1981

Hotel, Motels
Commonwealth Hostels
ANU, CCAE (!)
YWCA
Youth Hostel
Camping, Caravanning

(!) Minimum 345 rooms.

2 190 rooms
680 rooms
1 110 rooms
25 rooms
40 beds
830 sites

Tourist 'Millions

0 i_i_i_i_i_i_i_i-1-1-1

1981 1982 1983 1984 1985 1986 1987 1988 1989 1990 1991

Year

Figure 36 Estimated ACT Tourist Numbers
1981-1991

Domestic tourism in Australia increased by 3.4 per cent in 1978-79
and 7.1 per cent in 1979-80. It is expected to continue to increase at
a minimum rate of 4 per cent per annum. If tourism in the ACT grows
at a similar rate, tourist numbers could double in twenty years.
Tourism will increase substantially in 1987 and 1988 due to the
Bicentenary celebrations and visitor numbers could already be as high
as 2.5 million by 1988 (Figure 36).

As other institutions of significance commence operations (for
example, the Museum of Australia), they will strengthen the range
of attractions offered by Canberra and may result in longer visits to
Canberra by tourists.

The development of the New Parliament House and the
Bicentenary celebrations provide a unique opportunity for Canberra
to launch a major tourist drive, culminating in 1988. Already, some
220 000 tourists visit Parliament House each year and the New
Parliament House will attract many more visitors.

The main impacts of tourist growth will be in the areas of
accommodation and retailing. If the ratio of visitors to facilities
remains at 1980 levels during Canberra’s development over the next
twenty years, a doubling of accommodation and entertainment
directed to tourism will result, together with concomitant increases
in visitor attendance at attractions such as the National Library,
National Gallery, Parliament House and the War Memorial.

Tourist-based demand will create a need for the following specific
types of facilities:

• hotels/motels

• tourist accommodation centres and other integrated developments,
incorporating accommodation and attractions

• low-cost accommodation

• camping grounds and caravan sites

• private enterprise tourist attractions

• specialist retail and personal services, restaurants, cafes, clubs and
bars

• indoor and outdoor recreation facilities.

Transport

Introduction

This section presents the broad characteristics of urban travel
related to Canberra. It summarises information on travel patterns and
provides a general description of Canberra’s road and public transport
systems. The main intention is to provide an insight into how
Canberra’s transport system has been planned and to provide
background information related to the future travel forecasts used
as the basis for the transport evaluation in Chapter 5.

Travel Patterns

Background

The 1975 Home Interview Survey contains the most comprehensive
data base related to trip-making and travel characteristics in Canberra.
Many of the characteristics have been confirmed as representative of
today’s travel behaviour by recent surveys including:

• journey to work - (1981 Census)

• journeys related to shopping - (NCDC retail surveys)

• journeys to school - (ACT Schools Authority survey, 1980)

• traffic generation - (NCDC traffic surveys)

• public transport - (DCT Annual Reports).

The 1975 data base has, therefore, been used as a basis for most
estimates, updated where more recent or accurate data were available.

Car Ownership and Trip Frequency

The average car ownership rate in the ACT is 0.45 vehicles per
person (1980). On a population basis this is almost the lowest rate
in Australia. Historically, the ACT has had one of the highest car
ownership rates in Australia; however, during the past 6 years
(1975-1980) the rate of growth in car ownership has been the lowest
in Australia (Table 35).

Table 35 Number of Motor Vehicles per 1000 Population - 1975-1980

Year ending June

1975

1976

1977

1978

1979

1980

NSW

419.8

426.8

435.1

446.7

457.2

470.2

VIC

447.2

466.6

470.1

487.9

498.2

490.4

QLD

413.1

445.4

463.9

485.8

504.1

523.0

467.1

482.2

498.7

505.4

509.8

519.5

470.7

493.4

523.7

546.0

557.5

565.6

TAS

461.8

481.1

494.9

515.1

531.0

531.6

334.5

315.6

338.0

375.1

371.9

362.7

ACT

433.7

436.8

456.3

436.0

465.6

450.6

Australia

435.6

451.9

463.4

478.8

490.2

496.9

(Source: ABS Motor Vehicle Registrations Australia 1980-81)

The change in age structure (primarily the proportion of elderly
and those under licence age) combined with the increasing trend
towards ‘car-less’ households (Table 36) accounts largely for the
declining car ownership rate.

The average daily trip generation is estimated at approximately
4.1 trips (by all modes) per person, or about 13.5 trips per household.
Recent surveys indicate that each residence contributes at least 10
vehicle trip ends per day (arrivals and departures) to the total daily

traffic, and that approximately 10 per cent of these occur during the
peak (see Table 37). These rates are similar to those observed in other
Australian cities.

Table 36 Number of Households in the ACT by Number of Motor
Vehicles - 1976 and 1981 (/)

1976 Census 1981 Census

Number of Motor
Vehicles

Number of
households

3 720

6.5

5 763

8.4

28 400

49.8

33 804

49.3

18 980

33.3

22 210

32.4

3 462

6.1

4 234

6.2

4 or more

1 090

1.9

1 173

1.7

Not stated

1 326

2.3

1 407

2.1

Total

56 978

100.0

68 591

100.0

(1) Excludes motorcycles, motor scooters and tractors.
(Source: ABS)

Table 37 Household Car Trip Generation - 1982

Average Weekday

Average a.m. Peak

Location of

Number of

Trip Ends

Hour Trip Ends

Sample

Households

(inch Cycle)

Farrer

15.7

1.3

Curtin

11.1

0.9

Chapman

14.1

1.1

Kaleen

11.6

1.3

Wanniassa (a)

13.6

1.0

Wanniassa (b)

9.9

0.9

Duffy

9.9

0.9

Average

12.3

1.1

Mode of Travel

A summary of the modal split (proportion of trips using the
various modes of transport) for the total daily trip pattern is presented
in Table 38.

Table 38 Mode Choice For All Travel on an Average Working
Day - 1975 (To)

Mode To

Bus 7.5

Taxi 0.4

Car Driver 54.6

Car Passenger 21.0

Motorcycle 1.1

Bicycle 2.1

Walking 13.3

Total 100.0

(Source: S. T. T. P. Study, Vol. I: Surveys
& Data)

The minor modes (walking and cycling) account for approximately
15 per cent of all daily trips. These are usually the shorter trips, the
majority of which are made by school age children. Of the remainder,
travel by car accounts for almost 90 per cent.

The mode of transport used for v arious trip purposes is summarised
in Table 39.

Table 39 Distribution of Trips by Mode and Purpose - 1975

Mode

Home-Based

Work

Home-Based

Education

Home-Based

Shopping

Home-Based

Other

Not Home-Based

Car Driver

67.5

7.9

57.2

62.7

64.7

Car Passenger

15.6

17.9

22.3

24.3

19.4

Bus

9.0

13.2

5.2

2.3

3.8

Taxi

0.4

0.0

0.4

0.3

Motorcycle

1.8

0.3

0.8

1.1

1.0

Bicycle

0.6

8.1

1.6

1.1

0.6

Walk

5.1

42.5

12.5

8.1

10.2

% of all daily trips

22.7

14.9

12.9

29.6

19.9

(1) 'Home-Based’ means a trip to or from home for a particular purpose.

Table 40 Mode Choice for Work Trips to Selected Employment Nodes - 1981 (%)

Mode

Total

Canberra

City

Division

Braddon

Woden

Belconnen

Barton

Russell

Fyshwick

Did Not Travel

(non-participating)

8.9

6.8

6.2

7.1

8.4

4.9

4.7

4.6

Walking

3.4

2.0

3.0

3.6

1.8

1.3

1.6

0.5

Bicycle

1.9

1.8

2.0

1.9

2.0

2.4

1.8

0.3

Motorcycle

1.5

1.3

1.2

1.6

2.1

1.3

1.5

1.6

Bus

8.5

15.3

7.6

14.1

14.0

12.2

14.6

3.4

Taxi

0.4

0.7

0.2

0.4

0.2

Car Passenger

11.1

11.9

9.4

12.2

11.8

11.4

13.9

9.6

Car Driver

64.3

60.5

69.9

59.2

66.3

61.5

79.8

Total

100.0

The car is the dominant mode of transport for all purposes except
journeys to and from school. Generally, buses account for less than
10 per cent of trips for any particular purpose, excluding school trips.

A summary of the modal split for journeys to work at the major
employment centres is shown in Table 40.

It is estimated that the proportion of journeys by public transport
to the otfice/retail core of each town centre is in the range 15-18 per
cent. For work trips to other major employment nodes, e.g. Parkes,
Barton, Russell and the service trades/industrial areas of Braddon
and Fyshwick, commuter travel by bus is considerably less due to the
reduced standard of service (frequency and coverage) and the greater
supply of convenient parking.

Table 40 also shows that the current long-stay parking generation
rate for the town centres is approximately 0.6 spaces per employee.

Average Travel Time

The average navel times for various trip purposes are shown in
Table 41.

Owing to the further development of Canberra since 1975 it is
thought that average travel time by bus and car may have increased
slightly for all journey purposes.

Table 41 Average Travel Times For Various 1 rip Purposes - 197S

Trip Purpose

Car

Time in

Bus

Minutes

Cycle

Walking

Home-Based Work

Home-Based Education

11 (1)

Home-Based Shopping

Home-Based Other

Not Home-Based

(1) Relutes to car passengers only.
(Source: 1975 Home Interview Survey)

The Existing Road System

The Road Hierarchy

Canberra’s road system has been planned on a hierarchical basis
to satisfy broad interrelated transport and town planning objectives.
Each road type in the hierarchy has particular functions and objectives
which are defined by the land uses it services and the amount of traffic
it carries. It is reinforced by the use of different design standards and
forms of traffic control. Basically, the hierarchy consists of:

• local access streets

• distributor roads

• arterial roads (sub-arterial and major arterial)

• parkways

• highways and rural roads.

The lower order roads, local access streets and distributor roads,
provide the basic distribution function within a residential precinct
or activity centre, and linkages to the main road system. The local
access streets provide primary access to abutting property and are
designed to appropriate standards, often incorporating narrow
pavements, tight geometry and steep grades, to discourage high speeds
and through-traffic. Distributor roads accumulate traffic from the
local street system before the capacity of the individual local streets
is exceeded, and provide for local bus operations. Traffic flow is
usually controlled by priority legislation or traffic signals where
warranted.

The higher order roads provide for the movement of major traffic
flows, longer-distance travel and heavy freight movement. They are
characterised by limited or no frontage development, higher design
standards and more elaborate control techniques (signals or grade
separation).

Sub-arterial roads penetrate into neighbourhoods or centres. They
generally provide for intra-town movement and access to the main
inter-town arterial system. These roads can be single carriageway and
often have no restrictions regarding frontage development. Traffic
flow is generally controlled and can involve local interruptions.

Major arterial roads are the most common of the higher order
traffic routes. Their primary function is to provide a direct link
between adjacent towns or to higher order roads, and to cater for
very heavy traffic movements within the towns. They generally have
divided carriageways or have sufficient reservation for an additional
future carriageway. There is generally no frontage development and
they are characterised by heavy traffic volumes operating under
controlled flow conditions.

Parkways are the highest order element in the road hierarchy. Their
primary function is to provide a direct link between non-adjacent
towns, and to accommodate most of the long-distance inter-town

travel. Generally, they are developed in a parklike or rural setting on
the edge of the urban areas. Frontage development is not allowed and
access is usually strictly controlled via grade separated interchange
connections with other major roads. Parkways are similar in character
to freeways, in that they carry very heavy traffic volumes at high
speeds.

Highways are routes of national significance, providing regional
access to the ACT. They serve long-distance travellers and heavy
transport. Rural roads provide primary access to neighbouring rural
communities and local recreation areas. Generally, these roads are
two-lane two-way roads and cater for relatively low traffic volumes.

Canberra’s hierarchical road system is considered to have a number
of important advantages. These include:

• Improved residential amenity. This is achieved by attracting non-
essential or through-traffic to the main road system, and reducing
traffic intrusion into residential areas, resulting in improved safety
and reduced traffic-related environmental impacts (noise, air and
toxic pollutants).

• Reduced traffic accidents. The ACT has slightly more than half
the Australian average of fatal and injury related accidents, and
considerably less than any other State or Territory as shown in
Table 42.

Table 42 Comparison of Fatal and Personal Injury Accidents by
State/Territory for the Year Ending December 1981

Accidents Per Persons Per 100 000

100 000 Population Population

Fatal

Injury

Killed

Injured

NSW

167

218

VIC

163

210

QLD

157

201

181

239

162

212

TAS

167

226

294

430

ACT

104

121

Australia

165

215

(Source: ABS)

• Improved accessibility and reduced travel times to major employ¬
ment, retail and recreation opportunities.

• Reduced energy consumption and air pollution due to the higher
operating speeds associated with the road network.

The significance ot the road hierarchy and the neighbourhood
planning concept to road safety is clearly demonstrated by a
comparison of accident rates of the older suburbs (where the road
hierarchy is not well defined) with recently established suburbs (where
a well-defined road hierarchy exists) as shown in Table 43.

The structure of road network in the older suburbs is not necessarily
consistent with the hierarchical planning strategy. Many of these roads
were constructed prior to formation of the NCDC and were based
on different planning criteria. For example, some were designed as
part ot Walter Burley Griffin’s original planning concept, hence, visual
impact and geometrical layout were of prime importance. The
majority of these roads were never intended to carry heavy traffic
volumes.

fable 43 Accident Rates for Canberra - 1975

Reported Accidents Accident Rate (Per Thousand

Population)

Residential

All

Population (1)

Residential

All

Suburb

Streets

(000s)

Streets

Old Design

Turner/O’Connor/Lyneham

224

575

11.5

19.5

50.8

Braddon/Reid/Campbell/Russell

331

842

9.5

34.8

88.6

Kingston/Griffith/

Narrabundah/Red Hill

402

936

14.8

27.2

63.2

Yarralumla/Deakin/Forrest/Barton

407

1 030

9.5

42.8

108.4

Total

1 364

3 383

45.3

30.1

74.7

New Design

Hughes/Garran

110

182

7.7

14.3

23.6

Curtin/Lyons

219

380

7.4

29.6

51.4

Chifley/Pearce/Torrens

146

9.3

10.1

15.7

Aranda/Cook/Macquarie

226

440

9.4

24.0

42.6

Total

649

1 108

33.8

19.2

32.8

(1) The population figures are for 30 June 1975.

Metropolitan Roads

Those roads considered to perform a metropolitan function are
the arterial roads, parkways, highways and rural roads. They are
shown in Figure 37. This metropolitan road network provides a high
standard of service, in terms of average speed, capacity and control,
to encourage use of the ‘main road system’ for all inter-district travel.

Most of the network has an 80 km/h speed limit (this excludes
those roads with frontage development or within an activity centre).

In the past, metropolitan roads have been built to relatively high
standards, in terms of design and capacity, and were often constructed
to cater for their expected eventual traffic demands. This has resulted
in some short-term, inefficient use of resources and possibly justifiable
criticisms. There were, however, valid reasons for the scale of
provision, the main ones being:

• Canberra was growing rapidly and it was expected that extra road
capacity would soon be required. The rapid growth was not
sustained

• during this period, there were economies of scale associated with
larger projects

• the minimum amount of additional road capacity which can be
provided at any time is one lane which may be in excess of the
actual traffic volume requirements

• planning and design of the road system was not constrained by
existing development as is often the case in other cities

• there were other social benefits to be obtained including: reduced
energy and travel time associated with congestion-free motoring;
reduced accidents; reduced impacts on public transport operations;
and improved environmental conditions.

In recent times, economic and political pressures have resulted in
the Commission reassessing its planning and design standards, and
its implementation strategy. For example, roads which previously may
have been designed and constructed as parkways may now be designed
as urban arterials with subsequent reduction in design speeds and
standards of intersection control, but considerable savings in terms
of land take and capital costs.

The Commission’s major road planning and design standards are
still, however, consistent with those used by the road planning

authorities in the other States. Essentially, road facilities are planned
and designed to provide a level of service ‘C’ as defined in Guide to
Traffic Highway Practice by the National Association of Australian
State Road Authorities (NAASRA). This is equivalent to an ‘average’
rating, if the level of service concept is rated on a scale of ‘excellent’
through to ‘unsatisfactory’, as described in Table 44. Capacity is
normally increased when service conditions approximate those of level
ot service ‘D’, which is rated as ‘poor’.

Before they are constructed, all major road projects are ranked
in order of priority with the highest ranking projects making their
way into the current construction programme. There are several
different criteria by which competing projects are evaluated, including
safety, primary access, efficiency and environmental impact. When
a project achieves construction status it may be stage constructed. The
standard of provision is determined by the short-term traffic
predictions with future upgrading subject to competition for funding
in a future needs programme.

NSW

1 able 44 Level of Service Characteristics

Level of Service

‘A’

‘B’

‘C*

‘D’

‘E’

‘F’

Performance Rating

Excellent

Good

Average

Poor

Unsatisfactory

System Failure

A) Urban-Suburban Arterial Roads

Maximum Volume/Capacity Ratio

0.6

0.7

0.8

0.9

1.0

n.a.

Average Journey Speed (km/h)

50 +

<25

<20

Proportion of Signal Cycles Fully

Loaded

0.0

0.1

0.3

0.7

0.7-1.0

n.a.

Average Delay at Signals

Minimal

Reasonable

Acceptable

Approaching

intolerable

Intolerable

n.a.

Average Peak Flour Factor

0.7

0.8

0.85

0.9

0.95

n.a.

Traffic Flow Conditions

Free flow'

Stable

Stable with

some

restrictions

Approaching

unstable

Unstable

Forced flow

B) Urban Freeways-Expressways

Maximum Volume/Capacity Ratio

0.35

0.5

0.75

0.90

1.0

n.a.

Average Operating Speed (km/h)

100 +

90 +

50-55

<45

Service Volume for 2 Lane Facility

1400

2000

3000

3600

4000

Average Peak Hour Factor

n.a.

0.85

0.95

n.a.

Traffic Flow Conditions

Free flow

Higher speed
range of
stable flow

Stable flow'

Lower speed
range of
stable flow

Unstable flow

Forced flow

Notes:

1. Average journey speed is the total distance divided by total journey time. It includes delays at signals, etc.

2. Average operating speed is the highest overall speed possible. It applies to freeways and other limited access roads only,
since delays can generally be regarded as negligible.

3. Peak Hour Factor (PHF) is the ratio of the volume occurring during the peak hour to the maximum rate of flow during
a given time within the peak hour. For freeways, PHF is based on a maximum 5-minute flow; for arterials it is based on
a maximum 15-minute flow.

Traffic Demand

The average daily traffic volume using the metropolitan road
network (1982) is shown in Figure 38. It is estimated that up to 450 000
daily car trips made up these volumes.

Currently, some of the major roads are experiencing congestion
for a short time during the peak periods of travel. These roads are
identified in Figure 39.

Several factors contribute to the congestion problems:

• the roads in Canberra’s older suburbs were built to cater for neither
the speed of the modern motor vehicle nor the volumes of traffic
experienced in a city of 250 000 people

• local inefficiencies occur at some major road intersections, e.g.
traffic capacity is reduced to increase safety by introducing 4-phase
signal cycles

• some major elements of the metropolitan road network are
incomplete, e.g. Glenloch Interchange is incomplete because the
parkway connections to the north are not yet required.

Works to resolve many of the problems are currently either in
progress, are identified in the needs programme or are at the planning
and design stage. Some of the works in progress include Hindmarsh
Drive duplication, Dairy Flat Road/Pialligo Road roundabout and
Coranderrk Street widening. Future works include the Eastern
Parkway and John Dedman Parkway/Arterial.

A higher degree of congestion exists and is tolerated in the vicinity
of the main commercial and employment centres. These conditions

are a necessary consequence of providing high accessibility, circulation
and movement flexibility in these areas. As such, congestion problems
will always exist due to the sharing of rights-of-way between conflicting,
heavy demands. A high cost or reduced accessibility would be incurred
in attempting to alleviate these problems which occur for less than
1-2 hours per day. The situation has worsened over time due to the
continued growth of the centres.

Civic is recognised as having the most significant congestion
problems on both the primary access roads and the internal
distribution system. Congestion on the primary access roads is due
to the following factors:

• approximately half of the traffic entering Civic passes through it.
Opportunities for suitable by-pass roads are limited

• most of the major approach roads are operating near their
operational capacity, and opportunities to provide significant
improvements are restricted by existing bridges or adjacent
development.

The capacity of the internal distribution roads is also influenced by:

• the number of signals

^ 0

0 5 km

Figure 38 Average Daily Traffic Flows - 1982

• closely spaced intersections and other property acces

• heavy conflicting pedestrian movements

• circulating traffic looking for parking spaces.

Growth of Civic, in terms of employment opportunities and retail
floorspace, will exacerbate problems in the absence of new road
capacity or policies to reduce traffic demand. A computerised traffic
signal system is currently being installed to improve traffic flow. It
will significantly improve the operating conditions of major roads,
and access to and from the City Bus Interchange. However, only a
minimal increase in traffic capacity is expected.

There are currently no major traffic congestion problems in the
other town centres, although there are some local issues associated
with inefficient signal operation and access to car parks.

Minor traffic congestion problems have been identified at Kingston
and Manuka. These problems are primarily associated with on-street
parking and vehicle interaction with pedestrian movements. In these
areas little can be done without extensive redevelopment of the traffic
circulation system or major investment in off-street parking. Either

NSW

Roads currently experiencing some
degree of congestion

Undesirable Traffic Volumes

NSW

9 Congested Intersection

0 5 km

figure 39

Existing Traffic Congestion

alternative would result in major expense and an undesirable change
in character. Currently, therefore, no action is contemplated.

Some of the roads which have been identified as part of the
metropolitan road system have residential frontage and their traffic
loadings are considered to exceed their environmental capacity. They
are located in the older areas of Canberra and were not originally
planned according to the principles of the road hierarchy. Examples
of these roads include Limestone Avenue, Macarthur Avenue,
Wakefield Avenue, etc. There are many other roads with similar,
undesirable traffic volumes but these are not considered to have a
metropolitan function, e.g. Kent Street, Stonehaven Crescent, Flinders
Way, Cowper Street, etc. The Commission recognises the existence
of these problems and is endeavouring to resolve them by upgrading
appropriate elements in the metropolitan road system or employing
traffic management techniques. In some cases it will not be possible
to achieve a reduction in traffic. However, planning initiatives will
be implemented to ensure that problems do not worsen.

Traffic Accidents

Traffic accidents appear to be highly correlated with the most
heavily trafficked roads. The Commission maintains an extensive
accident data base which is used to identify locations with a significant
accident history, and establish appropriate design standards and
solutions. Figure 40 identifies the most significant accident ‘black
spots’ in the metropolitan area.

Road safety projects have a high priority in the Commission’s road
needs programme. Examples of recently completed safety-related
projects include duplication of Hindmarsh Drive and roundabouts
at several intersections on Erindale Drive.

Car Parking

Background

Until recently, the Commission had provided car parking spaces
on a scale to meet the unrestrained demand for parking. Economic
pressures in recent years hav e, however, had a considerable effect on
the provision of parking facilities. During this period, scarce funds
were allocated to major road and safety-related projects. The provision
of parking was either deferred or provided at a reduced scale. Over
the same period development has taken place on what were once car
parking areas, thereby creating new and additional demands.

The relationship between parking demand and supply at the major
employment and retail centres is shown in Table 45.

A potential undersupply has been identified at several major
employment and retail centres. At present, any imbalance between
supply and demand is overcome by the significant amount of informal
parking which is provided on vacant development sites or areas
identified tor tuture landscape treatment. As new development takes
place this parking resource is rapidly being diminished. This is
particularly the case at Civic Centre and Woden Town Centre.

Pay parking has been implemented at Civic Centre, Woden Town
Centre and Canberra Airport to ensure that short-stay parking is
readily available. Pricing is carried out by boomgate, voucher and
meter controls. Short-stay parking is generally provided within
convenient walking distance of the desired location and at a scale
needed to satisfy average daily peak demands. The critical peak
demand tor short-stay parking at retail centres occurs during Friday
evenings or Saturday mornings when long-stay parking areas are also
available for use by shoppers.

The Commission and the Department of Territories and Local
Government are currently reviewing the policies in regard to parking.
Some options which are being considered include:

• the introduction of long-stay parking charges to modify parking
demand and assist in the financing of new facilities. The potential
implications for public transport operations and the effect on
adjacent residential areas would have to be carefully evaluated.
It may also have significant effect on the commercial viability of
particular areas

• revision of lease conditions so that future developers must provide
an adequate supply of parking to suit their potential demands.
However, the majority of new developments would require parking
structures as land for surface parking may not be available. The
cost of these parking structures may discourage new development.

Parking in Civic Centre

The current demand for long-stay parking in Civic (excluding
Braddon) is greater than the ‘formal’ supply. The shortage is taken
up by abuse of short-stay parking controls and informal parking on

NSW

***»>

• 2 or More Fatal Accidents in last 5 years
x Intersections with High Accident Rate
— Mid Block Locations with High Accident Rate

0 5 km

NSW

Figure 40 Locations with High Accident Rates

open space or land identified for future development. Intrusion into
nearby residential areas is also increasing.

Current development activity has resulted in a substantial park¬
ing imbalance, especially in City West. New developments which have
had an effect on parking include:

• the recent completion of Jolimont Centre

• the development of new office blocks

• conversion of long-stay parking to boomgate short-stay parking.

The situation is exacerbated because land suitable for surface
parking is becoming very scarce and proposed future developments
will reduce the available land even further. New development
proposals confirmed or planned within the next 10 to 12 years are
expected to have the following impacts:

• it is estimated that up to 8 000 new jobs and 15 000 square metres
of retail floorspace will be created

• the new developments will displace approximately 2 500 existing
car spaces

• the new development will generate new demand, estimated at ap¬
proximately 5 500 additional car spaces, thus adding to existing
pressures

• if additional surface parking is not provided, car parking structures
on existing surface parking areas will be necessary to accommodate
the anticipated demand. It is estimated that a further 4 200 existing
spaces could be displaced.

Up to 9 500 car spaces in structures could, therefore, be required
within this period. The first parking structure will be constructed
within the next two to three years to relieve existing parking pressures.

The current supply of short-stay parking is considered to be
adequate for existing and short-term future average daily demands.
It has recently been increased by the installation of new boomgate
areas on London Circuit. Some problems have previously been
observed during the lunch time peak period and at other periods of
high retail activity (e.g. Christmas and Easter).

Table 45 Existing Parking Situation - 1982

Parking Demand Parking Supply

Retail

Floor-

Location

Employment

space

(nr)

Long-

Stay

Short-

Stay

Total

Long-

Stay

Short-

Stay

Total

Civic Centre

• City Division

14000

52800

8200

1350-1850

9550-10050

7250

2650

9900

• Braddon Service Trades

2000

7950

1400

200-360

1600-1760

1360

420

1780

Woden Town Centre
• Retail/Office Core

8000

47750

4400

1230-1750

5630-6150

3500

1650

5150

• Phillip Service Trades

1300

20150

1000

500-700

1500-1700

2290

2350

Belconnen Town Centre
• Retail/Office Core

6800

49100

3950

1230-1720

5180-5670

6050

160

6210

• Belconnen Service Trades

1200

16450

1050

410-580

1450-1630

2490

510

3000

Parkes

6150

3530

3600

200

3800

Barton

4500

3100

3340

120

3460

Russell

4700

2920

2060

100

2160

Campbell Park

1900

1250

1200

1240

Kingston Group Centre

600

16100

420

400-560

820-980

410

310

720

Manuka Group Centre

900

8450

610

340-380

950-990

360

340

700

Notes:

1. Long-stay supply in Belconnen Town Centre includes car parking structures.

2. Long-stay supply in major employment centres includes some informal and temporary parking areas.

An increase in short-stay parking and improved enforcement ol
parking regulations are expected to overcome the existing shortages

Parking in Braddon

Demand for parking in the commercial and service trades area of
Braddon is currently in balance with the formal supply. There are,
however, some local imbalances, necessitating longer walking
distances. Parking pressures are not as great as in the retail and office
core because of the lower density of development and significant
amount of private parking available. Any new high intensity develop¬
ment could, however, result in major parking problems for Braddon.

Parking in Woden Town Centre

Woden is currently experiencing similar parking problems to those
of Civic. The existing parking demand exceeds the current formal
supply. The shortfall is made up by informal parking and land suitable
for surface parking is almost completely exhausted.

Developments proposed in the short term will displace only a few
of the existing parking spaces. However, these developments will add
to the pressure by the increasing demand for parking.

Future development proposals within the existing core of the
Woden Town Centre would displace existing car parking and generate
an immediate need for parking structures.

There are limited opportunities for higher intensity development
in the service trades area. Most of the land is already leased or
developed and it is estimated that a single large office complex would
consume most of the existing reserve parking capacity. Improved
public transport facilities would also be required if higher intensity
development occurred in the service trades area.

Parking in Belconnen Town Centre

It is generally acknowledged that there is an oversupply of parking
in the Belconnen Town Centre. There is a generous provision at the
existing office complexes due to their relatively low employment
density.

There is also a generous provision at the retail mall because:

• structures were provided so that they could be converted to retail

development, if necessary

• the scale of parking provided was based on projected demand.

These were related to higher population projections for Belconnen

and more intense office development.

A substantial amount of open space has been provided in the town
centre. The open space and undeveloped development sites also
provide attractive parking areas.

No parking problems are anticipated in the Belconnen Town
Centre for the immediate future.

Parking at Major Employment Areas

While the parking supply at Campbell Park is generally considered
to be sufficient to accommodate current demands, parking problems
have been identified at Parkes, Barton and Russell. However,
adequate parking is available at slightly greater walking distances in
some locations and many drivers take adv antage of the large amount
of informal parking which is quite often more convenient.

Parking at Secondary Level Retail Centres

The parking supply at most existing group centres is considered
satisfactory. It generally meets the average weekly peak demands.
However, there are occasions when supply may be exceeded for short
periods. This situation is considered to provide the most economic
and efficient use of available resources and is common to most retail
centres.

At both Kingston and Manuka, average daily parking demands
usually exceed the formal parking supply. Most of the shortfall is
accommodated in nearby residential streets. Recent redevelopment
has had a considerable impact on the parking situation. New speciality
stores and other high traffic generating developments such as
restaurants and bars have been constructed in the commercial core.
Office, commercial and medium-density housing development has
occurred in what were previously low-density residential areas. This
development has significantly increased the demand for parking.
Parking and circulation problems are further exacerbated because a
major proportion of the parking is provided on-street.

Public Transport

Background

The past two or three decades have seen a marked change in public
transport. Historically, the provision of public transport services was
economically profitable and cheap travel could be provided. The rapid
increase in ownership and use of private motor vehicles has resulted
in improved accessibility over a much wider area than can be matched
by improved public transport operations. This has encouraged land
use patterns where access to jobs and services are more difficult for
people without cars. Overall the effect has been to reduce the growth
in patronage and increase the cost of public transport operations.

Nonetheless, public transport has an essential role to play. It is
the primary source of mobility for those who for reasons such as
health, age or income cannot use or do not have access to a motor
car. Under certain circumstances public transport increases overall
transport efficiency by minimising land take for roads and car parks,
and by conserving energy and reducing fuel consumption. However,
such efficiencies can only be fully realised where passenger loadings
are high. Additional improvements to road safety can also be achieved
where there is a substantial transfer from private to public transport.
Furthermore, public transport is considered to have a less damaging
effect on the environment.

Since public transport provides an essential social and community
service, it is considered desirable that it should be encouraged by policy
decisions which promote its use. It is also considered essential that
a suitable standard of public transport be provided for that sector
of the community that is wholly dependent on it, and that it be
promoted where it can be demonstrated as providing more efficient
use of available transport resources. This will necessitate some public
expense (subsidy) since the measure of success is no longer profitability
but rather the satisfaction of a number of social objectives.

The Existing Public Transport System

Public transport within the metropolitan area consists of taxis and
buses.

Taxis

Taxis account for approximately 0.4 per cent of the average daily
transport needs. However, they do perform an important metropolitan
function in that they supplement the bus system during the evenings
and weekends when other public transport services are limited or non-

existent and provide a demand responsive service. The current taxi
fleet in Canberra is privately operated and consists of 117 vehicles.

The Hus System

The responsibility for operating and managing the metropolitan
bus system (ACTION) lies with the Department of Territories and
Local Government.

The Department’s public transport strategy is based on a line-haul
and feeder concept. In this strategy, local bus services, or feeders,
provide a basic transport service between each suburb and the closest
town centre. High speed express buses provide a line-haul service
between the centres.

Special purpose public transport interchanges at each of the town
centres are an important part of the strategy. They provide a
convenient focus or point of concentration for all the bus routes,
enabling the efficient transfer of passengers and synchronisation of
bus operations. During the peaks, most interchanging passengers are
able to alight from one bus and immediately board another. The public
transport interchanges are also an integral part of the town centres
and, because they are centrally located, provide maximum convenience
to terminating passengers, i.e. those who work or have personal
business at the centre.

The line-haul strategy is particularly suited to Canberra’s land use
distribution and hierarchical road system. The urban structure of
Canberra consists of several towns with centres which are separated
by relatively long distances. This enables a line-haul service to be
operated efficiently. The major advantages of the strategy are
considered to be:

a) for the passenger:

• higher frequency of service

• reduced journey times for most journeys

• greater choice in number of destinations

• improved reliability and schedules

• passenger amenities at interchanges

b) for the operator:

• improved efficiency through higher operating speeds,
minimising unproductive travel and higher numbers of
passengers per kilometre travelled

• improved control and co-ordination of services

• improved driver amenities.

The main disadvantage is that most passengers have to interchange
involving inconvenience and usually extra cost.

Bus Operations

The existing bus network is shown in Figure 41.lt consists of about
70 routes and covers approximately 800 route kilometres.

The inter-town express (line-haul) services travel on the most direct
routes between town centres. Supplementary express services are
provided between the Woden and Beleonnen Town Centres and major
employment centres at Campbell Park, Russell and Parkes/ Barton
during the peak hours to accommodate the high commuter demands.
During the peak hour, express buses operate even six to seven
minutes, whereas, off-peak, the frequency is even fifteen minutes.

Each suburb in Canberra is sen iced by at least one local bus route
(feeders). The routes are selected so that most residents have less than
a 400 m walk to a bus stop. However, bus routes are subject to specific

design considerations which may affect the maximum walking distance
criterion. They include:

• a minimum street pavement width of 10 m

• heavy duty pavements

• maximum grades of about 8 per cent.

Generally, local bus services are provided every fifteen minutes
during the peak, with thirty minute frequencies during the off-peak
and sixty minute frequencies on evenings and weekends.

ACTION has introduced other innovations to try to improve the
standard of service and efficiency. These include:

• a fare box system to reduce boarding time

• articulated buses

• advanced purchase tickets

• zonal fare structure, involving a single fare for any part of a single
zone

• area bus operations for after hours services.

NSW

- Feeder Route

- Line Haul Route

• Interchange

Figure 41 Existing Bus System

Demand for Public Transport

It is estimated that Canberra’s bus system caters for about 8-10
per cent of the average daily travel demand.

Annual bus patronage in 1982-83 was approximately 20 million
passenger trips. This represents approximately 14.3 million individual
journeys. Bus patronage has increased steadily (excluding effects of
population increases) since about 1976. Table 46 shows the relative
increases over the period 1975-76 to 1981-82. The 1981-82 figures are
not considered to be representative, because of major industrial action
during that year. Most of the increase in patronage is due to natural
growth (population increase) and restructuring of services (some
people who previously made one trip per journey, now make two).
However, a significant proportion of the increased patronage is due
to the improvements to services introduced over that period. These
include higher frequencies, advance purchase of tickets, synchronisation
at the bus interchanges and supplementary peak-hour services.

Table 46 ACTION Annual Passenger Trips - 1976-1982

1975-76

1976-77

1977-78

1978-79

1979-80

1980-81

1981-82

Special School Services (000s)

3 266.6

3 417

3 600

Scheduled Route Services (000s)

15 233.4

16 383

13 947

Total (000s)

11 400

12 355

13 874

16 240

18 500

19 800

17 547

Vo Increase/Year

8.4

12.3

17.0

13.9

7.0

-12.8 (I)

Vo Population Increase

7.0

3.2

3.0

1.9

2.0

1.3

1.5

(1) Large proportion of reduced patronage due to substantial industrial stoppages, but previous years suggest the rate
of increase was falling off.

(Source: DCT Annua! Reports).

Table 47 Distribution of Bus Travellers by
Purpose - 1975 (Vo)

Purpose Vo

Home-Based Work 27.2

Home-Based Education 44.0

Home-Based Shopping 9.6

Home-Based Other 8.3

Not Home-Based 10.9

Total 100.0

(Source: 1975 Home Interview Data Base)

More than 70 per cent of bus travel is related to school and work
trips, as indicated in Table 47. Special school bus services
accommodate about 50 per cent of daily school bus trips, while the
remainder are catered for by the normal scheduled services. It is
estimated that up to 35 per cent of daily bus use occurs during a two
hour period in the a.m. peak. A similar amount is carried oxer about
three hours during the p.m. peak period.

It is also estimated that about 20 per cent of daily bus travel occurs
during the critical peak hour (a.m.). During this time, express bus
services are operating at about 95 to 115 per cent of seated capacity
(seated capacity is about two-thirds of ‘crush capacity’). However,
most feeder services are operating at less than 60 per cent of seated
capacity. In the off-peak period most buses operate at a fraction of
their capacity (estimated at 10 to 15 per cent on average).

Public Transport Operating Costs

Over the past decade, the annual bus operating deficit has
increased substantially. Table 48 shows that the increase in the annual
deficit was greater than the annual rate of inflation for the same
period.

Table 48 Public Transport Operating Costs, Revenue and Annual Subsidy - 1976-1982

1975-76

1976-77

1977-78

1978-79

1979-80

1980-81

1981-82

Operating Costs ($000s)

6 997

8 496

10 630

12 608

15 728

19 589

21 309

Revenue (5000s)

2 939

3 583

4 357

4 875

5 619

7 828

8 788

Annual Deficit ($000s) (1)

4 058

5 363

6 273

7 733

10 109

11 761

12 521

Annual Rate of Increase of Deficit (Vo)

32.1

17.0

23.3

30.7

16.3

6.5

(I) Equivalent to Subsidy
(Source: DCT Annual Reports)

It is notable that other government operated public transport
services throughout Australia have similar operating deficits, and
attract government subsidy. Table 49 shows the annual deficit for each
Australian Capital City for the financial year 1979-80.

Table 49 Urban Public Transport Performance - 1980 (1)

Deficit per Passenger

Deficit (2)

Passengers

Each Type

System-Wide

City

Type

($ millions)

(millions)

($)

Sydney

Rail

132.4

205.0

.65

.52

Bus

73.5

194.4

.38

Melbourne

Rail

62.0 (3)

85.8

.72

Tram

29.1 (3)

98.9

.29

.50

Bus

11 71(3)

19.9

.59

Brisbane

Rail

43 A (4)

28.0

1.54

Bus

15.8

46.4

.34

.79

Adelaide

Rail

17.2 (4)

13.8

1.25

Bus

21.1(4)

61.0

.45

.59

Tram

0.8 (4)

2.7

.30

Perth

Rail

10.5

7.1

1.47

Bus

27.6

56.3

.49

.60

Canberra

Bus

10.1

19.5

.52

Hobart

Bus

5.8

12.6

.46

(1) Government-operated systems only, for financial year 1979-80.

(2) Deficit includes interest, depreciation and government reimbursements.

(3) Scholar and pensioner reimbursements estimated.

(4) Interest and depreciation charges estimated.

(Source: Respective State Authorities and Annual Reports)

It should be recognised that it is not possible to provide the level
of service demanded by the community on a ‘break-even’ basis. The
fleet size is determined by the peak-hour operation and for most of
the day is not used efficiently or remains idle. Weekend and evening
operations attract penalty wage rates, but only a few patrons, and
students, pensioners and children are carried at reduced fares.

The general indications are that the annual deficit will continue
to increase at a rate greater than the rate of inflation. The main reasons
are:

• increasing running costs (fuel, spare parts, tyres)

• increasing wages

• Canberra’s growing population and expanding urban area will
require a larger fleet, which because of the inherent uneconomic
nature of peak and off-peak loadings will be idle most of the time.

Future Travel Patterns - Trends and Implications

Background

The existing planning of Canberra has been determined, to a large
extent, by previous actions and community desire to retain the current
lifestyle and standard of amenity. Future planning strategies are
discussed in detail in Chapter 5. Some of the basic elements which
will have a major impact on the planning for future transport facilities
are:

• within the planning period, the population of Canberra/
Queanbeyan will grow to about 410 000

• there will be continued population settlement in Tuggeranong to
an eventual population exceeding 85 000 persons

• population settlement will occur in Gungahlin, leading to an
eventual population of approximately 84 000 persons.

The proposed population settlement strategy takes advantage of
the extensive capital investment to date in roads, hydraulic works,
major electrical infrastructure, etc., and although it recognises the
increasing economic pressure for higher-density living, it acknowledges
the fact that it will probably have minimum impact on the overall
density. This means that when Canberra’s population reaches 400 000,
the residential density will be about the same as it is now, i.e.
approximately 16.5 persons/ha. Planning for Canberra’s future needs
has, therefore, continued to be based on servicing a widely-spread,
low density city.

Future Trip Generation

Travel demands over the next twenty years are expected to be
similar to those which currently exist.

There may be a slight reduction in average daily trip generation
from about 4.1 trips per person per day to about 3.9 trips per person
per day. There is evidence of a reduction in discretionary travel
(shopping, social, recreation, etc.) over the past decade and this trend
is expected to continue. Some trips are no longer made and some have
been combined with other trip purposes, (e.g. a shopping trip on the
way home from work). The increasing cost of travel is considered to
be the main reason for the reduction in trip generation. The increasing
average age of Canberra’s population is also believed to have some
effect.

It is the peak period which is the major determinant affecting the
provision of facilities for either public or private transport. There is
unlikely to be any change which could significantly affect peak-hour
travel demand. More than 75 per cent of morning peak-hour trips
are currently concerned with travel to work or school. This situation
is expected to be the same in the future.

Future Mode Split

Predicting the mode choice of future travel demands is difficult,
due to the complex interaction of many variables. Some of the most
important factors that will influence the amount of travel by public
transport are:

• layout of the City, including the location and intensity of activity
centres, and the population density

• proportion of community which is captive to public transport

• efficiency, availability and relative cost of travel

• supply and cost of parking available for private cars

• availability of fuel for private cars

• improved public transport services

• ability to provide low cost public transport facilities.

The future planning strategy can be view ed as an extension of the
existing City, the residents of which will probably retain their
transport-intensive lifestyle. Private car travel is currently the main
mode of transport and accounts for about 90 per cent of daily
vehicular travel. Bus travel, on the other hand, caters for less than
9 per cent (the remainder are taxis and motorcycles).

Any significant increase in average journey travel time resulting
from an increase in the size of the City is predicted to have an adverse
reaction on the relative proportion of travellers using public transport.

It is estimated that up to 88 per cent of public transport trips
(excluding school children) were made by travellers with no alternative

form of transport available for that trip, that is, they were captive
to public transport.

Of those passengers who actually chose to travel by public
transport, the journey to work currently accounts for the highest
proportion by journey type, and shopping trips the lowest, (19 per
cent and 2.5 per cent respectively). Commuter travel by public
transport is expected to increase significantly to the town centres due
to parking controls (reduced availability or higher cost), and shopping
journeys by bus may decrease if trip lengths and car availability
increase. Little change is expected for other journey purposes.

Increasing motoring costs (excluding parking charges) relative to
public transport fares are not expected to have a significant effect
on mode split. In recent years motoring costs have increased
dramatically while public transport fares have reduced in ‘real terms’,
with little apparent change in car usage. The large increase in fuel
costs (since 1975), however, appears to have resulted in a change to
smaller, more fuel-efficient cars. Reducing public transport fares is
also not expected to change the situation significantly. Research in¬
dicates the ‘price elasticity of demand’ for public transport is about
-0.3 (i.e. a 10 per cent reduction in fares would achieve a 3 per cent
increase in ridership), and that most of any increase is due to existing
captive users making greater use of cheaper transport, and greater
use by travellers who would otherwise be car passengers (as opposed
to drivers).

The future introduction of parking charges for long-stay parking
is considered to have the potential for the most significant increase
in public transport use. However, parking charges can be realistically
applied only where supply, relative to demand, is limited, and then,
only if suitable alternative transport is available. The town centres
are thought to be the only reasonable application for this type of
policy.

The past rate ot increase in ACTION’S annual operating subsidy
and the forecast that it will continue to increase faster than inflation,
indicate that low cost public transport is not possible in the foreseeable
future.

The increase in public transport usage in Canberra over the past
seven years is atypical. Elsewhere in Australia, and throughout the
world, patronage levels have declined. Most of the increase in
Canberra was due to major service improvements over the period.
In view of the likelihood of increasing public transport costs generally,
and considering the possible development strategies for Canberra, it
is anticipated that the average proportion of travel catered for by
public transport will remain about the same (8 to 10 per cent of all
vehicular trips). This implies an increase in public transport travel of
approximately 56 per cent due to population growth. A significant
distributional change is forecast for peak hour travel. Mode split to
the existing town centres is expected to increase although the amount
will depend on the density of town centre development, the successful
introduction of a pay parking strategy at major centres and public
acceptance ot a substantial increase in the cost of operating the public
transport system. In the transport evaluation in Chapter 5, estimates
have been made of the maximum likely increase in mode split.

Water Resources and Energy Services

Water Resources

Introduction

The water resources of the ACT are limited in terms of their
capacity to supply water and assimilate wastes consistent with the
protection of recreational use and the environmental quality
expectations of the community. There is, therefore, a need to allocate
the resource across a number of competing demands.

Decisions on land use and its management are the principal
determinants of both the nature of water use demands placed on lakes
and streams of the region, and of the ability of the lakes and streams
to sustain the uses. Accordingly, decisions on land use need to be
considered in the context of their implications for existing water uses
and associated land uses in the basin.

Allocation of Water Resources

The ACT Water Use Policy Plan provides a comprehensive state¬
ment of the allocation of water resources (in quality and quantity
terms) of the ACT across the competing uses. It also provides a brief
description of the water resources of the region, obligations in respect
of protecting the rights of downstream users, and the location of such
key uses as diversion for water supply, wastewater and stormwater
discharges, recreation, and areas of aquatic habitat of regional
significance.

It provides the basis for an assessment of the implications of land
use changes and infrastructure proposals for existing water uses and
associated land uses in the basin.

Water Resources Management and Current Issues

A range of management and infrastructure strategies have been
adopted as the means of providing the services and conditions to meet
community aspirations. The management strategies comprise:

• land use and management control, which is cognisant of the pro¬
tection of water and associated land uses downstream

• the provision of water supply, wastewater, and surface water
management infrastructure

• the management of demands for services by means of siting
controls, water supply and wastewater discharge tariffs, and
regulations.

The principal infrastructure components comprise:

• municipal water supply, including potable and second class
(irrigation) water supply systems

• wastewater management, including the provision of sewerage and
industrial wastewater management schemes

• surface water management, including the provision of urban lakes,
water quality control ponds, stormwater drainage, and flood
control.

The following factors are currently, or may in future become,
significant issues in relation to water resources:

• the requirement to augment water supply to meet growth in
demands associated with metropolitan growth

• the limited extent of the ACT water resources in relation to the
ability to meet future water supply demands and environmental
protection expectations

• the exacerbation of water quality problems in lakes and streams

as a result of stream diversion (principally the Queanbeyan River
at Googong) for water supply

• the high cost of wastewater treatment associated with the level of
protection of environmental and recreational amenity of inland
lakes and streams expected by the community

• the demands for water-based and related recreation, and the
limited capacity of natural and constructed facilities to
accommodate these demands

• an expectation that water features will be provided and managed
in a manner consistent with facilitating a wide range of recreational
uses

• the requirement to contain urban runoff pollution in order to
protect the environmental quality and recreational amenity of the
Murrumbidgee River through Tuggeranong, and Ginninderra
Creek downstream of Gungahlin

• the expectation of the retention of natural channels and ecosystems
within the urban environment, and the associated problems of
managing surface runoff consistent with the protection of property
and recreational amenity

• the requirement for the provision of higher levels of water treat¬
ment ot Cotter water in view ot the increased recreational pressure
on the Cotter catchment

• the cost of replacing ageing infrastructure.

Current Patterns of Demand and Service

W ater Supply

The management of water supply comprises the provision of a
supply upon demand (municipal water supply), the conservation of
water through the recycling ot sewage effluent and urban runoff for
irrigation purposes, the management of demand through water tariffs
and the use ot native plants for landscape purposes, and the application
of water restrictions in periods of drought.

Canberra and Queanbeyan are supplied with water from three
dams on the Cotter River and one at Googong on the Queanbeyan
River. Total dam capacity is adequate to cope with a
Canberra/Queanbeyan population of 450 000 at current levels of
consumption. ACT water consumption per head of population (680
litres per person per day) is relatively static, subject only to short¬
term variations reflecting seasonal conditions.

A high proportion of ACT water consumption is used for water¬
ing parks and domestic gardens (55 per cent of total consumption as
a long-term average). Recycling of wastewater and urban runoff for
the irrigation of parks and gardens, and the adoption of landscape
forms which have a reduced watering requirement, offer potential
savings in the cost of water supply.

Wastewater

The management of wastewater comprises the provision of
collection and disposal (sewerage) services upon demand (including
the provision of wastewater treatment facilities), the conservation of
wastewater through recycling of sewage effluent for irrigation
purposes, the management of demand through charges for discharge
to sewers, and regulations controlling discharges to streams and
sewers.

Urban areas in Canberra are fully sewered. The Lower Molonglo
Water Quality Control Centre (LMWQCC) treats all of Canberra’s
sewage, and has a capacity to service a population of 400 000. The
timing of augmentation will be dependent on population growth and
the amount of waste generated by each household.

Water pollution control legislation will necessitate the connection
of all wastewater discharges to the sewerage system, the upgrad
of the level of treatment provided at the Cotter and Hume Sewage
Treatment Works, and the provision of sewers to cater for industrial
discharges.

In addition, replacement of the Molonglo Outtall Sewer
constructed in 1918 and the progressive construction of trunk sewers
in Tuggeranong and Gungahlin will be required over the next ten to
fifteen years.

The design capacity of existing sewers is exceeded in some areas,
resulting in periodic spills of sewage to local lakes and streams. Where
the potential risk to public health is high, augmentation will be
required.

Surface Water

Surface water management comprises the provision of collection
and disposal (stormwater) services upon demand (including the
provision of water pollution control facilities), the establishment of
urban water features in response to recreation and landscape demands,
the conservation of urban runoff through recycling for irrigation
purposes, the management of demand through design and siting of
urban development and zoning of water uses, and restrictions
controlling land use in flood plains.

Urbanisation causes a fivefold to sixfold increase in peak runoff
generated by storms, and consequently a need to augment the capacity
of natural channels to transfer these peaks safely out of the urban
area, or to store the stormwater in the floodways, retarding ponds,
and in the ground storage systems.

The stormwater drainage system, which is separate from the
sewerage system, comprises pipe drains, stormwater channels and
retarding basins which complement the creek and river system. Lakes
and water quality control ponds are employed to protect receiving
waters.

Urban stormwater is a source of pollutants which may impact on
the water quality of local lakes and streams. Current design of storm¬
water systems seeks to incorporate both the means for collecting and
removing stormwater from the urban areas and of trapping pollutants
carried in the stormwater. Much of the existing stormwater control
infrastructure was constructed in the 1950s and 1960s without the
benefit of present day knowledge. In these cases, corrective works
will be required.

As with sewerage reticulation, progressive provision of main drains
for stormwater will be required in Tuggeranong and Gungahlin over
the next ten to fifteen years.

Future Demand Trends and Implications

Canberra’s water consumption is high in comparison to Capital
City standards. This is largely a reflection of Griffin’s concept of
Canberra as a ‘garden city’ and the inland location of Canberra. As
the City grows, there will be a need to modify consumption patterns
consistent with the available supply and the protection of water
quality.

Wastewater volumes generated per household in Canberra are
comparable to those of urban areas in Melbourne and Sydney. With
a trend to increasing use of household appliances and a falling
household occupancy rate, it is expected that a growth of 1 per cent
in wastewater generation per person per annum will occur in the
future. Experience gained in the commissioning of the Lowei

Molonglo Water Quality Control Centre has validated the
appropriateness of stringent standards controlling levels of nutrients
in sewage effluent.

The pattern of increasing leisure time will yield further demands
for water-based recreation facilities, and reinforce the importance of
protection of water quality of lakes and streams of the region.

Energy Services

Solar Energy

A number of swimming pool solar heating systems have been
installed by the Commission as a means of reducing energy
consumption costs and as a basis for the evaluation of solar heating
systems. Increasing use is being made of solar hot water installations
for domestic purposes.

Solid (Wood) Fuels

There has been a trend to the use of wood burning heaters in
domestic dwellings in Canberra in recent years. The trend raises
concerns in respect to environmental (air pollution) implications of
the emission of wastes from this source.

Electricity

The installation and augmentation of electricity services is carried
out by the ACT Electricity Authority (ACTEA), in conjunction with
the Commission. The Commission’s aim in the planning for electrical
supplies is to provide reservations for transmission lines and reserve
sites tor substations which meet the needs of ACTEA for an economic
and reliable distribution system, consistent with the protection of the
environment of Canberra and the visual setting of the ACT.

Electrical power is supplied to the Territory primarily via a 330 kV
system, which feeds the Canberra 330/132 kV substation at Holt. A
secondary 66 kV supply is provided to the Kingston substation from
the NSW 132/66 kV substation at Queanbeyan. This secondary supply
will be phased out in the near future.

Power is transmitted from the supply points, via a 132 kV sub¬
transmission system, to substations throughout the metropolitan area.
Power trom these 132/11 kV substations is then transmitted via 11 kV
lines to local transformers within the suburbs or centres where the
voltage is further reduced for supply to users.

Natural Gas

Natural gas is distributed in the ACT by the Australian Gas Light
Company. The natural gas comes from Moomba gas fields in South
Australia and is supplied to the ACT through a high pressure pipeline
extending from the Moomba to Sydney pipeline.

The Australian Gas Light Company receives the gas at a trunk
receiving station in Gungahlin. The gas is reticulated through a
network of steel mains to major commercial and industrial consumers.
The network also supplies gas to district regulators which are located
throughout Canberra to service the various residential areas.

The Commission began a programme in 1980-81 which identified
185 government buildings suitable for conversion to natural gas.
Installation ot systems for the conversion of the first public buildings
in the ACT to use natural gas (the Royal Canberra, Woden Valley
and Calvary Hospitals) was completed in January 1982. Since then,
the Russell Defence Offices, Cameron Offices and a number of
Canberra schools have been changed over.

100

Physical and Environmental Aspects of the
City

Environment

Introduction

From a metropolitan perspective, the following environmental fac¬
tors are important when preparing a long range policy plan for
Canberra:

• water quality

• air quality

• noise quality in the urban environment

• ecological resources.

It is recognised that increased population, urbanisation and
potential industrialisation will place growing pressure on the finely
balanced and limited assimilative capacity of the environment and
on the finite stock of natural resources. The Commission’s broad
environmental aim is to ensure that future development in the ACT
is in harmony with the general environment and within the
requirements of the Environment Protection (Impact of Proposals)
Act 1974. This section examines the existing environment from the
point of view of the environmental factors noted above (see Figure 42).

Water Quality

It is essential that the water quality of lakes, rivers and streams
within the ACT is adequate for community uses such as domestic
water supply, recreation, irrigation and stock water supply, angling
and maintenance of significant aquatic habitats.

While pollution of aquatic systems can arise from land used for
grazing, agriculture, forestry or nature conservation, under normal
conditions, effluent from sewage treatment works and urban storm¬
water runoff are responsible for the major part of pollutant loadings.

In July 1978, the LMWQCC commenced operation, enabling the
Weston Creek Sewage Treatment Works to close in September 1978
and the diversion of sewage from the Belconnen W ater Pollution
Control Centre, as of October 1979. These actions have caused a
dramatic improvement in the water quality in parts of the Molonglo
and Murrumbidgee Rivers and Ginninderra Creek, even though the
detailed interpretation of the extensive monitoring data collected since
that time has been complicated by the fact that, from late 1978 to
early 1983, the region experienced a period of severe drought.

There is increasing evidence that, in recent times, parts of Lake
Burley Griffin have been exhibiting considerable water quality stress,
due to very low flows into the lake and high nutrient loadings from
urban runoff and the Queanbeyan sewage treatment works. Even
though the ameliorative works at Captains Flat have reduced the threat
of zinc pollution in Lake Burley Griffin, the biological character of
the Molonglo River has shown limited improvement. Lake
Ginninderra has continued to maintain a higher quality than Lake
Burley Griffin.

Overall, the water quality of the Murrumbidgee River, from Angle
Crossing to the confluence of the Molonglo River, is generally of high
quality, suitable for body contact recreation and irrigation, and
supports a diverse range of fauna, even though there are observed
impacts associated with urban runoff from Tuggeranong.

In summary, when the LMWQCC is operating at its maximum
level of performance, the impact on the environment from sewage

in the Canberra region is virtually eliminated. However, periods of
water pollution are still occurring in parts of Lake Burley Griffin and
the Molonglo River, due to increasing urban runoff from Canberra
and Queanbeyan, continuing pollution from Captains Flat and
effluent discharge from the Queanbeyan sewage treatment works. In
these areas, the main water quality concerns are associated with excess
nutrients (phosphorus and nitrogen) and their subsequent effects on
plant growth and/or with bacteria from sewage spills.

Air Quality

The major aim, in terms of metropolitan planning, is to ensure
that air pollutants do not exceed levels at which they can have
identifiable health effects. In the ACT this is a significant issue, as
Canberra has a high potential to accumulate air pollutants because
of the high percentage of calms or periods of low wind speed and
frequent temperature inversions.

The major source of air pollution is associated with emissions from
motor vehicles. Such emissions are high in areas of traffic congestion,
particularly if this is concentrated in one central business district.

NSW

Noise level exceeds 65dB (A) (L 0 18 Hour) at a point
10m from the road

Carbon Monoxide Levels exceed NHMRC (A)
w Standards

<§§? Ozone Levels exceed NHMRC (A) Standards

(3 Lead Levels exceed NHMRC (A) Standards

• Total Suspended Particulates exceed NHMRC (A)
Standards

i Waters not meeting some Designated Use Quality
—J Standards

5 km

Figure 42 Existing Environmental Conditions

102

Intermittent monitoring since 1974 has lound that, while World
Health Organization air quality standards have been reached or
exceeded in Civic for carbon monoxide and ozone on a few occasions,
there are no indications that there has been a marked deterioration
in Canberra’s air quality over this period. These observations support
the Commission’s planning philosophy of creating an efficient public
transport and road system, decentralising employment and discouraging
through-traffic movement in centres.

Overall, these measures have resulted in a reduction in the extent
of traffic congestion and travel distance and time which, in turn, have
reduced air pollution by reducing the amount of vehicle emission
and/or dispersing them over a wide area.

Recent monitoring activities by the Capital Territory Health
Commission, as part of an Australia-wide survey of lead levels in
urban airsheds, has found lead levels in Civic Centre and the Woden
and Belconnen Town Centres which exceed National Health and
Medical Research Council standards.

Noise Quality in the Urban Environment

Noise is one of the many problems which occur in the urban
environment. Research has shown that, within urban areas, excessive
noise has a detrimental effect on the quality of life in the community.

As a result of careful planning, the impact of noise on Canberra’s
urban environment has been significantly reduced. Major traffic routes
have been located away from residential areas or adequate set-backs
from arterial roads have been provided, and residential areas have
been arranged so that through-traffic is discouraged or eliminated.

However, recent studies have shown that parts of Inner Canberra
are experiencing high noise levels, caused by through-traffic using
residential roads to travel to Civic. There is also evidence of extensive
parking in residential streets surrounding Civic, with the resultant
increase in vehicles in these areas.

Ecological Resources

From a metropolitan viewpoint one of the key environmental issues
is to ensure adequate environmental protection and conservation of
significant ecological resources. Four categories of ecological resources
have been recognised:

• large natural bushland areas in the southern and western parts of
the ACT

• areas and sites of ecological significance in the remainder of the
ACT

• significant wildlife movement corridors

• arboreta and exotic plantings.

These categories and individual sites and areas are shown in
Figure 43.

Targe Natural Bushland Areas

These areas cover the Gudgenby, Gibraltar Creek, Tidbinbilla and
Cotter areas which are major bushland environments surrounding the
existing and future metropolitan area. While these large areas contain
numerous smaller areas and sites of ecological significance, at the scale
of the Metropolitan Policy Plan there is no point in evaluating
individual sites. Rather, it is sufficient to recognise these areas in their
entirety as ecological resources of outstanding significance and to
develop appropriate broad policies for their protection and use.

103

Specific Areas and Sites

Hie areas in the north and east of the ACT which includes all of
the existing urban areas, have been extensively modified by land use
and contain only remnants of the original vegetation patterns. The
areas shown on Figure 43 have significance as ecological resources
mainly because they are the last remaining examples of formerly more-
widely distributed plant communities and animal habitats. Many
provide habitats for plants and animals which are now uncommon
in the ACT, because their original habitats have been severely reduced
in extent.

At present, the Commission is assigning ecological significance
ratings to each of these areas, so that appropriate planning and
management actions can be developed to ensure adequate protection
of these areas.

Significant Wildlife Movement Corridors

These are zones or routes along which defined movements take
place by certain native animal species.

Four major corridors have been identified: Lower Molonglo
Valley, Upper Majura Valley, South Canberra Hills and Murrumbidgee
River Valley. The first three of these are primarily kangaroo movement
corridors, and the latter is a key bird and fish movement corridor.

Areas and Sites of Ecological Significance

Large Natural Bushland Areas in Southern and
Western ACT

Pine Plantations, Arboreta and other Exotic Planting
Significant Wildlife Movement Corridors

Reserve

10 15 20km

104

Figure 43 Ecological Resources of the ACT

NSW

Topographically Unsuitable

eg. Slopes, Rocky, Broken Character, Height

20 km

Figure 44 Topographical Limitations to
Urban Expansion

Arboreta and Exotic Plantings

There are three main types of ecological resources (other than
artificial lakes, ponds and dams) which fall into this category of man¬
made ecosystems:

• pine plantations

• arboreta

• other exotic plantings.

While these resources do not have ecological value in the same
sense as those ecological resources of natural origin, they nevertheless
are of some ecological interest. Some forests such as the Stromlo-
Green Hills area intrude into the view from the Central Area. Parts
of the existing exotic forests may have to be re-established as
indigenous landscapes if the National Capital Open Space System is
to be extended and the visual backdrop to the City is to take the form
of a landscape of Australian character. Other areas may be required
to accommodate the extensive special purpose land uses which require
non-urban locations close to Canberra.

Constraints to Development

Topographical Limitations

Of the 2 356 km 2 of the ACT, nearly 60 per cent is topographically
unsuitable for urban development. The land is too steep, too rocky,
or too broken (Figure 44). Much of it, however, is used for water
catchment areas, nature reserves, the clearance zone for com¬
munications facilities and other appropriate uses.

The waters of Lake Burley Griffin and Lake Ginninderra and the
flood plains of the Molonglo and Murrumbidgee Rivers cover another
26 km 2 .

NSW

Nature Reserves
□ Water Catchments

Water Catchment Areas

The Cotter River catchment covers an area of 483 km 2 of steep
mountainous terrain, of which 470 km 2 is in the ACT. The Naas-
Gudgenby River catchment has been identified as a possible future
source of water supply, which may be required when the Cotter and
the Googong system reach capacity at a Canberra/Queanbeyan
population of 450 000. Although these catchments may be able to cope
with recreational and other selected uses, it would not be appropriate
for urban development to be located in these areas.

Nature Reserves

The Tidbinbilla Nature Reserve occupies 46 km 2 of the ACT. The
Gudgenby Nature Reserve, which currently comprises 600 km : or over
25 per cent of the area of the ACT, is a large reserve used primarily
for nature conservation and low intensity recreation.

Smaller gazetted reserves which also have nature conservation and
recreational roles include Black Mountain Reserve and Molonglo
Gorge Reserve.

Because the primary land use in nature reserves is the conservation
and public appreciation of native flora and fauna within their natural
environment, these areas are unavailable for urban development.

Communications Installations

The ACT contains a number of communications installations
which, to operate efficiently, require protection from the generated
effects of urban settlement and associated development (Figure 46).

Figure 45 Water Catchments and Nature
Reserves

The Commonwealth has obligations to protect tracking stations
from any electrical or other interference from urban settlement, power

Conn Dam

NSW

1 Tidbinbilla Deep Space Communication Centre

2 Harman Bonshaw

3 RAAF Gungahlin

4 Mount Stromlo Observatory

5 Canberra Airport

6 Mugga Quarries

7 RMC Field Firing Range

8 Australian Federal Police

J 0 5 10 15 20 km

transmission lines, radio transmitters or electrical, scientific, medical
and industrial equipment.

Tidbinbilla Deep Space Communication Complex

Urban development near the facility is limited by the following
zone constraints (Figure 47):

• Zone ‘A’ - no development is permitted within a 1.25 km radius
from the centre of the complex

• Zone l B' - no industrial development is permitted within a 3 km
radius of the centre

• Zone ‘C’ - an arc from the north-west to the south-west which
is modified by the terrain. Consultation is required prior to
development by any electrical users or transmitters to allow assess¬
ment of their impact.

Defence Receiving Stations - Harman and Bonshaw

The sensitive and sophisticated nature of modern communications
equipment renders a high degree of protection a matter of
metropolitan significance, because of the area of land which is
potentially sterilised from development and the complexity of some
protection measures.

The Commission, in its planning, consults with the Department
of Defence and takes all reasonable steps to protect Defence wireless
communications from significant adverse physical and generated

Figure 46 Protection Zones

Figure 47 Zone Constraints

106

effects of urban and associated development. The Australian
Interdepartmental Telecommunications Advisory Committee code of
practice 1976-77 identified three concentric zones of consultation:

• 2 km radius - residential development

• 6 km radius - industrial development, main roads, etc.

• 16 km radius - high electrical energy users, transmitters, hospitals.

The Harman-Bonshaw facility may be relocated in an area remote
from urban development in the next 5-10 years to reduce interference
effects on its operations.

Defence Transmitting Stations

RAAF Gungahlin is surrounded by a protection zone within which
the height of structures is limited.

No constraints are imposed on development outside the boundaries
of the Belconnen Naval Station. The station may be relocated in the
next 10 years and so release the land which it now occupies for
additional residential development.

Microwave Links

The use of microwave links between various defence and emergency
service facilities is increasing. Some of these may require protection
in the future.

Mount Stromlo Observatory

The Form of Arrangement between the Commonwealth and the
Australian National University for the transfer of the Mount Stromlo
Observatory made in January 1957 states:

‘The Commonwealth will ensure that the land which is within the
area bounded by the Cotter Road, a meridian line one mile to the
west of the Stromlo Trigonometrical Station, the Uriarra Road
and a meridian line three-quarters of a mile to the east of the
Stromlo Trigonometrical Station... will not be used for any
purpose... which, is injurious or prejudicial to the operation of
the Observatory...’.

Canberra Airport

The height of structures in an area around the airport can be
critical to airport operations, depending upon ground elevation and
flight paths. Consultation with the Departments of Defence and
Aviation is undertaken in the case of structures likely to infringe the
clearance requirements.

Noise Exposure Forecasts (NEF) for 1985 also impose constraints
on development. Generally, only broadacre, institutional, recreational
or rural uses are acceptable within the 25 NEF zone.

Quarries

The main source of quarrying materials in the ACT is the Mugga
porphyrys which occur along Jerrabomberra Ridge to Mt. Mugga.
The two existing quarries are in this area and a possible site for a third
quarry has been identified.

A buffer zone of 1 km is maintained around the quarry sites in
order to ensure protection from noise, air blast overpressure and
ground vibration nuisance. Within this protection zone, only dev elop¬
ment compatible with quarry operations is to be permitted.

RMC Field Firing Range

The firing range is used for training of officer cadets at the Royal
Military College Duntroon and the Australian Defence Forces

107

Academy. Existing unexploded bombs and shells would need to be
removed, at a high cost, if the area is to be considered for any urban
use.

Australian Federal Poliee Firing Range

A firing range may be sited at Kowen, and if so, the range and
its clearance template could both become constraints on development
in the vicinity.

108

Chapter 5

Planning for Growth
and Change

Approach to Planning

Identifying the Scope of the Work

In defining the scope of the work to be undertaken by the study,
the following factors were considered:

• the considerable investment already committed to the existing and
proposed urban structure derived from the Y-Plan

• the population capacity of the existing and proposed settlement
areas of the Y-Plan lying within the Australian Capital Territory

• the population projections which indicated that these settlement
areas (excluding West Murrumbidgee) would not be completely
settled to their capacity of about 380 000 until about the turn of
the century.

In terms of examining alternative urban structures to the Y-Plan
itself, the previous work undertaken in 1976 was used as a basis. This
work established that opportunities to depart from the intermediate
form of the Y-Plan (the Y-Plan within the ACT) were long-term and
would not occur until the population level approached 400 000-
450 000 (under the settlement pattern and housing occupancy rates
assumed at that time). The work also established that until these
population levels were approached, the intermediate Y-Plan was as
valid as any alternative urban structure and on environmental grounds
had certain distinct advantages.

The work in 1976 examined development opportunities in the
Molonglo, Majura and Jerrabomberra Valleys and found that each
had significant environmental or other constraints, which precluded
their development for urban purposes in the near future. Parts of the
Molonglo Valley for example, lie within the Areas of Special National
Concern. In addition, the Molonglo River itself is a valuable recreation
resource and urban development might degrade its water quality and
cause pollution of the Murrumbidgee River. In essence, the same
concerns currently applying to development in Tuggeranong, adjacent
to the Murrumbidgee River, also apply to the Molonglo Valley.

With regard to the Majura Valley, much of its area is utilised for
the Canberra Airport and its approaches and for a field-firing range
of the Department of Defence. The investment in the airport precludes
its relocation even if a suitable site could be found and the Department
of Defence has indicated that the field-firing range location is essential
to the operation of the Australian Defence Forces Academy.
Moreover, preliminary investigations have shown that the cost of
clearing the area of possible unexploded devices could well be
prohibitive.

The Jerrabomberra Valley is a comparatively small area for urban
development and is currently constrained by the Naval establishments

109

at Harman and Bonshaw. Existing commitments to protect large areas
surrounding these establishments in order to ensure freedom from
interference to radio reception preclude development of the area until
such time as the establishments are relocated.

In order to deal effectively with the short and mid-range problems
of the City, it was considered that the main thrust of the work should
be concentrated on refining and evaluating various options for the
distribution of key metropolitan activities within the framework of
the intermediate Y-Plan.

The next stage of the work was to pose a series of key questions
relating to the future development of the City, bearing in mind the
matters canvassed in the 1980 Metropolitan Issues - Public Discussion
Paper and the general public response received. The key questions
included the following:

• what should be the aims and objectives for the future planning
of the National Capital?

• what planning assumptions can be made about the future?

• given the forecasts about the future, what is the anticipated growth
and change in activity needs?

• do the current metropolitan policies and development proposals
need to be reviewed and amended in the light of changing
circumstances?

• what do the past trends tell us about the City; can these trends
be expected to continue; and is there a need to modify immediate
trends with policy initiatives?

• what options are there for accommodating future growth and
change?

• how can these options be tested and evaluated?

• when a preferred option has been identified, how can its economic
and financial feasibility be tested in broad terms?

• what metropolitan policies are essential to the implementation of
the preferred plan?

• how can the preferred plan be implemented to ensure an optimum
balance of metropolitan systems at successive stages of population
growth?

• how can the next major settlement area be decided; should the
Commission continue to develop the new town of Tuggeranong,
phase it out and commence the new town of Gungahlin, or develop
in both new town areas?

Aims

Aims are generalised statements of society’s aspirations which the
creation ot an efficient physical structure and a good environment
will go some way towards satisfying. Aims tend to be idealistic, but
they point the way in which planning action should be broadly
directed. The setting of the following aims was based on both an
awareness ol the metropolitan issues facing Canberra and on the
results ot continuing discussions with interest groups and the general
public.

Image; to provide a distinctive setting for Canberra which clearly
identifies the City as Australia’s National Capital and Scat of Govern¬
ment, and to provide a clear framework for growth and change which
will be able to meet the functional needs of all the activities associated
with Canberra’s role as the National Capital.

Canberra enjoys a unique physical setting and the preferred plan
should seek to create a physical structure for the metropolitan areas
which would make lull use ot the variety of land forms and the scenic
setting of the National Capital site.

The Central Area occupies a dignified and quiet setting within
which the business of government can be carried out efficiently. It
will require protection from future land use and transport pressures
that could otherwise overwhelm it, yet, at the same time, there needs
to be a clear physical relationship between National Capital functions
and the network of communications which links them to other
activities.

Social and Economic Need: to provide sites in appropriate locations
for the social and economic activities of the present and forecast
population.

The plan should seek to provide a broad framework which will
maintain the quality of life currently enjoyed by the existing residents
of Canberra. The plan should also seek to facilitate the provision of
health, welfare and educational facilities.

Due to the scale of the expected future urban development,
substantial amounts of money will need to be invested by both public
and private enterprises to realise the plan’s proposals. The plan,
therefore, should seek to guide development in such a way as to make
efficient use of such investment.

In order to minimise costs, the fullest use should be made of the
existing or committed facilities and the transport and other network
systems in determining the location of new' developments and
activities, including the phasing of development.

Environment: to satisfy community needs by creating safe, healthy,
attractive and convenient surroundings for living, working, shopping,
education and recreation.

Various planning studies have highlighted the high quality of the
present physical environment of Canberra. The community has
expressed a strong desire that these environmental standards should
be maintained in the future. The plan, therefore, should seek to ensure
that traffic in residential areas is limited to levels which would not
adversely affect the safety of residents or significantly diminish their
amenity. It should also seek to ensure that air quality is maintained
at a level which does not adversely affect public health and that water
runoff is controlled so that w'ater quality can be maintained at a level
which will not adversely affect use for recreation purposes or be
detrimental to ecological systems.

Choice: to provide people wdth a wide choice for housing, and
convenient shopping, recreation and employment opportunities, and
to provide opportunities for private businesses.

The plan is intended to guide the economic, social and physical
development of Canberra in the interests of the residents of the City
as a whole. It should seek to provide a broad range of housing,
employment opportunities, comparative shopping and recreational
facilities.

Conservation: to conserve and protect important natural and man¬
made features of the ACT and to implement new development in such
a way as to cause the least disturbance to the existing urban, rural
and natural areas.

The people of Canberra presently enjoy a wealth of valuable
natural and man-made resources. The ACT contains tracts of
attractive and unspoiled countryside, important areas of grazing and
agricultural land and significant river systems and forest areas. In
addition, the settlement areas and surrounding villages contain
important areas of quality and character, and distinctive buildings
and settings worthy of conservation. The plan should seek to ensure
that the adverse effects on future growth on these resources are
minimised.

M ovement: to ensure that the plan’s land use and transport system
enables people to travel and goods to be moved conveniently and
efficiently about the metropolitan area.

One of the major issues facing the future Canberra is the need
to develop a transport system which will be capable of securing
adequate mobility for the entire population and to do this within the
financial budget likely to be available. The plan should seek to strike
a realistic balance between public and private transport in an inter¬
related system of traffic movement which will satisfy both personal
and commercial travel needs with a minimum of congestion and a
maximum of safety.

Flexibility: to be adaptable so that the plan can cope with variations
in circumstances.

Studies of financial resources, urban form, and technological,
social and industry trends, emphasise that a plan concerned with
developments over the next twenty years cannot be fixed and finite.
It must allow, as far as possible, for changes in, for instance, the
location and rates of expansion and growth both in the short and long¬
term, and should be able to cope with such circumstances. The plan
should seek to minimise the sensitivity to alternative phasing
possibilities and changing parameters in the economic base of the City.

Implementation: to ensure that the plan can be carried out effectively.

The success of the plan is heavily dependent on the extent to which
its policies and proposals are carried out. The responsibility for realising
these will be shared by both the private sector and public authorities.
The plan's policies and proposals should, therefore, be formulated
having regard to the ways and means of implementation, the
foreseeable organisational powers of the Commission, realistic levels
of public expenditure and likely political acceptance.

Planning Assumptions

These are qualitative or quantitative matters used in preparing
plans which may, or may not, be susceptible to control or influence
by the planning authority. For example, assumptions need to be made
about migration rates, which torm part ot the population growth
projections; future levels of car ownership and public transport
systems, which form an input to the transport modelling; the growth
in the government office workforce and the Commission’s ability to
intluence work location, which is an important input to land use and
transport relationships; and the likely levels of financial resources
which will be available to implement the plan.

Given the long-term nature of the plan’s proposals, the
assumptions and forecasts of activity growth need to be carefully
monitored throughout the plan period in order to ensure good plan
performance. Changing situations which result in significant variance
between predicted and actual circumstances will signal the early need
for a review of the plan.

In generating alternative plan options, the following assumptions
were made.

Queanbeyan

Although Queanbeyan is not part of the Australian Capital
1 erritory, its location adjacent to the ACT border requires its inter¬
actions with the urban and natural systems of Canberra to be
considered. It was theretore assumed that Queanbeyan was part of
the metropolitan study area tor the purposes of plan formulation and
testing.

112

hmplov men I

Employment assumptions were derived from the 1982 NIC IX
population projections. Over the following twenty years, employment
in tlie ACT and Queanbeyan was projected to rise to 185 600, an
increase of about 75 000 on the existing level. This would create a
jobs to population ratio of 45.5 per cent.

A marginal increase in the share of employment to industrial areas
was assumed to result from the development of the Canberra
Technology Park at Bruce and initiatives by the Canberra Development
Board.

Population

The 1982 NCDC population projections were assumed. Over the
following twenty years, the metropolitan population was projected
to grow to 408 000. The distribution of this population was assumed
as being:

• Inner Canberra, population stablised at about 62 000, with
progressive and selected redevelopment, regeneration and infill
balancing falling population levels caused by population ageing
and outward migration to developing areas

• Woden-Weston Creek, population stabilising at 60 000

• Belconnen, population settlement completed and stablised at
83 000

• Tuggeranong, population of 89 000 (excluding land west of the
Murrumbidgee River)

• Gungahlin, fully settled with a population of 84 000

• Queanbeyan, progressively settled to a population of 30 000.

Implicit in these settlement figures was the further assumption that
the eventual occupancy rates for standard residential dwellings would
be 3.0 and the eventual occupancy rates for medium-density dwellings
and Hats would be 1.8. A slight increase in the proportion of medium-
density dwellings and flats was also assumed. The same land settlement
pattern was common to the generation of all alternative plans.

Retail

It was assumed that the retail provision would be 585 300m : by
the 408 000 population level, a provision approaching 1.45m : per
capita. This would represent an increase of about 180 000m : on the
current provision in Canberra/Queanbeyan.

Transport

It was assumed that the existing line-haul and feeder system which
currently provides a high level of public transport service would be
retained and extended to the new towns of Tuggeranong and
Gungahlin.

The standard of road provision was assumed to remain at approxi¬
mately the current standards, except in those parts of the built
environment where additional roads or lanes could not be provided.

The existing morning peak-hour trip generation was assumed to
represent the future situation, since most trips are home-based, and
work or school related, and little change is forecast in these
characteristics in the short to medium-term. The existing average daily
mode split conditions were assumed to apply in the future situation.
However, some spatial and distributional changes were predicted. In
the peak hour, mode split was assumed to increase for travel to the
existing town centres, due to the shortage of land available for car
parking. It was assumed to remain about the same for travel to other
destinations. This was justified by the fact that the rate of growth
of public transport patronage has reduced in the last few years and
may now have levelled off. Experience, both in Australia and overseas.

shows a decline in the use of public transport while the annual subsidy
needed to operate the public transport system has been increasing
steadily.

Therefore, in the calibration of the transport model Transtep, it
was assumed that trip-making characteristics and, in particular, trip
generation and trip length frequency in the future City would remain
similar to those rates prevailing in the City today.

Financial Resources

Financial resources were assumed to be within the limits of past
budgetary trends and adequate to meet the basic provisions of
infrastructure and future needs at standards slightly lower than current
conditions.

Environment

Previous public consultation programmes and surveys of the
Canberra environment have indicated that the majority of the
population are satisfied with Canberra as a place in which to live,
work and partieipate in leisure activities. The ability to move around
the City easily, free from the congestion experienced by other cities,
the closeness to rural recreation areas and open countryside, the air
quality, the quality of the water in the rivers and streams around the
ACT and the quality of the landscape setting were some of the factors
mentioned as being positive attributes of Canberra. It was therefore
assumed that the plans would reflect Canberra’s present lifestyle in
respect of these aspects whenever possible, and that where departures
occurred, there were identifiable public benefits to be gained.

Water Resources

In view of the water resources issues and trends identified in
Chapter 4, it was assumed that ongoing development would be based
on:

• full provision of sewerage, with treatment to the existing high
standard at Lower Molonglo Water Quality Control Centre

• adoption of water pollution control ponds to contain urban runoff
pollutants in Tuggeranong and Gungahlin

• adoption of an urban form and structure in Gungahlin consistent
with minimising the generation of pollution from urban runoff

• water consumption and wastewater generation standards remaining
constant with the use ot charges and education programmes to
offset normal increases

• continued growth in water-based recreation demands.

Generation of Alternative Plans

Development of the Two Plan Options

Fundamental to the work was the generation and sifting of
alternative plans. This was a cyclical process, whereby a large number
of sketch outline options were progressively grouped into two main
families of plans so as to maximise the contrast between them.

These two groups of plans were classified according to different
degrees of concentration or dispersal of employment opportunities
and comparative retail floorspace in relation to the settlement pattern
which was constant for each option. From these two main families
of plans, the most representative option from each was selected as
the basis for more detailed plan development and evaluation.

NSW

O Employment
(Retail

<J Population

30 9% 77 000 >

7.3% 8 000
16.5% 67 300m 2

< 23 8% 59 400

to.

'o/o,

'Off/o

24 1% 59 950 0

9 8% 40 000m 2

13 2% 32 800 0

NSW

°/o Share of Canberra/Queanbeyan Totals

JO 5 km

Figure 48 Population, Major Employment
and Retail Nodes - June 1982

115

Alternative 1 - Concentrated Plan

In this Plan (Figure 49), growth in employment opportunities and
retail floorspace was directed into the Central Area and the Woden
and Belconnen Town Centres. At the 408 000 population level, this
Plan has an urban structure in which:

• the Central Area would be allowed to expand relatively
unconstrained to the point where transport accessibility problems
would force an overspill of these activities to the Woden and
Belconnen Town Centres. Employment in the Central Area would
grow by about 33 100 to 77 900; and employment in Civic, a major
node within the Central Area, would grow by 19 000 to 35 000,
with retail floorspace in Civic increasing by about 50 000m 2

• the Woden and Belconnen Town Centres would then be allowed
to expand, to provide a further concentration of employment
opportunities and comparison retail floorspace and would serve
a metropolitan function rather than a town function in relation
to these activities. Employment at the Woden and Belconnen Town
Centres would grow by 8 400 and 10 000 respectively. Retail
floorspace would grow by 22 000m 2 in each centre

NSW

0 1.0% 1 800
3.1% 18 000m 2

< 20.6% 84 000

20.3% 83 000 >

14.70/0 60 000 >

21.8% 89 000 >

NSW

35 000

o Employment
(A Retail
< Population

% Share of Canberra/Queanbeyan Totals

5 km

t_i_i_ i i i

116

Figure 49 Population, Major Employment and
Retail Nodes - Concentrated Plan

• the new towns of Tuggeranong and Gungahlin would not be
provided with town centres and, consequently, would be without
a significant level of town centre employment opportunities and
comparative retail shopping. The residents of these towns would
therefore have longer distances to travel to employment
opportunities and comparison shopping than residents of other
tow ns. Expanded group centres w ould be provided to meet in part
the needs for comparative shopping in these towns.

Alternative 2 - Dispersed Plan

This Plan (Figure 50) assumed that the Commission could
significantly influence the dispersal of employment and retail
opportunities along the lines envisaged by the original Y-Plan and
successfully carried out in the new towns of Woden and Belconnen.
At the 408 000 population level, this Plan has an urban structure in
which:

• employment in the Central Area would grow by about 19 500 to
64 300. As a component of this total, Civic’s employment would
grow by 9 000 to 25 000 and retail floorspace in the centre increases
by 15 000m 2

r 120 000
- 80 000
* 40 000

Employment
( ) Retail
< Population

% Share of Canberra/Queanbeyan Totals

J0 5 km

NSW

4.8%

8 . 0 %

9 000
47 000m 2

<20.6% 84 000

20.3% 83 0001>

y/o

14.7% 60 000>

2.3%
4 300

<15.2% 62 000

21.8% 89 0001>

(^) 2.2% 4 000

0 0.9% 1 700
2.4% 14 000m 2

9.2% 17 000
8.5% 50 000m 2

NSW

Figure 50 Population, Major Employment
and Retail Nodes - Dispersed Plan

117

• the Central Area would be prevented from becoming congested
by the decentralisation of employment and retail floorspace to new
town centres. Employment at Woden Town Centre would be
increased by 2 200 and at the Belconnen Town Centre by 5 800.
Retail floorspace at each centre would increase by 2 500m 2

• Tuggeranong and Gungahlin new towns would be provided with
town centres having significant levels of employment opportunities
and retail floorspace related to their town needs. This would also
assist in achieving the metropolitan objective of decentralisation.
Tuggeranong Town Centre would include 17 000 employees and
50 000m 2 of retail floorspace, and the Gungahlin Town Centre
would include 9 000 employees and 47 OOOnr of retail floorspace.
In Tuggeranong, an expanded group centre would be provided
at Erindale, as an interim solution until the town centre could be
provided. However, in Gungahlin, the town centre would be staged
to meet the needs of the population and an expanded group centre
would not be required

• the Central Area would remain dominant in relation to employment
opportunities. The town centres of Woden, Belconnen,
Tuggeranong and Gungahlin would primarily serve their respective
town catchments, as originally intended.

In both plan options, employment in the industrial areas of
Fyshwick, Hume and Mitchell is about 17 000. Fyshwick retailing was
assumed not to expand beyond its current level of 50 OOOnr' .

As the Commission has no direct control over the population,
employment or retail floorspace levels in Queanbeyan, the growth of
Queanbeyan in both options was related to overall growth in the
region. Employment in Queanbeyan was assumed to increase by 2 000,
while it was assumed that retail floorspace would remain at its current
level.

Employment Distribution

Employment was distributed to the various employment centres
in both plan options in different degrees of concentration. These
employment centres were:

• the Central Area (Figure 51), comprising the defence headquarters,
Russell and the Campbell Park complex; the ANU/CSIRO/Royal
Canberra Hospital education, research and health complex; Civic

TURNER

BRADDON

CAMPBELL

RUSSELL

PARKES

CAPITAL

HILL

BARTON

KINGSTON

YARRALUMLA

Campbell Park
Offices

AINSLIE

CITY ^

ACTON \ REID

L3* e

PIALLIGO

I-1_L.

2 km

Figure 51 The Central Area

118

Centre; the Parkes/Barton office area; and ADFA/Duntroon,
Anzac Parade and Braddon

• Town Centres

• Secondary Zones, comprising the industrial estates at Bruce,
Fyshwick, Hume and Mitchell, the Queanbeyan City Centre and
large group centres

• Local Zones, consisting of employment within the settlement areas
at educational establishments, local shopping centres and con¬
struction sites, etc.

The degree of concentration/dispersal to these areas is shown in
Table 50.

Table 50 Distribution of Employment Opportunities

Existing

(1982)

Concentrated

Plan

Dispersed

Plan

Central Area

ANU/CSI RO/Hospital

7 300

8 100

Civic Centre

16 000

35 000

25 000

Parkes/Barton

10 650

18 600

15 000

Russell/Campbell Park

6 570

10 900

Other

4 300

5 300

Total

44 820

77 900

64 300

Town Centres

Belconnen Town Centre

8 000

18 000

13 800

Gungahlin Town Centre

9 000

Tuggeranong Town Centre

17 000

Woden Town Centre

9 300

17 700

11 500

Total

17 300

35 700

51 300

Secondary Zones

Bruce

1 700

3 000

Erindale Centre

200

2 000

1 700

Fyshwick

8 300

10 000

9 000

Gungahlinf/y

1 800

8 000

Hume

230

3 500

4 000

Mitchell

740

3 700

4 300

Queanbeyan

6 000

8 000

Total

17 000

32 000

30 000

Local Zones

Belconnen

5 575

5 950

Gungahlin

4 600

Inner Canberra

14 505

14 855

Tuggeranong

2 450

5 500

Woden-Weston Creek

6 985

7 030

Other ACT

1 385

2 035

Total

30 900

39 970

Total

lift ()2ft

185 57ft

(I) Expanded Group Centre.

The significant difference between the two Plans is the degree of
concentration of employment opportunities in the Central Area and
Town Centre nodes. This was largely brought about by the absence
of town centres in the Gungahlin and Tuggeranong new towns.

In the Concentrated Plan, the Central Area would be built up to
contain 77 900 job opportunities, with the major employment area
being Civic with a 45 per cent share of all the jobs in the Central Area.
In the Dispersed Plan, the Central Area would be slightly smaller with
64 300 job opportunities; again, Civic was given the dominant
concentration of 39 per cent of all the jobs in the Central Area. In

119

addition, the number of jobs allocated to Parkes/Barton was also
slightly reduced.

In both plan options, the distribution of job opportunities to local
zones was the same.

Retail Distribution

Retail floorspace was distributed to three functional areas in both
plan options in different degrees of concentration. These functional
areas were:

• Town Centres

• Secondary Zones, comprising Fyshwick, Queanbeyan and large
group centres

• Local Zones within the settlement pattern at the group,
intermediate and neighbourhood shopping level.

The relative degree of concentration/dispersal to these zones for
the alternative Plans is shown in Table 51.

Table 51 Distribution of Retail Floorspace (m )

Existing

Coneentrated

Dispersed

(1982)

Plan

Town Centres

Belconnen Town Centre

67 300

89 300

69 800

Civic Centre

60 770

108 700

75 700

Gungahlin Town Centre

47 000

Tuggeranong Town Centre

50 000

Woden Town Centre

67 900

89 900

70 400

Total

195 970

287 900

312 900

Secondary Zones

Erindale Centre

21 000

14 000

Fyshwick

50 200

Gungahlinf/y

18 000

Queanbeyan

40 000

Total

90 200

129 200

104 200

Local Zones

Belconnen

28 180

30 260

Gungahlin

4 240 (2)

29 240 (2)

Inner Canberra

48 500

48 580

Tuggeranong

7 600

27 950

Woden-Weston Creek

31 260

32 160

Total

119 860

168 190

Total

406 030

585 290

(1) Expanded Group Centre.

(2) Includes retail floorspace in Mitchell Industrial Area.

In both Plans, the total level of retail floorspace was held constant
as was the level at local centres.

Retail floorspace in Queanbeyan and Fyshwick was assumed to
remain at existing levels. Although they may expand beyond these
levels, the following assumptions were made. Queanbeyan floorspace
in 1980 had substantially lower trading levels than that of Canberra
(below $1 000 per square metre compared to $1 420 for Canberra)
and its provision of floorspace at 2nr per capita was higher than that
of Canberra. It was, therefore, assumed that the level of floorspace
would stay at its existing level with the turnover and provision per
capita changing to become closer to the Canberra level. With regard

120

to Fyshwick, it was assumed that Commission policy would be aimed
at discouraging further expansion of retail facilities.

0 2 4 6 8 10km

Figure 52 Road Network for Transport
Testing

The distribution to local zones was held constant for both plan
options. It should be noted that the allocation to Inner Canberra local
zones assumed no increase in retail floorspace and that fairly negligible
increases were assumed for both Belconnen and Woden-Weston Creek
local zones, because of the stabilising population levels.

Transport

The road network (Figure 52) was compiled and calibrated to cover
the testing of both Plans. The process was iterative and covered the
following steps:

• a preliminary network was established by extending the existing
system to cover the proposed Plans

• this w'as then related to population settlement and the differing
distribution of employment opportunities and retail floorspace

• the preliminary network was used to ascertain the total traffic
demand using assumptions based on the current mode split
between public and private transport

• the total demand was then distributed throughout the preliminary
network which was then refined, in order to balance land use and
transport relationships

• the revised network was then tested using the transport model
Transtep, in order to evaluate the total system operation

• the network w'as again refined to optimise the land use and
transport relationship using an iterative process

• trip tables were generated and assigned to the refined network for
final testing and evaluation of the plan options.

The existing comprehensive system of bus services operating on
the road network system was expanded to cover both plan options,
on the assumption that local services would continue to be provided
to meet future demand. Provision for express services was related to
differing mode split assumptions and car parking availability at major
employment and retail centres.

The provision of car parking facilities in each plan option was
related to:

• mode split assumptions

• the estimated requirement at major employment and retail nodes

• the availability of land for parking facilities, which, in turn,
provided an indication of the level of parking required in
structures.

121

Framework for Evaluation of Alternative
Plans

Assessments at the metropolitan level are necessarily broad in their
approach, coarse-grained in regard to quantitative measurement, and
judgemental in those cases where qualitative assessments have to be
made, either because of the lack of a suitable methodology, insufficient
data, or a combination of both. Plan assessments were aimed at
evaluating overall performance and at identifying areas where
additional work and longer-term studies would be required to clarify
the issues identified. Assessments of the Plans included the following
types of evaluation.

A Transport Evaluation

Research has shown that the total infrastructure and operating
costs of the transport system have about four times the impact of other
urban systems on the urban structure of a city. Methodology for
transport testing and analysis is well developed in relation to other
urban evaluation methods, and measures of the transport system
provide useful quantitative and qualitative measures of social
indicators, such as accessibility and self-containment; environmental
indicators, such as air quality, noise levels and traffic intrusion into
residential areas; and economic indicators, such as total travel costs,
infrastructure needs, reverse loading ratios, congestion and energy
costs. For these reasons, the testing of the land use/transport systems
received considerable attention in the evaluation phase of the study.

Both Plans were tested using a strategic transport planning model,
Transrep. This programme provides comparative data for the synthesis
and analysis of alternative land use/transport plans according to
particular planning policies. The model is structured along the lines
of the traditional four-step transport models, (trip generation, trip
distribution, mode split and trip assignment). However, it is responsive
to changes in accessibility and other factors, which affect trip generation
and trip distribution. The model outputs included:

• total trips generated

• travel costs (time, distance or generalised cost)

• reverse loading ratio

• several accessibility measures

• self-containment measures

• network loadings, etc.

This information was used to identify problems and infrastructure
requirements in the transport system, to optimise the landuse strategy
and provide evaluation criteria for comparing the performance of the
land use/transport system.

A Centres Evaluation

This was carried out to assess the impact of the varying degrees
ot concentration or dispersal of employment and comparison retail
tloorspace to the existing and proposed major centres. Evaluation
included the impact of the transport system necessary to service the
centre, economic impact of trading within and between the centres
and the environmental impact of the various proposals.

An Aims Achievement Evaluation

This evaluation was carried out to determine how the Plans
performed when measured against the stated aims for the future
Canberra. This evaluation drew, in part, from the transport and
centres assessments and from quantitative assessments of issues related
to the social and environmental impacts of the Plans. The evaluation
was aimed at formulating a broad overview of the impacts of the
alternative Plans in order to ensure that adequate consideration had
been given to all of the systems of the City.

122

Transport Evaluation

Transport has a major influence on the structure of cities and the
lifestyle of their inhabitants. People spend a considerable part of each
day travelling and a significant proportion of their disposable income
on transport. The transport evaluation compared the relative perform¬
ance of the two plan options in terms of new transport infrastructure
required and likely effects on travellers.

In order to compare the impacts of the two plan options, it was
necessary to forecast the pattern of travel in the future City and derive
an efficient and balanced total transport system for each option. It
is important to develop an optimum economic package, as transport
is a major component of development costs. Moreover, the transport
system must be flexible to accommodate variations in daily travel
patterns and the timing or staging of development and also to cope
with unforeseen circumstances.

The evaluation of the road system considered the structure of the
existing road system, previous investment and under-utilised road
capacity. It assumed a tolerance to higher levels of traffic congestion
than are currently experienced and identified the new roads and main
works associated with future development.

The evaluation of the future public transport system analysed the
opportunities and effects of increasing the use of public transport
associated with both plan options.

Car parking needs at the town centres and in the Central Area
were identified as part of the centres evaluation. The analysis
considered the effects of increasing mode split, and identified the
amount of structured and surface parking which would be required.

Transport evaluation, therefore, contains two sections dealing
with:

• the road network

• the public transport system.

Road Network

Determining the Future Road Network

Based on the Commission’s current transport planning philosophy,
a basic metropolitan-scale road network was developed for testing
purposes which took account of the relative proportion of employment
and retail opportunities in each district under both plan options.

This network linked the existing and proposed population settle¬
ment areas and the key activity centres. Alignments of new roads w ere
related as closely as possible to the principal travel design lines and
to the topography. The basic road network is shown in Figure 52.

Assumptions were made regarding the standard of provision,
average speeds and traffic flows. The basic network was then used
in conjunction with the forecasting models to predict future traffic
loadings.

The projected traffic loadings were used to assess traffic conditions
on each section of the network. The assignment process assumed there
would be no capacity limitations and the traffic volumes obtained w ere
related to the estimated capacity of major metropolitan roads. This
established the basic cross-section (number of lanes, type of road)
which was used in the assessment of future road needs. The standards
used in the capacity analysis were developed from the NAASRA
guidelines and are provided in Table 52.

Table 52 Design Capacities for Metropolitan Roads

Capacity (Vehicles/Hour/Lane)

Facility Mid-Block

‘C7 1 )

‘DY 1 )

Expressway

1400

1700

Major Arterial

1200

1460

Sub-Arterial

1000

1200

Town Centre Distributor

1000

1200

Residential Distributor

Residential Collector

2-lane 2-way Limited Access

\ 400(3)

17006?;

Signalised

Intersection

Priority Intersection

Main Road

50% Green

Main Road

50-80% Split

Time

‘C’

‘D’

‘C’

‘D’

630

710

600-960

730-1170

520

630

500-800

600-960

520

630

500-800

600-960

500-600f2;

300-3606?;

(1) Level of Service ‘C’ and ‘D’ as defined in NAASRA Guide to Traffic Engineering Practice.

(2) One-way capacity.

(3) Total two-way capacity.

The likelihood of future reduction in funds for transport facilities
was considered throughout the analysis. This is reflected in higher
service volumes for a particular level of service category in the
preceding table and the lower standard of facilities assumed in the
basic network(e.g. arterial roads instead of parkways).

The analysis was based on peak-hour travel demands and assumed
existing rates of peak-hour trip generation. A range of mode split
assumptions, based on the current level of 15-18 per cent and a
situation where the mode split to major town centres was 30 per cent,
were tested. An increase in mode split would have a beneficial impact
by reducing the number of car trips and the level of congestion in
the peak hour. The mode split would need to more than double,
however, before there would be any noticeable change to the
recommended scale of metropolitan roads.

As traltic congestion is not expected to occur over most of the
network between the peaks, travel demands at this time of the da\
were not considered in the evaluation of road needs. Exceptions to
this rule occur on the roads in and around Civic and other major
commercial or retail centres. Although there will be serious congestion,
traffic volumes will be generally less than during the peaks, as
congestion will be the result of major interaction between pedestrians
and vehicles, or between parking and circulating traffic. Congestion
is generally considered to be acceptable under these conditions, and
helps to discourage through-traffic.

The evaluation was not intended to provide a comprehensive social
cost-benefit analysis, and should only be viewed as a general
comparison of two disparate development strategies, from which
appropriate policy and planning guidelines can be drawn.

The Scale of Future Metropolitan Roads

Concentrated Plan

The scale of metropolitan roads required under the development
conditions implied by the Concentrated Plan is shown in Figure 53.
The major features are as follows.

(a) Third Lake Crossing

A third bridge across Lake Burley Griffin, in conjunction with
improved access to Civic Centre, would be necessary.

The analysis highlighted a need for the equivalent capacity of ten
parkway lanes in each direction crossing the lake. The large concentra¬
tion of employment in the Central Area (approximately 79 000
employees) generates the main travel desires. The existing

124

Commonwealth and Kings Avenue Bridges and the Capital
Circle/State Cirele rotary interchange are major constraints and limit
the extent to which access roads can be upgraded. Problems at these
existing bottlenecks would be exacerbated by the proposed increased
development in Parkes/Barton.

There is also a limit to the potential capacity improvements to
Tuggeranong Parkway. The analysis suggests that the maximum is
three lanes in each direction at the Glenloch Interchange due to the
merging of Belconnen traffic. While the Eastern Parkway theoretically
has an unlimited capacity, it is anticipated that it will only be attractive
to a limited number of users.

The resulting distribution of road capacity across the lake, under
this option, is described in Table 53.

Sensitivity tests indicated that even if a very high mode split to
the Central Area were possible, it w'ould not eliminate the need for
the additional lake crossing. The reduction in traffic volumes would
be offset by a need for an exclusive right-of-way for public transport
across either Commonwealth Avenue or Kings Avenue Bridge.

NSW

NEW ROADS
- 1 Lane each way

■—— 2 Lanes each way

mmma 3 Lanes each way

CAPACITY IMPROVEMENTS
TO EXISTING ROADS

. 2 Lanes each way

■■■■ 3 Lanes each way
mi 5 Lanes each way

0 5 km

I 1 I I I_J

Figure 53 Concentrated Plan - Possible
Metropolitan Road System

G/AJMtA/o<

*OVEU

h/ndmarsh

J-

avenue

NSW

Table 53 Number of Lake Crossings Required : Coneentrated Plan

Minimum Number of Lanes
in Each Direction

Tuggeranong Parkway 3

Commonwealth Avenue 3

Kings Avenue 2

Eastern Parkway 2

New Lake Crossing 2

Total 12

The third lake crossing of Lake Burley Griffin could be expected
to relieve existing pressures in the vicinity of State and Capital Circles.

Construction of this additional lake crossing would also involve
upgrading of Yarra Glen arterial and the resumption of a right-of-way
through Yarralumla to the lake. On the northern side of the lake,
special road arrangements would be necessary, including a direct
connection with the Molonglo Arterial and a new facility providing
access into Civic. A new access road would be essential as
improvements to existing facilities would result in the equivalent of
a ten lane section of road (Parkes Way between the new lake crossing
and Commonwealth Avenue). Even so, there is considerable doubt
that the internal distributor road system in Civic could handle the
traffic demands. In addition, recent developments have eliminated
most opportunities for such a new access road at surface level.

(b) Tuggeranong Roads

The further development of Tuggeranong, to a population level
of about 89 000, would require the construction of one new major
road corridor to the north, and major improvements to existing roads
servicing the Tuggeranong Valley. If no major employment centres
are provided locally, the estimated peak-hour demands out of
Tuggeranong would require the equivalent of ten parkway lanes. The
majority of travel would be to Woden and the Central Area. Although
the Tuggeranong Parkway could be easily upgraded, the east-west
links to main distributors are highly constrained (Hindmarsh Drive
and the Molonglo Arterial). The construction of the Eastern Parkway
to at least a dual three-lane facility is considered essential to this
option. Major roads and their desirable capacity to service
Tuggeranong needs are shown in Table 54. As can be seen from the
table all existing roads including Athllon Drive and the Monaro
Highway will require duplication.

Table 54 Roads Required to Service Tuggeranong at a Population of
89 000 : Concentrated Plan

Minimum Number of Lanes
in Each Direction

Tuggeranong Parkway 3

Athllon Drive 2

Erindale Drive 2

Eastern Parkway 3

Monaro Highway 2

Total 12

The future development of Gungahlin to a population exceeding
80 000 would require the construction of at least two major roads’,
providing connections to Civic and the main inter-town road network.

The alignment ot the new roads was assumed in the evaluation
to generally follow the routes of John Dedman Parkway and Monash
Drive. It was estimated that capacity equivalent to nine parkway lanes

126

would be required to service the peak-hour demands out of Cungahhn.
The proposed distribution of road space is shown in Table 55.

Table 55 Roads Required to Service Gungahlin at a Population of
84 000 : Concentrated Plan

Minimum Number of Lanes
in Each Direction

Northbourne Avenue 1

Monash Drive 3

John Dedman Parkway 3

William Slim Drive 2

Total 9

The analysis indicated that Northbourne Avenue would be almost
at capacity without any contribution from Gungahlin, due to
population increases in Kaleen and North Lyneham and greater
demands generated by existing suburbs, because of increased employ¬
ment opportunities in the Central Area. It was assumed, therefore,
that the existing geometry of Northbourne Avenue would be retained
and that grade separation at interchanges was not feasible. However,
some improvement in capacity was assumed to be possible by the
introduction of improved traffic management techniques.

It was also assumed that access to Monash Drive would be strictly
controlled to protect the residential amenity of inner North Canberra
suburbs. It would have direct connections with Ainslie Avenue (to
Civic) and the Eastern Parkway.

John Dedman Parkway would be a northern extension of the
proposed new lake crossing. Although it would provide some degree
of access to Civic, its primary function would be that of a Civic by-pass
road. The Parkway would require a minimum three lanes in each
direction over the whole of its length, (from Gungahlin to Parkes
Way), and access would need to be controlled. However, it was assumed
that there would be grade separated interchanges with all major east-
west loads.

To provide for most of the Gungahlin to Belconnen Town Centre
travel demand, William Slim Drive would require duplication and
realignment east of Lake Ginninderra to meet Aikman Drive. The
remainder would use John Dedman Parkway and either Ginninderra
Drive or Belconnen Way.

(d) Other Improvements

Other major improvements would be required for existing roads
under the development implied by the Concentrated Plan. The main
ones are:

• further development of the Glenloch Interchange and realignment
of Caswell Drive

• duplication of Bindubi Street, Caswell Drive and William Hovell
Drive

• an extra lane and intersection modifications on Belconnen
Way/Barry Drive from Coulter Drive to Northbourne Avenue

• improved capacity on Parkes Way

• duplication of the Cotter Road

• grade separation of Hindmarsh Drive in the vicinit\ of W oden
Town Centre

• additional capacity on the Molonglo Arterial (minimum of three
lanes in each direction).

Dispersed Plan

The scale of roads which would be required under the Dispersed
Plan is shown in Figure 54. The main features to note are as follows.

(a) Third Lake Crossing

The Dispersed Plan is not dependent on the need tor a third bridge
across Lake Burley Griffin although it would provide substantial

benefits.

The reduced Central Area employment, combined with wider
dispersal of employment opportunities (five town centres instead of
three), would result in a significant reduction in trat tic crossing from
either side of the lake. The analysis indicated that less than nine
equivalent parkway lanes would be required. The resulting distribution
of road capacity is shown in Table 56.

In the event of a substantial increase in mode split to the Central
Area, bus priority measures would be required to improve public
transport efficiency. While this would have a detrimental effect on
motorists, the road system as proposed could still serxice the
anticipated demands.

<s>

NSW

NEW ROADS
- 1 Lane each way

—— 2 Lanes each way

3 Lanes each way

CAPACITY IMPROVEMENTS
TO EXISTING ROADS

' '■■■ " 2 Lanes each way
■■■■ 3 Lanes each way

0 5 km

i_i_i_i-1-1

128

Figure 54 Dispersed Plan - Possible
Metropolitan Road System

Table 56 Number of Lake Crossings Required : Dispersed Plan

Minimum Number of Lanes
in Each Direction

Tuggeranong Parkway 3

Commonwealth Avenue 3

Kings Avenue 2

Eastern Parkway 2

New Lake Crossing

Total 10

Due to the reduction in total road capacity across the lake, the
effects of congestion on these roads would be considerably higher than
under the Concentrated Plan. This would lower the average speed and
result in longer trip travel times.

(b) Tuggeranong Roads

The road capacity required to service Tuggeranong would be
considerably reduced, due to the relatively large concentration of
employment assumed in the Tuggeranong Town Centre.

Whereas the equivalent of ten parkway lanes was considered a
requirement under the Concentrated Plan, less than eight parkway
lanes would be required for the Dispersed Plan. The distribution of
road capacity is shown in Table 57.

Table 57 Roads Required to Service Tuggeranong at a Population of
89 000 : Dispersed Plan

Tuggeranong Parkway
Athllon Drive
Erindale Drive
Eastern Parkway
Monaro Highway

Total

Minimum Number of Lanes
in Each Direction

It was assumed that the Eastern Parkway would be constructed
in preference to larger-scale improvements to the existing primary
access roads. This would provide greater flexibility in the event of
Tuggeranong’s population exceeding the currently proposed level, or
in the event of some natural disaster or accident which might affect
one or more of the roads. It would also be important if the desired
level of local town centre employment could not be provided, or its
timing, relative to population settlement, were significantly delayed.

A detailed design study is being undertaken on the alignment of
the Eastern Parkway.

Only minor improvements would be needed to the Tuggeranong
Parkway. However, both Erindale Drive and Athllon Drive would
require duplication. Duplication of Monaro Highway would be
desirable but not essential, as minor intersection treatments might
suffice.

For the future development of Gungahlin, the two new facilities
proposed in the Concentrated Plan were also considered to be essential
to the Dispersed Plan. However, it may be possible to reduce the John
Dedman Parkway to a dual two-lane facility.

All other roads would be similar in scale to those identified tor
the Concentrated Plan, as indicated in Table 58.

Table 58 Roads Required to Service Gungahlin at a Population ot
84 000 : Dispersed Plan

Minimum Number of Lanes
in Each Direction

Northbourne Avenue (from

Antill Street to Federal Highway) 1

Monash Drive ^

John Dedman Parkway 2

William Slim Drive 2

Total **

(d) Other Improvements

Most of the road improvements considered essential lor the
Concentrated Plan were considered to be desirable for the Dispersed
Plan. However, in many cases, they could be omitted if an increased
level of traffic congestion were accepted. Those works that were not
considered to be essential included:

• Belconnen Way/Barry Drive roadworks

• Parkes Way improvements

• Cotter Road improvements

• grade separation of Hindmarsh Drive.

It was evident from the analysis that both the John Dedman
Parkway and Monash Drive would be essential for any development
proposals for Gungahlin.

It was also evident that there is an ‘employment threshold' for
Civic above which the local road system in its current form would
constitute a limiting factor. At the current level ot mode split, this
threshold is estimated to be about 25 000 employees. (This assumes
that sufficient car parking would be available). Any increase beyond
this, without a corresponding increase in public transport, would
require additional roads into Civic. The problems might be overcome
if adequate by-pass roads were possible around Civic. Currently, about
50 per cent of the traffic using the Civic road system is through-traffic,
and the level of through-traffic can be expected to grow as Central
Area employment grows. This study did not specifically assess the
opportunity for Civic by-pass facilities. It was considered that the
assumed level of Central Area employment did not warrant the added
expense and impact of these roads. However, they are currently being
investigated in a more detailed study of the Civic distributor road
system.

Other road improvements considered essential, regardless of which
planning option is pursued, include:

• further development of the Glenloch Interchange, because: major
roads currently experience congestion during peak hours, current
population infill at Belconnen and Weston Creek will exacerbate
existing problems; and future employment at the Belconnen Town
Centre will attract more traffic from the south

• upgrading of major roads to the Belconnen Town Centre including
Bindubi Street, Caswell Drive and William Hovell Drive

• duplication of Athllon Drive, because the road is currently
operating near its capacity and future development of Woden
Town Centre will increase demands

• duplication and re-alignment of William Slim Drive, in conjunction
with improvements to the capacity of Aikman Drive

• duplication of Erindale Drive and the Long Gully Road connection
to the Eastern Parkway

130

• improvements to the capacity of I uggeranong Parkway north of
the Cotter Road, and improvements to the capacity of Molonglo
Arterial.

Comparison of the Alternative Plans

The evaluation also considered the effects that the options would
have on travellers and network operations. It looked at five broad
areas, namely:

• network efficiency - the ability of the network to respond to the
projected travel demands

• the relative efficiency of the combined land use/transport plan

• environmental impacts

• the impacts of a significant increase in mode split

• total infrastructure costs.

Network Efficiency

Table 59 summarises various network performance indicators
which w'ere derived from the transport models.

Table 59 Comparison of Network Performance Indicators

Concentrated

Dispersed

Performance Indicator

Plan

Reverse Loading Ratio

Number of Highly

0.313

0.371

Congested Road Links

Total No. of Trips

84 187

85 152

Total Distance Travelled

1.004 x 10 6 km

9.823 x 10 5 km

Total Peak Hour User Costs

$3.1 x 10 5

$2.8 x 10‘

Average Peak Hour User Cost

$3.68

$3.29

The ‘reverse loading ratio’ describes the extent to which the land
use plan has been successful in making the best use of available road
capacity by balancing the direction of travel, i.e. it looks at the amount
of traffic travelling in each direction. Table 59 indicates that the
Dispersed Plan would improve network efficiency by at least 18 per
cent over the Concentrated Plan. This is reflected in the reduced
number of ‘highly congested’ traffic links and the reduced scale of
the total network as shown in the earlier tables. Network loadings
in the Concentrated Plan are considerably higher than those currently
existing.

The evaluation did not consider the internal distribution system
at the major activity centres. It is evident that increasing the amount
and density of employment at particular locations would have a
marked effect on the adjacent street system and primary access roads.

It may be seen from Table 59 that the average distance travelled
would be very similar under both Plans. The important considerations
are the relative distances travelled by particular sections of the
community (this is discussed in greater detail in the following section)
and the distribution of travel demands.

Although the figures for average distance travelled are similar,
there is a major difference between the Plans in relation to travel costs.
In this analysis, average travel costs reflect the effects of both distance
and time, and the values in Table 59 represent a generalised travel
cost (both distance and time of each trip are weighted by an
appropriate value and then combined). While the weighting may be
the subject of some debate, it is the relative difference that is of
importance. This analysis demonstrates that the Dispersed Plan would
result in at least a 12 per cent saving when the effects are considered
over, for example, a whole year. Most of this is attributable to more

131

balanced network loadings and higher average speeds due to the
reduced levels of congestion under the Dispersed Plan.

It is expected that even greater savings would be achieved during
the off-peak hours, although this was not the subject ot detailed
analysis. The wider dispersal of employment, retail, commercial and
community activities under the Dispersed Plan means that more trips
would be of a ‘local’ nature.

Relative Efficiency of the Combined Land Use/ I ransport I Ian

Figure 55 shows the proportion of self-containment forecast tor
each town under the two Plans and their current lex els ot sell-
containment. Self-containment is defined as the number of trips which
originate and terminate in the same town or district.

As can be seen, there is a significant difference in the distribution
of travel demands under the Dispersed Plan. 1 he degree ot sell-
containment in the new towns is similar to that ot the longer established
areas. Under the Concentrated Plan, they would be seriously
disadvantaged. The effects of the difference in distribution are also
evident in the measures of relative travel costs tor each ot the towns
(travel costs according to the generalised cost concept as discussed
previously) as shown in Table 60.

North South Belconnen Woden- Tuggeranong Gungahlin
Canberra Canberra Weston Incl Hume Incl.

Incl Civic Incl. Parkes / Creek Mitchell

Russell / Barton

Campbell Pk

| | Existing Situation Concentrated Plan |~~] Dispersed Plan

Figure 55 Proportion of Self-Contained Peak
Hour Trips

Table 60 Relative Travel Cost

Existing

Situation

Concentrated

Dispersed

% Diff. between
Dispersed & Con¬

(1982)

Plan

centrated Plans

North

Canberra

2.60

2.71

2.40

South

Canberra

2.28

2.67

2.49

Belconnen

3.61

4.14

3.65

Woden-
Weston Creek

3.02

3.39

3.15

Tuggeranong

4.01

5.21

4.15

Gungahlin

4.87

3.87

Table 60 shows that, while the magnitude of the travel costs may
be questioned, it is the relative differences that are important.

As may be expected, both plan options would result in increased
travel costs relative to the existing situation, due to the increasing size
of the City. The Dispersed Plan would, however, tend to keep the
increase to a minimum. Also, it would reduce the relative travel costs
for all travellers and reduce the social inequities associated with longer
journeys for the new towns of Tuggeranong and Gungahlin.

Environmental Impacts

A detailed environmental evaluation of the two Plans has not been
conducted. However, a broad assessment confirms that the Dispersed
Plan would appear to have less effect on the environment than the
Concentrated Plan.

Air and heavy metal pollutants from motor vehicles are generally
associated with large concentrations of vehicles. The Commission has
identified several locations in Canberra where these pollutants have
exceeded, or are currently approaching, the critical levels established
by the World Health Organization. These include specific locations
in Civic, Woden Town Centre and near other major activity centres.
As Canberra continues to develop, conditions will progressively
worsen. Future legislation may reduce the effects of these pollutants
considerably. However, the lower concentrations of traffic in the
major centres and the generally lower traffic volumes associated with

132

the Dispersed Plan would result in lower levels of pollutants than
would exist under the Concentrated Plan.

Similarly, the lower traffic volumes associated with the Dispersed
Plan would result in a lower incidence of noise pollution and reduced
potential for traffic intrusion into residential streets. Examination of
the network loadings for roads which are considered to be
environmentally sensitive (i.e. have residential frontage) confirms that
these adverse effects would be reduced considerably. Relative traffic
volumes for some typical roads are shown in Table 61.

Table 61 Relative Traffic Volumes for Typical Roads

Ratio of Network Loadings
Dispersed : Concentrated

Location

Beasley Street, Farrer
Kent Street, Hughes
Stonehaven Crescent, Deakin
Melbourne Avenue, Forrest
Macarthur Avenue, O’Connor
Limestone Avenue, Ainslie

0.45

0.96

0.74

0.63

0.84

0.97

The Concentrated Plan would have a more severe impact on the
physical environment. First, an additional bridge across Lake Burley
Griffin is considered essential to the Plan. It would necessitate the
resumption of a right-of-way through Yarralumla to the lake and an
extensive bridge crossing. Second, the scale of most of the new roads
required to service Gungahlin and Tuggeranong would be substantially
greater.

The Impacts of Increased Mode Split

In the absence of a political or economic event which may influence
the availability of fuel for private vehicles, there is generally little
possibility of an ‘across the board’ increase in mode split. It is likely,
however, that mode split may increase for travel to particular
destinations where parking is in short supply or is very expensive. The
analysis indicates that this could be the case in Civic Centre and Woden
Town Centre, and possibly in Belconnen Town Centre as well.

The effect of an (unlikely) increase of 100 per cent in mode split
to these centres, from the existing 15-18 per cent to 30 per cent, was
tested. In Civic, where the effects would be greatest, there would be
a reduction of about 1 950 and 1 380 peak-hour terminating trips for
the Concentrated and Dispersed Plans respectively. Although this
should theoretically reduce the demand by the equivalent of up to
three traffic lanes, it would have a negligible effect when distributed
across all of the major access routes. Further, the sensitivity tests
confirmed that the reduction in terminating vehicle trips would be
almost totally displaced by through-traffic at the critical bridge links.

The combined effect of higher mode split to all town centres would
be a reduction of 3 630 and 2 690 peak hour car trips for the
Concentrated and Dispersed Plans respectively. This represents less
than 5 per cent of the total peak-hour travel demand, and would be
insignificant when distributed across the whole network. However,
it does involve a greater than 100 per cent increase in commuter travel
to, and between, the town centres by bus.

The Dispersed Plan would be able to cope with the increased
demand by upgrading the transport system i.e. more express buses
in conjunction with bus priority treatment at critical locations. Under
the same mode split conditions, public transport demands associated
with the Concentrated Plan were considered to have exceeded the
threshold of existing public transport technology. It is likely that ex¬
press buses or exclusive rights-of-way could be required on substan-

tial sections of the route. It would not, however, lead to a general
reduction in road capacity since the reduced traffic demands would
be more than offset by the additional requirements tor public
transport.

Investment in Major Roads

The analysis demonstrated that the Dispersed Plan would result
in a significant reduction in capital investment tor major roadworks.
Table 62 provides an estimate of the total road-based infrastructure
costs for both Plans at 1983 prices.

Table 62 Total Road Costs ( 1 )

Concentrated Dispersed

Road Types Plan Plan

Lane km

Urban Arterial

189

105

143

Parkway

173

216

102

128

Total

362

320

245

200

(1) 1983 prices.

The major roadworks associated with the Concentrated Plan are
estimated to cost about 60 per cent more than the equivalent road
requirements of the Dispersed Plan. Also, it a special bus facility is
provided, a further $70 million (1983 prices) could be added to the
cost of the Concentrated Plan (excluding the cost ot vehicles).

Public Transport

Estimating Future Public Transport Patronage

During the next twenty years, it is expected that the public
transport system will cater for about the same proportion of the total
transport demand as it presently does, i.e. up to 9.5 per cent of daily
vehicular trips. However, some spatial and distributional changes are
likely.

Most of these changes will occur during the peak hour, and will
be associated with increased employment density in the existing town
centres.

Commuter travel by bus to the major activity centres may only
increase significantly under certain conditions. These relate primarily
to the cost and availability of parking, and the relative cost and
standard of service of public transport. It is considered that the
conditions conducive to a significant increase in mode split would be
likely to exist only in Civic Centre and the Woden and Belconnen
Town Centres.

The magnitude of the potential increase will depend on the following
factors:

• public acceptance of parking restraint measures

• public acceptance of the substantial increase in the operating
subsidy required for the public transport system

• the threshold before major investment is required for higher-
technology (rail-type) systems or exclusive bus ways to service the
demand or maintain reliability of service

• the timing of development and parking restraint measures.

Currently, the demand for parking is virtually unrestrained
(charges for short-stay parking have been applied to ensure its
availability for that use) and the annual public transport subsidy has,
in the past, been relatively unchallenged. However, the shortage of

134

land available for surface parking in Civic Centre and Woden 1 own
Centre and the certainty of an increasing annual public transport
subsidy was considered in the estimate of future mode split.

A mode split to these centres of 30 per cent by public transport
may therefore be the practical maximum. This represents an increase
of up to 100 per cent over the existing peak-hour mode split. Mode
split to most other major employment centres and other destinations
is predicted to decrease slightly, due to:

• increasing car ownership

• no parking restraint

• the popularity of private cars

• increasing journey distances

• increasing value of leisure time

• greater propensity for combining trip purposes.

The public transport evaluation was, therefore, carried out with
reference to both the current mode split and this higher mode split
(i.e. 30 per cent).

The express bus operations (line-haul and discrete peak-hour
express services) are considered to be the most critical components
of the public transport system. They provide an inter-town travel
service and currently account for approximately 30 per cent of peak-
hour patronage (excluding special school buses). At present, they
comprise the only part of the system that is operating at capacity.

The express services are also expected to experience the greatest
amount of future growth. For the two plan options, it is estimated
they will carry between 50 per cent and 55 per cent of the peak-hour
passengers (excluding special or school buses). Express buses will also
be most directly affected by traffic congestion.

It was assumed that local feeder services would be provided to
all new suburbs at approximately the current level of provision. Most
of the existing local services are operating at less than 60 per cent of
their capacity during the peak hour (and less at other times). In most
cases, any modest increase in peak-hour mode split could be readily
absorbed. Experience has shown that any reduction in frequency of
service to rationalise apparent over-supply in capacity has an adverse
effect on patronage levels. Hence, the current standard of service w as
assumed as the minimum necessary to maintain or improve mode split.
As most of their operation is local (within a suburb), they would be
relatively unaffected by traffic congestion.

Since population settlement was identical for both plan options,
and it was assumed that local feeder services would be provided at
a standard to meet expected future demands, it was considered that
the express services would be most affected by the different plan
options. A more detailed analysis of express services was, therefore,
undertaken.

To assess the implications of the plan options on public transport
operations, future public transport travel demands were forecast.

Local feeder services with sufficient capacity were assumed to cater
for all intra-district trips (i.e. w here origin zone and destination zone
are the same).

The remaining trips were assigned to a simplified network represent¬
ing line-haul and some special express bus operations. From Woden,
Belconnen and Civic, it was assumed that a discrete express service
would follow the most direct route to its destination. This would not
necessarily be a line-haul service. In the case of Tuggeranong and
Gungahlin, the most direct route for most services passed through

Woden and Civic respectively, thus, the demands that could be
satisfied by other express services were included in the line-haul
volumes.

Evaluation of Future Public Transport Demands

Estimates based on the current mode split, ol the peak-hom , line-
haul passenger volumes tor the Concentrated and Dispersed Plans
are shown in Figure 56. 1 his is considered to be the most likely
situation in the absence ot any direct policy to reduce car tra\el.

The analysis indicated that the total amount ot inter-town travel
on the line-haul system would be very similar tor both Plans, i.e. about
52 per cent for the Concentrated Plan and 56 per cent tor the Dispersed
Plan. However, the Dispersed Plan is considered to offer a much more
efficient public transport operation, first, the passenger loadings
would have a better directional balance. The Concentrated Plan has
a reverse loading factor of 0.18, compared to the Dispersed Plan with
0.47. Second, the magnitude of passenger loadings in the peak
direction would be considerably less. The hourly volumes on some
routes in the Concentrated Plan are more than double the equivalent
Dispersed Plan route loading.

The combined effect of the reduced peak demand and more ev enly
balanced directional loading would result in a higher load 1 actor per
bus. This would reduce the total capacity required and, hence, would
reduce the operating deficit.

The analysis also indicated that the Dispersed Plan would have
approximately 30 per cent more single bus journeys. Most ot the
increase is due to the greater provision of local employment
opportunities at Gungahlin and Tuggeranong. Single bus journeys are
more attractive to passengers, because they do not involve transfer.
However, they also imply greater utilisation of local feeder services
and higher operating costs. As mentioned previously, feeder services
are currently operating at less than 60 per cent of their capacity.
Therefore, much of the increase could be absorbed. By increasing the
proportion of local journeys, the Dispersed Plan would also reduce
journey time and distance for those passengers with the greatest
distance to travel. Inter-town loadings for Tuggeranong and
Gungahlin would be reduced by 42 per cent and 32 per cent
respectively.

If mode split were dramatically increased for commuter travel to
the existing town centres from the existing range of 15-18 per cent
to 30 per cent, the estimated line-haul passenger loadings would be
as shown in Figure 57. The characteristics observed previously still
apply. The directional balance would be slightly less for both Plans
(reverse loading factor of 0.15 and 0.35 for the Concentrated Plan
and Dispersed Plan, respectively). However, the difference in
magnitude of the peak loadings for most routes would be increased.
This would result in a significant increase in the fleet size needed to
service the Concentrated Plan.

Even with the passenger loadings predicted under the high mode
split conditions, it is considered that buses could cater for Canberra’s
future public transport needs. The analysis indicated that neither peak-
hour nor daily passenger volumes would satisfy the minimum route
loading conditions needed to justify light or heavy-rail technology.
However, the analysis was not extensive enough to confirm the
location of necessary bus-only lanes or exclusive rights-of-way for
either Plan. The loadings indicate that bus priority facilities can
certainly be justified under both plan options, although the need for
facilities would be reduced under the Dispersed Plan. In relation to
staging, this implies that the appropriate investment could be deferred,
or alternatively, that a higher mode split could be absorbed.

Tuggeranong

CONCENTRATED OPTION

Gungahlin

Belconnen

Civic

Parkes

Commonwealth

Avenue

Woden

Tuggeranong

DISPERSED OPTION

100

500

1000

2000

Direct Buses to Russell, Campbell Park,
Parkes and Barton

Feeder Routes

f igure 56 Morning Peak Hour Commuter
Volumes on Line-Haul Routes -
Existing Mode Split

136

Gungahlin

Belconnen

Civic

Parkes

Commonwealth

Avenue

Woden

Tuggeranong

CONCENTRATED OPTION

Gungahlin

Belconnen

Civic

Parkes

Commonwealth

Avenue

Woden

Tuggeranong

DISPERSED OPTION

100

500

1000

2000

Direct Buses to Russell, Campbell Park,
Parkes and Barton

Feeder Routes

igure 57 Morning Peak Hour Commuter
Volumes on Line-Haul Routes -
High Mode Split

A further sensitivity test was performed to assess the implications
of drastically reducing the supply of parking in Civic. It was assumed
that a maximum of five parking structures would be constructed (these
would accommodate about 5 000 vehicles). Under the Concentrated
Plan, mode split to Civic would need to increase to more than 60 per
cent. This would be about 50 per cent higher than Perth’s mode split
which has a population about four times that of Canberra and a much
more concentrated central area. The estimated passenger loadings on
the line-haul route from the north (combined Belconnen and
Gungahlin) exceeded the capacity of a busway system and, con¬
sequently, the high front-end costs of rail technology were considered
to be necessary under these conditions. The capacity of the existing
City Bus Interchange would have been exceeded even at a reduced
mode split.

Applying the same conditions to the Dispersed Plan results in a
maximum mode split of 30 per cent, which constitutes the upper range
of the earlier considerations on mode split.

The evaluation also revealed that the advantages of the public
transport spine concept, which has been the basis of public transport
planning in Canberra, w^ould not be realised, unless there is a much
greater change to public transport use than has been forecast, or unless
Canberra continues to grow in a linear form. If Canberra does not
continue to grow in a linear form, or alternatively, if future develop¬
ment involves a major infill programme, transport flows would be
very different. Until the long-term future of Canberra is able to be
defined in greater detail, suitable public transport corridors should
be reserved to maintain planning flexibility. These corridors should
extend between the town centres and to the ‘edge’ of any development
where there is the possibility of further development.

The evaluation of future public transport needs and operations
has been, of necessity, very limited. A major deficiency of the
evaluation is the lack of a detailed economic or cost-benefit analysis
as this would have required more detailed information than is currently
available. It should be stressed that any planning initiatives which
involve a significant change in mode split should be subjected to a
comprehensive cost-benefit analysis before being implemented.

An Overview of the Proposed Metropolitan Public
Transport System

The existing line-haul and feeder strategy will be extended to the
new towns of Tuggeranong and Gungahlin as they are developed.
Public transport interchanges, similar to those at the existing town
centres, will be essential. During the interim stages of development,
they can be temporarily located, but ultimately they should be
integrated into the local town centre.

New' line-haul express services operating between Tuggeranong and
Woden, Gungahlin and Civic, and Gungahlin and Belconnen, will
be integrated into the system. It has been assumed that no special
express services w ill be operated from Gungahlin or Tuggeranong and
that the demand for these services will be added to those currently
operating from Civic and Woden. However, if sufficient demand were
demonstrated, they could easily be implemented.

During the interim stages of development, line-haul serv ices can
be operated in mixed traffic, and on those routes which will provide
a satisfactory standard of service at minimum cost. Generally, public
transport will be given priority ov er other vehicles at intersections or
along sections of road where delays may be significant. However,
when passenger volumes reach a threshold which warrants improved
facilities, (e.g. bus-only lanes or exclusive rights-of-way), the required
improvements should be incorporated within the appropriate section

137

of reserved corridor. Similarly, when traffic congestion reaches levels
which substantially reduce the reliability of services or terminal
capacity, improved corridor facilities should be implemented.

It is anticipated that local bus services will be provided to all new
suburbs. In general, they will operate between a particular suburb and
the local town centre. However, because of the central location of
the interchange, some local services will also provide a service to
adjacent town centres (a similar situation already exists). It is expected
that the standard of service will be similar to that existing. A fast,
frequent and reliable service will be provided within about 400m walk¬
ing distance of most residences.

It is proposed that a public transport corridor linking all of the
existing and future transport interchanges be reserved to accommodate
the longer-term development of Canberra, or future unforeseen
circumstances, which may affect mode split to such an extent that
a higher technology public transport system is needed. The corridor
should follow the most direct and feasible alignment. A preliminary
route is identified in Figure 58, although this will be the subject ot
a more detailed assessment.

NSW

—• Preferred Route
*■■■ Alternative Route
• Public Transport Interchange

5 km

Figure 58 Inter-Town Public Transport Route

138

Centres Evaluation

Introduction

Any comparison of options involving the system of centres in
Canberra must take into account a wide range of factors. The objectives
set for the City need to be met and the centres should also contribute
to the attainment of a dignified National Capital, with an efficient
urban structure and an environment which fulfils the aspirations of
both residents and visitors.

The capacity of the centres to accommodate existing and proposed
development efficiently also has to be assessed. Over-development
creates cost penalties, which are manifest in the need to provide
extensive car parking structures and to upgrade the internal road
system or to accept congestion on the roads within the centre, and
can impose redevelopment pressures. On the other hand, under¬
development fails to realise the full potential of a centre and neither
completely uses the investment in services nor supports the existing
facilities established in the centre.

The capacity of the arterial network providing access to the centre
has to be considered to ensure that the centres do not grow to a size
which causes congestion on the metropolitan road system or creates
a need for additional arterial roads. Finally the incremental growth
of the centres needs to be monitored to ensure that they do not usurp
the role of new centres, containing shops and facilities which better
meet the local needs of developing areas.

The centres evaluation takes into consideration the following
thresholds and comparisons:

• the capacity of the unconstrained vacant land in the centres to
accommodate new buildings and car parking at the existing
intensity of development

• the capacity of the vacant land at an increased intensity of develop¬
ment, assuming the existing public transport patronage rates (mode
split). The feasibility of increasing mode split to 30 per cent has
not been investigated in detail. The implications for the bus deficit
could be significant and an analysis of such a strategy should be
carried out before any campaign to increase the use of public
transport is undertaken

• the capacity of the arterial system serving the centre

• the capacity of the arterial road system after possible improvements
such as duplication where appropriate and the construction of
overpasses and other methods of improving the flow at inter¬
sections. These thresholds are not absolute. The highest threshold
will be achieved when public transport demand is high but when
traffic congestion is sufficiently low not to require the reservation
of bus-only lanes. The centres may be constrained at lower
thresholds because: the internal distributor system does not match
the access system; pedestrian activity or bus circulation increases,
reducing the capacity of intersections; existing traffic lanes are
dedicated for exclusive bus use for the inter-town public transport
system; or because the metropolitan road system cannot supply
adequate capacity to the roads accessing the centre

• constraints which should be placed on existing centres to enable
the establishment of centres in the new settlement areas. These
centres offer the opportunity to achieve a more efficient and equal
distribution of shopping, employment, community and other
facilities and services across the City

• the performance of the distribution of the retail floorspace and
social and community facilities under the two Plans.

139

Development Thresholds

Table 63 shows the extent of development and the vacant
developable land in each ot the main centres in 1982.

Table 63 Land Occupied by Development and Car Parking and

Developable Vacant Land in Civic and the Town Centie Core

Areas (1)

(1) Undevelopable vacant land and roads not included.

drive

Woden

Belconnen

Civic

Town

Centre

Developed Land

(ha)

(%)

Car Parking

(ha)

(%)

*****

Vacant

(ha)

PARKES

(%)

Total

(ha)

(%)

100

COOVONG

CITY

HILL

Lake

Burley

Griffin

From this information and the employment levels in the core areas,
it was possible to calculate the development threshold of each core
area at the existing intensity of development. Alter this increase was
combined with the potential increase due to development ot vacant
land in peripheral areas such as service trades areas, the threshold
of the centre at the existing intensity of development was obtained.
The extra employment potential in the Woden Town Centre is only
achievable if vacant land to the east of the centre is utilised.

1 Core

Frame

o 0 5

1 Km

Figure 59 Civic Centre - Core and Frame

Table 64 shows the three main centres, which at present have a
total employment of 33 000 between them, can accommodate only
about another 10 000 to 14 000 employees at existing densities,
compared with the additional 17 000 employees which are proposed
to be located in them in the Dispersed Plan and 37 000 in the
Concentrated Plan.

Table 64 Existing (1982) Employment Levels, Potential Increases and
Employment Thresholds at the Existing Intensity of
Development

Woden

Belconnen

Civic

Town

Core

Centre

Existing

14 000

7 700

6 800

Potential Increase

Other Areas

4 000

1 100
(3 800)

3 900

Existing

2 000

1 600

1 200

Potential Increase

400

900

Development Threshold

20 000

10 800
(14 600)

12 800

Notes:

J. The figures in brackets for Woden are thresholds including the vacant
kind to the east of the stormwater channel.

Uu *CEST 0 iv

Sr,

'ter

'4«S*

WODEN

EAST

)

Core

Frame

The development potential of the centres was assessed by assuming
that the development intensity on the remaining land would be
increased so that on building sites the floor area of the development
w'ould be three times the area of the land on which the building was

0 5

1 km

Figure 60 Woden Town Centre - Core and
Frame

140

Lake

Ginninderra

‘■UjrroN '

DRIVE >
S
z

COLLEGE

l 0.

STREET

Core

Frame

0 5

J_l

1 km

Figure 61 Belconnen Town Centre - Core and
Frame

sited - a plot ratio of 3.0. It should be noted that Hobart Place and
other high-rise clusters in the existing centres have not reached this
development intensity. Land occupied by low buildings and service
pedestrian areas compensates for the intense development in tall
structures.

In determining the possible employment levels in f uture buildings
it was assumed that 7 out of every 8 workers would occupy about
20nr of space, the current gross floor area occupied by office workers.
The other worker in 8 was assumed to be in hotels, cinemas and
theatres, public buildings and entertainment facilities which are more
extensive and w here an employment density of 100m 2 per worker was
assumed. Additional retail development was treated separately.

The nature of retail malls and other shopping facilities is such that,
except where office towers are constructed over part of them, they
are usually limited to two or three storeys and have a lower develop¬
ment intensity than office development. Consequently, new' retail
development was assumed to have a plot ratio of 2.0 in Civic and
1.5 in Woden and Belconnen Town Centres. Visitor parking for
shopping and commercial facilities was assumed to be provided at
an off-peak rate of 2.5 spaces per 100m 2 of retail space. In the
Concentrated Plan, the 30 000m 2 of retail space in Civic and the
20 000m 2 in Woden and Belconnen Towm Centres, provided in addi¬
tion to the levels in the Dispersed Plan, reduce the capacity of the
centres to accommodate offices. Consequently, the thresholds show n
in Table 65 are approximately 1 500 lower for Civic and 1 000 lower
for the town centres in the case of the Concentrated Plan.

Table 65 Existing (1982) Employment Levels, Potential Increases and
Employment Thresholds at Increased Development Intensity

Woden

Belconnen

Civic

Town

Centre

Core

Existing

14 000

7 700

6 800

Potential Increase

5 000

1 500
(5 000)

7 100

Other Areas

Existing

2 000

1 600

1 200

Potential Increase

700

(500)

1 700

Development Threshold

21 000

11 500
(17 000)

16 800

Notes:

I. The figures in brackets for l Voden are thresholds including the vacant
land to the east of the stormwater channel.

It is obvious from the table that the thresholds at the increased
intensity of development are adequate for the Dispersed Plan in
Woden and Belconnen Town Centres. The thresholds are, however,
less than the employment levels tested in the Concentrated Plan.

The thresholds referred to above assumed that existing patterns
of car usage would persist. If measures such as pricing for parking
and restrictions on the supply of long-stay parking spaces were
introduced, the thresholds may be slightly increased. A mode split
of 30 per cent by bus was considered the maximum feasible, within
the next twenty years, without major investment in public transport
infrastructure and subsidy, and substantially increased parking
restraint measures. The employment threshold of the centres with a
30 per cent mode split was estimated to be as follows: 29 000 for Civ ic;
17 000 for Woden and 30 000 for Belconnen. Even at this mode split,

141

the capacity of the centres is still below the total employment allocated
to them in the Concentrated Plan.

Throughout the analysis, it was assumed that the intensity ot
development in the service trades areas would not increase
substantially. The existing development density will be maintained and
only vacant land will be occupied. The ellects ot a large increase in
employment in these areas would be to reduce the capacity ot major
traffic arteries to the core areas, and in the case ot Braddon, to cause
traffic intrusion on residential streets. The development ot sei\ice
trades areas poses difficulties tor the public transport services, and
mode split to these areas is typically much lower. Development
intensity in the service trades areas is also constrained by availabihtv
of land for parking. A major office development, for example, would
result in significant local parking problems.

As a consequence ot the shortage ot land at centres and employ¬
ment nodes, it was assumed that the provision ot car parking at these
nodes would be restricted to approximately 0.5 spaces per worker
under the Dispersed Plan and 0.4 under the Concentrated 1 lan,
compared with a current provision ot 0.6 spaces per worker.

No detailed consideration was given to the threshold or capacity
of the town centres in Tuggeranong and Gungahlin, since it was
assumed that they would be planned with adequate land and adequate
transport capacity. At present, there are no constraints which would
limit their thresholds.

Transport Thresholds

The thresholds of the arterial network serving the centres were
evaluated at two levels - the capacity of the existing network and the
capacity of the network with a range of improvements.

Civic Centre

The potential capacity of the road system feeding into City
Division, the core of Civic, was assessed. During the average morning
peak hour in 1982, about 10 000 vehicles travelled in on these roads
and approximately half travelled out, indicating that up to 5 000
vehicles terminated in the core during the peak hour. Based on current
travel characteristics it was estimated that 6 out of every 7 of the
terminating vehicles carried workers with the other being used for
shopping, business or other activity not related to work.

In order to determine the employment threshold of the core at
which the access road system reached capacity, it was necessary to
determine first the transport capacity of the roads, in terms of vehicles
per hour, and then make an allowance for through-traffic and
terminating traffic not associated with work. The remaining vehicles
were estimated to have carried workers and the capacity of the core
could be assessed by reference to the proportion who drove cars to
work.

The capacity of the road system providing access to Civic core
was estimated to be approximately 14 500 vehicles per hour, if
Coranderrk Street is duplicated and Monash Drive constructed.

Table 66 shows the capacity of the approach roads.

Through-traffic was assumed to increase by up to 20 per cent in
response to a 25 per cent increase in Central Area employment. Civic’s
mix of activities is likely to continue in the future, as will the share
of trips entering the area during the peak for purposes other than
work. Table 67 shows an estimate of the approximate volumes for
the various purposes. If the peak period extends to two hours, the
roads accessing the core could service an employment of up to 25 000.

142

Table 66 Traffic Capacity of Civic Centre Approach Roads

Capacity

Road Number of Lanes (Vehicles Per Hour)

Barry Drive

2 300

Northbourne Avenue

2 400

Torrens &

Associated Streets

500

Ainslie Avenue

1 500 (1)

Coranderrk Street

1 500 (2)

Constitution Avenue

800

Commonwealth Avenue

3 700

Edinburgh Avenue

1 800

Total

14 500

(1) Assumes Monash Drive.

(2) Assumes Duplication.

Table 67 Civic Centre Core: Relationship Bet

ween Employment

Threshold and Access Capacity

Access Capacity

14 500 Vehicles per Hour

Through-Traffic

6 000 Vehicles per Hour

Terminating Traffic

8 500 Vehicles per Hour

Terminating Non-work

1 200 Vehicles per Hour

Terminating Work

7 300 Vehicles per Hour

Employment Capacity

25 000 Workforce

If the mode split increases, two countervailing circumstances can
be expected. The employment threshold will increase and a point will
be reached at which bus-only facilities will be required on Barry Drive,
Commonwealth Avenue and Northbourne Avenue. If these are
provided on existing road space, the capacity of access roads will be
decreased by at least 1 800 vehicles per hour. The net effect of a
doubling of the existing mode split to Civic, which was considered
the highest mode split feasible under stringent controls, is that the
employment threshold of the core would increase to about 27 000.
At the extreme, if the bus-only lanes are added, for example, an
additional lane to and across Commonwealth Avenue Bridge and a
lane in the median of Northbourne Avenue, the employment threshold
of the core could increase to approximately 34 000. This was
considered most improbable. To determine the employment thresholds
of Civic, the future employment of the Braddon Service Trades Area,
estimated at 2 000 to 3 000, should be added.

The employment thresholds of Civic based on road access are
summarised in Table 68.

Table 68 Civic Centre: Road Access Thresholds

Condition

Threshold

Existing Mode Split (15%),

Full Road Network

27 000

100% Increase in Mode Split,

Bus Lanes on Existing Roads

29 000

100% Increase in Mode Split,

New Bus Lanes Constructed

36 000

The access road thresholds are, therefore, not likely to be the
primary constraints on the development of Civic. The cost of parking
structures and the traffic capacity of the internal distribution system
are considered to be the main limiting factors.

143

Woden Town Centre

The highly accessible location ot Woden Town Centre, at the
intersection of the arterials serving Woden, Weston Creek and
Tuggeranong, is responsible tor limiting the capacity ot the roa
system which accesses the centre. The arterial road network surrounding
Woden Town Centre is serving a dual tunction ot first, providing
access to the town centre and second, carrying by-passing tiat tic tiom
Woden and Tuggeranong moving north. In 1982, only one-third ot
the traffic on the road system was destined tor the centre. Table 69
shows the estimated capacity ot the arterial road system serv ing W oden
Town Centre.

Table 69 Traffic Capacity of Woden Town Centre Approach Roads

Road

Hindmarsh (West)
Melrose (North)
Athllon

Hindmarsh (East)
Launceston
Melrose (South)
Launceston

Total

Number of Lanes
4
3
2
3
1
3
2

Capacity

(Vehicles Per Hour)
2 400
1 600
1 000
1 500
800 (1)

1 600
1 000

9 900

Maximum Possible

(1) Residential Street.

Upstream capacity restrictions and the imbalance of demand, as
the result of low demand from north of Woden Town Centre, were
considered to reduce the access capacity to about 8 800 vehicles per
hour.

An assessment of the current levels of terminating traffic and the
current workforce in the core showed that fewer than 5 per cent of
vehicles currently travel to Woden Town Centre for shopping and
other non-work purposes during the peak. The 1982 levels of
terminating non-work trips and car usage were assumed to persist,
and it was assumed through-traffic would increase by no more than
5 per cent even though substantial increases were assumed in the
population of Tuggeranong and in Central Area employment. The
transport threshold of the core would be an employment level of
approximately 10 700 as is shown in Table 70.

Table 70 Woden Town Centre Core: Relationship Between
Employment Threshold and Access Capacity

Access Capacity
Through-Traffic
Terminating Traffic
Terminating Non-work
Terminating Work

8 800 Vehicles per Hour
5 500 Vehicles per Hour
3 300 Vehicles per Hour
100 Vehicles per Hour
3 200 Vehicles per Hour

Employment Capacity (Two-Hour Peak) 10 700 Workforce

The employment capacity of the core at 30 per cent mode split,
which represents a doubling of the present rate, would be about
14 500. Such a high mode split could be expected only if parking was
adequately controlled by charging for long-stay parking and
prohibiting commuter parking in adjacent residential areas.

The capacity of the access roads could be increased by grade
separating the intersections of Hindmarsh Drive and other minor roads
between Melrose Drive and Ainsworth Avenue inclusive, at a tentative

144

order of cost of $5 million. It was estimated that these road
improvements could improve the access capacity to Woden Town
Centre by up to 2 000 vehicles per hour and improve through-traffic
operations substantially.

The proportion of traffic which terminated during the peak hour
for shopping and other non-work purposes can be expected to increase
as the centre grows and a more complex mix of activities eventuates.
On the basis that the proportion of non-work trips will be half of
that now evident in Civic, it was estimated that when Woden Town
Centre reaches Civic’s current size, 400 vehicles per hour will arrive
in the centre for non-work purposes.

Consequently, with major improvements, the arterial road system
would have capacity to cope with about 5 200 terminating trips to
Woden Town Centre, of which 4 800 would be work trips. Based on
a two-hour peak and the current rate of car usage, the threshold for
the town centre core would be 16 000. If the mode split increased to
30 per cent, the threshold would increase to about 21 800 employees.
If bus-only facilities required for the higher mode split occupy road
space, the threshold would be reduced.

In order to obtain the total employment thresholds for Woden
Town Centre, the employment levels expected in the service trades
area were added to the thresholds for the core. If substantial growth
occurs in the service trades area, it would be at the expense of the
capacity of the core, because both rely on the same arterials for access.
The road access thresholds for Woden Town Centre, summarised in
Table 71, are based on the assumption that employment in the service
trades area grows to 2 500. Other thresholds, such as land availability
and car parking, are not considered.

Table 71 Woden Town Centre: Road Access Thresholds

Condition

Threshold

Existing Mode Split and Road Network

13 200

100% Increase in Mode Split,

Existing Road Network

17 000

Existing Mode Split, Major Improvements
to the Road Network

18 500

100% Increase in Mode Split, Major

Improvements to the Road Network

24 300

Notes:

1. The employment capacity of the Woden Town Centre, which includes

the service trades area, is 2 500 higher than the equivalent capacity
of the core area.

Belconnen Town Centre

The access threshold of Belconnen Town Centre, like the access
capacity of Woden Town Centre, depends on the extent to which the
arterial system is expanded to provide alternative routes for traffic,
which would otherwise travel through the centre or compete with
terminating traffic on roads adjacent to the centre.

Belconnen Town Centre, however, is different from W oden Town
Centre when considered from the viewpoint of local traffic access.
Major town arterials such as Belconnen Way, and Ginninderra,
Haydon and Kingsford-Smith Drives by-pass the centre, yet others,
such as Southern Cross Drive, Aikman Drive and Eastern Valley W ay,
terminate at the centre. Accordingly, it can be expected to have a
higher transport threshold and to experience a growth in through-
traffic until the access roads reach capacity.

In 1982, one car in three entering Belconnen Town Centre
continued through. It was considered that approximately one car in
twenty-five of the terminating traffic entered the centre tor business,
shopping or other non-work purposes. The remainder, slightly less
than 2 400 vehicles, were work trips.

The 1982 access capacity of the town centre was estimated at below
10 000 vehicles per hour. When Gungahlin development occurs,
Aikman Drive will require duplication to meet the needs tor access
between Gungahlin and Belconnen Town Centie. In addition, the
intersection of Coulter Drive with Nettlefold Street could be improved
to accommodate increased access from northern and western
Belconnen. The future access capacity of Belconnen Town Centre
would then be approximately 11 000 to 11 500 vehicles pei houi

(Table 72).

Table 72 Traffic Capacity of Belconnen Town Centre Approach Roads

Road

Benjamin Way
Nettlefold Street
Luxton Street
Joynton Smith Drive
Aikman Drive
College Street
Eastern Valley Way

Total

Number of Lanes
2
2
3
2
2
1

Capacity

(Vehicles Per Hour)

2 000

1 500

3 000 4 500(1)

2 000
2 000

800
2 000

11 300

(1) The capacity on these roads depends both on the upstream capacity
and on the demand from the areas of Belconnen which use the roads.

Through-traffic is expected to grow in proportion to the general
growth of traffic to Belconnen Town Centre for several reasons. The
town centre is surrounded by other employment nodes such as the
Bruce TAFE, CCAE, Calvary Hospital and the proposed Canberra
Technology Park. For some travellers, the quickest route to these
destinations will always be through the town centre. Others will drop
passengers at the town centre on their way to other destinations, such
as Civic. Because Southern Cross and Aikman Drives and other
arterials terminate at the town centre, a through-route will be the
shortest path for some trips.

If the 1982 proportion of terminating non-work trips persists as
the centre grows, and the level of car usage remains constant, the
transport threshold of the Belconnen Town Centre, including the
service trades area, is estimated to be an employment level of
approximately 23 000 as is shown in Table 73.

Table 73 Belconnen Town Centre: Relationship Between Employment
Threshold and Access Capacity

Access Capacity
Through-Traffic
Terminating Traffic
Terminating Non-Work
Terminating Work

Employment Capacity (Two-Hour

11 300 Vehicles per Hour
4 000 Vehicles per Hour
7 300 Vehicles per Hour
300 Vehicles per Hour
7 000 Vehicles per Hour

Peak) 23 000 Workforce

146

If Aikman Drive is duplicated, and a inode split of 30 per cent
is achieved, the employment capacity of Belconnen Town Centre
would be 30 000. Accordingly, the road system is not the constraining
threshold on Belconnen Town Centre. Other constraints, such as the
availability of land for development and car parking, and the need
to decentralise development to the other towns to achieve balanced
metropolitan growth, are more likely to restrict the size of the centre.

Urban Structure

A major strength of Canberra’s urban structure is its system of
centres. Combined with the transport network, they produce a relatively
efficient and congestion-free city, despite its apparent widespread
character. Other cities, such as Perth and Brisbane, have proposed
subsidiary centres in their strategic plans, in order to achieve some
of the benefits Canberra already experiences.

The continuation of the system of town centres would have the
following advantages:

• reduce construction costs for new metropolitan roads and
structured car parks

• reduce travel and car operating costs and air quality problems in
Civic and the Central Area

• limit the increase of the public transport deficit

• provide opportunities to achieve a more equitable distribution of
shopping, community and other facilities and services across the
City.

To achieve this dispersal, decentralisation of employment and
other activity needs will be required and the growth of existing centres
will have to be constrained. In order to determine the broad level of
the constraints which would have to be imposed on existing centres,
approximate thresholds were established based on the following
assumptions:

• providing job opportunities for 60 per cent of the workers who
reside in the town to work in the town. This would be achieved
by providing opportunities in the town centre, local areas, and
adjacent industrial estates, and

• recognising that the remaining 40 per cent of workers would, for
a wide variety of reasons related to job advancement opportunities,
choice of housing and environment, prefer to work at other
metropolitan employment locations and accept a large journey to
work by cross-commuting.

In order to achieve the level of decentralisation of employment
proposed, Central Area employment has to be limited to approximately
65 000 and Civic to approximately 25 000 employees. The town centre
thresholds established, town populations and other employment in
the towns are shown in Table 74.

Table 74 Decentralisation of Employment and Town Centre Thresholds

Industrial/

Eventual

Resident

60% Employment

Local

Special Use

Town Centre

Population

Employees

Containment

Employment

Threshold

Woden-Weston Creek

60 000

27 300

16 380

7 030

9 350

Belconnen

83 000

37 800

22 700

5 950

3 000

13 750

Tuggeranong

89 000

40 500

24 000

5 500

4 000

14 500

Gungahlin

84 000

38 200

22 900

4 600

4 300

14 000

147

Capacity of Other Employment Areas

The Central Area is the main employment area in Canberra within
which are several nodes including Civic and Parkes/Barton. Because
the major metropolitan road system tocuses on the Central Area, the
employment threshold is inextricably linked to the performance and
capacity of the metropolitan transport system, which is discussed
elsewhere. In general, it is assumed that further development of
individual nodes will be limited lirst, to the capacity of the access
roads, except where these roads can be economically upgraded, and
second, to the capacity of the land available to accommodate buildings
and car parking. The analysis suggests there are no immediate
constraints on any major node, although their cumulative growth has
implications for the metropolitan road network. For example, there
is sufficient land available in Parkes/Barton to double the existing
levels of employment (to a total of over 20 000). This includes 3 000
jobs to be located in the Parliamentary Zone and the development
of York Park for offices and extensive car parking. The estimated
car parking demands at the existing rates of car usage, tor the
individual employment nodes in the Central Area (excluding Civic)
in the two options are shown in Table 75.

Table 75 Estimated Car Parking Demands in the Central Area (excluding Civic Centre)

Concentrated Plan Dispersed Plan

Employment

Car Parking

Employment

Car Parking

ADFA/Duntroon

& Campbell Park

5 300

3 200

5 300

3 200

ANU/CSIRO/Hospital

8 100

4 800

8 100

4 800

Anzac Parade/Braddon

3 300

2 000

3 300

2 000

Parkes/Barton

18 600

10 000

15 000

9 000

Russell

7 600

4 600

7 600

4 600

Comparison of the Centres in the Options

Development and Access Capacity

The development proposed for the centres in both options is such
that desirable thresholds are exceeded. Consequently the construction
of new access roads, multi-level car parks and higher density develop¬
ment and redevelopment will be required. Other factors which may
influence the decisions to build structured car parking are related to
convenience of access and physical or environmental constraints.
Distances of over 200 m for short-stay parking and over 500 m for
long-stay car parking reduce the use and acceptability of those spaces.
Factors which militate against structured car parks are their initial
capital costs and visual impacts.

Civic Centre

In the Dispersed Plan Civic Centre has an employment level of
25 000. Under this proposal all the developable land will be occupied,
and some redevelopment will be required. Furthermore, at the existing
mode split at least 5 000 car parking spaces will have to be accom¬
modated in structures and up to six hectares of additional land would
have to be made available for parking.

In order to avoid the unsightly appearance of car parking along
the major approach roads and from the Parliamentary Zone, it may
be necessary to restrict the areas of surface parking to their existing
extent. Under these circumstances and assuming existing mode split,
up to 8 000 spaces will have to be accommodated in structures. With
a mode split of 30 per cent - an extreme situation - and no increase
in the area available for car parking, over 3 000 spaces will have to
be incorporated in structures. Thus between 4 000 and 8 000 cars will

148

have to be accommodated in parking structures under the Dispersed
Plan, depending on the level of public transport patronage and the
controls placed on the supply and use of car parking. These would
need to be constructed incrementally over the twenty years of the plan
period. An employment level of 25 000 is essential if the practice of
decentralisation is to continue.

In contrast, Civic under the Concentrated Plan would exceed all
the thresholds considered and major intervention and reconstruction
would be required, if the proposed employment level of 35 000 was
reached. Extensive redevelopment would also be essential. The
Commission would no longer be able to assist in the release of vacant
sites, and development would be totally reliant on lessees applying
to redevelop their existing buildings.

Depending on the level of bus use between 11 000 (at 30 per cent
mode split) and 18 000 (at 15 per cent mode split) car parking spaces
will be needed in structures. The cost of parking structures will be
at least $50 million higher than under the Dispersed Plan at the same
level of mode split. Such a level of provision will be difficult to achieve
in the twenty years of the plan period (Table 76).

Table 76 Civic Centre: Parking Demands and Thresholds

Concentrated Plan Dispersed Plan

15% Mode

30% Mode

15% Mode

30% Mode

Split

Total Parking in the Core

Number of Parking

22 200

17 000

15 500

11 800

Spaces in Structures

18 000

11 000

8 100

3 200

Cost of Structures ($ millions)

110

Thresholds Exceeded

All

Existing

development

intensity

Increased

development

intensity

Existing

development

intensity

Even at a mode split of 39 per cent, (the current rate to the CBD
of Perth), Civic would still require over 8 000 spaces in structures
under the Concentrated Plan. The City of Perth is currently twice
the size Canberra will be at the end of the plan period. Also, it is
estimated that between 1 500 and 2 000 of the existing surface spaces
would be lost to development. At a higher mode split, the bus inter¬
change would have to increase in size substantially and additional bus
priority measures would have to be introduced to maintain the
reliability of the bus service.

The main arterial road system providing access to Civic will be
deficient under the Concentrated Plan. An additional arterial road
will be needed, but no obvious alignment presents itself. In this
context, it was considered worthwhile comparing the current proposals
for Civic with the 1962 proposals (Figure 62), which envisaged a
dominant Civic Centre with an employment of approximately 40 000
when the metropolitan population grew to 500 000. When the City’s
population reached 400 000, the employment level in Civic was to be
about 35 000. It implied mode split to Civic would be similar to
existing levels.

The 1962 Plan also made provision for 18 car parking structures
which, at 1 000 spaces per structure, was similar to the requirement
determined fora 15 percent mode split. In addition, the Plan included
two high capacity, peripheral distributor roads with grade-separated
intersections. The current analysis confirmed these roads would be

149

| Parking Structures

Figure 62 The 1962 Plan for Civic Centre
Development

required under the Concentrated Plan. The internal distribution system
will also require upgrading to support the increased number ot
buildings and to access the many structured car parks.

A Civic Centre of 35 000 would severely constrain the extent to
which employment could be dispersed to new settlement areas.

Woden Town Centre

In the Dispersed Plan, Woden Town Centre would be 1 ully
developed west of the stormwater channel. One car parking structure
with a capacity of up to 1 500 spaces may be required depending first,
on the extent of bus travel, and second, on the availability of suitable
land for surface parking. Little additional land can be earmarked for
parking in the core area. If development extends to the eastern sector,
car parking could be provided south of the Woden TAFE, removing
the need for structured parking.

No major roadworks would be required except possibly the realign¬
ment of Athllon Drive into Cailam Street.

The size of Woden Town Centre under the Dispersed Plan will
enable the policy of decentralisation to continue, by facilitating the
establishment of a town centre in Tuggeranong. A constrained size
will ensure that Woden Town Centre does not compete unduly with
Civic Centre.

Under the Concentrated Plan , Woden Town Centre will fully
occupy Woden East and require between 1 500 (30 per cent mode split)
and 2 700 (15 per cent split) car parking spaces in structures depending
on public transport usage (Table 77). The cost of car parking structures
would be $ 10-$ 15 million higher than for the Dispersed Plan.

The extended area of the town centre, including Woden East, will
result in unacceptable walking distances and less support for the
facilities in the core from the more remote office workers. A further
implication of an extended town centre is that public transport usage
would be lower in Woden East than in the core area. A comparison
of the commuter mode split to Braddon (8 per cent) and to Civic (16
per cent) shows the decline in the usage of buses as the distance from
the centre, the public transport interchange and the location of high
quality services increases.

150

I able 77 W oden Town Centre : Parking Demands and Thresholds

Woden

Total Parking in the Core
Number of Parking
Spaees in Structures
Cost of Structures ($ millions)
Thresholds Exceeded

Woden

(including Woden East)

Total Parking in the Core
Number of Parking
Spaces in Structures
Cost of Structures ($ millions)
Thresholds Exceeded

Concentrated Plan

Dispersed Plan

15% Mode Split

30% Mode Split

15% Mode Split

30% Mode Split

10 800

8 400

6 800

5 300

7 000

3 000

1 500

Decentralisation

Existing and
increased
development
intensity

Arterial Access

15% Mode Split

30% Mode Split

15% Mode Split

30% Mode Split

10 800

8 400

6 800

5 300

2 700

1 500

Existing and
increased
development
intensity

Existing

development

intensity

Decentralisation

Arterial Access

If the town centre is kept to the west of the stormwater channel
between 3 000 (30 per cent mode split) and 7 000 (15 per cent mode
split) car parking spaces will have to be located in structures, at a
cost of between $15-$40 million.

The Woden Town Centre, as proposed under the Concentrated
Plan, will require major arterial road improvements, unless the public
transport usage can be increased. Hindmarsh Drive will need to be
grade separated from Melrose Drive, Botany Street and Athllon Drive
at an approximate cost of $5 million. The bus interchange will also
require upgrading and bus-only lanes will be needed through the
centre.

Beleonnen Town Centre

Under the Dispersed Plan, Beleonnen Town Centre will not be
fully developed. In theory, all the car parking demands could be
accommodated on-surface. However, the structure of the centre is
such that unacceptable walking distances would arise unless at least
one structure is provided.

In the future, land opposite the lake front will become a stronger
focus for development and can be expected to generate high parking
demands. No significant car parking sites will be available, either
because the slope of the land renders them impracticable, or the
location, for example the lake edge, is unacceptable for both visual
and environmental reasons. Accordingly, major surface parking could
be accommodated only at distances approaching a kilometre from
the point of demand. Short-stay parking should be provided within
about 200 m of the facilities being served. The acceptability of long-
stay parking diminishes, if it is over 500 m from the point of demand.
In order to ensure a continuous development frontage in the vicinity
of Lake Ginninderra, up to 1 500 parking spaces will be required in
structures, in addition to the existing car parking structures.

Under the Concentrated Plan, Beleonnen Town Centre will be
developed in excess of the capacity of the available land and redevelop¬
ment pressures can be expected. Between 1 500 (at 30 per cent mode
split) and 3 000 (at 15 per cent mode split) additional car parking
spaces will be required in structures at a cost of $10 to $20 million
(Table 78). No additional arterial road capacity w ill be required for

151

Table 78 Belconnen Town Centre : Parking Demands and Thresholds

Total Parking in the Core

Number of Parking

Spaces in Structures

Cost of Structures ($ millions)

Thresholds Exceeded

Concentrated Plan

15% Mode Split

30% Mode Split

10 600

8 200

3 000

1 500

Decentralisation

Existing and
increased
development
intensity

Dispersed Plan

15% Mode Split 30% Mode Split

8 300 6 400

1 500
10

Belconnen Town Centre, other than the duplication ot Aikman Drive,
which will be needed under both plan options to provide access lor
Gungahlin residents.

Retail Evaluation

The distribution of retail floorspace between towns and between
hierarchy levels needs to consider factors such as the accessibility ot
consumers to retail facilities, the impact ot new centres on existing
centres, changes in the retail industry such as larger supermarkets and
discount store retailing and the impact of these trends on the spacing
of centres.

The Concentrated and Dispersed Plans were tested on the basis
of the following key assumptions:

• a metropolitan provision of 1.43m : per capita, which assumed no
growth in Fyshwick or Queanbeyan both of which have
considerably lower turnovers than the metropolitan average

• between 43 per cent and 50 per cent of retail expenditure would
be attracted to town centres

• the per capita retail expenditure would be maintained in real terms

• work-based expenditure at town centres would be maintained

• no allowance was made for non-Canberra resident expenditure.
In 1980, there was an estimated inflow of S38 million to the ACT
of which about $7.3 million was spent at Civic, S6.8 million at
Woden Town Centre and $4.7 million at the Belconnen Town
Centre. As such, town centre turnover is likely to be understated
in both options

• in the Concentrated Plan, the expanded group centres in Tug-
geranong and Gungahlin w'ere assumed to trade at $1 500 per m :
(1980 levels). They are expected to trade above this level, given
the proposed town populations. As such, the trading levels at the
existing town centres may be slightly overstated

• turnover per square metre and ‘retail’ floorspace includes that
portion of service trades floorspace in which retail sale of goods
occurs.

Concentrated Plan

Under the Concentrated Plan, the floorspace provided and the
average turnover per square metre of floorspace at each of the town
centres would be as shown in Table 79.

The expenditure per square metre at each of the town centres
would be above the 1980 average trading level of $1 310 per m : with
the exception of Civic. Although Civic’s trading levels would be
assisted by the inflow of non-resident expenditure, a provision of
110 OOOnr appears excessive. For Civic to trade at $1 350 per nr ,
its level under the Dispersed Plan, the provision would need to be
reduced to 102 000m 2 .

152

fable 79 Retail Floorspace and Turnover: Concentrated Plan

Centre

Floorspace

(m 2 )

Expenditure Per
Square Metre
(1980 Dollar Value)

Civic Centre
Belconnen Town Centre
Woden Town Centre
Gungahlin Town Centre
Erindale Centre

110 000

1 190 -

1 250

90 000

1 320 -

1 420

90 000

1 500 -

1 680

18 000

1 500

21 000

1 500

Woden Town Centre already trades at a level substantially above
other centres, a result of the lower level of floorspace provision in
Tuggeranong.

At 1980 Woden Town Centre trading levels, the floorspace
supportable at each of the centres given that the level of floorspace
at the major centres in Tuggeranong and Gungahlin would be fixed
at 21 000m 2 and 18 000m 2 respectively, would be as shown in Table 80.

Table 80 Retail Floorspace Supportable: Concentrated Plan (1)

Floorspace (m 2 )

87 000 - 92 000
79 000 - 85 000
90 000 - 101 000

(l) At 1980 Woden Town Centre turnover levels.

Centre
Civic Centre
Belconnen Town Centre
Woden Town Centre

Dispersed Plan

The floorspace provided and the estimated turnover per square
metre of floorspace under the Dispersed Plan would be as shown in
Table 81.

Table 81 Retail Floorspace and Turnover: Dispersed Plan

Centre

Floorspace

(m 2 )

Expenditure Per
Square Metre
(1980 Dollar Value)

Civic Centre

76 000

1 320 - 1 350

Belconnen Town Centre

70 000

1 400 - 1 450

Woden Town Centre

70 000

1 430 - 1 470

Gungahlin Town Centre

47 000

1 210 - 1 440

Tuggeranong Town Centre/
Erindale Centre

64 000

1 270 - 1 490

The upper turnover figure is probably a better estimate with the
possible exceptions of Civic Centre and Woden Town Centre, w hich
have large group centres in their catchments. In 1980, Inner Canberra
residents spent only about 40 per cent, and Woden-Weston Creek
residents spent only about 43 per cent of their retail expenditure at
the town centre level, primarily as a result of the group and local centre
provision in these districts. However, the inflow of tourist and other
non-resident expenditure will assist the trading levels of Civic Centre
and Woden Towm Centre. In Tuggeranong and Gungahlin, the likely
lower provision at the group and local level will result in a higher-
than-average proportion of expenditure occurring at the town centre
level. In Belconnen, where the provision at the group and local level
is about 0.37m 2 per capita, the town centre attracted over 50 per cent
of expenditure in 1980.

The upper expenditure range for each of the town centres is
expected to be above the 1980 Canberra average turnover at town

centres of $1 310 per nr' , but below that experienced by Woden Town
Centre in 1980. At trading levels equivalent to those in W oden Town
Centre in 1980 ($1 500 per nr), the floorspace supportable at each
of the centres would be as shown in Table 82.

Table 82 Retail Floorspace Supportable: Dispersed Plan (1)

Floorspace (nr)

67 000 - 68 500

65 500 - 67 500

66 500 - 68 500
38 000 - 45 000

54 000 - 63 500

(I) At 1980 Woden Town Centre turnover levels.

Civic Centre
Belconnen Town Centre
Woden Town Centre
Gungahlin Town Centre
Tuggeranong Town Centre/
Erindale Centre

The benefit to retailers and developers ot having each ot the centres
trading at a rate equivalent to the 1980 Woden Town Centre level
needs to be weighed against the additional benefit ot increased
floorspace for the residents ot the new towns. The determination ot
appropriate trading levels needs to take into account such (actors as
Canberra’s high turnover per square metre, its floorspace provision
per capita relative to the State Capitals, comparative rents and other
costs.

Comparison of the Plans

The Concentrated Plan, through its restriction of floorspace in
both Gungahlin and Tuggeranong, would impose additional
accessibility costs on the residents of these districts. Those benet itting
most from this strategy would be the developers and lessees ot the
expanded group centres in Tuggeranong and Gungahlin, and the
developers and lessees at the existing centres (Table 83).

Table 83 Retail Floorspace Per Capita (nr)

Inner Canberra (1)

Woden-Weston Creek

Belconnen

Tuggeranong

Gungahlin

Queanbeyan

Concentrated Plan

3.35

2.03

1.44

0.55

0.56

1.33

Dispersed Plan

2.81

1.71

1.21

1.00

0.91

1.33

(1) Includes Fyshwick.

One possible benefit to consumers at the centres under the
Concentrated Plan could be that, because some of the centres would
be larger, a greater range of merchandise might be made available
at these centres.

The Dispersed Plan proposes retailing opportunities in
Tuggeranong and Gungahlin at a level comparable to the other towns,
thereby improving residents’ accessibility to retail opportunities. The
development of the Tuggeranong Town Centre would reduce pressures
for the expansion of W'oden Town Centre whilst at the same time
assisting Civic’s metropolitan centre role. As a consequence the
Dispersed Plan is preferred.

The functional mix of stores at the Tuggeranong and Gungahlin
Town Centres is uncertain and will require further investigation.

The foregoing analysis is premised on factors such as the
population and employment distribution and the continuance of the

154

1980 per capita expenditure levels; and is subject to review as
circumstances change. It is indicative, however, of the floorspace and
trading levels supportable at the town centres.

Social and Community Facilities

Employment and retail opportunities are only two of the activities
provided at centres. Other facilities which cater for the social life of
the community and are of immediate importance to surburban
households are also located in centres; these include banks, post
offices, libraries, health services, laundries, hairdressers, repair
services, restaurants, coffee shops, clubs and a range of entertainment.
The vast majority of these facilities progressively occupy centres in
the new areas as space becomes available. Government services are
also provided in a similar manner. The Dispersed Plan, because of
its provision of town centres in Tuggeranong and Gungahlin, was
considered to make a greater range of opportunities available to
residents of those areas and therefore could achieve a more equitable
provision of social and community facilities to serve the total Canberra
community.

Su mm ary

In the centres evaluation both the Concentrated and Dispersed
Plans w^ere assessed to determine the performance in centres in terms
of development potential of the vacant land, the traffic capacity of
the arterial roads accessing the centre, maintaining an effective urban
structure, retail performance and the provision of a wide range of
social and community facilities.

The conclusion that w^as drawn from the evaluation was that the
existing centres could accommodate the level of development proposed
in the Dispersed Plan. However, Civic was found to be approaching
thresholds which would be costly to overcome. It was estimated that,
at the three existing centres, between 3 000 and 11 000 spaces would
be needed in car parking structures at a cost of S20-S70 million
(Table 84).

Table 84 Summary of Total Car Parking Requirements in Town Centres (1)

Concentrated Plan Dispersed Plan

Number of Spaces

15% Mode Split

30% Mode Split

15% Mode Split

30% Mode Split

in Structures

28 000

15 500

11 100

3 200

Cost of Structures ($ millions)

(1) Excludes Woden East.

170

100

In contrast, the Concentrated Plan was assessed to require between
15 000 and 28 000 car parking spaces in structures at a cost of
$ 100-S170 million. Because Woden and Civic were not designed for
the levels of employment proposed in the Concentrated Plan, both
centres would require major additions to their road networks.

The arterial road system in Civic would require one or both of
the arterial by-pass routes envisaged in the 1962 Plan and major
improvements to the internal distributor road system. Bus-only lanes
would be essential as well as an extension of the bus interchange.

In Woden Town Centre, Hindmarsh Drive would need grade
separation from Ainsworth Street to Melrose Drive inclusive.

The Dispersed Plan was considered preferable from the overall
viewpoint of the provision of retail floorspace and social and
community facilities as residents in both Tuggeranong and Gungahlin

155

would have better accessibility to these facilities. It would also relieve
pressure on Woden Town Centre to expand, and prevent intrusions
into Civic Centre’s market area. The Dispersed Plan would also enable
the continuation of the efficient urban structure already developed
in Canberra.

156

Aims Achievement Evaluation

The level and distribution of benefits and costs differ between the
Concentrated and Dispersed Plans. They have different impacts on
the achievement of the aims of the plan: image, social and economic
need, environment, choice, conservation, movement, flexibility, and
implementation. This section reviews the performance of the
alternative plan options in relation to these aims.

Image

Each Plan would maintain Canberra’s landscape character by
limiting development on the hills and ridges, by maintaining and
developing the National Capital Open Space System, and through
other design elements, such as the limitation of building height in Civic
Centre.

The potential impacts of the Plans differ in the implications of
their prospective employment distributions on the amenity of the
Central Area. The Concentrated Plan, due to its higher employment
levels in Parkes/Barton and Civic, would result in greater traffic
intrusion into residential streets, greater amounts of land being re¬
quired for parking, higher traffic volumes and deterioration in air
quality in the Central Area. The Dispersed Plan is more likely to be
supportive of Canberra’s role as the National Capital.

Social and Economic Need

The key metropolitan planning function is to determine the best
arrangement of activities and population subject to the constraints
facing the Commission. A metropolitan plan works within parameters
set by population and labourforce projections, although sensitivity
to different growth rates is continually monitored. The plan’s primary
concern is not w ith issues such as the widening of Canberra’s economic
base or the social and economic consequences of unemployment,
although these are fundamental considerations related to the future
growth of Canberra.

The economic implications of alternative plan forms relate to
factors such as the level of investment required to implement the plan
and the on-going costs of operating the City, including car parking,
roads, operating the public transport system, land servicing,
commercial developments and the ability of businesses to remain
viable.

Social implications include considerations of the lengths and costs
of journeys to work, school, shops, recreation and community
facilities, and housing choice and cost.

The transportation testing indicated that the Dispersed Plan would
require low'er levels of road, car parking and public transport invest¬
ment. As the settlement pattern was assumed to be the same for both
the Concentrated and Dispersed Plans, the land servicing and house
construction costs would be similar for both plan options. As there
is insufficient time to develop Gungahlin prior to the development
of Lanyon (under the population growth parameters of the report),
the economic and financial costs of different phasing options were
not considered to be relevant to the analysis. In terms of centres
development, the costs of developing Tuggeranong and Gungahlin
Town Centres would be less than that imposed by the expansion of
Civic, Woden and Belconnen envisaged under the Concentrated Plan.

The Concentrated Plan might be expected to confer benefits
primarily on:

• developers and lessees of existing centres, w ho would benefit from

the restriction of retailing and commercial opportunities in

Tuggeranong and Gungahlin

157

• developers and lessees of the district centres in Tuggeranong and
Gungahlin through the lack of shopping choice and competition
in these districts

• property owners in the existing towns, whose land values would
be increased by the expansion ot Civic Centre and the existing town
centres.

One often suggested benefit ot the concentration ot employment
and retailing is the development of a more ‘vital’ city centre. However,
the simple employment expansion ot Civic from 16 000 to 35 000
under the Concentrated Plan, would not, by itself, establish a more
‘vital’ city. This employment expansion would assist Civic retailers
by about $30 million per annum by the 408 000 Canberra/Queanbeyan
population level. The ‘out ot hours demand tor Civic services and
facilities is conditioned by the quality and variety ot services Civic
offers. These are not simply a function of employment. Increased land
values in Civic under the Concentrated Plan would place pressures
on lower rent activities to relocate, many ot which, such as restaurants,
clubs and bookstores, give centres the diversity and urbanity many
people desire. These activities would have greater opportunities for
location in Civic under the Dispersed Plan, as a result ot the lower
pressure on land values.

Civic is the most central of the town centres to the Canberra/
Queanbeyan population ot 408 000. As such, it has the capacity to
cater for demands that cannot be met by individual town markets.
Under both the Concentrated and the Dispersed Plans, Civic is seen
as the tourist, cultural and entertainment centre of Canberra.

The Dispersed Plan's advantages include:

• Higher Self-Containment

The establishment of town centres in Gungahlin and Tuggeranong
would provide greater equality of access to shops, employment,
recreation and community facilities across the metropolitan area.
Opportunities are also provided to residents ot these districts to
work, shop and recreate in the towns in which they live. The
benefits of the Dispersed Plan are reflected by the degree of self¬
containment.

During the morning peak, the level of self-containment (the
proportion of trips which start and finish in the same town) in
Tuggeranong and Gungahlin would improve substantially under
the Dispersed Plan. In the Concentrated Plan, the level of self¬
containment in Tuggeranong is 21 per cent and in Gungahlin
22 per cent. The self-containment rate increases to 41 per cent and
35 per cent respectively under the Dispersed Plan. Higher rates
of self-containment reduce the level of road capacity required.

Particularly needy groups, such as the unemployed and those
without access to a car, would have better access to facilities in
terms of both time and cost under the Dispersed Plan. (The
particular needs of sub-groups such as government housing
tenants, the aged, and the disabled are considered largely through
the siting of their housing, which is more a local planning concern.
However, they would all benefit by having better accessibility to
town centre facilities).

• Lower Average Travel Costs

Under the Concentrated Plan, average trip cost in the morning
peak hour is 24 per cent higher than the average existing trip cost,
while the Dispersed Plan’s average trip cost is 11 per cent higher.
Under the Concentrated Plan, Tuggeranong residents’ average
morning peak-hour trip cost is 76 per cent higher than the current
average morning peak cost, and under the Dispersed Plan 40 per
cent higher. The relative impact of each plan option by district
is shown in Table 85.

Average travel costs in the morning peak hour in Inner Canberra,
Woden and Belconnen rise in both plan options as a result of

158

Table 85 Relative Trip Costs

Existing

Concentrated

Dispersed

(1982)

Plan

North Canberra

South Canberra

122

Woden-Weston Creek

102

115

106

Belconnen

140

123

Tuggeranong

135

176

140

Gungahlin

121

140

125

Canberra Average

100

124

111

increased congestion, although this is more pronounced in the
Concentrated Plan.

• More Equitable Distribution of Land Values

Property owners in Tuggeranong and Gungahlin would receive
benefits, in terms of increased land values through their proximity
to urban opportunities. There is greater equality of benefit under
the Dispersed Plan.

The Concentrated Plan would have major impacts on residential
amenity in areas surrounding Civic. A large Civic is more likely
to result in higher levels of intrusion by non-residential activities.
This intrusion would have the effect of increasing land values, and,
through them, property prices and rates. This would work to the
detriment of aged owners in meeting their rates and lower income
groups, who could not afford to live close to the amenities and
employment opportunities that Civic would offer. They would be
forced to locate in areas of lower accessibility.

Land values in parts of Woden and Belconnen would similarly
rise, but not to the same extent as in the Central Area. The net
result of the intrusion of non-residential uses would be a reduction
in the population dependent on Civic for shopping and other
facilities, contrary to the aim of assisting the development of a
‘vital’ Civic.

A ‘large’ Civic would result in substantial traffic intrusion through
residential streets and significant deterioration of the environment.
Employment concentration in Civic could result in high parking
intrusion in areas such as Reid and Braddon, if the parking
structures required were not provided, or if there were resistance
to the parking charges imposed.

Environment

Ecological Resources

Because development in Gungahlin and south-eastern
Tuggeranong is common to both the Concentrated and Dispersed
Plans, there are no major differences between the options, in terms
of the impact on ecological resources, open space and recreation areas,
or the viability of rural land use. However, the implications of
development in both areas will need to be given due consideration
during planning, design and construction so as to minimise the impact
on soil erosion, drainage systems, sites of ecological significance,
recreation resources, rural productivity and management of open
space.

These issues are of greatest concern with regard to the impact of
peripheral parkways and arterial roads. It is also apparent that the
environmental impact of development in south-eastern Tuggeranong
will be greater than in Gungahlin largely because of the presence of
(he Murrumbidgee River and large open space and rural areas
surrounding the new town area.

The most significant differences between the Concentrated and
Dispersed Plans in environmental terms relate to the impact on the

159

existing environment of Canberra, particularly with iegaid to noise
and air quality. Noise impacts are discussed later in this section. The
Transport Evaluation indicated that the Dispersed Plan would offer
advantages over the Concentrated Plan, in reducing the concentrations
of air pollutants in certain parts of Canberra. An air quality modelling
technique is currently being used to predict future concentrations of
carbon monoxide throughout the urban area.

Open Space and Recreational Use

Differences in the two plan options are apparent with regard to
the pressure of increased recreational use on local resources. However,
this pressure is likely to be inevitable for either Plan, with the location
rather than the magnitude ot the problem being different in each.
There is scope for minimising the impact ot increased recreation
pressure during the planning process.

The major difference between the plan options relates to the
implications for recreational use in the vicinity ot major employment
areas. In the Concentrated Plan, the intensification ot employment
in Civic would increase the pressure on recreation resources around
the Lake Burley Griffin foreshores. These resources are currently not
developed to a sufficient extent to accommodate this increased usage
and further intensive recreation facilities (tor example, similar to
Weston Park) may be needed, perhaps in the Acton Peninsula and
Ferry Terminal areas.

The requirement for a third lake crossing in the Concentrated Plan
would also have a detrimental effect on the recreational resources of
Black Mountain Peninsula, Lake Burley Griffin and parts of
Yarralumla.

Noise Impacts

Adverse impacts resulting from both the Concentrated and the
Dispersed Plans, include the following:

• Ainslie Avenue - potential problem area as a result of Monash
Drive with possible noise impacts in Ainslie, Reid and Braddon

• Limestone Avenue - noise guidelines will be exceeded

• Majura Avenue - noise guidelines will be exceeded

• Northbourne Avenue - noise guidelines will be exceeded at several
points

• Lyneham - the impact on this suburb will depend on the eventual
location and design of John Dedman Drive/Arterial. For example,
if traffic is allowed to pass through Lyneham, the residential
environment will be detrimentally affected

• Hindmarsh Drive - potential problem at several points, particularly
between Melrose Drive and Launceston Street

• Deakin/Forrest/Griffith - traffic could create problems within
these suburbs.

Adverse impacts peculiar to the Concentrated Plan include:

• Antill Street - existing problem likely to be aggravated

• Wakefield Avenue - potential problem created

• Yarralumla - potential problem created by dramatic change in
traffic patterns through this area

• Turner - existing problem aggravated and further potential
problems created by third lake crossing encouraging traffic on
Barry Drive.

No adverse impacts w'ere identified which were peculiar to the
Dispersed Plan.

160

Improvements resulting from both Plans were considered to be
of a minimal nature and did not appear to favour any particular
option.

In summary, on a comparative basis, the Concentrated Plan would
have a marginally greater impact, notably in the Yarralumla area and
in North Canberra along Antill Street, Wakefield Avenue and Barry
Drive.

Both plan options would significantly increase traffic noise in the
inner city suburbs of Braddon and Reid, particularly along Limestone
Avenue. The Concentrated Plan would result in a less satisfactory
overall residential noise environment than the Dispersed Plan.

Within the general framework of the plan options presented, it
will be necessary to explore more detailed traffic management options
which will alleviate the existing and potential traffic noise problems.

Water Resources

An evaluation of the two options was carried out to determine
their implications for the augmentation and extension of hydraulic
infrastructure, and for water uses.

Hydraulic Infrastructure

Water Supply Management

The population projections indicate that there will be a need to
augment water supply headworks during the plan period. It is possible
that the next stage may be a further development within the Cotter
catchment, rather than the construction of Tennent Reservoir. Given
the lower growth rates, the adoption of second class water supply
systems becomes more economically attractive.

The major infrastructure components will comprise:

• construction of the Googong Link Main to Tuggeranong

• extension of the Tuggeranong bulk supply system

• construction of the Spence to Hall bulk supply main, and extension
of bulk supply into Gungahlin

• extension of the Googong main from Campbell to Hackett and
north-east Gungahlin

• construction of Stage 2 of the Googong Water Treatment Plant

• upgrading of the Mount Stromlo Water Treatment Plant.

Wastewater Management

The population projections indicate that there will be a need to
augment the capacity of the Lower Molonglo Water Quality Control
Centre during the plan period. Experience gained during the
commissioning of the plant indicates that the standards adopted in
1971 are appropriate to the protection of downstream waters. The
high cost of high-quality treatment can be offset to some extent by
utilising economies of scale available with the augmentation of the
existing plant. Augmentation also provides an opportunity to
incorporate the benefit of advances in wastewater treatment design
since the early 1970s.

The Main Outfall Sewer, a tunnel constructed in 1918, has been
operating under surcharge conditions for some years. In the interest
of safety of the structure, and in view of a portion of Gungahlin falling
into the Main Outfall Sewer catchment, augmentation of this structure
will be required.

The extension of trunk sewers will be required in Tuggeranong
(Lanyon Trunk Sewer) and Gungahlin (Ginninderra Trunk Sewer,
Sullivans Creek Trunk Sewer) to service the new urban areas.

161

Surface Water Management .

The development of new urban areas requires the installation ot
systems for managing runoff from these areas consistent with the
protection of life, property and urban amenity. Since the 1970s, there
has been a shift to incorporating waterways into the urban environment
as an integral part of the open space system, such that the construction
of water pollution control ponds must respond to recreational and
aesthetic criteria as well as to technical criteria.

The water quality evaluation has indicated the importance ot
containing urban runoff pollutants in order to protect the water qualit\
and recreational amenity of the Murrumbidgee River and Lake
Ginninderra. The construction ot Village Creek Weir, the
Tuggeranong water feature, and ot a water pollution control pond
at Point Hut would be required in ruggeranong to protect the
Murrumbidgee River.

Water quality analysis ot proposals tor Lake Tuggeranong has
indicated that the lake water quality will tall short ot a standard
appropriate to a range of recreational uses. Means ot resolving this
problem are currently under study.

The construction of the Stranger Creek and Point Hut C reek Main
Drains will be required to service new urban areas.

In the case of Gungahlin, it is proposed to retain, as tar as is
practicable, the natural drainage system as the principal mechanism
for containing urban runoff pollutants. The assimilative capacity ot
these systems will be augmented by the incorporation ot a number
of wetlands or control ponds into the drainage system. The
effectiveness of these systems in containing urban runoff pollutants
will be dependent on the extent to which peaks in runoft can be
minimised. The retention of natural depressions, the adoption ot
indirect drainage and the avoidance ot development on unsuitable soils
are some of the techniques that may be employed to minimise peaks
in runoff.

W ater Use Implications

The options, incorporating the water supply, wastewater and
surface water management assumptions identified earlier, were
analysed by means of the Streamflow, Riverwater Quality, River
Macrophyte, and Lake Loading Models.

With the construction of Village Creek Weir and the lake in
Tuggeranong, the analysis indicated that there will be a significant
improvement in the water quality of the Murrumbidgee River
downstream of the Tuggeranong Creek confluence. The diversion of
Stranger Creek to Tuggeranong Creek will avoid the discharge of
urban runoff at Pine Island. An increase in the incidence of
macrophytes and occasional bacteriological pollution will occur
downstream of Point Hut Creek, although generally water quality
will be well within primary contact (swimming) standards.

It is estimated that the drainage provisions in Gungahlin (retention
of natural channels, incorporation of wetlands, constraints on urban
form) will limit the additional nutrient loading on Lake Ginninderra
to 30 per cent, while reducing the hydraulic retention time by 20 per
cent. The Lake Loading Model indicated that the net effect of these
changes will be a 5 per cent increase in algal levels.

As a result of increased use of Googong Reservoir for water supply
purposes, and further urban development (portion of Gungahlin) in
the catchment, there will be a marginal increase in algal levels (10 per
cent) in Lake Burley Griffin. However, the Lake Loading Model
indicated that this increase will be more than offset by the reduced
discharge of nutrients in sewage effluent following the upgrading of
the Queanbeyan Sewage Treatment Works.

162

Choice

The Dispersed Plan would provide greater choice within the urban
area as it involves establishing town centres in both Tuggeranong and
Gungahlin and the employment, retail and community facilities this
would entail.

The Dispersed Plan would produce relatively lower pressures on
land prices surrounding Civic and the town centres. As such, it would
allow greater access to housing near these centres than the
Concentrated Plan.

As the settlement sequence was assumed to be the same for the
two plan options, the level of choice in new housing areas would be
largely the same. In the next few years, there will be some choice
between Tuggeranong, Belconnen and Woden-Weston Creek. There
will be a period, though, where housing choice for new standard
dwellings will be restricted to Tuggeranong. New' medium-density
dwellings will, however, be available in a number of towms throughout
the plan period, either through development of vacant sites or through
redevelopment. Redevelopment is likely to be greater under the
Concentrated Plan, as a result of the employment distribution.

Conservation

As the settlement pattern is the same for the two plan options,
the impacts on the natural and rural areas and river systems would
be similar. In relation to the man-made environment the higher
employment levels in Civic are likely to result in greater urban change
pressures in Inner Canberra. As a result, the Concentrated Plan would
pose a greater threat to the conservation of Canberra’s heritage.

Flexibility

A metropolitan plan requires the capacity to be able to respond
to different rates of growth, and other changes in the social, political
and economic environments. In Canberra, the level of growth has
varied from about 11 000 per annum in the early to mid 1970s to 3 300
per annum in 1980-81. A drop in the rates of population increase
affects the demand for land, housing, education facilities and retail
floorspace. As Canberra’s economy is likely to continue to be
dominated by the government sector, it will continue to be susceptible
to changes in government policy.

Possible changes w'hich might influence the implementation of the
metropolitan plan include:

• variations in rates of growth

• limited funding

• increased energy prices

• ACT self-government.

Variations in Rates of Growth

Slower rates of growth extend the time period over which a plan
is implemented. The longer the plan period, the more likely are
deviations from the assumptions underlying the plan.

The level of growth influences the timing of employment dispersal
and the decision as to whether Lanyon or Gungahlin should follow
the development of North-East Tuggeranong. If Canberra grows at
the rate of natural increase, the 1991 population would be 257 500,
the workforce about 117 200 and the number of Public Service Act
(PSA) office users 35 900. Settlement in North-East Tuggeranong
(including the Town Spine) would not be completed until about 1995.

In this scenario, the establishment of an office employment centre
in Tuggeranong would be delayed until after 1991. Between 1983 and

163

1991, PSA office employment would grow by only 3 300, all of which
would occur at existing centres. Between 1991 and 2001, PSA office
employment would grow by 3 600, allowing some discretion to
establish an office centre in Tuggeranong.

Under conditions of slower growth, the development of Gungahlin
could proceed before development of Lanyon. Under the
Concentrated Plan, this would result in transport advantages to
Gungahlin as it is more accessible than Lanyon to the proposed
employment centres. The development of Gungahlin prior to Lanyon
would, however, require the earlier committal ol investment.

A slower growth rate would not preclude the development of town
centres in Tuggeranong and Gungahlin. A 1 uggeranong population
of 89 000 would be able to support retail floorspace in the order of
50 000m : at the town centre, and the level of employment distributed
to the centres could be as great, though over a longer time period.

Regardless of the rates of growth, the transport and social
consequences of alternative land use distributions would still be felt.

Limited Funding from Government

The metropolitan plan requires substantial investment by the public
and private sectors for its implementation. I he Dispersed Plan requires
lower levels of infrastructure investment by the Commonwealth
Government and assists in reducing its operational costs. As the total
amount of office, retail, housing, industrial and residential land
development is assumed to be the same tor the two plan options, the
level of investment by the private sector required is likely to be similar
for both the Concentrated and Dispersed Plans. A possible exception
may be in the development of office space. II the government decides
that the private sector should construct offices, the private sector
would prefer to build at existing centres, particularly Civic, as they
are proven investment locations. For the private sector to construct
offices for government tenancy in Tuggeranong and Gungahlin,
assurances concerning occupancy may need to be given. They would
be assisted by the likely lower costs of office sites in the new towns.

Adoption of the Concentrated Plan could result in major phasing
difficulties in periods of government expenditure restraint. Failure
to provide the road and car parking capacity required would result
in increased lengths and costs of journeys to work, higher energy
usage, air pollution, and increased parking intrusion in residential
streets, particularly near Civic.

Increased Energy Costs

The Dispersed Plan is likely to be able to cope better with increases
in energy costs than the Concentrated Plan. This is because the
establishment of town centres in Tuggeranong and Gungahlin would
provide opportunities for the residents of these districts to have shorter
journeys to work, comparison shopping and community facilities.
Higher levels cf self-containment result in shorter distances for the
movement of people and goods.

The Dispersed Plan would allow the efficient servicing of these
nodes by public transport, thereby minimising some of the costs
associated with the suburbanisation of employment in other cities.

ACT Self-Government

The nature and form of self-government for the ACT is yet to
be determined. No matter what the nature of self-government, the
economic, social and transport impacts of the Concentrated and
Dispersed Plans would remain. Whether self-government w'ould result
in a greater or lesser likelihood of implementing a plan cannot be

164

known, as it would depend on the values and opinions of the
representatives eleeted and the financial arrangements under which
self-government occurs.

Implementation

Employment

The implementation of the Dispersed Plan is likely to rely on the
ability of the Commission to disperse Public Service Act (PSA) office
employment to the new towns, and the overall growth in PSA office
employment. It is considered that the opportunities to direct other
government employment to the new towns will be limited, and that
the private sector employment attracted will be related to serving the
needs of the town populations. If opportunities to disperse employment
in these other employment sectors do arise, however, the ability to
implement the Dispersed Plan will increase.

The establishment of the Woden and Belconnen Town Centres
relied on the dispersal of PSA office employment. At March 1983,
PSA office employment at these centres totalled 9 700, about 30 per
cent of the total PSA office employment in the ACT. Between 1968
(when the first offices at the Woden Town Centre were occupied) and
1983, the number of PSA office users increased from 15 000 to 32 600.
Woden and Belconnen Town Centres were able to attract 55 per cent
of this growth.

Within the plan period, PSA office employment is likely to increase
by 20 300. If the Tuggeranong and Gungahlin Town Centres attained
a 55 per cent share of growth, as did Woden and Belconnen Town
Centres between 1968 and 1983, PSA office employment in these
centres would be 11 200 (Table 86).

Table 86 Growth in Public Service Act Employment 1968-2003

June 1968
March 1983
June 1986
June 1991
June 2001
June 2003

PSA

Employment

17 700
38 800
40 800
47 900
59 900
62 200

PSA Office
Users

15 000
32 600
34 700
40 700
50 900
52 900

At June 1981, approximately 50 per cent of employment at the
Woden Town Centre, and 60 per cent of employment at the Belconnen
Town Centre, w^as comprised of PSA office users. Applying the
Woden relationship of PSA office employment to other employment
(as Woden represents a more mature town centre structure), employ¬
ment at the Tuggeranong and Gungahlin Town Centres would be
22 400.

To achieve the employment levels for Tuggeranong and Gungahlin
Town Centres in the Dispersed Plan, 13 000 PSA jobs or 64 per cent
of PSA office expansion in the plan period, would need to be
dispersed. This appears optimistic, having regard to what has been
achieved at the Woden and Belconnen Town Centres, and the nature
of office growth. The office growth that eventuates is likely to occur
through the expansion of existing departments rather than through
the creation of new departments. Office expansion in the Woden and
Belconnen Town Centres has been assisted by each centre being
identified for functional groupings of departments, e.g. soeial w elfare
departments at Woden and technical departments at Belconnen. If
the departments at Woden and Belconnen grew at the average rate

165

of expansion of the Public Service in the plan period, their o11ice
employment would expand by 6 100. An overspill from these centres
would clearly not achieve the dispersal necessary.

A factor contributing to the demand lor new otlice buildings is
space per worker. Between 1969 and March 1983 rentable floorspace
per PSA office user increased from ll./m to 16.7nr . This trend
towards increasing space per worker may assist the dispersal ot
employment.

The Dispersed Plan assumes that government employment can be
further dispersed in Canberra without detriment to the administrative
efficiency of the Public Service. Further consultation will need to be
undertaken in this regard. It is conceivable that the internal efficiency
of departments could be improved under the Dispersed Plan, it the
establishment of new town centres enabled an entire department to
be sited at the one complex. Dispersal could possibly reduce the
external efficiency of departments. However, the increasing develop¬
ment of communications technology, reducing the need toi face to
face contact, may counteract possible disadvantages ot dispersal. It
should be remembered that the travelling times to the 4 uggeranong
and Gungahlin Town Centres from the Central Area will be in the
order of 15-20 minutes. They will be approximately 40 minutes travel
time from each other, however. The departments located in
Tugeeranong and Gungahlin Town C entres could be based on a degree
of contact with the departments located at the adjacent town centre,
in which case, the travelling time would be in the order ot 10 minutes.

For the private sector, both plan options offer the opportunity
for substantial investments in retail, office and other facilities. Civic
is currently the preferred location for private enterprise office invest¬
ment. The construction of offices in Tuggeranong and Gungahlin
could be undertaken either by the private or government sector. The
private sector would require an occupancy guarantee, it it was to
undertake construction of offices in these locations.

The timing of the dispersal of employment is also important, as
it affects the degree of self-containment. Tuggeranong’s development
will be substantially complete by 1990. It is desirable that employ¬
ment opportunities be available within Tuggeranong by this time, on
both transport and social equity grounds. It is apparent there is little
scope for office employment dispersal before 1986, given the
commitments in Civic, and the level ot growth forecast. For many
of the benefits of the Dispersed Plan to be achieved, major office
dispersal to Tuggeranong needs to take place between 1986 and 1991.
Similarly, in Gungahlin, the better the co-ordination between
population and employment, the greater the level of self-containment
is likely to be.

The Concentrated Plan may be easier to implement. The existing
nodes meet the current locational preference for the Department of
Administrative Services, the various government departments and the
private sector. Agreement to expansion within these nodes would not
be difficult to achieve. Civic would grow through it being the location
of most of the private sector office construction; Russell/Campbell
Park through defence department expansion; Parkes/Barton through
expansion of the key policy departments; and Belconnen and Woden
through the growth of departments at those nodes. Despite its possible
ease of implementation in the short term, a disadvantage of the
Concentrated Plan is the higher level of investment required for its
implementation.

Having regard to the advantages offered by the Dispersed Plan,
the Commission intends to advocate strongly to government and
private sector decision makers that the overall well-being of the City
outweighs any perceived administrative inconvenience in its adoption.

166

Public and Political Acceptance

Parts of the private sector may be more inclined to support the
Concentrated Plan on the grounds that it:

• proposes major employment expansion in Civic Centre which
would increase land values in the centre, the main location of
private office investment in Canberra

• proposes expansion of retailing and employment in the Woden
and Belconnen Town Centres, which would similarly provide
benefits to existing developers and lessees.

Residents of Tuggeranong and Gungahlin will probably support
the Dispersed Plan as the establishment of town centres in these
districts would provide them with improved accessibility to work,
shops and other opportunities, and would enhance their housing
investment.

Political acceptance of the Dispersed Plan would be assisted by
the lower levels of government investment necessary.

Summary

On the basis of the aims set for the metropolitan plan, the Dispersed
Plan is preferable to the Concentrated Plan. It would better protect
the image of Canberra by its lower level of employment and traffic
impact in the Central Area; it requires lower levels of investment in
roads, car parking and public transport; lower levels of employment
at Civic Centre, Woden Town Centre and Belconnen Town Centre
would result in better air quality; and greater choice is available
through the establishment of town centres in Tuggeranong and
Gungahlin. The Dispersed Plan, by encouraging higher levels of self¬
containment would reduce the levels of movement within the
metropolitan area. The Plan implies a more equal distribution of
opportunities over the metropolitan area; would result in a more
equitable distribution of land values; and would better protect the
residential amenity of Inner Canberra residents by lowering urban
change pressures and the extent of traffic and parking intrusion.

The advantages of the Dispersed Plan, in relation to flexibility and
implementation, are not as clear cut. The Dispersed Plan better reflects
the plan form that is emerging in major cities, where regional centres
are being established. This form is likely to be better able to cater
for possible energy shortages, as it places employment opportunities
closer to home, and at centres capable of being efficiently served by
public transport. In the eventuality of lower growth, there is likely
to be pressures to consolidate development at existing centres,
although the costs to the residents of Tuggeranong and Gungahlin
and to the Commonwealth, would rise with greater imbalance between
settlement and employment expansion. In terms of plan implement¬
ation, the Dispersed Plan requires greater co-operation of the private
sector, the Department of Administrative Services and other
government departments, as the Concentrated Plan better meets their
current locational preferences. These important decision makers need
to be convinced of the merits of the Dispersed Plan, not just in the
lower investment levels required by the Commonwealth, but also in
the opportunities it provides to both the private sector and government
administration.

The plan forms are not neutral in their impact. The Concentrated
Plan would impose higher transport and social costs, particular^ on
the residents of Tuggeranong and Gungahlin and would require higher
levels of government investment in terms of roads, car parking and
public transport. It is more restrictive on the housing choice of people
on low' incomes, as a result of its impact on land values.

167

The Commission believes that the Dispersed Plan better meets the
aims set for the Metropolitan Plan, being more efficient in transpoi-
tation terms and providing greater equality of access across the
metropolitan area.

168

The Preferred Plan

The testing of the Concentrated and Dispersed Plans assumed that
the minimum size of the Erindale Centre would be as outlined in the
Erindale Centre Development Plan (November 1982).

Consequently, Erindale was tested at 14 OOOnr under the Dispersed
Plan. Since the testing was undertaken the Commission has reviewed
its planning for Tuggeranong and it is now considered that 4 000m
of retail floorspace is the appropriate size for the centre. The reasons
for the change in size of the centre are as follows:

• the Erindale Centre Development Plan assumed the development
of Tuggeranong would cease at 60 000 population, at which time
the development front would move to Gungahlin. The development
of Tuggeranong is now to proceed to a population of approximately
90 000

• as a consequence of the additional population, the demand for retail
and community facilities and the need for employment in
Tuggeranong will be greater. This will require the earlier provision
of Tuggeranong Town Centre

• the Canberra Commercial Development Authority (CCDA), which
had been given the responsibility of developing the Erindale Centre
to 14 000m 2 of retail floorspace, proposed that the centre be
expanded to 24 000m 2 . A centre of this increased size would result
in major traffic intrusion on residential streets surrounding the
centre

• the Erindale site is of insufficient area to cater for the community,
office and other uses generated by a Tuggeranong of 90 000
population. The Tuggeranong Town Centre site has the necessary
capacity and is better located to serve the future population of
90 000, with Drakeford, Athllon, Isabella and Erindale Drives
focusing on the site

• the co-location of offices, retailing and other uses on the one site
has several major advantages including easier servicing by public
transport, shared use of facilities such as car parking, and the
creation of a focus for the town. In addition, several activities
mutually support one another e.g. office workers support retail
stores

• the restriction of Erindale to 4 000m ; of retail floorspace would
increase the viability of a retail release at the Tuggeranong Town
Centre and allow' major comparison retailing opportunities to be
consolidated at the centre

The proposed reduction of the size of Erindale has minimal impact
on the results of the testing described earlier in this Chapter. The key
element in the transport testing was the distribution of employment.
The reduction in Erindale’s retail component to 4 OOOnr' will mean that
the level of complementary uses located at the centre will also be
reduced. In total, the employment at the centre could be reduced to
about 700 which is approximately 1 OCX) less than assumed in the testing.
This is not substantial in terms of trip generation on the metropolitan
road network. As such, no re-testing was considered necessary as a
result of the changed size of the Erindale Centre.

The testing of the Concentrated and Dispersed Plans confirmed that
large volume vehicular traffic should continue to be carried on a
peripheral parkway system. However, the analysis carried out in this
and other studies has revealed a need to provide better accessibility
from the parkway system to the Central Area. Consequently, the
proposed alignment of Monash Drive/Eastern Parkway has been
modified from the alignment assumed in the testing, to pass closer to
the Central Area without compromising its ability to carry by-passing
traffic.

169

Direct connection to the Central Area is considered vital to avoid
overloading of Northbourne Avenue with traffic from Gungahlin and
the consequent degradation ot residential amenity in North Canberra
which would occur as ‘rat-runs’ developed through the suburbs. By
making the new road system more attractive than the existing North
Canberra network, these problems can be avoided, and the potential
for improved public transport operations on Northbourne Avenue can
be retained.

The evaluation of the Concentrated and Dispersed Plans clearly
shows the benefits of decentralising employment opportunities and retail
floorspace, although the ability ot the Commission to obtain the
benefits of the Dispersed Plan will depend on the co-operation ol
government authorities, the private sector and community groups.

Given the constraints outlined earlier in regard to implementation,
it may be difficult to fully achieve the Dispersed Plan. In view ol the
complexity in establishing employment in new centres, precise
employment figures cannot be specified. Having regard to the level ot
employment dispersal the Commission was able to achieve between 1968
and 1983 at the Woden and Belconnen Town Centres, the nature of
office growth and other activities which have been located at town
centres, the most likely range of employment located at major nodes
at the end of the plan period could be as shown in Table 87.

Table 87 Planned Employment Levels at Major Nodes

25 000 - 27 000
15 000 - 18 000

11 000 - 13 000
13 000 - 15 000

12 000 - 17 000
7 000 - 12 000

Civic Centre
Parkes/ Barton
Woden Town Centre
Belconnen Town Centre
Tuggeranong Town Centre
Gungahlin Town Centre

This range of employment is based on the Dispersed Plan but also
assumes a lower level of decentralisation which has been broadly
assessed as workable even though less efficient.

The Commission will endeavour to achieve a high level of employ¬
ment dispersal to the new towns, in order to improve the functioning
of the City, to reduce traffic congestion and to ensure that all residents
are within a reasonable distance of an appropriate range of facilities.
Generally, the greater amount of dispersal achieved, particularly to
Tuggeranong Town Centre, the greater the potential benefits will be
in relation to avoiding congestion, long journeys to work and adverse
environmental effects.

170

Chapter 6

Policy Plan

Introduction

Policy Plans comprise statements of planning objectives and
policies. The purpose of a Policy Plan is to focus attention on the
Commission’s intention to initiate, encourage or control land use
changes in an area.

The Metropolitan Policy Plan describes the Commission’s adopted
land settlement strategy and relevant town planning objectives and
policies for the whole of Metropolitan Canberra. It describes how the
Commission envisages the long-term future development of Canberra.
Detailed proposals, with particular emphasis on the planning and
design of public facilities, are shown on local Policy Plans prepared
as required, and either published or made available for inspection at
the NCDC offices.

The policies of the Plan are described in two parts. The first relates
to the policy intent with respect to the urban structure of the City,
and the second to those subjects of the Plan which require more detailed
explanation.

Principles of Urban Structure

On the basis of the evaluation carried out and after consideration
of the public submissions on the 1980 Metropolitan Issues - Public
Discussion Paper , the Commission’s preterred metiopolitan suategv
is that which retains the basic principles and structure ot the \ -Plan,
with adjustments to the implementation strategy in ordei to enable
the principal components of the Plan - the towns, town centres and
transport system - to function more effectively.

The Metropolitan Policy Plan describes the Commission’s town
planning policies which will guide the tut lire development ot
Metropolitan Canberra. In order to meet future land use demands
and obtain a coherent urban structure, Canberra has been classified
into several land use categories, as indicated on the Policy Plan
(Figures 63 and 64). Essentially, they arc preferred dominant land use
activity areas. The main policies to guide the future urban structure
of Canberra are as follows.

• The Central Area

This is the heart of the National Capital, within which are located
the Parliamentary Zone, Civic Centre and the government o11ice
areas of Barton and Russell/Campbell Park. It contains the most
significant concentration of employment in Metropolitan
Canberra.

The Commission will continue to develop the Central Area to
accommodate functions related to Canberra’s role as the National
Capital and Seat of Government. Special regard will be given to
the quality of the overall environment and to transport and traffic
management.

The Parliamentary Zone is the national centre of the activities ot
Parliament, the Judiciary and Government, and is the focal point
of visitor interest in the National Capital. The Parliamentary Zone
accommodates significant national institutions and the key policy¬
making departments. The intention is that the Zone should be used
for Parliament blouse and its ancillary activities, for buildings to
accommodate functions specifically related to Parliament and the
executive branch of government, and for important national
institutions.

Civic Centre is Canberra’s principal administrative, financial and
commercial centre. It is intended that Civic will continue to be
developed as the Central Business District and administrative
centre of Metropolitan Canberra and will be encouraged to provide
for further specialisation of business, retailing and community
services.

• Town Centres

The existing town centres at Woden and Belconnen provide
community focal points for residents of their respective districts
and offer a wide range of employment, shopping, educational and
social opportunities. The previous hierarchy of town centres will
be maintained so that Tuggeranong and Gungahlin will each have
its own town centre containing high order retail, commercial and
office development. The future scale of provision of these facilities
will be related to the needs of the respective town catchments and
the planned metropolitan employment and retail system.

• Urban Areas

Urban areas have developed on a basis of discrete districts or
towns. An important planning objective is that each town should
be relatively self-contained in order to meet the needs of its
inhabitants in relation to employment, retail, service trades, leisure,
recreation and community facilities. Each urban district is generally
separated from the others by non-urban buffer zones of a
predominantly natural or rural landscape.

172

Future urban areas will continue to be developed in accordance
with this established pattern. Each residential community will
consist of about 4 000-5 000 people. This corresponds approxi¬
mately to the threshold needed to support a local school, shops
and other local community facilities.

Gungahlin, the next urban district to be developed will be planned
on the basis of this established pattern of development.

National Capital Open Space System

Selected areas of open space which are deemed to be of national
capital or regional significance will be designated as part of a
National Capital Open Space System. To this end, the hills and
ridges within and around the urban areas of Canberra are to be
kept free of urban development, both to act as a backdrop and
setting for the City and also to provide a means of separating and
defining the towns. Canberra’s lakes, foreshores and river
corridors constitute a diverse ecological, scenic and recreation
resource which also justifies preservation and reinforcement. These
areas, together with the mountain and forest areas west of the
Murrumbidgee River and other major open spaces, will comprise
the National Capital Open Space System.

It is proposed that the National Capital Open Space System will
be progressively built up as an entity which is comprehensively
planned, developed and administered. Its purpose is to meet the
growing needs of Canberra residents and tourists for recreational
and educational open space and to reinforce and enhance the
setting of the National Capital. The ultimate boundaries of the
system will only be established as local plans are progressively
finalised for the various separate parts of the system.

Preferred uses within the National Capital Open Space System are
uses associated with recreation, conservation and open space.
Other uses which may be located within the system include
forestry, agriculture, administrative and utility services, and special
developments associated with recreation and tourism. Community
facilities and minor retail uses may also be permitted where these
uses assist the functioning of recreation and tourism in the area.

The National Capital Open Space System also includes nature
reserves which are areas relatively undisturbed by man and possess¬
ing ecological and scenic value. They are managed with the aim
of maintaining and improving their existing quality and restricting
access and development to the minimum needed for educational
and scientific purposes and public appreciation. The intention is
to protect such reserves as natural resource areas for the existing
and future population of the National Capital and its visitors.

Major Roads

Large volume vehicular traffic between the towns will continue
to be carried on a peripheral parkway system. Movements between
adjacent towns, and between towns and the parkway system, will
be carried on the internal arterial road systems.

The intention is to extend and improve the metropolitan road
system, commensurate with the needs of the growing city. The
location of future roads shown on the Policy Plan will be subject
to future detailed engineering and environmental investigation in
order to determine their eventual alignment.

Inter-Town Public Transport Route

Public transport movements w ill be given priority right-of-way on
an internal spine system linking the town centres.

To this end, the Commission in conjunction with the Department
of Territories and Local Government w ill continue to investigate
routes for express inter-town buses, with a view to eventual
reservation of inter-town public transport routes. These routes will
provide access from each of the existing and proposed town centres
to the Central Area.

• Industrial Areas

Industrial areas catering for manufacturing, processing, storage,
regional service trades and public utilities are located at Fyshwick,
Mitchell and Hume. A special industrial area is located at Harman
for industries requiring a degree ot isolation. Land has also been
set aside at Bruce to establish a high quality, landscaped industrial
park for technological and science-based industries. This project
is referred to by the Canberra Development Board as the Canberra
Technology Park.

Another area at West Belconnen has been identified tot longer-
term industrial needs.

Industrial estates will continue to be located on the edge of urban
areas with direct access to the metropolitan arterial road network,
and in selected instances to railway and airport networks.

• Special Use Areas

These areas are used for national capital and metropolitian
functions and may also form part ot the butter zone between the
towns. Such functions include scientific and defence
establishments, racecourses, the National Exhibition Centre, the
Australian National University and the Canberra College of
Advanced Education. The principal special use areas are located
at Bruce, which already contains the National Sports Centre,
Calvary Hospital and the Bruce TATE College; and at West
Deakin, which contains the Royal Australian Mint, several
national association headquarters and secretariat buildings, and
the John James Hospital and Medical Centre, all located in a
predominantly landscaped setting. The intention is to maintain
these current special use areas and to provide others to meet the
needs of the future growth of the City.

• Airport/Railway Uses

The Airport and Railway Station are major metropolitan traffic
nodes, being principal arrival points for many visitors to the
National Capital. In addition, they are significant nodes for
Canberra’s metropolitan population seeking interstate travel links.
The intention is to upgrade their facilities progressively, in
accordance with future growth needs, ensuring that they are
appropriate to Canberra’s role as the National Capital.

• Rural and Non-Urban Areas

These include lands used for rural and broad-acre institutional
uses. The rural and non-urban areas form part of the buffer zone
between the towns and a land bank for future land use and activity
needs associated with the growth of the National Capital. Rural
uses comprise grazing, agriculture and forestry. Broad-acre
institutional uses include education, scientific and research
establishments, defence and communications establishments and
metropolitan public utilities. It is intended that rural lands will
continue to be used for rural activities, unless required for other
land use purposes associated with the growth of the National
Capital. Broad-acre institutional uses will be grouped together in
selected locations, in order to maintain the essential setting of the
National Capital and to provide an economic provision of services.

• Water Catciiment Areas

The primary purpose of water catchment areas is the efficient
harvesting and storage of rain to provide a reliable supply of water
which can be utilised with minimum treatment to provide safe
drinking water. Canberra’s water supply is currently drawn from
catchments on the Cotter and Queanbeyan Rivers. The intention
is to protect existing catchment areas. To ensure that Canberra’s
water supply can support future population growth, an additional
catchment area on the Naas-Gudgenby Rivers will be reserved.

National Capital Open Space System
- Major Roads
Special Use Areas
Rural and Non-Urban Areas
Water Catchment Areas
Urban Areas

02468 10km

Figure 63 Metropolitan Canberra

Policy Plan (ACT)

174

NSW

Principles of Urban Structure

The principal concepts of the Y-Plan which have been conf irmed

as those to guide metropolitan growth and development are as follows:

• The metropolitan growth of Canberra is based on the development
of separate urban districts or towns, in a linear arrangement in
the form of a t Y\ Each town is intended to be relatively self-
contained and provide for most of the needs of its residents
including employment, retail, community facilities, leisure and
recreation. Each town is separated from adjacent towns by hills,
ridges and other major open spaces.

• L arge volume vehicular traffic is carried on a peripheral park way
svstem, reducing the amount of traffic on the internal systems o f
the towns. A public transport right-of-way will be developed linking
the town centres on an internal spine.

Parliamentary Zone
Civic Centre/Existing Town Centres
Future Town Centres
Existing Urban Areas

Future Urban Areas

National Capital Open Space System

Major Roads

Inter-Town Public Transport Route
Existing Industrial Areas
Future Industrial Areas
Special Use Areas
Airport/Railway Uses

Rural and Non-Urban Areas

0 1 2 3 4 5 km

Figure 64 Metropolitan Canberra

Policy Plan (Urban Area)

176

Belconnen

Lake

mnmderrn

Canberra

Burley

Central

Woden

\Valley

Tuggeranong

NSW

J—i

Hall

Gungahlin

i r

Airport

Oaks

Estate

/Queanbevan

NSW

Tharwa

Subjects of the Plan

Introduction

This section deals with the key tunctional elements ol the Plan
which are regarded as crucial to its successful implementation and
which, therefore, require more detailed explanation. The subjects
covered are:

• National Works

• Employment

• Offices

• Industry

• Population, Land and Housing

• Retail

• Transport

• National Capital Open Space System

• Recreation and Tourism

• Community Facilities

• Urban Environment

• Rural and Non-Urban Areas

• Public Utilities

178

National Works

Background and Intent

The functional basis of Canberra is as the national legislative,
judicial, administrative, executive, ceremonial and symbolic centre
of the Nation. Standards of urban development will therefore be high,
befitting the National Capital function.

The National Capital role not only demands high environmental
and aesthetic standards, but also requires that national functions are
located where they may operate effectively and efficiently.

The need to preserve and develop the spatial structure of Canberra
conceived by Walter Burley Griffin led to the definition of the ‘Areas
of Special National Concern’. They comprise the Parliamentary Zone,
the Main Avenues and City Approach Routes, Lake Burley Griffin
and its foreshores, the prominent hills and the ancillary national areas.
All buildings, roads and landscape improvements within those areas
are given special attention and consideration in accordance with the
Commission’s Design and Siting Policies 1973.

Policy

National Capital Uses

In order to provide a strong physical structure to symbolise the
role of Canberra as the National Capital, major national uses with
strong relationships to Parliament will continue to be located in or
adjacent to the Parliamentary Zone while other National Capital uses
will be allocated other suitable prestigious locations.

The Parliamentary Zone

Preferred uses in the Parliamentary Zone are those that arise from
its role as the physical manifestation of Australian democratic govern¬
ment and as the home of the Nation’s most important cultural and
judicial institutions and symbols.

The intention is that the Zone should be used for Parliament House
and uses directly associated with Parliament. The highest standards
of architecture will apply to buildings in the Parliamentary Zone.

Diplomatic Missions

The Commission will identify sites in planned diplomatic areas
for all foreign governments seeking representation in Canberra.
Diplomatic areas will be established in places which are topographically
suitable, have a prestigious location, have good access to Parliament
House and other designated diplomatic precincts, and are appropriate
in relation to security considerations. Diplomatic areas will be planned
and designed in order to facilitate the development and maintenance
of a high quality character and setting.

National Associations

National associations will be encouraged to locate in Canberra,
through the supply of sites in desirable locations and appropriate
development conditions. Inner Canberra will continue to be the
preferred location for national associations.

179

Employment

Background and Intent

Employment, as a measure ot economic growth and change, is
a key factor in the future development of Canberra. The forecast ot
employment growth is a prime determinant ot the projected future
increase in population and, thus, of projected needs for housing and
other activities. The future distribution of employment, together with
the transport networks, will largely determine how well the
metropolitan system operates. The distribution ot employment in
accordance with the policies and development proposals ot the Plan
is therefore considered essential.

The policy for employment is intended to assist in protecting the
character of the Central Area from transport pressures that might
otherwise overwhelm it. The policy also intends that each town should
be relatively self-contained.

Policy

The Central Area is, and will remain, the dominant metropolitan
employment location. However, the existing policy ot decentralising
employment opportunities will be continued, in order to ensure that
the Central Area can be effectively serviced by transport facilities;
to ensure it remains readily accessible from each ot the main settlement
areas; and to avoid adverse environmental impacts.

Tables 88-93 show the intended distribution of employment
opportunities throughout the metropolitan area for the plan period,
based on transport and environmental considerations. They indicate
the levels beyond which imbalances could lead to serious traffic
congestion, car parking problems, increased transport costs and
undesirable environmental impacts.

A range of employment is given for the major nodes. As the level
of employment available to distribute during the plan period to the
Central Area and town centres is about 53 500, it follows that all nodes
cannot grow to the maximum levels shown. Generally, the greater the
amount of dispersal achieved, particularly to Tuggeranong Town
Centre, the greater the potential benefits will be in relation to avoiding
congestion, long journeys to work and adv erse environmental effects.

180

Table 88 Summary of Distribution of Employment in the Plan Period

Location

Central Area

Town Centres

Secondary Zones
Local Zones
Total Employment

Employment Opportunities

Existing

(1982)

New

Total

44 850

19 450-

64 300 -

24 450

69 300

17 300

25 700 -

43 000 -

39 700

57 000

10 970

9 330

20 300

31 100

9 600

40 700

104 220

64 080 -

168 300-

83 080

187 300 (1)

(1) It is estimated that total employment will be approximately
177 600.

Table 89 Intended Distribution of Employment in the Central Area in
the Plan Period

Employment Opportunities

Location

Existing

(1982)

New

Total

ANU/CS1RO/

Hospital

7 300

800

8 100

Civic Centre

16 000

9 000-
11 000

25 000 -
27 000

Parkes/Barton

Russell/

10 650

4 350 -
7 350

15 000 -
18 000

Campbell Park

6 600

4 300

10 900

Other

4 300

1 000

5 300

Total

44 850

19 450-
24 450

64 300-
69 300 (1)

(1) The restriction of the Central Area’s employment to the lower end
of the range would better achieve the benefits of the Dispersed Plan.

Table 90 Intended Distribution of Employment in Town Centres in the
Plan Period

Employment Opportunities

Location

Existing

(1982)

New

Total

Belconnen Town
Centre

8 000

5 000 -
7 000

13 000-
15 000

Gungahlin Town
Centre

7 000-
12 000

Tuggeranong Town
Centre

12 000-
17 000

Woden Town

Centre

9 300

1 700-
3 700

11 000 -
13 000

Total

17 300

25 700-
39 700

43 000 -
57 000 (1)

(l) It is estimated that total employment at town centres will be
approximately 51 300.

Table 91 Intended Distribution of Employment in Secondary Zones in
the Plan Period

Employment Opportunities

Location

Existing

(1982)

New

Total

Bruce

1 700

1 300

3 000

Fyshwick

8 300

700

9 000

Hume

230

3 770

4 000

Mitchell

740

3 560

4 300

Total

10 970

9 330

20 300

Table 92 Intended Distribution ot Employment in Local Zones in the
Plan Period

Employment Opportunities

Location

Existing

(1982)

New

Total

Belconnen

5 500

400

5 900

Gungahlin

4 600

Inner Canberra

14 500

300

14 800

Tuggeranong (I)

2 700

3 500

6 200

Woden-Weston Creek

7 000

100

7 100

Other ACT

1 400

700

2 100

Total

31 100

9 600

40 700

(1) Includes Erindale Centre.

Table 93 Relationship between Population Settlement and Employment Opportunities in the Plan Period

Population

Employment

Settlement Area

Existing

(1982)

New

Total

Existing

(1982)

New

Total

Belconnen

77 000

6 000

83 000

15 200

6 700-
8 700

21 900-
23 900

Gungahlin

84 000

740

15 160 —

20 160

15 900-
20 900

Inner Canberra

59 400

2 600

62 000

67 650

20 450-
25 450

88 100-
93 100

Tuggeranong

32 800

56 200

89 000

2 930

19 270-
24 270

22 200 -
27 200

Woden-Weston Creek

59 950

60 000

16 300

1 800-
3 800

18 100-
20 100

Other ACT

1 300

300

1 600

1 400

700

2 100

Queanbeyan

20 150

9 850

30 000

6 000

2 000

8 000

Total

250 600

159 000

407 600

110 220

66 080 -
85 080

176 300-
195 300

182

Offices

Background and Intent

The location of office employment has been the major mechanism
in the implementation of the policies of employment dispersal and
the creation of town centres. This is reflected in the dominance of
offices in the employment composition of the Woden and Belconnen
Town Centres - approximately 55 per cent of employment at the
Woden Town Centre and 65 per cent of employment at the Belconnen
Town Centre is in office employment. Public Service Act employment
is particularly important as it comprises the bulk of office employment
in Canberra and is less difficult to direct to dispersed locations than
private-sector office employment.

Policy

The Central Area, the existing town centres in Woden and
Belconnen and the proposed town centres in Tuggeranong and
Gungahlin, will be the major locations for office activity within the
limitations imposed by traffic and environmental considerations. The
Commission will monitor the progressive performance of the centres
and the total transport system, and office developments which would
have a detrimental effect on the transport system or the planned
strategy of centres will not receive planning support.

Office developments over 500m 2 will only be permitted in the
Central Area, town centres or Deakin Section 37, in order to optimise
the benefits of the shared use of facilities such as car parking; to
provide for the shopping and social needs of the office workforce;
and to avoid traffic intrusion into residential areas.

Table 94 shows the intended levels of office employment in the
major centres. A range of office employment is given for the major
nodes. As the level of office employment to be distributed is about
29 500, it follows that not all nodes can grow to the maximum levels
shown.

Table 94 Intended Distribution of Office Employment in the Plan
Period

Office Employment Opportunities

Location

Existing

(1982)

New

Total

Anzac Park

1 000

Civic Centre

11 700

5 800-
7 300

17 500-
19 000

Parkes/Barton

8 000

2 000-
4 000

10 000-
12 000

Russell/Campbell Park

6 600

4 300

10 900

Other North Canberra

2 900

Belconnen Town Centre

5 200

1 800-
2 800

7 000-

8 000

Gungahlin Town Centre

4 000-
6 500

Tuggeranong Town Centre

6 500-
9 000

6 500 -
9 000

Woden Town Centre

5 100

900-
1 900

6 000-
7 000

Other Canberra

3 100

400

3 500

Total

43 600

25 700 -
36 200

69 300 -
79 800 (1

(1) It is estimated that the total level of office employment will be
approximately 73 100.

The figures indicated in Table 94 show levels of dispersal which
the Commission intends to work towards in the implementation of
the Metropolitan Policy Plan. Their achievement will be contingent
upon such factors as:

• Commonwealth Government office dispersal to implement the
employment level in Tuggeranong and Gungahlin Town Centres

• Commonwealth Government construction of office space

• the need for support from other organisations

• private sector investment decisions.

184

Industry

Background and Intent

The Commission is responsible for the planning, design and
construction of industrial estates and the servicing of sites within the
estates for release by the Department of Territories and Local
Government.

The locational requirements of industrial firms vary widely.
Factors which affect the variations include the market served, the
source of raw materials and labour, the mode of transport utilised,
and the compatibility of adjacent land uses.

To accommodate these demands, industrial estates have been
established in Fyshwick, Mitchell and Hume. These estates cater for
manufacturing, processing, warehousing, storage and regional service
trades activities.

The industrial areas as developed have a higher level of office and
retail activity than was intended. The industrial activities that do exist
largely serve the Canberra region.

Policy

In order to preserve industrial land for industrial purposes, and
to ensure the implementation of planned metropolitan retail, office
and industrial centres, retail and office uses not ancillary to, or directly
related to, the industrial or service trade function carried out on a
site will not receive planning approval.

It is proposed that, for the foreseeable future, industrial develop¬
ment will be located in the existing main industrial areas of Fyshwick,
Mitchell and Hume, and in the Canberra Technology Park in Bruce,
w'hich will be developed to provide for high technology industrial
development. An area at West Belconnen is also reserved for long¬
term industrial site needs. Table 95 shows the intended distribution
of industrial jobs in these areas for the plan period.

The Commission intends to introduce selective planning measures
in the existing industrial areas to improve environmental and traffic
conditions.

Industries which would create a nuisance by the generation of
hazardous waste material, noxious odours or excessive noise will not
be permitted adjacent to existing or future urban or recreation areas.
Such industries will be required to locate in the special industrial area
at Harman. Industries which create a special nuisance through the
generation of hazardous liquid wastes and groundwater pollutants will
be required to have approved pollution control systems, in order to
protect the water quality of local rivers, streams and aquifers. Where
adequate protection cannot be achieved, such industrial uses will not
be permitted.

fable 95 Intended Distribution of Industrial Employment in the Plan Period

Employment Opportunities

Existing (1982) New Total

Location

Industrial

Other

Total

Industrial

Other

Total

Bruce

1615

1700

800

500

1300

3000

Fyshwick

1410

6890

8300

500

200

700

9000

Hume

140

230

2270

1500

3770

4000

Mitchell

670

740

2160

1400

3560

4300

Total

1655

9315

10970

5730

3600

9330

20300

Population, Land and Housing

Background and Intent

The population growth forecast tor Canberra represents the
probable growth of the population based on present knowledge ot
the trends which affect population change. The lorecasts reflect the
expected growth in population in the ACT, in response to continued
growth in the local economy and its attraction as a place to live. The
factors which influence population growth will be monitored and the
forecasts reviewed periodically.

The population forecasts indicate the need tor about 45 000-48 000
new standard residential housing sites and 12 000-15 000 new medium-
density housing sites within the planning period. Within the existing
settled areas, only a small amount ot this need can be accommodated
as shown in Table 96.

Table 96 Housing Sites in the Existing Settled Areas - June 1983

Housing Sites

Settlement Area

Standard

Medium-Density

Belconnen (I)

4 200

2 300

Inner Canberra (2)

250

800

Woden-Weston Creek

1 100

900

Total

5 550

4 000

(!) Includes Belconnen Naval Station.
(2) Excludes redevelopment.

In the short-term, that is the next 6-8 years, it is not possible to
supply serv iced land in Gungahlin, because of the lead-time required
to provide the major infrastructure. Nor is it realistic to expect that
redevelopment in Inner Canberra would do much to alleviate the
demand for new housing or land in the short to medium-term.

The immediate need for large numbers of new housing sites can
only be met in Tuggeranong, where the additional population settle¬
ment can be accommodated on land east of the Murrumbidgee River
to a level of about 85 000-90 000 population. The visual catchment
from Lanyon Homestead will be preserved and is to remain clear of
urban development. While population is being settled in Tuggeranong,
the work necessary to produce housing sites in Gungahlin can be
undertaken, in order to ensure continuity of supply before the land
in Tuggeranong is exhausted.

Throughout the period of urban expansion in Tuggeranong and
Gungahlin, redevelopment of the older parts of Canberra will be
increasing in response to demands by small households, single adults
and groups for medium-density housing close to the main employment
nodes in the Central Area and to the entertainment and cultural
activities located in Civic Centre. As the available large parcels of
undeveloped land within the bounds of the existing metropolitan area
are developed, the pressure for infill will rise and available small areas
of vacant land designated for housing will be developed.

Experience has shown that residential areas of about 4 000-5 000
people form a community of interest and provide the necessary
threshold for the provision of facilities such as schools, neighbourhood
shops and recreation areas.

On the basis of the success of the neighbourhood concept in the
development of new residential areas in Canberra, the Commission
intends that, in future, neighbourhood principles will form the basis
of residential area planning in new settlement areas.

186

Policy

The urban area of Canberra will continue to be a series of separate
towns located in valleys and framed by an open space system of hills
and river corridors. For the foreseeable future, Metropolitan Canberra
will comprise:

• the existing developed towns of Inner Canberra, Woden-Weston
Creek and Belconnen

• Tuggeranong, which will be developed on the east bank of the
Murrumbidgee River into Lanyon, to accommodate an eventual
population of 85 000-90 000

• the new town of Gungahlin which will occupy land to the north
of the Federal and Barton Highways and will accommodate an
eventual population in excess of 80 000.

Within each town will be a series of residential neighbourhoods,
based on safe and convenient access to schools and community
facilities, and having sufficient shops and open space to cater for
neighbourhood needs. A hierarchy of roads will control traffic w ithin
residential areas and divert through-traffic to the arterial road system
running between the neighbourhoods and defining their spatial limits.
In general, residential areas will be neighbourhood units with a
population of about 4 000-5 000, this being the catchment population
required to support a primary school and other local community
facilities.

Government housing in new neighbourhoods is dependent on
needs and government policy, but could comprise up to 30 per cent
of the total housing units and will be distributed throughout the
neighbourhoods in clusters of not more than 25 dwelling units.

Medium-density housing in new' residential areas will normally be
approximately 20 per cent of the total dwelling stock, although this
will be dependent on market needs. The preferred locations for
medium-density housing are:

• adjacent to town centres

• adjacent to the principal public transport routes

• adjacent to group and local shopping centres

• available locations in Inner Canberra which have been the subject
of community agreement.

Any proposals for urban intensification will be considered only
after local area studies have been undertaken and detailed policies
considered. The Commission will actively pursue studies aimed at
preparing and publishing policies on an area-by-area basis.

187

Retail

Background and Intent

An essential part of the Metropolitan Plan is the strategic location
of shopping with employment. Shopping centres attract trattic move¬
ment and have an essential role in the everyday lite ot urban areas
which ensure their importance in land use and transport planning.
In addition, shopping activity is closely related to other elements in
the Plan, such as population on which it depends lor expenditure,
to employment which it creates; to transport upon which it relics tor
access but with which it may be in conflict at the local level, and to
the built environment which it helps to shape and change through
development.

The factors leading to the development of the retail policy tor
Canberra are summarised under three main headings: consumer needs,
retail economics and environment. The forecasts ot likely shopping
demand are discussed in Chapter 4.

• Consumer Needs

Within the planning period, about 216 000m* ot new retail
floorspace at planned retail centres will be required to cater tor
consumer needs. Allocation to the different levels ot the hierarchy
including town, group and local centres, will be decided by the
Commission in the light ot av ailable knowledge, adv ice ot retailing
and consumer needs, and community preferences. Future growth
in shopping demand arises from increases in consumer spending,
which, in turn, is closely related to changes in population and its
life cycle changes. In the existing settlement areas ot Inner
Canberra, Woden-Weston Creek and Belconnen, a substantial
amount of retail floorspace exists. The levelling-off of the town
catchment populations considerably reduces the need for
additional facilities in these towns during the next ten years. Most
of the need will be generated by the principal growth areas in
Tuggeranong and Gungahlin. It should be noted that Tuggeranong
already has a significant shortfall of retail provision as compared
to other parts of the metropolitan area.

The continued attraction of Civic and the town centres in
Belconnen and Woden will allow these centres to continue to cater
for and compete in comparison goods shopping. At the same time,
the location of new population in Tuggeranong and Gungahlin
affords a complementary opportunity to prov ide new and accessible
shopping centres in these areas.

• Retailing Economics

Trends in retail economics are relevant in determining retail
policies. There is a continuing trend towards larger-scale retailing,
both because of a substitution of floorspace for labour, and
because of an increasing need for storage space.

• Environment

Redevelopment, improvement or expansion of some existing
shopping centres may enhance the shopping environment in some
parts of Canberra and may also resolve some problems where
physical, as well as economic, obsolescence is a problem. However,
these needs must be weighed against the impact on the total
environment of the centre itself and the area adjacent to it, the
impact on the transport system and the urban structure proposed
for the City, and the overall public benefit that would result from
the decision to allow such change.

In adopting the retail hierarchy and broad proposals to achieve
a socially desirable and economically effective distribution of retail
floorspace, the Commission has to balance the economics of retail
marketing with the needs of the consumer, the need to ensure transport
accessibility and the possible environmental impacts on the existing
centres and residential areas.

188

The policy for retailing is intended to optimise resources and
investments while making the fullest use of existing and committed
resources; to prevent traffic intrusion into residential areas and maintain
air quality to acceptable standards in the major centres; to provide
a range of opportunities for shopping; to enable good access to the
major centres; to enable new development to be implemented in such
a way as to cause least disturbance to the existing urban areas; and
to provide a framework which allows for further changes in retail
structure and consumer needs to occur without the need for extensive
Plan modification.

Policy

It is considered that about 1.4irf per capita of retail floorspace
is supportable in planned retail centres in Canberra. This will be used
as a guide to future retail planning. It is the Commission’s intention
to encourage an adequate provision of retail space that meets the needs
of consumers for convenience, comparison and specialist shopping,
and retailers’ operational requirements, as appropriate at the local,
town and metropolitan levels in terms of location and size of centres.
Apportioned to each level of the hierarchy the 1.4m : per capita
provides the following approximate allocation of space per capita:
0.9m 2 at Civic Centre and the town centres; and 0.5m 2 at group and
local centres. Adjustments to the provision of individual centres may
be required to take account of specific circumstances such as over¬
lapping catchments or other factors affecting demand at that centre,
such as work-based expenditure or escape spending. The Commission
will make an assessment of the retail floorspace supportable in a town,
and its appropriate distribution, in considering proposals for expansion
or change of use in centres which might have a significant effect on
the planned system of retail centres.

The Commission will maintain and extend the system of shopping
and community centres by distributing future retail floorspace and
complementary community facilities in accordance with a hierarchy
that comprises:

• Civic Centre

• Town Centres

• Group Centres

• Local Centres

Civic Centre

The Commission intends that Civic Centre should develop as the
most specialised retail centre serving both metropolitan and special
markets such as tourism. However, decentralisation of retail
opportunities will be continued and will be related to consumer needs,
retail economics, transport accessibility and equity considerations.

Town Centres

The focal point and highest order central place of each town will
be a town centre containing major employment, community and
commercial facilities and services, as well as retailing.

Because of the existence and extent of overlapping catchments at
the town centre level, and the fact that town centres are a key element
of Canberra’s urban structure, any changes to the size, structure or
operation of Woden and Belconnen Town Centres will be carefully
evaluated in terms of the metropolitan implications. No additional
retail floorspace will be permitted at Woden and Belconnen Town
Centres, beyond that which can be shown to be generated by the
populations within their respective town catchments. Neither Woden
Town Centre nor Belconnen Town Centre will be encouraged by the
application of planning policies or by development works to become
the main metropolitan retail centre.

189

Town centres will be developed in Tuggeranong and Gungahlin.
The retail components of Tuggeranong and Gungahlin Town Centres
will be related to the town catchment, employment opportunities
within the respective town centres and the metropolitan retail system.
In order to accommodate retail-related uses requiring large floor areas
or low rental space, it is intended to provide mixed-use areas as distinct
from the retail cores and the main service trades areas ot centres. A
closer physical integration ol these tunctions will be sought in the
future.

Table 97 shows the intended distribution of retail floorspace to
Civic Centre and the town centres for the plan period.

Table 97 Intended Distribution of Retail Floorspace to Civic Centre
and the Town Centres in the Plan Period

Retail Floorspace (m ; )

Location

Existing

(1982)

Intended

Belconnen Town Centre

67 300

69 800

Civic Centre

60 800

75 800

Gungahlin Town Centre

47 000

Tuggeranong Town Centre

40 000-50 000

Woden Town Centre

67 900

70 400

Group Centres

Group centres provide the opportunity for major weekly shopping
and for the location of retail and personal services requiring a catch¬
ment larger than that of a local centre, but smaller than that of a town
centre. Group centres will provide supermarkets and other retail,
commercial, and community facilities and services. The development
of group centres will be restricted to that level which serves the needs
of their respective local catchments.

Local Centres

The Commission will meet needs for local retail and community
facilities by maintaining an effective system of local shopping centres
and providing opportunities for private development. Proposals for
extending local centres will be considered in relation to the needs of
the people living in the local area and the impact of such proposals
on the amenity of adjacent residential areas. Proposals will only be
supported where it can be demonstrated that they fulfil a local need.

190

Transport

Background and Intent

the transport system comprises the road network, car parking
facilities and public transport. The efficiency of the total system
depends not only on the physical provision of infrastructure, but also
on the operational policies adopted for the use and control of facilities,
for example, road traffic management measures, parking charges and
the fare levels of the bus services. The Commission provides the
infrastructure and associated facilities, and, in conjunction with the
Department of Territories and Local Government, formulates the
broad policy for the system. In turn, the Department determines
operational policy and maintains and operates the system.

The importance of the interaction between land use activities and
transport has been emphasised by the work done in reviewing the Plan.
This has clearly indicated that it is the disposition and size of the
centres for major employment and shopping which places different
demands and stresses on the transport system and the physical fabric
of the City.

The major problems revealed in evaluating the options for the
future development of Canberra will be difficult to overcome. They
are:

• a heavy concentration of movement in the morning and evening
peak periods, due to journeys to and from work

• the need to devise a system of roads and parking facilities to
adequately meet movement demands, particularly in the peak
periods and within and on the approaches to the Central Area and
town centres, in order to avoid congestion, danger and delays, but
to do so within the constraints of efficient expenditure

• the need to resolve the conflict between meeting the needs of traffic
and other uses, in order to avoid undue hazards to pedestrians
and possible harmful effects on the environment from noise and
fume emission and impairment of the visual quality of the urban
fabric.

To some extent, the hierarchical system of roads, developed
successfully in the new towns of Canberra, has minimised the impact
of those kinds of problems to date, providing a high standard of safety
and service to all road users. With regard to the provision of car parking
and the related question of public transport, the proposals in the 1980
Metropolitan Issues-Public Discussion Paper to constrain the level
of car parking at major employment and retail nodes and increase
the provision of public transport services, drew strong adverse
comments from motorists using long-stay parking at existing major
nodes.

The transport policy is intended to overcome existing and potential
future problems by protecting the Central Area from traffic pressures
that might otherwise overwhelm it; through the efficient operation
of the total transport system; by preventing traffic congestion and
traffic intrusion into residential areas; and by minimising the impact
of noise and fumes emission.

Policy

Road Network

The hierarchical system of roads, comprised of parkways, arterials,
sub-arterials, distributors, collectors and access roads, will be
continued in the future development of the City. Existing road patterns
in other parts of Canberra will be improved to reflect this system
wherever possible. In addition, traffic congestion will not be promoted
as a method of traffic management or to encourage the use of
alternative transport modes.

\ 9 \

The metropolitan road network will be extended and impioved
in the plan period in order to meet movement demands, particularly
in the peak periods, to provide a well detined primary network toi
longer-distance movements within the metropolitan aiea and to
minimise congestion within and on the approaches to the Central Area
and town centres. Improvements to the metropolitan road network
will be carried out in conjunction with development ot an adequate
supporting secondary network tor local access and movement.

Public Transport

The public transport policy aims at achieving a balance between
public transport capacity and road capacity, as improved public
transport and an efficient road system are to a large extent
interdependent.

In future the Commission will, in conjunction with the Department
of Territories and Local Government:

• support the continuation and future planned expansion ot a
comprehensive system of bus services operating on the road
network. The level of service will be commensurate with the C ity’s
financial ability to meet the needs ot those dependent on bus travel

• encourage people to use public transport as the means ot travel
to work

• continue to implement a programme of providing bus priority lanes
along congested routes with high bus flows, where benefits can
be realised without significant restraint on general traffic movement
or causing adverse effects on amenity by diverting traffic into local
roads through residential areas

• continue to provide centrally located bus interchange facilities in
the town centres of each of Canberra’s towns

• continue to investigate routes for express inter-town buses. Routes
which are reserved will be capable of design to ensure frequent
and relatively fast services, in order to create an attractive alternative
to trav el by private car. Routes for detailed investigation are those
which will provide access from each of the existing and proposed
town centres to the Central Area.

Parking

General

The provision of off-street parking will be the responsibility of
developers. They will be required to either construct or contribute
towards the construction of parking facilities, as determined by the
Commission, in conjunction with the Department of Territories and
Local Government. A mechanism will need to be developed to enable
this. The size of facilities required will be related to the activities pro¬
posed within the development. The size and location of facilities will
be such that they will not cause environmental damage or inhibit the
movement of traffic in the surrounding street system.

The amenity of residential areas adjacent to town centres and other
employment centres will be protected from the intrusion of car parking
by the application of development controls and traffic management
measures.

Civic Centre and the Town Centres

The Central Area will continue to be the major metropolitan centre
of employment and Civic will be developed as the major metropolitan
commercial centre. In the planning period, the number of jobs in the
Central Area will increase by between 43 per cent and 55 per cent
and the amount of retail floorspace may increase by 25 per cent. In
Civic, because some existing car parking sites will be required for
development purposes, between 7 000 and 12 000 spaces of the total
requirement of 15 000 to 22 000 spaces will need to be provided in
structured car parking.

192

rah 1 c 98 Car Parking Deni

Location

Civic Centre
Belconnen Town Centre

Gungahlin Town Centre
Tuggeranong Town Centre
Woden Town Centre

Total

The existing town centres in Woden and Belconnen and the
proposed town centres in Tuggeranong and Gungahlin will be the next
most important metropolitan retail and employment centres. Table 98
shows the levels of car parking related to those needs.

and at Civic Centre and the Town Centres in the Plan Period

Existing (1982)

Employ¬

Retail

Structured

Surface

ment

(nr)

Parking

16 000

60 800

12 000

8 000

67 300

1 700

6 800

9 300

67 900

7 500

33 300

196 000

1 700

26 300

Expected Demand

Employ¬

Retail

Structured

Surface

ment

(m 2 )

Parking

25 000-

75 800

7 000-

8 000-

27 000

12 000

10 000

13 000-

69 800

1 700-

8 200-

15 000

4 000

10 500

7 000-

47 000

5 200-

12 000

8 800

12 000-

50 000

9 000-

17 000

11 800

11 000 —

70 400

0 - 1 500

8 400-

13 000

9 600

68 000-

313 000

8 700-

38 800-

84 000

17 500

50 700

193

National Capital Open Space System

Background and Intent

While each type of area in the National Capital Open Space System
has its own use and character, they are all interrelated as a total land¬
scape open space system. Consequently what is done in one area has
an effect on other areas. This requires the open space to be planned,
developed and managed as an integrated system.

At this stage of planning, the proposals and policies lor the open
space system can only designate the broad use areas, general intentions
and the nature of the interrelationship ot areas, so that each area can
be placed separately as a distinct problem, but with a clearly defined
and constant relationship to the whole ol the open space system.

It is not intended that the National Capital Open Space System
be developed or managed as traditional public open space or parkland.
It is intended to be a multiple-use area with ditferent parts ot the
system having different planning and management policies reflecting
the characteristics of the land. Areas will be defined tor intensive
recreation, conservation and open space uses but other lands would
be leased for rural purposes and other specific uses appropriate to
the objectives and policies set tor the specific part ot the system.

Policy

The following policies apply to the whole of the National C apital
Open Space System:

• Landscape

The National Capital Open Space System will be preserved and
enhanced as an essential part of the scenic background and land¬
scape setting to the National Capital. The preservation and
enhancement of the landscape character and diversity is the
objective against which all proposals for use and development will
be measured.

• Land Use and Access

The National Capital Open Space System will be planned so as
to facilitate and improve visual and physical access and provide
a balanced range of recreational opportunities and other uses in
a manner that reinforces the National Capital Open Space System
as a diverse ecological, cultural, scenic and recreational resource.
It will also provide a land bank for future National Capital and
recreational needs.

• Conservation and Resource Protection

The ecological, recreational, cultural and scenic resources of the
National Capital Open Space System will be protected consistent
with usage, providing for the best use of each part without
degrading its desirable condition or the quality of the experience.

• Management

Planning and development of the open space system will be
integrated with effective management that sustains specific uses
and recreational activities consistent with conservation, landscape
protection and other planning policies.

Specific area policies give the planning intention for the
components and the different types of areas within the National
Capital Open Space System. These include:

• River Corridors

• Hill Areas

• Mountain and Bushland Areas

• Pine Plantations

• Rural Landscape Foreground Areas

• Special Interest Sites.

194

The policies for other areas will be progressively defined as f urther
detailed planning studies are undertaken.

River Corridors

The river corridors are key elements in the Canberra landscape
and provide a diverse ecological, scenic and recreational resource
which is increasingly being used, by both residents and visitors, for
a variety of recreation activities, particularly sightseeing, swimming,
picnicking, nature study, fishing, canoeing and walking.

The boundaries of the Murrumbidgee and Molonglo river
corridors define in part the ‘Areas of Special National Concern’. A
unified approach to the planning, development and management is
required if the essential landscape and environmental qualities of the
river corridors are to be retained.

The landscape and ecological continuity of the river corridors will
be preserved and reinforced. Recreational opportunities and other uses
are to be provided consistent with maintenance of environmental
values.

Specific objectives which will guide the planning of the river
corridors are:

• prevention of deterioration of water quality either from external
influences that impact on the river or from the nature of the river
corridor usage

• preservation of areas of existing natural vegetation in a relatively
undisturbed state

• repair and rehabilitation of damaged areas, including revegetation
where necessary

• provision of a range of riverside recreation as best suited to the
resource in terms of its physical and ecological capacity

• protection as far as possible from external effects, such as uncon¬
trolled access, visual intrusion, excess nutrients and wildfire

• maintenance of ecological continuity along the corridor for
migrating fish and wildlife populations

• provision of a planning and management strategy which sustains
specific land uses and recreational activities consistent with the
objectives.

Hill Areas

One of the greatest attractions of Canberra is that from almost
anywhere in the City the ridges and slopes of the hills can be seen,
with their varied pattern of partially wooded grassland and views to
the mountain ranges beyond.

Certain of the hills closer in are visually more important than
others. The most important are those which can be seen from the
national areas of Parkes and Barton. The next in order of importance
are the hills and ridges that shape and contain the urban areas. Other
hills have local importance because they are visually prominent from
main approach roads or are part of the river corridors.

The hill areas will be preserved from urban development and their
essential environmental and landscape character will be retained and
reinforced so as to provide a unified landscape setting for the National
Capital.

Multiple-use of the hill areas, including special development and
service corridors for public utilities, will be permitted provided the
proposed use is appropriate to the landscape and environmental
intentions for the area concerned.

195

Mountain and Bushland Areas

The most impressive views from Canberra are those into the
Brindabella and Tidbinbilla mountain ranges that rise in the southern
and western parts of the ACT beyond the Murrumbidgee River. This
mountain and bushland area has a wide variety of dit 1 erent landscapes
from high mountains, snow covered in winter, to foothills, rainforest
valleys and alpine meadows, other bushland and open valleys, all of
which contribute to its value as a scenic, ecological and recreational
resource.

This area also encompasses the Cotter and Gudgenby water
catchment areas and the Tidbinbilla and Gudgenby Nature Reserves.

The mountain and bushland areas that have remained relatively
undisturbed and are not required for water supply reservoirs and
associated works will be preserved and protected as nature conservation,
wilderness and bushland recreation areas. The usage and access will
be controlled to a level that will prevent environmental deterioration
that would significantly detract from the quality of the area or the
experience of use.

Any development will be kept to the minimum required for public
appreciation of such areas and it practicable will be confined to the
perimeter or to the surrounding buffer zones.

Pine Plantations

Softwood forestry is one of the few resource-based industries in
the ACT and the pine plantations, because of their proximity to the
urban areas, provide for high levels of recreation use.

Although some of the effects of extensive pine planting in the land¬
scape can be criticised on aesthetic grounds, pine forests, if carefully
sited and developed, can add interest to the landscape. They help to
emphasise the shapes of the land forms and add colour and variety
to the general scene.

Pine plantations will be retained where appropriate as multiple-use
areas for other uses compatible with the primary productive purposes.

Rural Landscape Foreground Areas

Rural landscape foreground areas are those rural lands associated
with the National Capital Open Space System which, while not
necessarily visually significant when considered in isolation, form a
foreground to panoramic views beyond.

Because of this association with the National Capital Open Space
System it is important to retain the essential rural landscape character
of these areas and not permit uses that would break down the scale
and appearance of the countryside and intrude into the main view.

The retention of these rural landscape areas would also ensure
representative examples of the typical Australian countryside close-in
to the National Capital as visible links to Canberra’s rural past.

The importance of the rural landscape foreground areas associated
with the National Capital Open Space System, particularly
Bulgar/New Station/McQuoid Creeks area, south-west Molonglo,
Lanyon/Riverview, Pialligo/Dairy Flat, Paddys River Valley, and
Booroomba, will be recognised in future planning. These areas will
be subject to local policy and development plans aimed at retaining
the pastoral character of the land while permitting appropriate
National Capital and other Commonwealth uses that are compatible
with rural usage in maintaining the broad landscape character.

196

Special Interest Sites

There are a number of ecological, geological, archaeological,
historical and cultural sites within the National Capital Open Space
System. They are of scientific, educational or public interest because
they have a restricted occurrence in the ACT and the surrounding
region or because they have historic and cultural associations with
Canberra’s past.

These sites will be preserved and protected for the purposes of
research, education and public interest and appropriate settings will
be maintained or created on these sites.

A survey of the Territory has been initiated to identify and classify
special interest sites. Areas identified and classified will be subject
to local policy and development plans aimed at providing an adequate
level of protection.

197

Recreation and Tourism

Background and Intent

Recreation and tourist facilities are highly interrelated in the ACT.
Local recreation facilities are used by visitors to the National Capital
while tourist attractions are visited by large numbers of Canberra
residents.

An important component of the outdoor recreation facilities
available in the ACT is the National Capital Open Space System which
provides recreational opportunities for the whole metropolitan
population. The Commission is responsible for the design and
construction of many other recreation facilities including sports fields,
playgrounds and swimming pools. Private enterprise and community
groups also provide both indoor and outdoor leisure facilities, such
as squash courts and golf courses.

As Civic Centre is closely associated with the tourist facilities in
the Central Area, it has the potential to develop as a major
metropolitan focus for tourism. Expansion of tourist activities would
help Civic to dev elop a metropolitan role by encouraging development
in specialist retailing and entertainment. An area has been designated
in Civic Centre where emphasis will be given to the co-location of
commercial accommodation and tourist attractions.

Policy

The Commission’s policy in relation to recreation and tourism is
to encourage, in conjunction with private enterprise and community
groups, an adequate and balanced provision of recreation and tourist
facilities to meet the needs of residents of the ACT and tourists to
the National Capital.

Recreation facilities will be provided on a hierarchical basis so that
facilities with a metropolitan catchment are easily accessible to all of
the residents of the ACT, and facilities with a local catchment are
located within residential neighbourhoods.

Inner Canberra is to remain the central focus for tourist attractions
associated with national capital and metropolitan functions and for
tourist accommodation.

New private enterprise tourist attractions are to be grouped in Civic
Centre or the Special Tourist Commercial Area at North Watson,
rather than be dispersed throughout the City. Tourist-related develop¬
ment may also be located within the National Capital Open Space
System, at special development sites identified for that purpose.

198

Community Facilities

Background and Intent

Generally, the Commission does not determine the need for
community facilities, but responds to requests from client authorities
such as the Department of Territories and Local Government, the
ACT Schools Authority and the Capital Territory Health
Commission.

In response to these requests, the Commission selects sites and
designs and constructs a range of community facilities for welfare,
youth, cultural, educational, health and municipal services.

At the metropolitan level the most important community facilities
the Commission plans and develops for client authorities are those
related to education and health.

Policy

Education

The Commission will select sites and design and construct govern¬
ment education facilities, in conjunction with client authorities and
in accordance with forecast population characteristics and development
programmes. Education facilities will be designed to allow maximum
use by the community and to ensure integration with complementary
and compatible land uses. The Commission will facilitate the develop¬
ment of private education facilities by the selection and servicing of
appropriate sites.

Health

The Commission will select sites and design and construct govern¬
ment health facilities in conjunction with client authorities to facilitate
the provision of health care to the community.

The Commission’s role in the development of private health care
facilities is the selection and servicing of suitable sites.

Urban Environment

Background and Intent

The policies and development proposals of the Plan concentrate
on strategic matters affecting the function, scale and location of
activities in Canberra. However, the success of the Plan will be assessed
in the minds of many observers not only by how well the City works
but also by how it looks and how pleasant it is to live in.

In general, the urban environment of Canberra is of a high quality
compared to other Australian cities. This is to be expected, given its
role as the National Capital and its development, since its inception,
to an overall design concept.

With the planned interrelationship of all public landscape design
and the high standard of private landscaping, Canberra has become
a unique landscaped city. In fact, landscape design and development
have made a major contribution to the overall design and development
of the City.

The origin ot the Canberra landscape was in the 1912 prize-winning
plan by Walter Burley Griffin. Griffin recognised particularly the
importance of the hills and river corridors as features capable of
providing a basis tor the design of the City and a guide to modification
of the landscape.

The Commission’s broad landscape principles have been: first, to
unite the urban elements of Canberra - the buildings, engineering
structures, roads and spaces - into a unified design related to the
surrounding countryside; second, to achieve a completed appearance
in a given area in a short space of time; and third, to provide an
environment for human activity and enjoyment both for the present
as well as the future.

The older residential suburbs are dominated by their landscaping,
with built elements being obscured by the vegetation in private and
public spaces. The fact that trees obscure any buildings less than three
storeys high gives great impact to those buildings that rise higher, as
they are seen against a backdrop of vegetation.

Most ot the effect of landscape development in suburban areas
has been achieved by planting in public spaces - streets, parks and
the sites of public buildings. The residential landscape thus created
is reinforced by arranging arterial roads so that the larger open spaces
are apparent to tens of thousands of drivers each day and the resulting
traffic is removed from residential areas.

Urban development does not appear on the skyline of Canberra’s
hills and ridges. Rather, development is hidden in the folds of the
hills amongst landscaping, giving the City a predominantly low setting.
In Civic Centre and the town centres, the establishment of contrasting
building masses accommodating the urban activities has occurred
through the development of buildings rising above the tree canopy.
However, even tall buildings are subordinate to the landscape, reflecting
the capacity ot the landscape to absorb large developments and yet
retain its dominance.

Commercial buildings in the national areas reflect the need to limit
height in the interest of the National Capital functions, and make their
presence telt through continuity in massing, colour, form and
materials.

Care has been exercised with the siting and landscaping of unsightly
uses or developments on new sites. Similarly, care has been taken with
urban uses in the rural areas to preserve the quality and scale of the
countryside.

200

The policy is intended to continue the garden city concept and to
delineate the main activity centres by strong vertical elements of
building mass penetrating the landscape canopy. It is intended to
provide a distinctive setting for the National Capital by enhancing
the land forms and scenic setting of Canberra, and to maintain and
continue the creation of attractive living environments.

Policy

The urban environment policy is to ensure harmony of buildings
and landscape and thus give effect to Griffin’s concept of a garden
city, which is the foundation of design in Canberra.

The design and landscape principles as developed for Canberra
will be retained and utilised for the expansion of the City. New urban
settlement areas will be built in adjoining valleys and be separated
from one another by preserving open spaces and the intervening
hilltops in their natural state. This will be reinforced by the develop¬
ment of the National Capital Open Space System, which recognises
the value of these spaces along with the ‘Areas of Special National
Concern’ defined in the Commission’s Design and Siting Policies.

201

Rural and Non-Urban Areas

Background and Intent

The rural and non-urban lands of the ACT provide a distinctive
setting for the National Capital, act as an integral part of the City’s
open space system and provide a land bank for future land use and
activity needs, as the City grows and changes. Such needs include
special activities directly related to Canberra as the National Capital;
defence, scientific and institutional uses; recreation and nature
reserves; and other activities incidental to the development of the City.

Rural lands contain significant natural resources such as rivers,
streams, land forms, flora and fauna which need protection while the
land is under rural management, in order that these resources might
be integrated into the activities of the present and future City and
its environs.

The policy for rural and non-urban lands is intended to make the
tidlest use ot natural resources by wise management and to conserve
the natural setting ot the ACT. It is also intended to safeguard the
future land bank of the City and to avoid difficult land assembly and
high future acquisition costs if and when the lands are required for
other Commonwealth purposes.

Policy

The maintenance of the rural surrounds of Canberra as represen¬
tative of Australia’s rural landscape is an important consideration in
planning land use in the Territory. Together with the National Capital
Open Space System, the rural areas not required for other purposes
will be retained as part of the landscape environs of the National
Capital.

Rural and non-urban land should be used generally only for grazing
purposes by stock, which will not significantly alter or degrade the
land’s natural resources. Intensive farming will be strictly controlled.
Where possible, rural leases should be amalgamated in order to
provide economic grazing and for ease of land assembly, should the
land be required for future Commonwealth purposes. Accordingly,
the subdivision of existing holdings into smaller blocks will be
opposed. The natural tree cover on rural and non-urban land is an
important landscape element assisting in preventing soil erosion.
Clearing for grazing and other rural activities, including the planting
ot exotic forest, will also require planning permission and strict
management controls.

Hobby farms and rural/residential retreats are not considered to
be bona tide rural activities. Such uses fragment viable rural holdings,
often mar the open rural landscape, are costly to provide with services,
create difficulties for future land assembly and, generally, lead to
higher acquisition costs when the land is required for Commonwealth
purposes. Applications for planning permission for these uses will not
be supported.

Some rural leases close to the urban area are being transformed
into rural/residential retreats by the construction of large houses
unnecessary for the operations of the rural holdings. Such
developments will be prevented in future by requiring built
improvements on rural land to be limited to those which are essential
to the operation of the rural activities being carried out, on land of
sufficiently large area to sustain viable agriculture or grazing. Activities
involving intensive agriculture or grazing will be subject to special
consideration. Generally, where the rural holding is of an acceptable
size an application for a single dwelling house with essential rural out¬
buildings will receive favourable planning consideration and the
connection of available services. Generally, an application for multiple

202

dwelling houses will be opposed by the Commission; where applications
are supported, a condition of approval will be that compensation for
acquisition will be waived for all improvements except one dwelling
house nominated by the Commonwealth.

Public Utilities

Background and Intent

The most significant public utilities the Commission plans for at
the metropolitan level are those related to water resources and energy
supply and other essential services.

The water resources of the ACT are used for a wide range of
purposes, including water supply, the discharge of wastes and surface
runoff to streams, and recreation. Water resources are incorporated
into the metropolitan area as an integral part of the urban landscape.

A number of these purposes have quality and quantity attributes
that need to be protected to secure the full enjoyment of the water
resources.

While the use of infrastructure provides a means of modifying
impacts, there is often a high cost associated with technological
solutions. A range of water resources management techniques have
been adopted as the means of providing the services and conditions
meeting community aspirations. They comprise:

• land use and management control which is cognisant of the
protection of water and associated uses downstream

• the provision of water supply, wastewater and surface water
infrastructure

• the management of demand for services.

Essential services comprise electricity, gas, telephones and postal
services. Such services influence planning considerations by virtue of
their land needs and the environmental effects of their supply
structures. Although responsibility for their provision rests with other
statutory authorities and private enterprise undertakings, it is necessary
for the Commission to take their requirements into consideration in
the overall planning of the metropolitan area.

Policy

Water Resources

The ACT Policy Plan (Water Use) will be used as a basis for:

• co-ordination of land and water use planning and management

• co-ordination of the allocation of water resources across a range
of competing uses

• co-ordination between the ACT portion of the Murrumbidgee
basin and the NSW portion of the basin.

The policy for water catchment areas is to protect the water
resource value of catchment areas in order to ensure the economic
provision ot a supply ot safe drinking water, while simultaneously
conserving the other natural resources within the catchments
themselves, and maintaining their visual integrity.

Exploitation of water catchment areas for grazing, agriculture,
forestry and other rural acitivities, which would significantly degrade
their resource value, will be excluded, along with hobby farms,
rural/residential retreats and recreation uses, particularly those of a
more intensive commercial nature. Uses of an educational, scientific,
defence or institutional nature will be considered on the merits of their
proposals and particular impacts on the resource value of the
catchment.

Although walking trails, fire trails and other essential facilities,
needed to manage, protect and allow the study and appreciation of
the natural resources of catchment areas may be permitted, they will
be subject to strict planning controls and management practices.

204

The Cotter Catchment Area will be protected in the interests of
an economic provision of a safe supply of potable water.

In view of the need to augment water supply in the longer term,
the area adjacent to Mt. Tennent on the Gudgenby and Naas Rivers
will be reserved as a possible water storage area. The inclusion of a
nature reserve within the catchment is consistent with this use.

Water pollution control facilities will be incorporated into urban
stormwater infrastructure in Tuggeranong as the basis for the protection
of the Murrumbidgee River. A water feature will be developed in
Tuggeranong, as a means of protecting the Murrumbidgee River, and
as a water-based recreation facility.

The urban form and structure of Gungahlin will make significant
use of natural features to contain urban runoff pollution consistent
with the protection of Lake Ginninderra and the requirements of
urban development.

In view of the high cost of treatment of wastewater to a standard
consistent with the protection of inland lakes and streams, economies
of scale will be utilised by basing augmentation of wastewater treatment
facilities on the Lower Molonglo Water Quality Control Centre.

Energy Supply and Other Essential Services

The intention is to ensure the availability of essential services in
close co-ordination with urban development and to ensure that urban
development proposals do not place unacceptable demands on
essential services. It is also intended that the provision of essential
services be achieved with the minimum detriment to the environment,
and that sites will be made available in suitable locations.

The Commission will take account of the needs of essential services
in making proposals for the phasing and location of development and
changes in land use. Proposals for new facilities and installations,
including overhead electricity lines, will be approved only in suitable
locations in accordance with the general proposals for the area
concerned.

205

Chapter 7

Development Plan

Introduction

The purpose of the Development Plan is to indicate those develop¬
ment proposals which are required to meet needs arising from
population growth or change. The development proposals indicate
the main public works that will need to be carried out by the
Commission and other public authorities, as well as indicating
development opportunities for the private sector, particularly in terms
of new housing, offices and retail facilities. The ability to implement
the public works will be subject to adequacy of continuing annual
appropriations from the Budget.

The Metropolitan Development Plan has been prepared to:

• identify the Commission’s intentions for major development works

• inform other public authorities and the private sector of Canberra's
expected growth and development over the next twenty years or so

• inform the public of proposed development works

• highlight the range, type and location of development
opportunities likely to arise for private enterprise during the plan
period.

The Development Plan translates the needs forecasts (outlined in
Chapter 4 in terms of housing units, retail floorspace, etc.) into spatial
and programme terms.

In implementing the Development Plan, the Commission will give
priority to:

• consolidating development in the existing towns and promoting
the orderly expansion of the City

• encouraging the development of Civic Centre as Canberra's
metropolitan centre (Central Business District)

• providing centres in the newly developing areas to meet the needs
of the local community

• providing adequate traffic access to employment and service
centres as Canberra’s population grows

• continuing the development of the National Capital Open Space
System

The Development Plan provides a planning input into the
Commission’s development procedures. The process is complex with

207

many interactions and has a high degree of flexibility. In general, the
process follows a logical production sequence consisting of.

• needs assessments

• three-year construction programme

• design

• annual works programme

• construction

• handover of completed facilities.

The Commission’s current practice is to produce Development
Plans as a basis for detailed discussions with client departments and
authorities, or with representative community groups. Because it is
usually necessary to alter the plans during the course of such discussions
and as the design evolves, it is not possible to arrive at an agreed
plan which remains unchanged after consultation has been completed.
By their nature such plans must to some extent remain fluid and
adaptive to changing circumstances. Updated development plans are
produced periodically as priorities alter and projects are accordingly
added to or subtracted from the list. The Commission intends to
update the Metropolitan Development Plan on a regular basis and
make it available for public information.

The Development Plan provides the basis tor two related streams
of action. For its part, the Commission will seek programme status
and funding for public works. For the private sector, specific develop¬
ment opportunities will need to be identified, through consultations
between the Commission and industry and in conjunction with the
promotional activities of the Canberra Development Board. Where
possible, projects which should or could be carried out by private
enterprise are identified in the Development Plan.

Implementation of the Development Plan will rely on:

• achievement of population thresholds for developments directly
serving the population

• sufficient support from the private sector, as well as relevant
government agencies - that is, agreement about the need for and
priority of proposed works.

208

Development Proposals

The Metropolitan Development Plan deals with the planning and
sequencing of the major metropolitan works which are needed to
realise the intentions of the Policy Plan. While the implementation
of the Policy Plan must evolve over time, some decisions need to be
made sooner than others. The main decisions that have to be made
now concern the phasing-in of the next settlement area, the location
and phasing of office centres, the sequence of major retail releases,
the location and design of the major road system and public transport
network, the development of facilities for water supply, stormwater
drainage and sewerage reticulation, and the development of the
National Capital Open Space System. Development projects which
are currently considered necessary and which would contribute to the
Policy Plan objectives are summarised below in two sections: the first
deals with projects in the rural ACT; and the second, with projects
in the Canberra urban area.

209

Metropolitan Canberra Development Plan (ACT)

The rural area of the ACT will come under increasing pressure
as additional land is required to meet the growing needs of the City.
In addition, Commonwealth Government institutions requiring large
sites will continue to occupy land in the rural ACT. These uses \vi
displace grazing or similar interim uses. It is theretore envisaged that,
in the very long term, the rural ACT will become predominantly a
planned and managed landscape and be visited by greater numbers
of tourists to the National Capital (Figure 65).

Consideration as to how the rural ACT will be piogiessi\el>
transformed to meet emergent needs is continuing and inevitably Kiises
complex planning and development issues. For example, to arrest and
restore existing deterioration of the natural landscape ot the ACT will
require a long-term and comprehensive approach, involving ecological
and land use studies, planning and implementation.

The major development works required during the plan period
in the rural ACT are related to:

• the National Capital Open Space

• forests

• water resources

• National Capital entrance routes

• rural roads.

National Capital Open Space

1. Progressive Development of the National Capital Open Space

System

Metropolitan open space is necessary for the long-term
environmental protection of river systems, the maintenance ot visual
quality in the modern city, the provision of adequate outdoor
recreation opportunities for those who live in the city and the
maintenance of ecological diversity.

The National Capital Open Space System (NCOSS) is a major
element of the Y-Plan. It is essential for the long-term achievement
of a fitting Australian landscape setting for Australia’s National
Capital. The NCOSS is also required for the environmental protection
of the ACT river system, for, without such protection, further growth
of the City would be jeopardised. The NCOSS is a key element in
the provision of adequate recreation opportunities for residents and
visitors in this large inland city.

The NCOSS will be progressively developed during the plan period
to accommodate the diverse demands made upon it by Canberra’s
residents and visitors. Included will be the development of Kings Park
adjacent to Commonwealth Park, other parklands on the foreshores
of Lake Burley Griffin, the revegetation of hill reserves and river
corridors and the provision of riverside recreation facilities.

A planning and management strategy will be prepared, which
sustains specific land uses and recreational activities consistent with
the landscape and environmental objectives.

1 Progressive Development of the National Capital
Open Space System - the National Capital Open
Space System will be progressively developed to
protect river systems, maintain visual quality,
provide recreational opportunities, maintain
ecological diversity and ensure the ecological
stability of urban lands.

2 Investigation of Pine Plantations - economic,
plannnmg and landscape studies will be under¬
taken to determine the selective replacement of
pine plantations by native species.

3 Protection of Water Uses - water quality in lakes
and streams will be protected to ensure their
designated uses which may include water supply
and recreation uses.

4 Augmentation of Water Supply - the limits on water
resources in the ACT require the protection of
possible future sources of supply such as the
Naas-Gudgenby Catchment, the restriction of
allocation of water to the sub-region and a
programme to reduce water consumption.

5 Federal Highway Duplication and Upgrading -
improvement works will be undertaken to tie in
with associated works in New South Wales.

6 Reconstruction of Monaro Highway - the road is
being progressively upgraded to facilitate move¬
ment to and from the Snowy Mountains.

7 Upgrading of Cotter Road - the road will be
upgraded to improve safety and provide over¬
taking opportunities.

8 West Belconnen-Unarra Road Connection - a road
connecting Stockdill Drive with Uriarra Road will
improve access for Belconnen residents to
Murrumbidgee and Cotter River recreation areas.

9 Brindabella Road-Mt. Franklin Road Upgrading,
Mt. Franklin Road-Corin Road Connection - these
works will complete a tourist route from Cotter to
Tharwa via the Brindabella Road, Picadilly Circus,
Mount Franklin and Corin Dam.

10 Boboyan Road Upgrading - work will continue to
upgrade and seal the road to the ACT border.

11 Relocation of Naas Road - if the Naas-Gudgenby
Catchment is required for water supply and the
Tennent Reservoir is constructed, the northern
part of Naas Road will need to be relocated higher
up the slopes of Mount Tennent.

i Proposed Commonwealth Works

The NCOSS is a special category of land, and its management is
considered to be an essential part of its evolutionary development.
It will be subject to change over time as part of the long-term planning
and development of the National Capital. Long-term environmental
monitoring will also be necessary.

0 2 4 6 8 10 km

1 ! _I_I_I_ I

Figure 65 Metropolitan Canberra

Development Plan (ACT)

210

NSW

211

Forests

2. Investigation of Pine Plantations

Of the 1 453 km 2 of forest and pine plantations in the ACT
1 243 km 2 are covered by indigenous forests, generally on steep lan ,
which should not be cleared. The indigenous forests are largely in the
existing or proposed water catchment areas, or in areas proposed tor
future conservation.

Most of the 210 km 2 devoted to pine plantations comprise lands
which are unsuitable for use other than recreation. They are generally
in areas of potential erosion or which have been previously degraded
by overgrazing. The Commission intends that the pine forests in
Kowen should not be extended as commercial plantations, and that
in selected areas such as the visual catchment of the Parliamentary
Zone the pine forests should be replaced progressively with native
species. Pine forests are regarded as a temporary use until there is
a higher order use to replace them, especially in relation to
Commonwealth Government needs. Economic, planning and landscape
studies will be undertaken as required to determine the appropriate
amount of pine plantation in the ACT in order to replace them where
necessary in accordance with the overall landscape and recreational
requirements of the National Capital.

Water Resources

3. Protection of Water Uses

All of the ACT constitutes a catchment area for the rivers, streams
and lakes upon which the community is dependent for a range of uses.
Decisions on land use and land use management within the catchment
largely determine the ability ot lakes and streams to sustain their uses
for water supply or recreational purposes.

Water supply constitutes the most important use of water resources
in the ACT. In the case of the Cotter Catchment Area, the provision
of water supply has been dependent upon the maintenance of water
inflow' of high quality. Increasing pressure for recreational access to
the area w'ould necessitate upgrading of the level of water treatment
at increased cost to the community.

Similarly, the protection of Lake Burley Griffin and its use for
water sports is dependent on control of land use and water discharges
in the catchment areas. A reduction of phosphorus discharges within
the catchment is required as a matter of urgency..

More than half of the land in the ACT may be needed for water
supply catchments in the long term. The Cotter and Googong systems
will be fully utilised when the Canberra/Queanbeyan population
reaches 450 000.

The Naas-Gudgenby catchment of 671 km 2 has been identified as
a future possible major source of water supply.

Most of the grazing properties in the northern part of this catch¬
ment area would either be flooded or affected by the future construction
of Tennent Reservoir. The residue of open land, immediately around
the reservoir site, could come within the water quality control manage¬
ment zone. The steep lands beyond the management zone would
require restoration of vegetation to control soil erosion and prevent
siltation of the reservoir.

4. Augmentation of Water Supply

In view of the limited resource available to meet future demands,
there is a need to:

• preserve the option to utilise the Naas-Gudgenby Catchment Area

as a future source of water supply

212

• restrict the allocation of AC1 water to the sub-region

• instigate a programme aimed at reducing water consumption in
the longer term.

On the basis of current consumption and projected population
growth, augmentation of the water supply will need to commence
within the plan period. Augmentation will require the construction
of either a further dam within the Cotter Catchment Area, or the
construction of the Tennent Reservoir on the Gudgenby River.

The Tennent Reservoir could supply water for an additional
population of between 180 000 and 215 000. Construction work on
the dam would need to begin during the plan period, approximately
seven to nine years prior to its planned in-service date. The future
Tennent Reservoir area, including a foreshore buffer zone, will be
excluded from the Gudgenby Nature Reserve, to preserve the option
of exploiting the Naas-Gudgenby Catchment Area for water supply
purposes.

National Capital Entrance Routes

5. Federal Highway Duplication and Upgrading

The increasing ACT population and changing lifestyles will
necessitate further development of regional roads. The Federal
Highway is a major approach road to the National Capital and is in
need of upgrading.

Improvement works will be undertaken and co-ordinated with
associated works in New South Wales.

6. Reconstruction of Monaro Highway

The Monaro Highway is the main connection from Canberra to
the southern region of New South Wales and is used extensively by
traffic travelling to and from the Snowy Mountains. The NSW Depart¬
ment of Main Roads is progressively upgrading this road between
Cooma and the ACT/NSW border. The road in the ACT is being
similarly upgraded and construction has been completed to within
13.3 km of the border.

Design is currently in hand for the remaining length within the
ACT to be constructed in three stages.

Rural Roads

7. Upgrading of Cotter Road

The Commission’s emphasis in the future development of rural
roads will be on upgrading those roads that provide access to facilities
close to urban development to meet the trend towards increasing use
of more local recreation areas. As part of this programme, the Cotter
Road will be upgraded to improve safety and provide overtaking lanes
in appropriate locations.

8. West Belconnen - Uriarra Road Connection

Access for Belconnen residents to the recreation areas on the
Murrumbidgee and Cotter is presently by a circuitous route. A road
connecting Stockdill Drive with Uriarra Road will be constructed and
this will shorten the trip to the Uriarra and Cotter areas by between
10 and 15 km.

9. Brindabella Road - Mt. Franklin Road Upgrading, Mt. Franklin
Road - Corin Road Connection

These works will complete a recreation and tourist route from the
Cotter to Tharwa via the Brindabella Road, Picadilly Circus,
Mt. Franklin, and the Corin Dam. The loop road created will provide
views of the Snowy Mountains and the floodplain of the

Murrumbidgee. There are major environmental factors to be
considered in the design. These include water quality in the Cotter
Catchment, environmental impacts on the wilderness area the road
would traverse, and regional recreation resources. The provision o
the road will be considered in detail, as part of the studies for the
Cotter Catchment Area Policy and Development Plan, which is

currently in progress.

10. Boboyan Road Upgrading

This project is a continuation of work currently being undertaken
to upgrade and seal the Boboyan Road to the ACT border. Earlier
staces have involved reconstruction of the road south to the Gudgenbv
River crossing. This work will include reconstruction of the road south
of the crossing and will take place on the existing road alignment.
Minor adjustments will be carried out in a tew locations to improve
the geometry of sharp bends, consistent with the higher design speed
and safety needs ot the upgraded road. The new scaled road will serve
reeional needs and provide the major access into Gudgenby Nature
Reserve.

11. Relocation of Naas Road

The construction of Tennent Reservoir will necessitate relocation
of the northern part of the Naas Road higher up the slopes ot
Mt. Tennent. This road will remain as the northern entry route into
Gudgenby Nature Reserve. It is the direct route between the Tharwa/
Lanvon area and Gudgenby Nature Reserve, tor recreational and tourist
access and, in the long term, would establish the Riverview area as an
entry point to the Gudgenby area and provide a spectacular lakeside
drive along the edge of Tennent Reservoir. Ultimately it is expected
to become a major tourist route.

214

Metropolitan Canberra Development Flan
(Urban Area)

Substantial progress has been made in the development of Canberra
as the National Capital and Seat of Government and as a city housing
over 230 000 people, most of which has been achieved in the past two
decades. While Canberra’s ‘boom’ conditions of the early 1960s to the
mid 1970s may not be repeated, considerable development needs will
arise in the next two decades from natural increase in the population,
changes in the demographic composition, net migration arising from
public and private sector investment and job creation. In addition, there
will be a wide range of demand for urban goods and services arising
from changes in the urban fabric, technological and social changes and
demand for services arising externally, such as from tourists and the
regional population. Future National Capital functions and buildings
still to be established would also generate demands.

This section of the Development Plan outlines, in broad terms, the
key development works required during the next twenty years within
the Canberra urban areas (Figure 66). These works are generally major
elements of the metropolitan system, although it should be recognised
that development of the scale envisaged over the next twenty years
implies a large number and wide range of smaller development projects
as well.

For example, the major elements of development the Commission
normally provides under current arrangements in a new settlement area
are as follows:

• residential land development

• water supply

• sewerage

• stormwater

• public housing

• education facilities

• roads and public transport

• parks and reserves

• municipal facilities

• commercial land development

• recreational and cultural facilities

• health and welfare facilities

• Commonwealth offices

Public utility services for electricity supply and telephone reticulation
are provided by ACTEA and Telecom respectively, while the private
sector is responsible for most housing development, retail centres, office
accommodation for private and government use, development ot
tourist-related facilities, industrial development and some private
education and health facilities.

It has been assumed that private enterprise development in the
future is likely to be similar to that undertaken in the past. Many of
the private sector activities are directed at meeting needs arising from
population and employment growth, or its changing composition, such
as housing, retail centres, offices and industrial development. Non¬
government education, health and welfare facilities are also related to
population increase generally, or to emerging age-specific requirements,
such as schools and aged persons facilities. Other private sector
developments have been based on meeting National Capital and Seat
of Government needs, including the establishment of national
associations.

215

Major opportunities for private sector investment in the future will

be in the areas of:

• housing (new construction, alterations and additions,
redevelopment)

• commercial centre development (new development in existing and
new' centres, redevelopment in existing centres)

• tourism (accommodation, attractions, complementary facilities such
as convention centres, etc.)

• manufacturing (development associated with construction
industry; high technology, information and communications-
related industries)

• health (facilities for health and welfare projects, such as hospitals,
aged persons homes and nursing homes).

1 Parliamentary Zone Development - works will be undertaken to
meet the needs of Parliament, national institutions, tourism and
public administration.

2 Museum of Australia Development - development of Museum at
Yarramundi Reach, road access from Lady Denman Drive and
complementary works such as car parking and landscaping

3 Development of the National Sports Centre - progressive develop¬
ment as a sport and recreation venue and training facility.

4 Development of the National Botanic Gardens - further develop¬
ment including a Visitor Information Centre to enhance its
landscape and visitor facilities.

5 Inner Canberra Land Settlement and Urban Consolidation -
development of North Lyneham. further redevelopment of
Kingston.

6 Central Area Employment Expansion - Employment expansion
of between 19 450 and 24 450 of which between 17 650 and
22 650 will be in Civic. Parkes/Barton and Russell/Campbell
Park.

7 Civic Centre Employment Expansion and Retail Development
- Civic Centre employment will grow by between 9 000 and
11 000 and its retail floorspace in the order of 15 000m 2 .

8 Woden-Weston Creek Land Settlement - development will be
consolidated by the development of Isaacs, Stirling and East
O'Malley and vacant medium-density sites.

9 Woden Town Centre Employment Expansion and Retail Develop¬
ment - employment will grow to between 11 000 and 13 000, and
its retail floorspace by up to 2 500m 2

10 Belconnen Land Settlement - development will be consolidated
by the development of vacant residential land including McKellar,
Florey and the Belconnen Naval Station

11 Belconnen Town Centre Employment Expansion and Retail
Development - employment will grow to between 8 000 and
13 000, and retail floorspace by up to 2 500m 2 .

12 Tuggeranong Land Settlement - the development of remainder
of North-East Tuggeranong, the Town Centre and Lanyon.

1 3 Ermdale Centre Retail Development - a 4 000m 2 retail centre will
be open by the time Tuggeranong's population reaches 50 000.

15 Gungahlin Land Settlement - settlement will commence in
1989-90 and the town will grow to an eventual population of
84 000.

17 Industrial Development - Fyshwick. Mitchell and Hume and the
Canberra Technology Park will be developed to cater for likely
demands over the next two decades.

18 Development of Special Tourist Commercial Facilities - tourist
facilities will be directed where possible to Civic and North
Watson.

19 Metropolitan Roads Upgrading or Development - the road net¬
work will be expanded to cater for expected population and
employment growth

20 Upgrading of Airport and Railway Facilities - these facilities will
be upgraded to cater for growth in tourist, business and govern¬
ment traffic.

21 Development of Major Electricity Network - the network will be
expanded to cater for expected population and employment
growth.

22 Water Resources Infrastructure - the water, sewerage and storm¬
water networks will be expanded to cater for the expected
population and employment growth.

Proposed Commonwealth Works
Potential Private Enterprise Works

0 1 2 3 4 5 km

Figure 66 Metropolitan Canberra

Development Plan (Urban Area)

216

Gungahlin

Ginhmderra

Burley

Oaks

Estate

Weston

Queanbeyan

Tuggerationg

NSW

Tharwa

217

The principal development works required during the next twenty
years within the Canberra urban area are outlined below, under the
following headings:

• National Capital facilities

• Inner Canberra

• Woden-Weston Creek

• Belconnen

• Tuggeranong

• Gungahlin

• industry

• tourism

• transport

• public utilities.

National Capital Facilities

1. Parliamentary Zone Development

Particular emphasis will be given to the development ot the
Parliamentary Zone over the next two decades to enhance Canberra s
role as the National Capital.

The future development of the Parliamentary Zone is regarded
by the Commission as falling into two phases. First, the Commission
has identified a number of works, including roads, bridges and land¬
scape elements, which should be completed, prior to the opening ot
the New Parliament House in 1988, to develop and enhance its setting
and to provide the appropriate access to the building trom the
Parliamentary Zone.

Second, in the period after 1988, other buildings and works might
occur to meet the needs of Parliament, national institutions, tourism
and public administration. Any further development in the
Parliamentary Zone should be located so as to consolidate the existing
land-use structure and the setting created by the existing national
institutions. The National Library, High Court and National Gallery
are significant buildings and major tourist attractions. The
Commission’s detailed intentions regarding the future development
of the Parliamentary Zone are contained in the Parliamentary Zone
Development Plan.

Because of the role of the Parliamentary Zone as a tourist venue,
it is the Commission’s intention to upgrade tourist facilities and related
transport systems progressively, to ameliorate the existing lack of
legibility and the significant separation between buildings in the Zone.

2. Museum of Australia Development

An area of 90 ha has been set aside adjacent to Yarramundi Reach,
for the development of the Museum of Australia. The site offers an
extensive lakeshore frontage, a variety of vegetation, and high quality
surroundings, which will enhance the potential of the museum to
integrate indoor and outdoor displays in innovative ways. The
possibility also exists of a ferry link between the Museum and other
national institutions in the Parliamentary Zone, such as the Australian
National Gallery and the National Library of Australia.

Works which will be required include:

• development of the Museum facility itself, comprising public
display spaces, visitor services, curatorial facilities, and educational
services

• road access from Lady Denman Drive

• complementary works, such as car parking and landscaping.

218

3. Development of the National Sports Centre

The National Sports Centre at Bruce is being progressively
developed by the Commission to provide both a venue for national
and international sporting and recreation events, and facilities
available for year-round training by sportsmen and sportswomen
enrolled at the Australian Institute of Sport.

The developing complex currently comprises the National Athletics
Stadium, the National Indoor Sports Centre, an Indoor Swimming
Centre, a tennis hall, a warm-up hall for gymnasts and outdoor tennis
courts. It provides facilities of Olympic standard for 22 indoor sports
and athletics and a venue for National League Soccer matches.

A Development Plan for the National Sports Centre has been
prepared by the Commission, which provides for further stages of
development as the need arises.

4. Development of the National Botanic Gardens

The National Botanic Gardens will be further developed to enhance
its landscape and visitor facilities. A Visitor Information Centre
housing a theatrette, exhibition space, reference herbarium and book
sales area will be located close to the main entrance and a Conservatory
for tropical plants is under investigation.

An extension of 37 ha will be fenced, and progressively developed.
Paths and roads will be provided for public access.

Public parking provision is to be increased and an underpass
beneath Black Mountain Drive established to connect the two sections
of Gardens.

A Development Plan will be prepared to guide the future develop¬
ment of the expanded National Botanic Gardens.

Inner Canberra

5. Inner Canberra Land Settlement and Urban Consolidation

North Lyneham is the only major area of vacant land yet to be
developed in Inner Canberra. It will accommodate an eventual
population of about 1 600. Settlement will commence within the next
four years. It is envisaged that a small shop site will be released in
the development.

Redevelopment of the older parts of Canberra, such as Kingston,
will continue, but it is unlikely that an increase in the number of
dwellings through redevelopment will create corresponding increases
in population. The Commission will continue to investigate options
for consolidation and redevelopment. Studies will be carried out on
an area-by-area basis with a view to introducing local area policies
to guide redevelopment.

Inner Canberra will remain the central focus for tourist attractions
associated with National Capital and metropolitan functions, and for
tourist accommodation.

Other projects likely to accommodate local employment growth
in the plan period include the West Deakin office area and Section 67
Deakin diplomatic area, which will be progressively developed.

6. Central Area Employment Expansion

The Central Area is a particularly sensitive environment ot
Canberra, as it embraces the Parliamentary Zone. Care has to be taken
to ensure that traffic pressures do not overwhelm it.

Within the plan period, employment in the Central Area is planned
to increase from 44 850 to between 64 300 and 69 300, with substantial

employment expansion occurring in Civic (9 000 to 11 000 ^ cre ^ se) ;
Parkes/Barton (4 350 to 7 350 increase), and Russell/Campbell Park

(4 300 increase).

Expansion in Civic provides the greatest opportunities for the
private sector in the Central Area to catei toi the ottice, retai mg,
personal service, and recreational demands geneiated by t e area
workforce and population. The opportunities for the private sector
elsewhere in the Central Area will be primarily in the construction
of office accommodation in Parkes/Barton and Russell/Campbell

Park.

An indication of the possible build-up ot employment in the
Central Area is shown in Table 99.

Table 99 Central

Area Employment

Expansion

1982

1987

1992

1997

2002

2003

Civic Centre

Parkes/Barton

16 000

10 650

22 000-23 500

11 000-13 000

23 000-25 000

12 500-15 000

24 000-25 500

14 000-16 000

24 500-26 000

14 800-17 700

25 000-27 000

15 000-18 000

Russell/Campbell

Park

Other

Total

6 600

11 600

44 850

7 000

12 000

52 000-55 500

8 500

12 500

56 500-61 000

9 600

12 900

60 500-64 000

10 700

13 300

63 300-67 700

10 900

13 400

64 300-69 300

• Civic Centre

Civic’s employment is expected to grow to between 25 000 and
27 000 within the plan period, as Civic consolidates its
metropolitan role as the major office employment centre. Beyond
the 25 000 to 27 000 employment level, the transport costs, in terms
of congestion, road capacity and car parking, would increase
substantially.

• Russell/Campbell Park

These nodes will grow in accordance with the expansion in the
Defence Department.

• Parkes/Barton

As the location for the key policy departments, Parkes/Barton
will grow as a result of the growth in the Australian Public Service,
and through the establishment and growth of national institutions,
such as the New Parliament House, National Archives Head¬
quarters, the National Library, High Court and the National
Gallery.

• Acton

Expansion in the Australian National University, CSIRO, and
Royal Canberra Hospital employment is expected to be slow in
the plan period.

• Duntroon/ADFA

Expansion of employment will occur in this area, as a result of
the establishment of the Australian Defence Forces Academy.

7. Civic Centre Employment Expansion and Retail Development

In order for Civic to better serve the population of North and
South Canberra, and to facilitate its metropolitan role, an expansion
of retailing in the order of 15 OOOnr will be encouraged, through the
release of Section 38. It is intended that the site will be released within
the next two years.

Also likely in the plan period is the redevelopment, or refurbish¬
ment, of some of the older commercial premises in Civic Centre, which
would achieve consolidation of retail activity, promote the introduction
of new retail layouts and encourage further modernisation of retail
facilities within Civic.

220

To encourage Civic Centre to develop its metropolitan role, road
and parking facilities will be progressively improved, in order to
increase accessibility and enhance the physical environment by
upgrading public spaces and landscape. A car parking structure will
be developed in Civic in the next two to three years, to relieve existing
parking pressures. Construction may be carried out by the
Commission or private enterprise. Development works which will be
carried out in Civic are described in the Civic Centre Policy Plan and
Development Plan.

Woden - Weston Creek

8. Woden - Weston Creek Land Settlement

The development of the urban area is to be consolidated by the
servicing of residential areas in Isaacs, Stirling and East O'Malley,
and vacant medium-density housing sites. These areas have an eventual
population capacity of about 6 500. Isaacs will commence settlement
in the next four years, and Stirling will commence settlement in the
next year.

A local shop site will be released in Isaacs by the time the
neighbourhood is about 50 per cent settled.

9. Woden Town Centre Employment Expansion and Retail

Development

Woden Town Centre employment will be planned to expand to
between 11 000 and 13 000, through the growth of activities currently
located at the centre and the consolidation of its role as the community
focus for Woden-Weston Creek.

Mixed-use retail developments will be permitted, although their
expansion will be constrained to enable release of Section 38 City and
the Tuggeranong Town Centre. An overall release of 2 500m : of retail
floorspace will be permitted in Woden Town Centre in the plan period.

A car parking structure will need to be developed in Woden Town
Centre over the next few years to accommodate increasing demand.
Construction may be carried out by the Commission or private
enterprise.

Belconnen

10. Belconnen Land Settlement

The development of the town will be consolidated by the develop¬
ment of McKellar and Florey, smaller infill subdivisions and vacant
medium-density housing sites. The eventual population capacity of
these housing areas is about 14 000.

The Belconnen Naval Station is expected to be relocated within
the next decade. The area will be used for residential purposes,
accommodating an eventual population of about 3 600.

Currently, land in McKellar is being released and land in Florey
will become available within the next two years. Shop sites will become
available when the settlement is about 50 per cent complete in each
area. Primary schools will be developed in Florey and McKellar.

11. Belconnen Town Centre Employment Expansion and Retail

Development

Employment in the Belconnen Town Centre is planned to grow
from 8 000 to between 13 000 and 15 000, in response to the expansion
of activities located in the centre and in its role as the community
focus for Belconnen. An overall increase ot 2 500m ot retail
floorspace will be permitted in Belconnen Town Centre in the plan
period.

Tuggeranong

12. Tuggeranong Land Settlement

The development of Tuggeranong will proceed to an eventual
population of approximately 85 000-90 000. The remainder ot North-
East Tuggeranong, the Town Centre and Lanyon will be substantially
developed, prior to the commencement of Gungahlm.

A lake will be developed in Tuggeranong, as a multi-use facility,
providing recreational opportunities, landscaped areas, stormwater
drainage and pollution control for protection of the Murrumbidgee

River.

At the local level, about 20 000m’ of retail floorspace will be
released at centres in Chisholm, Calwell, Isabella Plains, Theodcne,
Fadden and Lanvon. The timing ot the releases will be related to the
population growth within each ot these areas.

13. Erindale Centre Retail Development

The Erindale Centre (4 000 nr) is planned to be open when the
town population approaches 50 000.

14. Tuggeranong Town Centre Development

The development of tow n centre retailing in Tuggeranong has been
related to the population growth in Tuggeranong and the overall
metropolitan supply of retail floorspace. The eventual size of the retail
component of Tuggeranong Town Centre is intended to be between
40 000mand 50 OOOnr. Detailed planning of the Town Centre has
commenced in order to facilitate the development ot a shopping centre
and support retail and service trades uses. In March 1984 it was
proposed that 24 OOOnr’ could comprise the first stage release of retail
floorspace. The extension of Athllon, Erindale and Isabella Drives
are being designed to support the development ot the Town Centre.
These works will also include the dam to create Lake Tuggeranong.

The growth of employment in the Tuggeranong Town Centre has
been related to the employment growth within Canberra, in particular
the growth of Public Service Act office employment. Public Service
Act office employment is likely to grow by 20 300 during the plan
period, of which it is intended that between 6 000 and 8 500 will be
located in the Tuggeranong Town Centre. A 10 OOOnr building to
accommodate 500 office workers will be commenced within two years.
An indication of the intended employment expansion in the
Tuggeranong Town Centre is shown in Table 100.

Table 100 Tuggeranong Town Centre Employment Expansion

PSA

Tuggeranong Employment
Population at TTC

Total Employment
at TTC (1)

1982

1987

1992

1997

2002

2003

32 800
57 000

88 500
90 000

89 000
89 000

500-1 500
3 800-5 400
5 000-7 100

5 900-8 400

6 000-8 500

1 500- 2 500
7 600-10 800

10 000-14 200

11 800-16 800
12 000-17 000

(l) Assumes PSA office employment is 50 per cent of total employment
at the centre.

222

The development of the Town Centre will provide substantial
investment opportunities for the private sector, in terms of the
construction and leasing of retail, office, service trades, community
and recreational facilities.

Gungahlin

15. Gungahlin Land Settlement

The development of Gungahlin will proceed to an eventual
population of approximately 84 000.

At the local level, approximately 25 000 m ; of retail floorspace
will be released at group centres and local centres.

Full Gungahlin development, without constraints on nutrient
levels, could reduce water quality in Lake Ginninderra to a point
detrimental to the use of the lake. It will therefore be necessary to
ensure that means of containing nutrients are incorporated into the
planning of Gungahlin’s infrastructure. In particular, structures will
be developed, which will protect Lake Ginninderra against the water
pollution caused by land servicing in Gungahlin.

The future form and structure of Gungahlin development will be
carefully investigated, with respect to water quality implications and
in order to ascertain whether or not higher average densities and
different lifestyles could be achieved.

16. Gungahlin Town Centre Development

It is intended that the first stage of the Town Centre, comprising
a 5 000 m 2 group centre, will be operating by the time the town’s
population is 20 000. The level of floorspace will increase with the
town’s population. An indicative build-up of floorspace is contained
in Table 101.

Table 101 Gungahlin Town Centre Retail Development

Gungahlin

Gungahlin Town Cer

Population

Floorspace (nr)

20 000

5 000

35 000

20 000

60 000

40 000

80 000

47 000

Employment growth at Gungahlin Town Centre will be related
to the total growth in employment opportunities in the plan period,
particularly the growth in Public Service Act office employment.
Within the plan period, Gungahlin Town Centre is likely to attract
between 3 500 and 6 000 Public Service Act office jobs. An indication
of employment growth in the Gungahlin Town Centre is shown in
Table 102.

Table 102 Gungahlin Town Centre Employment Expansion

1982

Gungahlin

Population

PSA

Employment
at GTC

Total Employmt
at GTC (1)

1987

1992

10 000

1997

50 000

1 700-2 250

3 400- 4 500

2002

80 000

3 200-5 700

6 400-11 400

2003

84 000

3 500-6 000

7 000-12 000

(I) Assumes PSA office employment is 50 per cent of total employment
at the centre.

Industry

17. Industrial Development

Industrial land will continue to be developed in Fyshwick, Hume
and Mitchell. These areas have adequate capacity to cater tor likely
demands over the next two decades, although various improvements
will be made to the estates to increase their attractiveness. In addition,
the Canberra Technology Park at Bruce has been identified tor
development of high technology industry.

Another area at West Belconnen has been identified tor longer-
term industrial needs. There should, therefore, be no turther need
to select new locations for industrial areas during the next twenty
years, unless special purpose industries with specific and new needs

arise.

Tourism

18. Development of Special lourist Commercial facilities

Tourist facilities will be directed, where possible, into Civic Centre
or the Special Tourist Commercial Area at North Watson, thereby
consolidating the existing tourist-oriented facilities in these areas.
Possible developments include facilities providing entertainment,
recreation, accommodation or similar complementary scr\ ices to the
touring or holidaying public. Designated tourist routes will be
consolidated through the provision of appropriate facilities, amenities
and signposting, and by siting new tourist developments in locations
which facilitate interaction with other land uses.

Transport

19. Metropolitan Roads Upgrading or Development

To accommodate the additional traffic generated by future
population in Tuggeranong and Gungahlin, and any new development
within the existing urban area, the metropolitan road system will need
to be extended during the plan period by the following major elements.

• Eastern Parkway

The Eastern Parkway is required to service the future population
growth in Tuggeranong. It will relieve congestion on the existing
major arterials and provide an alternative route to the Central Area
and other east Canberra destinations.

The first stage of the Eastern Parkway, between Morshead Drive
and Jerrabomberra Avenue, is programmed for construction
within the next three years. The second stage, from Jerrabomberra
Avenue into Tuggeranong, will be needed by the time
Tuggeranong’s population reaches approximately 55 000-60 000.
It will be progressively upgraded as Tuggeranong’s population
grows to its intended eventual size, and will be subject to engineering
and environmental studies.

• Erindale Drive

Erindale Drive will be upgraded to a minimum of two lanes each
way before the second stage of the Eastern Parkway is constructed.

• Erindale Drive - Eastern Parkway Connection

A new arterial link from Erindale Drive to the Eastern Parkway
will be constructed, in conjunction with the development of the
Eastern Parkway (i.e. at about the time Tuggeranong reaches a
population of 55 000-60 000).

• Flemington Road

Flemington Road will be duplicated to improve the efficiency of
the existing North Canberra road system.

• Monash Drive and John Dedman Parkway

The first of two new major roads (Monash Drive and John
Dedman Parkway) to service inter-town traffic from Gungahlin

224

will be needed by the time Gungahlin’s population reaches
approximately 5 000.

The construction of the second of these new major roads will need
to begin by the time Gungahlin’s population reaches approximately
50 000-55 000.

John Dedman Parkway will be constructed on an alignment east
of the National Sports Centre and will connect with Caswell Drive
at Belconnen Way. An arterial connection will be made on the
eastern side of Black Mountain to Parkes Way.

Monash Drive will be constructed west of Mount Ainslie and
Mount Majura and will connect with the proposed Eastern
Parkway at Morshead Drive.

• Eastern Parkway - Monash Drive Connection

An arterial connection between the Eastern Parkway and Monash
Drive will be constructed, in conjunction with Monash Drive.

• William Slim Drive

William Slim Drive from Aikman Drive to the Barton Highway,
will be upgraded to a dual carriageway facility and realigned to
east of Lake Ginninderra to service traffic from Gungahlin.

• Upgrading of Existing Parkways

The upgrading of Tuggeranong Parkway and Parkes Way to
Coranderrk Street, will be progressively carried out as traffic
demands warrant. The further development of Glenloch
Interchange will be undertaken in conjunction with these works.

• William Hovell Drive

William Hovell Drive will be progressively upgraded as traffic
demands warrant.

• Caswell Drive and Bindubi Street

Caswell Drive and Bindubi Street will be upgraded to four-lane
arterial roads in conjunction with the upgrading of William Hovell
Drive.

• Morshead Drive

The duplication of Morshead Drive will be undertaken in con¬
junction with the first stage of the Eastern Parkway.

• Fairbairn Avenue

Fairbairn Avenue will be duplicated when traffic demands warrant.

• Athllon Drive

The duplication of Athllon Drive and its realignment to provide
more direct access to the Woden Tow n Centre will be constructed
within the next ten years.

20. Upgrading of Airport and Railway Facilities

A need to upgrade existing airport facilities in Canberra has been
identified. It is envisaged that the facility will remain a domestic
airport. The possibility exists for a new terminal to be developed. It
this occurs the existing terminal would be made available tor an
alternative purpose, such as general aviation.

The Australian National Railways Commission has a longstanding
proposal for a Canberra-Yass railway and, more recently, a proposal
for a new link to join the Melbourne-Sydney line between Yass and
Goulburn, replacing the existing line and reducing the Canberra-
Melbourne distance. As the population increases, pressure for
improved rail connections and facilities also will increase. As well as
a new track, a new station and freight handling facility may be
required. In addition, because the railway is a major approach route
to the National Capital, landscape improvements will be carried out
to upgrade the scenic quality along and visible from the route.

Public Utilities

21. Development of Major Electricity Network

The development of the major electricity network which will be
required over the next two decades can be tentatively described as
follows:

• with the expected growth of population and land servicing in
Tuggeranong it will be necessary to extend the 132 kV subtrans¬
mission network and provide a 132 kV 11 k\ substation in
Gilmore by 1986 and at Conder by the end of the decade

• it is necessary to link the Tuggeranong 132 k\ network back to
the new Causeway 132 kV/11 kV substation to ensure capacity
and security of supply to the New Parliament House

• some penetration ot Gungahlin will be necessary. This will be
subject to further detailed investigation.

22. M ater Resources Infrastructure

The provision of services to the new settlement areas, and the
containment of impacts ot metropolitan growth on existing uses ol
lakes and streams, will require the development and augmentation
of hydraulic infrastructure. The follow ing items constitute the major
elements in the programme.

a) W ater Supply:

• the provision of a direct link from Googong to the Tuggeranong
bulk water supply, and the southern extension ol the bulk water
supply system to service Lanyon

• extension of the Belconnen bulk water supply system to north
and west Gungahlin, and the extension ot the Googong Main
from Campbell to east Gungahlin

b) Sewerage:

• construction of a trunk sewer to service Lanyon

• extension of the Ginninderra and Sullivan’s Creek trunk sewers
to service Gungahlin, and construction of the North Molonglo
Valley Interceptor Sewer tunnel to service the increased load on
Sullivan’s Creek system resulting from the development ot
Gungahlin

• augmentation of the capacity of the Lower Molonglo Water
Quality Control Centre

c) Stormwater and Water Pollution Control:

• provision of a water pollution control pond at Point Hut, and
provision of main drains in Conder and Banks

• extension of Ginninderra and Sullivan’s Creek drains to service
Gungahlin and construction of a number of water pollution
control ponds as the means of containing pollution from urban
runoff.

226

Implementation

On the forecast rate of growth, land for development in the existing
towns and in North-East Tuggeranong is expected to be largely
developed by the financial year 1987-88. By this time, land will be re¬
quired for development in another settlement area, with the choice be¬
ing either Lanyon or Gungahlin.

Under the population growth projected in the plan period and the
Commission’s current preferred settlement sequence within Gungahlin,
land in Gungahlin would not be available in 1987-88.

The planning for Gungahlin has commenced; however, first land
turn-off is unlikely to occur until 1989-90, because of the lengthy
pipelines involved in planning and in providing major infrastructure
elements. The planning and development pipeline for a new town is
six-and-a-half years between initial planning and first settlement.
Lanyon, as a result of its more advanced stage of planning (Conder,
its first suburb, is already gazetted) can be available for settlement in
1987-88.

-»-»7

NCDC Publications
Audio-Visual Presentations

The National Capital Development Commission, the statutory body charged
with the planning and development of Canberra as the National Capita o
Australia publishes for purchase a wide range of reports and technical papers
which provide information on many ot its acti\ ities.

In addition, to cater for a demand for visual information on Canberra in
the form of 35 mm slides, NCDC has available an audio-visual programme
consisting of attractive vinyl wallets containing 39 colour slides, pre-recorded
commentary on cassette and printed information. This set is available in
English or Japanese for $25.00 plus $2.50 postage. There is also a small kit
of 12 slides, with printed information available tor $5.00 plus 90 cents postage.

The publications listed can be purchased at NCDC’s ot tices,
220 Northbourne Avenue, Canberra or by forwarding your order with a cheque
or financial authorisation to cover cost and postage to:

Publications Sales’

National Capital Development C ommission
GPO Box 373

CANBERRA 2601 ACT Australia

The repons document major planning issues in the Commission’s operations.
They are intended to keep the public aware of the broad planning base from
which NCDC works as well as providing professionals with documents which
can be identified as current planning statements for the ACT.

The Technical Paper Series provides general information on Commission
operations as well as setting out in some detail information on certain projects
in which NCDC has acquired technical or operational expertise. Technical
papers are prepared with a view to encouraging informed professional and
general public comment.

Technical Papers

No. 1 The Role of the Social Planning Group within the NCDC October
1974.

No. 2 Molonglo Arterial Canberra January 1975.

No. 3 Operational Review in the NCDC Revised edition November 1976.
No. 4 Housing requirements of the Aged: Social & Psychological Aspects
February 1975.

No. 5 National Sports Centre Bruce—out of print

No. 6 Submission by the NCDC to the Royal Commission on Australian
Government Administration February 1975.

No. 7 Canberra: Demographic & Social Background. Revised edition May
1977.

No. 8 An introduction to Corporate Planning—out of print
No. 9 Project Management June 1975.

No. 10 Resident Satisfaction and Design Effectiveness of Two-Storey Flats.
July 1975.

No. 11 Planning Brief for Lanyon Territorial Unit August 1975.

No. 12 Population and Labour Force Projections for Canberra and
Queanbeyan 1976-1986. Revised edition December 1976.

No. 13 Social and Psychological Needs Related to Residential Density and
Housing Form April 1976.

No. 14 The Use of Environmental Impact Statements in Environmental
Planning April 1976.

No. 15 District Plan for Florey Neighbourhood, Belconnen October 1976 —out
of print.

No. 16 Monitoring Survey of Medium Density Housing in Canberra and
Queanbeyan December 1976.

No. 17 District Plan for Isaacs, Woden-Weston Creek January 1977.

No. 18 Government and Community Involvement in Planning and Develop¬
ment of Canberra April 1977.

Part 1 Submission to the Parliamentary Joint Committee on the ACT
Part 11 Background Paper: NCDC Powers & Procedures.

Part 111 Background Paper: Public Participation in Planning.

No. 19 Structure Plan for West Murrumbidgee, Tuggeranong May 1977.

228

No.20 Guidelines for Subdivision July 1977.

No.21 Urban Open Space Guidelines. Revised edition January 1981.

No.22 Low Energy House Design for Temperate Climates August 1977.
No.23 An Open Space System for Canberra: A Policy Review' October 1977.
No.24 Tuggeranong: The Views of Some Early Residents November 1977.
No.25 Traffic Noise and its Effect on Site Selection and Design of Dwellings
April 1978.

No.26 Canberra Schools in the 1980s May 1978.

No.27 NCDC Corporate Planning July 1978.

No.28 Causeway Redevelopment: A Case Study in Public Participation May
1980.

No.29 Monitoring Stormwater Flow and Water Quality in Paired Rural and
Urban Catchments in the ACT August 1980.

No.30 Waters of the Canberra Region April 1981.

No.31 Retailing in Canberra May 1981.

No.32 Monitoring River Recreation Demand in the ACT June 1981.

No.33 Murrumbidgee River Ecological Study July 1981.

No.34 Utilisation and Protection of the Murrumbidgee River System in the
ACT July 1981.

No.35 Narrabundah Regeneration March 1983.

No.36 A Play Area for Kambah District Park. September 1983.

No.37 Cycleways, September 1983.

No.38 Canberra’s Population Projection 1983-1993 November 1983.

No.39 Selection of a Site for The Museum of Australia. March 1984.

No.40 Canberra’s Economic Climate Assessment, Development Prospects
1984-1988. April 1984.

No.41 Guide-Sign Manual. April 1984.

No.42 The Ecological Resources of the ACT. May 1984.

Reports

Tomorrow’s Canberra May 1970.

A Land Use Plan for ACT March 1975.

Glenloch Interchange and Associated Roads

Environmental Impact Statement: Supplementary Report November 1977.
Yarralumla Policy Plan Report on Environmental Issues February 1979.
Yarralumla Policy Plan Supplementary Report on Environmental Issues March
1980.

22nd Annual Report October 1979.

23rd Annual Report September 1980.

24th Annual Report October 1981.

25th Annual Report October 1982.

26th Annual Report December 1983.

Works of Art in Canberra December 1980.

Guidelines on Engineering and Environmental Practices—Hydraulics June 1981.
Civic Centre: Policy Plan Development Plan for Discussion February 1982.
Parliamentary Zone Draft Development Plan June 1982.

Basic Specifications: Roads, Hydraulics Services and Landscape Edition No.
2 October 1982.

Erindale Centre Development Plan November 1982.

Erindale District Centre, Policy Plan Development Plan July 1983.
Murrumbidgee River Corridor Policy Plan Development Plan. Draft for
Discussion October 1983.

Civic Centre Canberra Policy Plan Development Plan February 1984.

Audio-Visual Presentations

Programme A VS 1-7/82; Canberra, Australia’s National Capital—39 slides and
cassette.

Programme AVS2 - 12/83: Canberra, The Garden City—39 slides and cassette.
Programme SK1-5/84: 12-slide presentation and script on Canberra.

Guidelines on Engineering and Environmental Practices

The following guideline documents are available for loan from the NCDC
Library, or may be purchased from the Commission’s Publications Office.

Hydraulics—June 1981.

Public Lighting—July 1983.

-.N' ,X\“

teis&KS'

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