VICTORIA QUAY WATERFRONT - Fremantle Ports

2012VICTORIA QUAY WATERFRONTWORKING GROUP REPORT

CONTENTS0 EXECUTIVE SUMMARY1234567INTRODUCTIONKEY FINDINGSKEY IMPERATIVESCOMMERCIAL CONDITIONSA PLANNING DIALOGUERECOMMENDATIONSAPPENDICES

EXECUTIVE SUMMARYFremantle PortIn times past, its port has been central tonearly every aspect of Fremantle’s existence -an inter-related influence on so many aspectsof its social, cultural, economic and industrialcharacter. Truly, Fremantle was the Port City.In more recent decades, the intensity of thisrelationship has diminished, as indeed it hasfor nearly every other urban-based port in thedeveloped world. Most fundamentally, this hashappened because of evolutions in the waythat goods and people are moved. In the caseof freight, containerisation has transformed theway that general goods are loaded and unloaded,transferred and stored. A highly labour-intensiveactivity has become a highly mechanised one.In the case of passengers, commercial airlineshave ended the traditional means that peoplearrived and departed from our shores.As a result, port workers and immigrants donot fill Fremantle’s streets as they once did.There are no longer the strong cords to drawpeople back and forth between the wharvesand the City streets. People are certainly stillaware of the port’s existence and for the mostpart they are still proud of it, but the railway linehas emerged as a demarcation line over whichmany people now rarely cross.There was a time when every person inFremantle either worked at the port or knewsomebody who did. The Fremantle wharvesonce played a key role for the State and thenation in a tangible way that every Fremantlecitizen intimately understood.Today, changes in port conditions mean thatthe western end of Victoria Quay is largelynot required for port operations. Importantly,this does not denote a decline in the role ofFremantle Port: its throughput continues togrow substantially and it plays a pivotal role inthe State economy. It does mean however, thatVictoria Quay offers an unrivalled opportunity tore-connect the Port and the City.Fremantle Ports has recognised this opportunityfor some time. Considerable work has beendone in pursuit of plans for Victoria Quay. It is asmuch in the interests of Fremantle Ports as it isin the interests of the City for Victoria Quay tobe a lively and engaging place again, and for theCity of Fremantle to re-embrace this importantarea.The challenges in appropriately redevelopingthe quay are great. The new Victoria Quay hasthe potential to re-emerge as a vibrant mixeduse quarter of the City while continuing to meetthe important functions of the ongoing portactivities around it. It must recognise, preserveand celebrate its authentic and treasuredhistory. It must make profound commercial goodsense, and reflect the wisest available advice oneconomics, planning, architecture and design.It must be imaginative and attractive, and itmust be nourished out of, and be a steadfastcontributor to, the spirit of Fremantle.Achievement of these critical dimensions, onand adjacent to the waterfront, will stem fromshaping places for people. With the processesand directions we recommend in this report, andthe continuing highest goodwill, the WorkingGroup believes that the City and its residentscan help Fremantle Ports make somethingspecial happen at Victoria Quay.

INTRODUCTIONVICTORIA QUAY WATERFRONTWORKING GROUP MEMBERSStuart HicksAO ChairFranco AndreoneManager Fremantle Waterfront Development,Fremantle PortsBrian ColeDirector, Cole AdvisoryMike DayDirector, Roberts Day PlanningGeoffrey LondonWinthrop Professor of Architecture, Faculty ofArchitecture, Landscape and Visual Arts, TheUniversity of Western AustraliaGino ValentiGeneral Manager Strategy and Planning,Fremantle PortsSteve WoodlandDirector, Cox Howlett + Woodland BaileyArchitects Planners and Urban DesignersChris Leatt-HayterChief Executive Officer of Fremantle Ports, wasan ex officio member.INTRODUCTIONThe Victoria Quay Waterfront Working Groupwas established by Fremantle Ports to undertakean independent assessment of key learningsfrom the work to date on development of theVictoria Quay Waterfront. This is the report ofthe Working Group.BACKGROUNDThe Port of Fremantle, and the Victoria QuayWaterfront in particular, has been a fundamentalcontributor to the economic productivity ofWestern Australia and, more locally, the City ofFremantle. For more than a hundred years, thePort of Fremantle has served as the gateway forpeople and goods entering the State. FremantlePorts continues to be an active working portfacilitating trade for Western Australia.Whilst Fremantle has done particularly well inpreserving its heritage and retaining its strongcharacter as a port city, it is widely acknowledgedthat the city has fallen from its strong positionas Western Australia’s second city. Its relativeeconomic strength has declined. There is adistinct need for a turnaround in the economicdevelopment of the area in order for it to beonce again the second city of the West.At the same time it has been recognised thatthe Victoria Quay Waterfront is connected withthe City of Fremantle and can make a vitalcontribution in the revitalisation of Fremantle.By working together, the City and the port canachieve a strong, sustainable outcome ensuringthe economic future of the Fremantle ActivityCentre.VISIONThe vision is to lay the foundation at the VictoriaQuay Waterfront for a vibrant and unique placethat is compatible with a dynamic working port.The aim is for the Victoria Quay Waterfront to be:integrated with the local community and a majorattraction for local, national and internationalvisitors, acknowledging the historic significanceof Victoria Quay and its strong connections tothe City of Fremantle and the State of WesternAustralia.It is acknowledged that Fremantle Ports willfacilitate the reshaping of the Victoria QuayWaterfront by using the Fremantle WaterfrontMasterplan as the framework and guidingdocument for the future development of thisarea. The Fremantle Waterfront Masterplanidentifies two major sites for development, theCommercial Precinct site in the first instanceand an area in the Slipways Precinct (currentlyused by Challenger Institute of Technology forcar parking).VICTORIA QUAY WORKING GROUPFremantle Ports formed a Working Groupto review and consider new opportunitiespresented in the Commercial Precinct site onVictoria Quay. The Working Group was also askedto explore development options consistentwith the Fremantle Waterfront Masterplanas well as the City of Fremantle’s economicdevelopment and strategic planning directionsfor use as a basis of further consultation withkey stakeholder groups.CHAPTER

The Victoria Quay Waterfront Working Group’smain objectives were:• To assess demand for future developmentof the Commercial Precinct both from a localand regional economic perspective.• To assess findings from work andconsultation undertaken to date on theCommercial Precinct site.• To review concepts and developmentopportunities for the Commercial Precinctagainst the Fremantle Waterfront Masterplanand the City of Fremantle’s economicdevelopment and strategic planning directions.This report summarises the Working Group’sresponse to its terms of reference. With thisreport the Working Group’s consultation iscomplete, although its members, collectivelyand individually, remain ready to assist FremantlePorts further.Working Group ApproachThe Working Group met on six occasionsbetween July and September 2011. Betweenmeetings, Group members explored anddeveloped issues agreed at meetings. TheGroup’s work was informed principally by theinformation and data available to Fremantle Portsand to individual members of the Working Group.While there was no need for public consultationduring this process, it is acknowledged thatpublic consultation would form a key part of anyfuture pursuit of the opportunities under review.The Working Group did not delve into the detailor produce new development plans/detaileddesign for the Commercial Precinct site, butfocussed on broad learnings and providedstrategic recommendations. The findings ofthis Working Group aim to provide a platformfor further discussion and consultation with keystakeholders.

KEY FINDINGSIt is the view of the Working Group that thefollowing key findings pertain.Current conditions provide a timely opportunityfor redevelopment of the Commercial Precinctof Victoria Quay.The current political climate reflects a trulycollaborative atmosphere. The four key agencygroups; the Department of Planning & WesternAustralian Planning Commission (WAPC), theDepartment of Transport and Public TransportAuthority (PTA), Fremantle Ports and the City ofFremantle have expressed their willingness anddesire to work together to achieve a commonvision for Fremantle, with each agency playingits role in an integrated manner. Collaborationwas recently formalised between theseagencies with the formation of the FremantleUnion.The Working Group recommends that FremantlePorts should commit to an early and vigorouspursuit of the redevelopment opportunitiespresented by the Commercial Precinct.Head responsibility for the redevelopment iswith the land’s owner, Fremantle Ports.Given the strategic location of Victoria Quay,Fremantle Ports will continue to have ahigh level of control and involvement in theredevelopment of this area. This continuinghigh-level involvement with both place creationand ongoing place management will benecessary to ensure that the development ofthe Victoria Quay Waterfront is compatible withand complements the operational aspects ofthe working port.Genuine consultation is an important continuingnecessity as redevelopment proceeds.The opportunity to appropriately redevelop theVictoria Quay Waterfront will only be maximisedif it is undertaken in consultation with a range ofkey players.City of FremantleAlthough the City of Fremantle does not havestatutory planning authority over the VictoriaQuay Waterfront, this land abuts the City ofFremantle’s municipal boundary. It is desirablethat there is alignment between Fremantle Portsand the City of Fremantle with regards to anyfuture plans for the Victoria Quay Waterfront.Department of Planning and WAPCThe Victoria Quay Waterfront is reserved underthe Metropolitan Region Scheme for ‘PublicPurposes - Special Uses’ and the WAPC is thestatutory planning authority to determine anynon-port related works and development on theVictoria Quay Waterfront.Department of Transport and PTAThe Fremantle Station and railway line, bothunder the control of the PTA are critical landparcels which sit between Victoria Quay andthe City of Fremantle. The development ofVictoria Quay needs to integrate fully with theFremantle Station, thereby bridging the spatialgap between the City and the Waterfront. It isessential that Fremantle Ports consults furtherwith PTA as a key stakeholder to ensure aseamless transition between Victoria Quay andthe City of Fremantle.CHAPTER

Fremantle Chamber of CommerceIt is important for Fremantle Ports to canvas theviews of the Fremantle Chamber of Commercegiven that this business membership basedorganisation represents one of the largest‘community’ groups in Fremantle. Therevitalisation of Victoria Quay may have positiveeffects on some of its members.The CommunitySeveral established community groups andother stakeholders will also need to be consultedin order to gain their views and aspirationsfor the Victoria Quay Waterfront. Some of thegroups which will need to be consulted includethe Fremantle Society, the Victoria QuayWaterfront Taskforce, FICRA (Fremantle InnerCity Residents’ Association) and FremantlePorts’ Inner Harbour Community Liaison Group.Note: this is by no means an exhaustive list ofgroups to be consulted.Progress on redevelopment of Victoria Quaywill be greatly aided by careful attention to thelearnings of the ING experience.A number of parties have willingly shared theirorganisation’s key learnings.The comments of the Fremantle Mayor, theFremantle Society, the Fremantle Inner CityResidents Association and Fremantle Ports areattached to this report as Appendices 1, 2, 3and 4 respectively.Key ImperativesThe development of the Victoria QuayWaterfront should proceed within a clear set ofconditions, or imperatives, of which there willneed to be a high measure of understandingand a good degree of acceptance among thekey players. The views of the Working Group onthe key imperatives are outlined in Section 3 ofthis report.Commercial opportunityFremantle is coming from a low base ofeconomic growth. The Working Group identifiedthe coordinated development of the CommercialPrecinct and the Fremantle Station precinct asa critical component of the overall revitalisationof Fremantle.The development of the Commercial Precinctwould attract additional consumer dollars to theFremantle City and would act as a catalyst forfurther economic investment in the area (Seedetails in Section 4).Connectivity, Activation and IntegrationThe redevelopment of the Victoria QuayWaterfront has the potential to add considerableimpetus, critical mass, quality of developmentand a different kind of experience to therejuvenation and revitalisation of Fremantle.Mixed land uses will activate both the Waterfrontas well as surrounding areas. An importantspatial link is the extension of connections fromMarket and Queen Streets across the FremantleStation to the Victoria Quay Waterfront.

The future of the City of Fremantle as an economiccentre depends almost entirely upon its abilityto operate properly as an activity centre withinthe Perth and Peel Activity Centres Hierarchy.This future needs to recognise and amplify theimportance of the Fremantle Station precinctas the central hub of this activity centre, in linewith Transit Oriented Development principles.Fremantle’s redevelopment efforts shouldfocus simultaneously on two key precincts theKing’s Square and vicinity (Fremantle CBD) andthe Fremantle Station precinct which shouldincorporate the Commercial Precinct on VictoriaQuay.An important document which strengthens theconnections and integration between VictoriaQuay and the City of Fremantle is the endorsedPhillimore Street Integrated Masterplan.This plan envisages a new vehicle/pedestrianconnection at the intersection of Pakenhamand Phillimore Streets and an improved vehicle/pedestrian connection at the intersection of Cliffand Phillimore Streets. It is recommended thatthis Masterplan be implemented in a phasedbasis by the relevant Agencies.

KEY IMPERATIVESIt is important that all parties responsible forguiding the future of Fremantle and the Waterfronthave open minds and few preconceived ideason the urban pattern envisaged. It is, however,acknowledged that certain imperatives willmost certainly be pertinent, and it is necessarythat Fremantle Ports be explicit on these fromthe outset. It is not the role of this WorkingGroup to determine the imperatives, althoughit is a key role for the Working Group to makesome suggestions. These follow.A clear objectiveIt is imperative that the objective of developmentof Victoria Quay be explicit and agreed.In the view of the Working Group, the objectiveis to foster a truly distinctive, integratedand vibrant quarter of the city centre on theVictoria Quay Waterfront. It should be a placerich in higher-order urban functions includingcommerce, retail, cultural activities, education,administration, services, trades, short-termaccommodation, entertainment, recreation andconcessional uses. If planned in collaborationwith its neighbours and stakeholders, theredevelopment of the Waterfront will positivelycontribute to the overall rejuvenation of the Cityof Fremantle.Not stand-aloneIt is imperative that Victoria Quay be viewedas part of a broader existing urban fabric. TheWaterfront therefore needs to contribute toand enhance the City of Fremantle’s vitality andvibrancy by connecting with the city physically,socially and economically. This will necessarilyinvolve active collaboration with the City, thePublic Transport Authority (which is responsiblefor the Fremantle rail line and Fremantle Station),the Department of Transport, the Department ofPlanning and the Western Australian PlanningCommission.Fair commercial returnFremantle Ports expects to receive a fair marketbased commercial return for the redevelopmentof the Victoria Quay Waterfront includingdevelopment costs and ongoing maintenanceand management costs, but Fremantle Portsadvises it does not expect this imperative tooccur at the expense of any of the other keyimperatives listed under Section 3 of this report.The precinct must be outside port operationalareasThe redevelopment cannot be permitted toencroach on port operations. This reflects theprimary, statutorily determined, function ofFremantle Ports. All port operational areas areexcluded from the Victoria Quay Waterfrontarea.The area covered by the Victoria QuayWaterfront is clearly demarcated in theFremantle Waterfront Masterplan and is thearea reserved under the Metropolitan RegionScheme for ‘Public Purposes - Special Uses’.This area comprises approximately 12 hectares,bounded by the Swan River to the north, theSlipways to the west, the eastern end of SouthMole and Fleet Street to the south, the railwayline to the south-east and the western borderof the Port Customs controlled area to the east.CHAPTER3

LEGENDVICTORIA QUAY WATERRONT AREACOMMERCIAL PRECINCTThis is outlined in Map 1This footprint includes (amongst others) theMaritime Museum, buildings leased to theChallenger Institute of Technology, Slipways,FP workshops, A, B, C and E Sheds and the FPAdministration Building.Whilst accepting this footprint as given anddetermined by port operating needs, theWorking Group encourages Fremantle Portsto consider again whether it might be possibleto include at least the western end of D Shedto provide two activated edges to the spacebetween C and D Sheds, allowing it to be a vitalspace.Consistency with Fremantle WaterfrontMasterplanThe Fremantle Waterfront Masterplan providesthe framework for the redevelopment of theWaterfront. Any major new development shouldbe contained within the two developmentsites identified by this Masterplan, namely theCommercial Precinct and the ‘development site’by the Slipways Area. (Part of this developmentsite is currently used by Challenger Instituteof Technology as a car park). For the rest ofthe area, development should be limitedto restoration work and adaptive reuse ofbuildings and/or minor new developments or infilldevelopments.Genuine historical and heritage commitmentFuture development should preserve andenhance heritage value and industrial characterof the site. On any substantive heritage relatedmatter, the Heritage Council of Western Australia(HCWA) is the appropriate referral authority forthe Victoria Quay Waterfront area.Fremantle Ports has previously undertakenindigenous consultation for Victoria Quay. Itadvises there are no identified sites and newdevelopments will not require a Section 18application.A rich mix of land uses, but with no permanentresidential developmentThe Victoria Quay Waterfront should offer adiversity of mixed uses including cultural,commercial, retail, entertainment andconcessional uses. A vibrancy and uniquenessof the place will be achieved by the carefulintegration of building types; forms land usesand the introduction of a unique brand and logofor the Waterfront.Map 2 shows the extent of the buffer areasthat are incorporated in the Fremantle CityPlanning Scheme. These areas are the outcomeof detailed assessment of potential impacts ofnoise, odour and risk from port operations. Theyare a critical component of ensuring that theVictoria Quay Waterfront remains compatiblewith the working port.COMMERCIAL PRECINCTVICTORIA QUAY WATERRONT AREAMAP 1

FREMANTLE PORTS INNER HARBOURDEVELOPMENT REFERRAL AREASLEGENDAREA 1AREA 2AREA 3AREA 1AREA 2AREA 3Map 2: Showing Buffer AreasBuffer Area 1 is the area with the highestpotential impact from port operations andtherefore requires the highest levels of controlson land use and built form.Buffer Area 2 is based predominantly onpotential noise and odour impacts from portoperations and does not have restrictions onland uses but does have built form controls inorder to ameliorate potential impacts from portoperations.Buffer Area 3 represents a ‘discretionary’ areadefined by modelling which indicates that portoperations may have an impact. Built Formcontrols may be required by the relevant LocalGovernment Authority if there is a historyof impact at any specific location within thisarea (typically arising from noise and odourcomplaints) - hence the discretionary nature ofthe area.It should be noted that the Buffer Arearequirements are not retrospective - assessmentand applications are only undertaken forredevelopments.All of Victoria Quay lies within Area 1 of theFremantle Port Buffer. In conformity with thisbuffer, Fremantle Ports advises that permanentresidential and other sensitive uses cannot bepermitted within the proposed developmentarea.An appropriate mix of land uses is likely to bedrawn from a combination of:• Public domain• Commercial/office• Retail• Food and beverage• Public cultural• Short stay accommodation/hotel• Markets and other special uses• Entertainment and recreation• Concessional usesWhen considering overall land uses forVictoria Quay, a key test of acceptability isthat the use in isolation or combination withother uses is compatible with and does nothave an unacceptable adverse impact on portoperations.High quality urban form and design excellenceThe Victoria Quay Waterfront development mustencourage the highest standard of architecture,streetscapes, landscaping and finishes whichcontribute to the creation of an exceptionalpublic realm. The design and material palettesof signage, street furniture, and buildings mustreinforce the character of the port environment.In order to achieve its aim of adding to theeconomic output of Fremantle, the developmentof the Commercial Precinct must be “outwardlooking”, designed such that it belongs to, andblends seamlessly with the urban fabric of theport and Fremantle Station. Buildings mustalso be designed with sustainable principles inmind.MAP 2

COMMERCIAL CONDITIONSThe Working Group has reviewed the commercialclimate within which the Commercial Precinctof the Victoria Quay Waterfront would bedeveloped.Fremantle is coming from a low base of economicactivity. It is important that any development atVictoria Quay not only achieves economic selfsufficiencybut also contributes strongly towardthe future economic sustainability of the entireFremantle CBD.Whilst Fremantle has been identified as aStrategic Metropolitan Centre in State PlanningPolicy 4.2 “Activity Centres for Perth and Peel”(the Activity Centres Policy), it is generallyagreed that it is underperforming in relationto other similar centres throughout the PerthMetropolitan Area. Moreover, Fremantle hasexpressed a desire to achieve a higher status,that of “Primary Centre”. As well as Fremantle,Strategic Metropolitan Centres include:• Rockingham• Joondalup• Armadale• Midland• Morley• Cannington• Stirling• Mandurah• YanchepOf these, Fremantle, Rockingham, Joondalup,Armadale, Midland and Mandurah are able toopen on Sundays for retail trading. This givesthem an edge over competing centres (inFremantle’s case, Booragoon and Claremont).Not withstanding this advantage, Fremantlestill undertrades against Booragoon, whilst alsoexhibiting an under-representation of higher enddepartment stores, relative to both Booragoonand Claremont.With the establishment of the FremantleUnion and the stated objective to undertakecoordinated simultaneous planning of the twoactivity hubs – Kings Square and the FremantleStation Precinct – Fremantle has strong potentialto develop as a true activity centre, where theintense activity is located in close proximity tothe main access/egress points.The 2006 census confirms that the incomedemographic of Fremantle is much lower thanits competitors. Whilst 39% of Fremantle hasa household income below $800 per week,only 30% of Melville residents exhibit the samecharacteristic. At the other end of the scale,whilst only 22% of Fremantle householdsearn more than $1,700 per week, over 30% ofMelville households are in that income category.Hence locations such as Garden City are likelyto be more attractive than Fremantle for majordepartment stores. Such an income differentialcan be addressed by either attracting higherincome residents, or alternatively creating anenvironment where the workers and visitors,other essential elements of the economic cycle,have higher disposable incomes.CHAPTER

A significant opportunity exists to develop theareas adjacent to the Fremantle Station, inaccordance with Transit Oriented Developmentprinciples, thereby creating an activity centreconsistent with the objectives of the ActivityCentres Policy. This would involve harnessingthe interest of visitors as soon as they alightfrom the Perth-Fremantle train or other publictransport and creating an area of strong interestand economic activity.The development of the Commercial Precinct,as part of a coordinated development of theFremantle Station and the Fremantle CBD/Activity Centre will harness the potentialeconomic activity from all available catchments,and generate a strong base to underpin theinterest of department store operators, whoin turn will anchor the retail revitalisation ofFremantle as a whole.Taking account of the significant economicinflows that can be achieved from enhancedutilisation of rail and public transport users(see Appendix 6) there is a strong economicjustification for a mix of commercial and retailuses within the new development.In this regard, whilst it is acknowledged that theretail industry is going through relatively toughtime at present, due to the Global FinancialCrisis as well as a switch to online shopping,two areas of the property market are thriving inPerth. These are high end retail outlets (worldclass brand names) and Premium and A Gradeoffice accommodation. An opportunity exists touse the blank canvas that is the Victoria QuayCommercial Precinct as a basis upon whichto create the missing link in the economy ofFremantle by developing a superior customisedcommercial/retail development.If this is developed in such a way as to beintegrated with the Fremantle Station and theFremantle CBD, i.e. as an “outward looking”economic zone designed such that it belongsto the entire city, blending seamlessly with theurban fabric of the port, the Fremantle Stationand the city, mixing workers and visitors withthe existing user base of Fremantle, the result isa win-win for all parts of the Fremantle ActivityCentre.In addition, a coordinated development of amix of commercial and retail uses will createan environment which is attractive to furthersignificant levels of expenditure, either byway of retail spending or from workers wholocate within strategically developed spaces,supportive of a much higher level of strategicemployment than currently exists withinFremantle.