ARTHURS SEAT SKYLIFT GONDOLA VICTORIAN CIVIL & ADMINISTRATIVE TRIBUNAL VCAT REFERENCE NUMBER: P1045/2014 DATE OF HEARING: 5 th November, 2014 (8 days) DATE OF STATEMENT: 20 th October, 2014 DATE OF INSPECTIONS: 17 th & 26 th September, 2014 PREPARED FOR THE APPLICANT: Arthurs Seat Skylift Pty Ltd INSTRUCTED BY: HWL Ebsworth Lawyers IN THE MATTER OF AN APPLICATION FOR REVIEW LODGED BY A THIRD PARTY AGAINST MORNINGTON PENINSULA SHIRE COUNCIL’S NOTICE OF DECISION TO GRANT A PLANNING PERMIT FOR APPLICATION NO. P13/1992 AT ARTHURS SEAT STATE PARK, PURVES ROAD, ARTHURS SEAT. STATEMENT TO THE VICTORIAN CIVIL AND ADMINISTRATIVE TRIBUNAL BY CHARMAINE DUNSTAN, TRAFFIC ENGINEER
Transcript
ARTHURS SEAT SKYLIFT GONDOLA
VICTORIAN CIVIL & ADMINISTRATIVE TRIBUNAL
VCAT REFERENCE NUMBER: P1045/2014 DATE OF HEARING: 5th November, 2014 (8 days)
DATE OF STATEMENT: 20th October, 2014
DATE OF INSPECTIONS: 17th & 26th September, 2014
PREPARED FOR THE APPLICANT: Arthurs Seat Skylift Pty Ltd INSTRUCTED BY: HWL Ebsworth Lawyers
IN THE MATTER OF AN APPLICATION FOR REVIEW LODGED BY A THIRD PARTY AGAINST MORNINGTON PENINSULA SHIRE COUNCIL’S NOTICE OF DECISION TO GRANT A PLANNING PERMIT FOR APPLICATION NO. P13/1992 AT ARTHURS SEAT STATE PARK, PURVES ROAD, ARTHURS SEAT.
STATEMENT TO THE VICTORIAN CIVIL AND ADMINISTRATIVE TRIBUNAL BY CHARMAINE DUNSTAN, TRAFFIC ENGINEER
VCAT Reference No. P1045/2014 Arthurs Seat Skylift Gondola Arthurs Seat State Park – Purves Road, Arthurs Seat
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List of Figures Figure 1: Site Locality Plan .................................................................................................................................................... 9 Figure 2: Aerial Photograph .................................................................................................................................................. 9 Figure 3: Arthurs Seat Road – view west (near Arthurs Restaurant) .................................................................................. 11 Figure 4: Arthurs Seat Road – view east (near Arthurs Restaurant) .................................................................................. 11 Figure 5: Arthurs Seat Road – view west (near Purves Road) ........................................................................................... 11 Figure 6: Arthurs Seat Road – view east (near Purves Road)............................................................................................ 11 Figure 7: Purves Road – view north (near the Enchanted Maze) ........................................................................................ 11 Figure 8: Purves Road – view south (near the Enchanted Maze) ....................................................................................... 11 Figure 9: Arthurs Seat State Park – Lower Station Carpark Parking Survey Area .............................................................. 13 Figure 10: Arthurs Seat State Park – Upper Station Precinct Park Parking Survey Area.................................................... 14 Figure 11: Arthurs Seat State Park – Seawinds Parking Survey Area ................................................................................ 15 Figure 12: Arthurs Seat State Park Public Parking Areas – Parking Survey Results .......................................................... 16 Figure 13: Lower Station Precinct – Parking Survey Results .............................................................................................. 17 Figure 14: Upper Station Precinct (combined areas) – Parking Survey Results ................................................................. 17 Figure 15: Seawinds – Parking Survey Results .................................................................................................................. 18 Figure 16: Enchanted Maze – Parking Survey Results ....................................................................................................... 18 Figure 17: Tube Counter Locations ..................................................................................................................................... 20 Figure 18: Two-way Daily Traffic Volume ............................................................................................................................ 21 Figure 19: Existing Peak Hour Turning Movement Volumes (Sunday 12th October, 2014) ................................................. 22 Figure 20: Seasonal Visitation – 2001-2002 (Parks Victoria Visitor Vehicle Monitoring Project, November, 2002) ........... 23 Figure 21: Arthurs Seat Chairlift: 2000 monthly ticket sales ................................................................................................ 24 Figure 22: Intersection and Mid-block Casualty Crashes Recorded along nearby Traffic Routes ....................................... 26 Figure 23: Arthurs Seat State Park – Projected Post-Development Parking Demands (upper precinct area) .................... 31 Figure 24: Gondola Traffic Distribution and Projected Traffic Volumes ............................................................................... 33 Figure 25: Sidra Intersection Layout of Conditions (Existing & Proposed Conditions) ........................................................ 33 Figure 26: Existing Traffic Volumes ..................................................................................................................................... 35
List of Tables Table 1: Proposed Development Summary ........................................................................................................................... 6 Table 2: Summary of Traffic Characteristics ....................................................................................................................... 21 Table 3: Casualty Crash Data – Summary of Crashes (Jul ’08 – Jun’13) ........................................................................... 27 Table 4: Key Assumptions ................................................................................................................................................... 29 Table 5: Peak Parking Demand Assessments .................................................................................................................... 30 Table 6: Expected Development Peak Hour Traffic Volumes ............................................................................................. 32 Table 7: Intersection Summary – Scenario 1 to 4 ............................................................................................................... 35 Table 8: Movement Summary – Scenario 1 to 4 ................................................................................................................. 35 Table 9: Response to Application for Review Grounds ........................................................................................................ 38
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1. EXECUTIVE SUMMARY
1.1. Background & Proposal The Arthurs Seat Skylift gondola facility comprises an upper station (including café, interpretive centre and office), a lower station (including kiosk, gondola workshop/storage and information centre) and 40 gondolas (with a capacity of 8 persons per cabin) and associated structures and cabling along the gondola corridor. Some elements of the project fall outside the ‘leased area’ and accordingly, are exempt from the requirements for a planning permit as they will be completed by Parks Victoria as the Public Land Manager. These principally include the car parking areas and any associated traffic management works to Arthurs Seat Road and Purves Road to formalise pedestrian crossing points, and other traffic works within Arthurs Seat Road as negotiated with VicRoads. Mornington Peninsula Shire Council considered Application No. P13/1992 and issued a Notice of Decision to Grant a Planning Permit on the 7th February 2014, subject to a number of conditions. VicRoads supported the development, subject to a number of conditions relating to potential works by Parks Victoria that are outside the scope of the application before VCAT. An Application For Review against Mornington Peninsula Shire Council’s Decision to Grant a Permit on Application No. P13/1992 has been lodged by Mr Matthew Bisogni in his own right and on behalf of Save our Seat Inc. and others. The grounds include concerns relating to traffic volume impacts and the safety of road users. A copy of the relevant information that is required to accord with the VCAT Practice Note No. 2 – Expert Evidence is attached at Appendix A. I have visited the site, made various assessments, perused relevant documentation and plans, and report as follows.
1.2. Summary of Opinion Having undertaken a detailed traffic engineering assessment for the proposed Arthurs Seat Skylift Gondola within Arthurs Seat State Park, I am of the opinion that: a) car parking demands generated by the Arthurs Seat Skylift Gondola can be accommodated in
nearby public parking areas of Arthurs Seat State Park, however, peak demands are likely to require the use of the overflow parking areas identified in the Arthurs Seat State Park Precinct Parking Management Plan (2013), prepared by Aecom,
b) traffic generated by the proposed gondola can be adequately accommodated by the surrounding road network and will not adversely impact on the safety or operation of nearby roads or intersections,
c) the design of parking areas will allow waste collection and loading activities to be adequately accommodated for the upper and lower stations, and
d) there are no traffic engineering reasons why a planning permit for the proposed Arthurs Seat Skylift Gondola should not be approved, subject to appropriate conditions.
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2. THE PROPOSAL
The proposed Arthurs Seat Skylift gondola replaces the Arthurs Seat Chair lift, which previously operated from 1961 to 2006. The Arthurs Seat Skylift gondola facility comprises an upper station (including café, interpretive centre and office), a lower station (including kiosk, gondola workshop/storage and information centre) and 40 gondolas (with a capacity of 8 persons per cabin) and associated structures and cabling along the gondola corridor. The facility will be operated by Arthurs Seat Skylift Pty Ltd, within the Arthurs Seat State Park, which is managed by Parks Victoria. The components related to the upper and lower stations and the gondola corridor are within the ‘leased area’ and therefore, subject to a planning permit. Some elements of the project fall outside the ‘leased area’ and accordingly, are exempt from the requirements for a planning permit as they will be completed by Parks Victoria as the Public Land Manager. These include the following traffic related aspects of the project:
various traffic management measures to Arthurs Seat Road and Purves Road to formalise pedestrian crossing points, and other traffic works within Arthurs Seat Road as negotiated with VicRoads,
the new carpark at the lower station,
remodelling of the secondary carpark at the upper station, and
any works related to overflow car parking areas. As the application does not provide any parking on-site within the leased area, it is reliant on parking being provided on nearby land. My assessment is based on the application plans prepared by McGann Architects (dated 11th February, 2014), which detail the relevant works relating to the Arthurs Seat Skylift gondola facility and associated ancillary uses. The table below provides a breakdown of the proposed uses, general operation of the gondola facility.
Table 1: Proposed Development Summary
Design Consideration Specifications
Upper Station Precinct
Building Area 1,392m²
Uses
Skylift Gondola loading/unloading area Interpretive centre Café (100 seats – 60 indoor/40 outdoor) Office & Storage
Bicycle parking 20 bicycle spaces
Main Car Parking (outside of ‘leased area’) 74 car spaces, comprising: Summit Carpark: 43 car spaces (incl. 2 disabled bays) Secondary Carpark (Purves Road): 31 car spaces
Lower Station Precinct
Building Area 1,800m²
Uses
Information Centre Kiosk Skylift Gondola loading/unloading area Skylift Gondola bullwheel and workshop Skylift Gondola storage area Open courtyard Flexible office space
Bicycle parking 10 bicycle spaces
Main Car Parking (outside of ‘leased area’) 62 car spaces (includes 6 disabled bays) 2 bus bays, plus 7 indented on-street bays along Arthurs Seat Road
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Skylift Gondola Operation
Number of Skylift Gondola Cabins 40 cabins Cabin maximum occupancy 8 passengers
Skylift Gondola operational capacity 360 passengers per hour (assumes 75% average cabin occupancy)
Skylift Gondola Speed 3km/h (approx.) Trip Time 15-20 minute trip time (one-way) Number of Staff 14 full-time equivalent
Minimum headroom clearance above roads 6.4m Loading/delivery times 7am-7pm
A total of 287 car spaces will be available post-development in the broader area including:
69 spaces in the lower station carpark (includes 6 disabled bays and 7 indented on-street bays),
43 spaces in the summit carpark (includes 2 disabled bays),
31 spaces in the secondary carpark (Purves Road),
101 spaces in the Seawinds area, and
43 car spaces within the upper station precinct including: o 12 spaces – BBQ area north, o 13 spaces – BBQ area south, o 4 spaces – toilet area, and o 14 spaces – on-street defined areas.
The Arthurs Seat State Park Precinct Parking Management Plan (2013), prepared by Aecom, identifies additional overflow car parking areas that are available to service the upper and lower precincts. These include:
Lower Station Precinct – Approx. an additional 91 spaces accessed via the Dromana Cemetery access road, with a new pedestrian access from the lower station available at all times (located on Council land).
Seawinds Precinct – Approx. an additional 181 spaces (north and south areas) within grassed areas available at peak times only (Parks Victoria land).
Purves Road Overflow Carpark – Approx. an additional 77 spaces located within grassed area on the west side of Purves Road (north of the Enchanted Maze) available at all times (Parks Victoria land).
The above results in approximately an additional 349 car spaces available for use by visitors to the Arthurs Seat State Park (91 car spaces at lower station and 258 car spaces at upper station/Seawinds combined precinct). These areas are likely to require works to ensure they are accessible and functional as overflow parking areas. This would typically include delineation of car spaces to ensure the car parking areas are efficiently utilised (e.g. wooden delineation similar to that used in other gravel/grassed car parking areas).
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3. NOTICE OF DECISION & APPLICATION FOR REVIEW
Mornington Peninsula Shire Council considered Application No. P13/1992 and issued a Notice of Decision to Grant a Planning Permit on the 7th February 2014, subject to a number of conditions. VicRoads, as the responsible road authority for Arthurs Seat Road, supported the application subject to a number of conditions, which are set out in Conditions 65 to 70 of Council’s Notice of Decision. These conditions relate to requirements for further traffic assessments to assess the need for any potential mitigating works that are associated with the car parking areas to be constructed by Parks Victoria and related upgrades recommended for Arthurs Seat State Park as set out in the Arthurs Seat State Park Traffic Management Plan (November, 2013, prepared by Aecom). Note, all of these works are outside of the ‘leased area’ and not subject to a planning permit. An Application For Review against Mornington Peninsula Shire Council’s Decision to Grant a Permit for Application No. P13/1992 has been lodged by Mr Matthew Bisogni in his own right and on behalf of Save Our Seat Inc. and others. Mr Bisogni’s grounds of review related to traffic engineering matters are:
2. The proposed development will not result in an acceptable planning outcome having regard to the: e) impact on traffic safety and traffic access to the site and within the surrounding area.
Correspondence detailing further and better particulars has been provided by the Applicant for Review, which raise the following traffic related matters:
The traffic volume and parking analyses are based on empirical evidence from reports undertaken by Parks Victoria in 2002, when the previous chairlift was still in operation.
Children using the school bus stops close to the top station will be endangered by increased traffic.
Arthurs Seat Road is a narrow road and the potential increase in bus and car traffic will affect the safety of the road, particularly at night time.
Council also received 58 objections to the application at the town planning application stage, which raised similar grounds for objection (as summarised in the Council officer’s report). My response to third party objections is provided throughout this report, with a summary provided at Section 6.
4. EXISTING CONDITIONS
4.1. The Development Site & Locations The proposed Arthurs Seat Skylift Gondola facility is located within the Arthurs Seat State Park, which is situated in the Mornington Peninsula Shire Council approximately 90km south of the Melbourne CBD. A locality plan and aerial photograph depicting the key land uses (existing and proposed) are provided at Figure 1 and Figure 2, respectively. The site includes the upper station precinct, the lower station precinct and the gondola corridor. The site occupies the general location of the Arthurs Seat Chair Lift, albeit that the new upper station will be located on the opposite side of Arthurs Seat Road. The Arthurs Seat Chair Lift ceased operation in 2006. The chairlift and all associated buildings were removed in 2013, with the exception of the former café building at the lower station precinct being retained (as a vacant building). The former chairlift had a capacity of 72, 2 seater chairs, with a one-way journey time of approximately 20 minutes. Key nearby land uses includes Seawinds, Arthurs Restaurant (private land), Enchanted Maze (private land) and associated public and private carparks.
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Figure 1: Site Locality Plan
Figure 2: Aerial Photograph
Upper Station Precinct
Reproduced with Permission of Melways Publishing Pty Ltd
Lower Station Precinct
Source: www.nearmap.com
Skylift Gondola Corridor
Enchanted Maze Area
Seawinds Area
Lower Station Precinct
Skylift Gondola Corridor
Enchanted Maze Area
Seawinds Area
Arthurs Seat Road
Purves Road
Mornington Peninsula Freeway
Upper Station Precinct
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4.2. Road Network Arthurs Seat Road (C789) is a VicRoads declared Arterial Road and extends between the Mornington Peninsula Freeway and White Hill Road (continues further as Arthurs Seat Road, although classified as a Council Arterial Road).
Arthurs Seat Road is configured with a sealed carriageway accommodating a single traffic lane in each direction, with generally unsealed shoulders. Parking along Arthurs Seat Road is generally not permitted between Mornington Peninsula Freeway and the Upper Precinct.
Arthurs Seat Road includes an ascent of approximately 250m in a north-south direction and includes a number of switchback type turns along the length of the road. The route is popular with motorcyclists, bicyclists and car enthusiasts.
Purves Road is classified as a Council Arterial Road under the management of Council and extends between Arthurs Seat Road (Upper Precinct) and Browns Road.
Purves Road is generally configured with a sealed carriageway accommodating a single traffic lane in each direction, with unsealed shoulders. Parking was observed to occur within the road reserve along Purves Road at peak times in the vicinity of the Enchanted Maze.
The intersection of Arthurs Seat Road and Purves Road is controlled by a ‘Stop’ sign, giving priority to traffic travelling along Arthurs Seat Road.
A signposted speed limit of 60 km/h applies to Arthurs Seat Road and Purves Road.
South of the Enchanted Maze, a signposted speed limit of 80km/h applies to Purves Road.
Photographs of the surrounding road network are presented in Figure 3 to Figure 8
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Figure 7: Purves Road – view north (near the Enchanted Maze)
Figure 8: Purves Road – view south (near the Enchanted Maze)
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4.1. Public Transport There are no public transport routes operating along Arthurs Seat Road, other than school buses. Bus tours and private shuttle services operate within the Mornington Peninsula area, which include Arthurs Seat as a potential destination. Taxi services are also available.
4.2. Car Parking Conditions Traffix Group has undertaken a series of parking occupancy surveys to establish the existing parking demand profile for the nearby area. The surveys were undertaken at the following times:
9am-5pm (at hourly intervals) – Sunday 28th September, 2014 (middle weekend of the September school holiday period (day after the AFL grand final), temperature 28°C)
9am-5pm (at hourly intervals) – Thursday 9th October, 2014 (typical weekday, outside of school holidays, temperature 23°C)
9am-5pm (at hourly intervals) – Sunday 12th October, 2014 (typical Sunday, outside of school holidays, temperature 30°C)
The available traffic count data for the area indicates that Sundays are typically the busiest days for Arthurs Seat State Park. Accordingly, the survey times were selected to include the expected peak demand times for Arthurs Seat State Park during the September school holiday period and for typical weekend conditions during spring. The surveys also included a typical weekday, non-holiday period, when demands within the nearby area are much lower. The weather was fine and sunny on all survey days. The survey times represent a busy period of the year with reasonably fine weather, albeit not the absolute peak demand time of December/January. It is acknowledged that parking demands within Arthurs Seat State Park during the summertime school holiday periods would be higher than those surveyed, with absolute peak demands expected to occur during the Christmas/New Year period. In the main, parking demands in these areas during the peak holiday periods are self-regulating as the activities and areas that visitors are attracted operate at capacity. At times when limited parking is available and the commercial uses and picnic areas operate at capacity, potential users who rely on arriving by car will be discouraged from visiting these areas. Those who live or are staying in accommodation locally for longer durations within the Mornington Peninsula area are more likely to visit outside of these peak times. This is the case for any holiday destination or tourist area, particularly in the Mornington Peninsula. For this reason, it is widely accepted that these ultimate peak periods do not represent an appropriate design period for parking demands.
4.2.1. Public Parking Areas
The Arthurs Seat State Park includes approximately 246 public car spaces. The surveyed area is presented at Figure 9 to Figure 11, which detail the capacity and peak demands for the surveyed carparks for each survey day. The detailed parking survey results are provided Appendix B.
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Lower Station Carpark
Capacity ‐ 42 unrestricted spaces ‐ 1 disabled space
Peak Survey Results
‐ Sunday 12th October – 11am
41 vacant spaces (5% Occupancy)
‐ Thursday 9th October – 5pm
40 vacant spaces (7% Occupancy)
‐ Sunday 28th September – 9am
35 vacant spaces (19% Occupancy) Camera Direction
Figure 9: Arthurs Seat State Park – Lower Station Carpark Parking Survey Area
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Figure 11: Arthurs Seat State Park – Seawinds Parking Survey Area
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4.2.2. Public Parking Areas - Survey Results
A profile of overall parking demands within the public parking areas (identified above) is provided at Figure 12. The results of the surveys indicate that there is a low demand during weekday periods, with higher demands on Sundays. Peak demands typically occur between 12pm-3pm, with the absolute peak recorded at 2pm on all survey days. The minimum numbers of vacant spaces recorded on each day were:
The surveys also identified that there was no significant use of informal parking along the Arthurs Seat Road reserve in the upper precinct areas, near the public parking areas.
Figure 12: Arthurs Seat State Park Public Parking Areas – Parking Survey Results
The following figures provide a series of graphs showing the parking demand profiles for each public parking area (note, the main upper precinct parking areas are combined). The greatest demands at peak times were experienced in the upper precinct parking areas, particularly the main summit parking area which was near capacity at the peak demand times on both Sundays.
Sunday School Holiday Typical Weekday Typical Sunday
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Figure 15: Seawinds – Parking Survey Results
4.2.3. Enchanted Maze
The Enchanted Maze is a private development within the Arthurs Seat State Park, which provides on-site parking for approximately 330 car spaces within two parking areas. Whilst these spaces should not be relied on for the Arthurs Seat Skylift Gondola proposal, this carpark was surveyed to provide an indication of the profile of parking demands for this use and its impacts on the nearby area. The recorded profile of on-site parking demands for the Enchanted Maze is presented in Figure 16.
Enchanted MazeSunday School Holiday Typical Weekday Typical Sunday
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During the Sunday school holiday survey (which was the day after the AFL grand final), a significant overflow parking demand occurred along Purves Road, with 65 cars parked within the road reserve areas. This overflow parking did not occur to any significant extent on the other survey days.
4.2.4. Overflow Parking Areas (Subject to Parks Victoria works)
There are a number of public open space areas within the Arthurs Seat State Park that have been identified for conversion to informal (or formal) overflow parking areas. These areas were observed over the survey times, however no cars were parked within these areas as they were either closed (chained off) or not necessary for parking from a demand perspective. As set out previously, the Arthurs Seat State Park Precinct Parking Management Plan (2013), prepared by Aecom, identifies the additional overflow parking areas available to service the upper and lower precincts as follows:
Lower Station Precinct – Approx. an additional 91 spaces accessed via the Dromana Cemetery access road, with a new pedestrian access from the lower station available at all times (located on Council land).
Seawinds Precinct – Approx. an additional 181 spaces (north and south areas) within grassed areas available at peak times only (Parks Victoria land).
Purves Road Overflow Carpark – Approx. an additional 77 spaces located within grassed area on the west side of Purves Road (north of the Enchanted Maze) available at all times (Parks Victoria land).
To establish the existing traffic conditions for the area, a series of Automatic Tube Counts were conducted at the following locations:
Arthurs Seat Road (west) – approximately 20m west of Purves Road.
Arthurs Seat Road (east) – approximately 250m east of Purves Road (adjacent to Georges B&B).
Purves Road – approximately 30m south of Arthurs Seat Road. A map of the approximate counter locations is shown in Figure 17. These surveys record hourly traffic volumes, traffic speeds and composition (i.e. vehicle type) by direction. The counters recorded a 16-day hourly traffic volume profile between Sunday 27th September, 2014 and Sunday 12th October, 2014. Copies of the traffic survey summary reports are provided at Appendix C. This survey period included a week within the September school holiday period (including the middle and last weekend of the holidays) and a week of ‘typical’ conditions outside of the school holiday period.
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Figure 17: Tube Counter Locations
Figure 18 summarises the profile of two-way daily traffic volumes recorded for the 3 survey locations for over the 16-day period. This figure highlights the two school holiday weekends (i.e. 9 surveyed days during school holidays). The maximum temperature recorded for Melbourne has been superimposed onto the graph for comparison purposes. The graph also indicates the parking survey days and AFL Grand Final day. The 3 surveyed weekends were observed to have relatively high maximum temperatures for spring time and accordingly, represent suitable weekends to assess the visitation usage of the surrounding area. Table 2 summarises the recorded traffic speeds and percentage of commercial vehicles (including buses) for each survey location by survey week. The busiest day for traffic volumes was Saturday 4th October, 2014, which was the co-incidence of the last Saturday of the school holidays and the first Saturday after the AFL grand final. This may have contributed to higher demands that usually expected at this time of the year (noting that historically Sundays are busier than Saturdays in the park). The recorded data indicates:
A weekday School holiday period experiences comparatively higher traffic volumes than typical weekdays.
Weekends (particularly during school holidays) experience higher traffic volumes than weekdays.
The data suggests that a substantial proportion of traffic to the area is directly associated with visitors to the Arthurs Seat State Park, rather than through traffic.
The busiest section of Arthurs Seat Road (i.e. west of Purves Road), carries between 1,000 and 4,000 vehicles per day across the 16-day survey period.
Purves Road carries between 700 and 2,600 vehicles per day across the 16-day survey period.
Arthurs Seat Road and Purves Road carry approximately 3.7% to 6.8% commercial vehicles (including buses).
Traffic speeds operate below the post speed limit of 60km/h for Purves Road and Arthurs Seat Road in the vicinity of the counter locations. Given the location of the counters in Purves Road near the intersection, the recorded speeds are expected to be lower than those that would be experienced further away from the intersection as vehicles would be slowing to undertake turning manoeuvres.
Appendix D includes further graphs summarising the hourly variation in traffic volumes experienced on weekdays (average), Saturday and Sunday over the school holiday period and typical period.
Count Locations
Reproduced with Permission of Melways Publishing Pty Ltd
Location 1
Location 2
Location 3
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The hourly traffic volume profiles in Appendix D indicate that:
On weekends, peak hour traffic flows occur over the lunch period (typically with the peak occurring between 12pm-2pm).
On weekdays, traffic flows are more distributed over the day, and much lower than weekend times.
Figure 18: Two-way Daily Traffic Volume
Table 2: Summary of Traffic Characteristics
Traffic Characteristic Location 1:
Arthurs Seat Road (west of Purves Road)
Location 2: Arthurs Seat Road
(east of Purves Road)
Location 3: Purves Road
(south of Arthurs Seat Road)
% Commercial Vehicles
School holiday week (27th September - 5th October, 2014)
3.7% 4.6% 5.0%
Typical week (6th October - 12th October, 2014)
3.9% 5.5% 6.8%
85th Percentile Speed (km/h)
School holiday week (27th September - 5th October, 2014)
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4.3.2. Aecom Traffic Data
Aecom has recently recorded the following two-way peak hour traffic volumes in early August, 2014 (outside of school holiday times):
Arthurs Seat Road (Lower Station Precinct) o 351 vehicles – Sunday 1-2pm
Arthurs Seat Road (east of Purves Road) – comparable to Traffix Group Location 2 o 347 vehicles – Sunday 1-2pm (compares with 376 vehicles recorded by Traffix Group
for the typical Sunday)
Purves Road – comparable to Location 3 o 253 vehicles – Sunday 1-2pm (compares with 219 vehicles recorded by Traffix Group
the typical Sunday) For the comparable locations to the Traffix Group data, the hourly traffic volumes recorded by Aecom are similar for the non-school holiday times, but lower than the peaks recorded on the school holiday weekends.
4.3.3. Turning Movement Count – Sunday 12th October, 2014
A turning movement count was undertaken of the Arthurs Seat Road/Purves Road intersection on Sunday 12th October, 2014 at 12pm-2pm. The purpose of this survey was to obtain a directional distribution for turning movements at this intersection for a peak demand time. The intersection peak hour occurred between 1pm and 2pm, consistent with the automatic traffic surveys for Arthurs Seat Road (Section 4.3.1). The peak hour (1-2pm) survey results are summarised in Figure 11. This figure includes the total number of vehicles and includes a breakdown by the number of buses/trucks, bicycles and motorcycles.
The data recorded a total intersection volume of 913 vehicles over the Sunday peak hour (1-2pm). The peak times during the typical commuter peak periods (8am-9am and 5pm-6pm weekdays) can be expected to be considerably lower based on the collected traffic data detailed in Section 4.3.1 and Appendix D.
5| Total Vehicles [Buses/Trucks] (Bicycles) |Motorcycles|
218 [0] (3) |28|
120 [1] (1) |7| 160 [1] (1) |12|
226 [0] (5) |36|
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Further analysis of the existing and projected traffic volume impact on the Arthurs Seat Road/Purves Road intersection is provided at Section 5.2.
4.3.4. Historical Data and Seasonal Fluctuations
I have reviewed the available information referenced as part of the application material. The following provides a summary of the relevant information. The Parks Victoria Visitor Vehicle Monitoring Project (November, 2002) provides a projected annual daily traffic volume profile for Arthurs Seat Road (west of the summit precinct), which is based on traffic data collected between 29th March, 2002 and 19th May, 2002 (52 days) and data collected for 12 other reference parks throughout Victoria to factor the recorded data for seasonal fluctuations in visitation levels. Note, the Arthurs Seat chairlift was operating in 2002. The Parks Victoria graph1 is reproduced below in Figure 20 and I have superimposed the gazetted Victorian school holiday times for the 2001-2002 period represented by this graph. This graph does not present actual recorded visitation numbers for the Arthurs Seat State Park, but rather projections based on a series of assumptions. Having reviewed the document, assumptions and data sources, I have formed the view that the Parks Victoria methodology for determining the breakdown of visiting traffic and through traffic is not sufficiently reliable for the purposes of this assessment, noting that the Parks Victoria report acknowledges similar shortcomings with the data. Accordingly, this data has not been extensively relied on within my assessment, however has been provided as a reference only.
The following graph provides the historical ticket sales by month for the Arhurs Seat Chairlift for the year 2000. A further breakdown by day is not available. In reading this graph, it needs to be recognised that some months of the year (such as January and the Easter school holidays) have a greater number of potential peak days due to the longer school holiday
1 Figure 7 – Seasonal Visitation (pg 16) Parks Victoria Visitor Vehicle Monitoring Project (November, 2002)
School Holiday/Public Holiday Long Weekend Periods, based on gazetted Victorian school holidays for 2001-2002.
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period and/or greater number of public holidays. Whilst this would significantly increase the monthly volumes, it would not necessarily increase the potential peak daily volumes.
4.4. Road Safety Review A review of casualty road crash information has been undertaken for the nearby area for the past 5 years of available data (1st July, 2008 to 30th June, 2013) contained in the VicRoads Crashstats database. This database contains reported casualty crashes under the categories of Fatal, Serious Injury and Other (minor) Injury crashes. Non-injury or property-damage only crashes are not included in this database. The review area has included traffic routes to and from the upper and lower precinct areas as shown in Figure 22. The area includes the length of Arthurs Seat Road (from the Mornington Peninsula Freeway) and the length of Purves Road. This figure details the recorded casualty crashes on the basis of location (i.e. intersection crashes and midblock crashes, between the two adjacent streets). Each number denotes the total number of casualty crashes (including all injury types) recorded at an intersection or mid-block location over the 5 year period. This figure highlights that the majority of casualty crashes are concentrated along Arthurs Seat Road, particularly along the bends and at its intersection with Boundary Road. Arthurs Seat Road is managed by VicRoads. A total of 19 casualty crashes were recorded within the review area, of which, 8 involved motorcyclists (including 4 serious injury crashes). Further details of these crashes are provided in Table 3, which indicates that the majority of motorcycle crashes are single vehicle, run-off the road type crashes, that tend to be concentrated along the bends. Whilst the proportion of casualty crashes involving motorcycles (42%) is high, it is representative of the nature of the road network and higher usage of this road by motorcycle riders for recreational use (approx. 10% of weekend traffic (based on survey presented in Figure 19) were motorcycle riders) and the fact that motorcycle riders are significantly overrepresented in Victorian casualty crash statistics as a road user group (in terms of both numbers of registered vehicles and kms travelled).
January February March April May June July August September October November December
Former Chairlift Monthly Patronage (2000 Calendar Year)
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The ‘police accident reports’ also indicate that a number of reported crashes were also related to driver error or driver behaviour (e.g. road rage, fatigue, unregistered vehicles, excessive speed). Whilst the road safety review indicates that there is an existing crash pattern along Arthurs Seat Road related to motorcycle riders, this is characteristic of many scenic tourist routes across Melbourne and regional Victoria, which experience high numbers of recreational motorcycle riders. I am satisfied that these statistics would not significantly change as a result of the gondola application. In particular, it is not expected that the introduction of the Skylift Gondola would significantly increase the number of motorcycle riders using Arthurs Seat Road. This is an existing road safety issue for VicRoads to address through its various road safety programs targeted at motorcycle users and road management and maintenance programs.
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Figure 22: Intersection and Mid-block Casualty Crashes Recorded along nearby Traffic Routes
Legend
Precincts (Upper and Lower)
Arthurs Seat Road Review Area
Purves Road Review Area
1 No. of Intersection Casualty Crashes
1 No. of Mid-Block Casualty Crashes
1
4
1
1
1
1
1 2
1 1 Purves Road btw Davos
Road & Main Creek Road Arthurs Seat Road btw Main Creek Road & Heath
Lane
Arthurs Seat Road btw Main Creek Road &
William Road
1
1
2
1
Reproduced with Permission of Melways Publishing Pty Ltd
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Table 3: Casualty Crash Data – Summary of Crashes (Jul ’08 – Jun’13)
Location Intersecting Street From To Severity Type of Accident Crash Type
Vehicle Type (1)
Date Time Day Light
Conditions Atmospheric Conditions
Road Surface
Conditions Police Report Notes
Below Lower Station Precinct
ARTHURS SEAT ROAD (intersection)
BUNURONG TRACK N/A N/A Other
Left off carriageway into object/parked vehicle. Vehicle entering Arthurs Seat Road from Bunurong Track was spinning wheels, resulting in gravel being thrown up and motorcyclist and pillion passenger veered left off the road and down an embankment.
171 M 7/04/2011 20:45 Thu Dark, no
street lights Clear Dry Hooning, irresponsible riding.
BOUNDARY ROAD
N/A N/A
Other Right far (intersections only). Vehicle turned west to enter Arthurs Seat Road and collided with a westbound vehicle.
111 C 10/11/2011 8:33 Thu Day Clear Dry
Serious Cross traffic (intersection only). Vehicle has failed to give way, resulting in a collision with another vehicle.
110 C 23/12/2010 11:53 Thu Day Clear Dry
Other Right through. Vehicle turned right at intersection into path of oncoming vehicle, resulting in a collision.
121 C 23/12/2008 16:15 Tue Day Clear Dry Elderly driver.
Serious Left off carriageway into object/parked vehicle. Vehicle lost control on bend, travelled up embankment, collided with a tree and spun out onto centre median.
171 C 9/05/2012 18:15 Wed Dark, no
street lights Raining Wet
PINDARA ROAD N/A N/A Serious Out of control on carriageway (on bend). Motorcycle travelling west with a pillion passenger lost control on wet gravel surface and thrown from bike.
184 M 16/08/2008 0:40 Sat Dark, no
street lights Clear
Wet, Muddy
Unregistered trail bike, not wearing helmets and no lights
on bike.
ARTHURS SEAT ROAD (mid-block)
N/A
MORNINGTON PENINSULA ROUTE
OUTBOUND
UNNAMED
Other Off left bend into object/parked vehicle. Vehicle travelling down Arthurs Seat Road slid across wet road into ditch when travelling around left bend.
183 C 31/01/2013 16:20 Thu Day Raining Wet
UNNAMED
UNNAMED
Serious Rear end (vehicles in same lane). Bicyclist has hit the rear of a vehicle that stopped suddenly, following altercation about bicyclist being cut off.
130 B 4/03/2012 17:25 Sun Day Clear Dry Road rage incident.
BUNURONG TRACK
PURVES ROAD
Other Out of control on carriageway (on bend). Motorcyclist rounded right hand bend, lost control and dropped bike.
184 M 30/01/2011 10:10 Sun Day Clear Dry
BUNURONG TRACK
PURVES ROAD
Serious Out of control on carriageway (on bend). Motorcyclist lost control riding around a left hand bend.
184 M 11/08/2010 14:30 Wed Day Clear Dry
BUNURONG TRACK
PURVES ROAD
Other Out of control on carriageway (on bend). Motorcyclist has taken right hand bend wide, travelled into the gravel on the side of the road and slid over.
184 M 24/10/2010 15:10 Sun Day Clear Dry
BUNURONG TRACK
PURVES ROAD
Other Left off carriageway into object/parked vehicle. Vehicle travelling uphill lost traction and crashed into a tree.
171 C 30/07/2009 17:20 Thu Dark, no
street lights Raining, Fog Wet
Lower gear caused rear wheels to loose traction in the
wet.
BUNURONG TRACK
PURVES ROAD
Serious Head on (not overtaking). One motorcyclist collided with railing at hairpin corner, while a second motorcyclist was struck by unmanned motorcycle as it travelled uphill.
120 M 28/10/2012 15:25 Sun Day Clear Dry
SEAL ROCK AVENUE
FITZGERALD RISE
Other
Off right bend into object/parked vehicle. Motorcyclist with pillion passenger taking a right hand bend when sun glare has blocked vision, resulting in motorcycle travelling onto the gravel verge and falling to the ground.
181 M 8/11/2009 18:50 Sun Day Clear Dry
UNNAMED
UNNAMED
Serious Left off carriageway into object/parked vehicle. Driver has collided with tree on bend of the road.
171 C 11/03/2009 23:00 Wed Dark, no
street lights Clear Dry Appears driver fell asleep.
UNNAMED
MAIN CREEK ROAD
Serious
Off right bend into object/parked vehicle. Vehicle has taken right hand bend at speed, with left hand tyres entering the gravel verge, resulting in loss of control. Vehicle has crossed the road twice and crashed into a tree.
181 C 29/10/2009 22:00 Thu Dark, no
street lights Clear Dry
Excessive speed. Vehicle caught fire after driver had left
the scene.
MAIN CREEK ROAD
WILLIAM ROAD
Other Other manoeuvring. Vehicle travelling east in heavy fog has collided with a vehicle towing a horse float blocking lanes in both directions.
149 C 18/06/2009 8:30 Thu Day Fog Unknown
MAIN CREEK ROAD
WILLIAM ROAD
Other Struck object on carriageway. Vehicle crashed into tree which had fallen across the road due to strong winds.
166 C 5/09/2010 1:45 Sun Dark, no
street lights Raining, Fog,
Strong Wet,
Muddy
PURVES ROAD N/A UNNAMED
UNNAMED
Serious
Out of control on carriageway (on straight). Motorcyclist has fallen to the ground when taking a left hand bend.
174 M 18/10/2009 11:22 Sun Day Clear Dry
Legend: (1) Vehicle type: C – Car, RT –Truck, AV – Articulated truck, BU- Bus, M – Motorcycle, B – Bicycle, P – Pedestrian
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5. TRAFFIC ENGINEERING ASSESSMENT
5.1. Car Parking Impacts
5.1.1. Car Parking Requirements
The subject site is generally located within a Public Park & Recreation Zone (PPRZ) and Public Conservation & Research Zone (PCRZ) under the Planning Scheme. The proposed development falls under the land-use category of ‘leisure and recreation facility’ under Clause 74 of the Planning Scheme: The other uses as part of this application such as the café and information/interpretive centres are ancillary to the Skylift Gondola and have not been assessed as standalone land uses. The Planning Scheme sets out the parking requirements for new developments under Clause 52.06. The purpose of Clause 52.06 is:
To ensure that car parking is provided in accordance with the State Planning Policy Framework and Local Planning Policy Framework.
To ensure the provision of an appropriate number of car parking spaces having regard to the demand likely to be generated, the activities on the land and the nature of the locality.
To support sustainable transport alternatives to the motor car.
To promote the efficient use of car parking spaces through the consolidation of car parking facilities.
To ensure that car parking does not adversely affect the amenity of the locality.
To ensure that the design and location of car parking is of a high standard, creates a safe environment for users and enables easy and efficient use.
The car parking requirements for a range of nominated land uses are set out under the car parking table at Clause 52.06-5 of the Planning Scheme. In the case of a ‘leisure and recreation facility’, there is no specified parking rate under Clause 52.06-5 of the Planning Scheme. Accordingly, as directed by this Clause, an adequate number of spaces should be provided for this use to the satisfaction of the Responsible Authority. This assessment would usually be based on empirical data, relying on surveys of similar facilities or by a first-principles assessment using information about the expected operation of the facility.
5.1.2. Car Parking Generation
Aecom previously assessed the parking demands generated by the Skylift Gondola within a report titled Arthurs Seat State Park: Precinct Parking Management Plan (2013). The car parking generation of the proposed Skylift Gondola was previously based on the number of people that had historically visited the Arthurs Seat Chairlift. The Aecom report calculated an expected peak car parking demand of 132 spaces. The methodology for calculating this demand assumed there there would be no increase in the daily peak patronage of the proposed Skylift Gondola compared to the previous chairlift patronage. While this may be the case if there is a fixed expected level of market demand, for planning purposes, I have considered that an increase in the patronage may occur due to the increased capacity of Skylift Gondola and the fact that it is a new attraction. I have utilised two alternative methods to assess the potential parking generation to provide a more reliable estimate of peak demand, and reduce the likelihood that an incorrect assumption may grossly under or overestimate peak demands. The two methods used to calculate the expected ‘peak’ demand of the Skylift Gondola are described as follows:
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Method 1 – Capacity of Skylift Gondola based assessment This assessment is based on the actual passenger capacity of the Skylift Gondola.
Method 2 – Projected patronage of the Skylift Gondola based assessment This assessment is based on the projected patronage of the Skylift Gondola, relative to the former chairlift patronage. It uses a similar method as Aecom, with the exception of allowing for a projected increase in patronage.
Table 4 outlines the key information and assumptions that have been relied on within this assessment.
Table 4: Key Assumptions
Specification Value Source
Former Chairlift
Yearly Patronage 100,000 passengers per year 2000 chairlift data
Peak Daily Patronage 1,500 passengers per day Aecom report
Capacity 180 patrons per hour (equates to approx. 83% av. seating occupancy)
Aecom report
Proposed Skylift Gondola
Projected Yearly Patronage 159,000 passengers per year Arthurs Seat Skylift, based on marketing research)
Car Occupancy 2.7 passengers per vehicle Parks Victoria Monitoring Project (2002)
Assumptions
Average Duration of Stay 1 hour 40 mins (100 minutes) 40 min. two-way gondola ride, plus allowance for 1 hour at summit for gondola related activities (café, info centre, photos, etc)
Peak Operating Period 6 hours (360 minutes)
‐ 10am-4pm peak operational period
Traffix Group assumption, based on activity profile from traffic and parking surveys. Off-peak Weekend Operating
Period 50% of peak, pre 10am and post 4pm
Weekday Operating Period 30% of peak
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Table 5 summarises the calculation of peak parking demands for the Skylift Gondola for the two methods.
Table 5: Peak Parking Demand Assessments
Method 1 Method 2
Assumes 100% by car, 100% new trips Assumes 100% by car, 100% new trips
Gondola Capacity = No. Cabins x No. Patrons Per Cabin x 75% Occupancy x No. Cycles Per Hour
= 40 x 8 x 0.75 x 1.5
= 360 patrons per hour
No. Visitors = Former Chairlift Peak Daily Patronage x (Projected Yearly Patronage / Former Chair lift Yearly Patronage)
= 1,500 x 159,0000
100,000
= 2,385 daily visitors at peak time
No. Hourly Cars = Gondola Capacity/Car Occupancy
= 360/2.7
= 133 cars per hour
No. Daily Cars = No. Daily Visitors/Car Occupancy
= 2385/2.7
= 883 cars per day
Peak No. Cars = No. Cars x Average Duration of Stay
1 Hour
= 133 x 100 mins
60 mins
= 222 space peak parking demand
Peak No. Cars = No. Daily Vehicles x Average Duration of Stay
Peak Operational Period
= 883 X 100 mins
360 mins
= 245 space peak parking demand
Accordingly, the expected peak number of cars generated by the gondola use for the two methods is in the range of 222-245 spaces. This figure conservatively assumes that all users arrive by private car, and that all users are new visitors and not associated with people that would already be visiting the area. In practice, it is expected that a reasonable proportion of users will arrive via bus tours, which are likely to offer a one or two-way ride on the gondola as part of an Arthurs Seat visit. These groups would substantially reduce the parking demands at these times, as they will utilise the proposed bus bays instead of parking areas (e.g. a 50 seat coach would be equivalent to approx. 18 cars, and a 20 seat mini-bus equivalent to approx. 7 cars). Further, there will be visitors to Arthurs Seat already partaking in other activities that would include a gondola trip as an additional activity, rather than this facility being the sole reason for visiting the area. The impact of using the gondola would only increase their duration of stay (as a one-way or two-way trip) or reduce the amount of time they spent partaking in other activities if they had a fixed amount of time available. To account for these reductions, I have assumed that a peak demand of approximately 80% of the above figures. This equates to a demand for 178-196 cars. This compares to 132 spaces in the Aecom assessment. While my assessment is significantly higher than the Aecom assessment (based on the increased capacity and higher projected annual patronage), I am satisfied that it represents a more conservative and appropriate peak demand for planning purposes. The following parking and traffic assessments are based on the peak upper limit parking generation of an additional 196 spaces being generated by the Skylift Gondola at peak operating times. This is the maximum demand that can be expected if the gondola operates at capacity, for an average duration of stay of 1 hour and 40 minutes (includes 40 minutes return gondola trip). While a duration of stay of 1 hour and 40 minutes is assessed above, I acknowledge that people visiting the area may visit other attractions that may increase their overall duration of stay beyond the additional hour allowed for in my assessment. Where this occurs, these demands are already captured in the ‘existing conditions’ surveys in terms of parking and traffic in the nearby area and do not need to be separately accounted for. Accordingly, the assessment of the Skylift Gondola with a peak parking generation of 196 spaces at any time represents an ‘upper-limit’ and remains a conservative assessment of demands.
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5.1.3. Car Parking Supply
Based on the above, the projected profile of additional parking demands for the Arthurs Seat Skylift Gondola is as follows:
196 spaces at peak weekend operating periods (10am-4pm),
98 spaces at off-peak weekend operating periods (50% or peak, pre 10am and post 4pm),
59 spaces at weekday periods (30% of peak). The post-development car parking supply in the upper precinct is 218 car spaces within the public areas of Arthurs Seat State Park, with a further potential overflow area of 258 car spaces as described in Section 4.2.4. A further 69 car spaces will be provided in the lower station carpark area, with an overflow area for an additional 91 car spaces. The worst-case scenario is that the peak demands are concentrated in the upper precinct area, as the former Arthurs Seat Chairlift operated with approximately 65% of all trips originating from the upper station (and 35% from the lower station). Figure 23 superimposes the expected parking demand onto the existing parking demand for the upper precinct parking areas. It also shows the post-development parking supply for the upper precinct area within the Arthurs Seat State Park for the formal and overflow parking areas.
Figure 23: Arthurs Seat State Park – Projected Post-Development Parking Demands (upper precinct area)
The above graph confirms the upper-limit is likely to result in demands above the existing capacity of parking areas at peak times, if the gondola consistently operates at its carrying capacity once the existing demands are taken into consideration. Accordingly, I am of the view that some of the informal parking areas identified by Parks Victoria are required to accommodate the peak parking demands for this use. These demands can be facilitated by formalising parking in the following areas, with preference to increase parking in both the upper and lower station precincts:
Purves Road Overflow Carpark – Approx. 77 additional spaces on the west side of Purves Road (near the Enchanted Maze).
Seawinds Precinct – Approx. 181 additional spaces (north and south areas).
Arthurs Seat State Park - Projected Post Development Parking Demands
Sunday School Holiday Typical Weekday Typical Sunday
Supply = 476 Upper Precinct including overflow areas
Supply = 218 Upper Precinct
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Lower Station Precinct – Approx. 91 additional spaces accessed via the Dromana Cemetery access road, with a new pedestrian access from the lower station (note, located on Council land).
Any works associated with the creation of additional parking areas would be undertaken by Parks Victoria and do not form part of this application.
5.2. Traffic Impacts
5.2.1. Traffic Generation
Based on the first principle assessment, an ‘upper-limit’ peak car parking generation of 196 spaces is expected to be generated by the proposed Skylift Gondola. Allowing for an average duration of stay of 1 hour and 40 minutes, a total of 118 arrival movements and 118 departure movements can be expected in any one peak hour. This equates to a total of 236 movements per peak hour. This level of peak demand is likely to occur on school holiday weekends, public holidays, etc, if the use operates at capacity. The traffic generated by the proposed Skylift Gondola will be distributed throughout the Arthurs Seat State Park to the respective parking areas.
5.2.2. Traffic Distribution
Information supplied by the Applicant outlines the distribution of patronage related to the former Arthurs Seat chairlift (based on ticket sales for the year 2000) as follows:
35% of trips originated from the lower station.
65% of trips originated from the upper station.
74% of trips were two-way (i.e. start and finish at the same station). The following sets out the adopted traffic distribution for the proposed Skylift Gondola. The assessment presents a worst-case scenario by assuming all movements occur at the upper station and utilise the Purves Road/Arthurs Seat Road intersection. Table 6 details the predicted arrival and departure volumes associated with 236 vehicle vehicle movements for each peak hour. Table 6: Expected Development Peak Hour Traffic Volumes
TOTAL MOVEMENTS Arrival Movements Departure Movements
Upper Station 236 vehicle movements (approx. 4 cars per minute)
118 veh movements (approx. 2 cars per minute)
118 veh movements (approx. 2 cars per minute)
Figure 24 details the expected traffic distribution for the gondola use at the Arthurs Seat Road/Purves Road intersection, which adopts the same distribution recorded in turning movement count of existing conditions presented in Figure 19 in Section 4.3.3.
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Figure 24: Gondola Traffic Distribution and Projected Traffic Volumes
An assessment of the development impact on the unsignalised intersection of Arthurs Seat Road and Purves Road has been undertaken using Sidra Intersection 6. An assessment of the intersection capacity has been made on the basis of the peak hour volumes presented previously in Figure 19, and observations of the intersection operation during site inspections. The existing intersection layout is presented at Figure 25, which does not include the provision of a separate right-turn lane.
LEGEND Traffic Volumes No. Vehicle Movements (% of total peak hour movements)
PUR
VES
RO
AD
ARTHURS SEAT ROAD
North
24 (
10%
)
24 (
10%
)
56 (24%)
31 (13%) 42 (18%)
59 (25%
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The intersection capacity analysis allows estimation of key operating parameters such as intersection degree of saturation (X), 95th percentile queue lengths, and average delay which are described below:
1. Degree Of Saturation (DoS) – measure of intersection performance expressed as a ratio of demand/capacity. A DOS greater than 0.90 is generally regarded as unsatisfactory for an unsignalised intersection, see below:
Level of Service Intersection Degree of Saturation
Level of Service Unsignalised Intersection Signalised Intersection
A Excellent <= 0.60 <= 0.60
B Very Good 0.60 – 0.70 0.60 – 0.70
C Good 0.70 – 0.80 0.70 – 0.90
D Acceptable 0.80 – 0.90 0.90 – 0.95
E Poor 0.90 – 1.00 0.95 – 1.00
F Very Poor >= 1.0 >= 1.0
2. 95th Percentile Queue Length (m) – one car represents a 7m queue 3. Average delay - no. of seconds delayed
The assessment has considered the following scenarios: Scenario 1: Existing Conditions
o based on existing conditions turning movement count presented in Figure 19 Scenario 2: Factored Upper-Limit Of Existing Conditions
o proportional increase of intersection traffic movements to worst-case traffic volume (based on the daily tube count data). That is, 1.342 factor applied to account higher daily volume of 4,017 recorded on Saturday 4th October, 2014, compared with daily volume of 2,994 recorded on Sunday 12th October, 2014 (i.e. turning movement count day).
Scenario 3: Projected Development Volumes plus Factored Upper-Limit Of Existing Conditions o projected traffic volumes in Figure 24 superimposed on Scenario 2 (factored upper-limit of
existing conditions) Scenario 4: Upper-Limit Intersection Volumes to remain at Los A without Mitigating Works
o intersection traffic movements factored up to test intersection performance remaining at limits of LOS A (excellent, with intersection degree of saturation of 0.6). Resultant increases were 218% greater than Scenario 1 and 163% greater than Scenario 2.
Figure 26 provides the intersection traffic volumes for the 4 scenarios. The Sidra output results for the Arthurs Seat Road/Purves Road intersection for each scenario are provided at Appendix E. A summary of the results for each scenario is presented in Table 7 (intersection summary) and Table 8 (movement summary). The assessment includes the Level of Service (LOS), Degree of Saturation (DOS), average delay times and 95th percentile queue lengths (m).
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The above results indicate that the assessed scenarios do not result in any significant concerns for traffic conditions at the upper station precinct, with each operating at LOS A (excellent conditions). Importantly, the results confirm that there is substantial spare capacity at this intersection to accommodate the gondola traffic without any mitigating works to provide separate right-turn treatments (i.e. Scenario 3). The increase in delays and queues are only marginal (i.e. differences between Scenario 2 and 3). This assessment is also conservative as it has assumed all vehicles to the upper station precinct will move through this intersection when in reality, as there are parking areas prior to this intersection on each leg, the ultimate traffic volumes will be lower in practice. The above modelling has assumed that vehicles on all approaches cannot pass a turning vehicle (i.e. assumes shared lanes), when in reality this can potentially occur, including simultaneous left-turn and right-turn movements from Purves Road. I am satisfied that the gondola traffic at peak times can be accommodated by the Arthurs Seat Road/Purves Road intersection without the need for mitigating works. Importantly, the assessment under Scenario 4 indicates that there can be significant increases in traffic volumes within this area with the intersection still operating under LOS A (excellent conditions). The resultant increases were 218% greater than Scenario 1 and 163% greater than Scenario 2. The inclusion of a right-turn lane in Arthurs Seat Road it this intersection (if determined to be required by VicRoads under Conditions 65 to 70 of Council’s Notice of Decision), would have the effect of reducing delays and queuing for the eastbound through vehicles using Arthurs Seat Road.
5.3. Other Considerations
5.3.1. Bicycle Parking
A total of 30 bicycle spaces are proposed as part of the application, including:
10 spaces at the Lower Station, and
20 spaces at the Upper Station. I am satisfied that the proposed bicycle parking provision for this facility is satisfactory, noting that there are opportunities to increase the supply in the event that this mode is popular for the gondola facility.
5.3.2. Potential Mitigating Works
VicRoads, as the responsible road authority for Arthurs Seat Road, has included a number of conditions (Conditions 65 to 70) in Council’s Notice of Decision. These conditions relate to requirements for further traffic assessments to assess the need for any potential mitigating works that are associated with the car parking areas to be constructed by Parks Victoria, and related upgrades recommended for Arthurs Seat State Park as set out in the Arthurs Seat State Park Traffic Management Plan (November, 2013, prepared by Aecom). All of these works are outside of the ‘leased area’ and not subject to a planning permit. I understand that these works will also be completed by Parks Victoria. As noted in the above assessment, the inclusion of a right-turn lane in Arthurs Seat Road at the Purves Road intersection would have the effect of reducing delays and queuing for the eastbound through vehicles using Arthurs Seat Road. VicRoads should consider whether it is favourable to include a separate right-turn treatment at this intersection from a speed management and pedestrian safety perspective. In this location, through traffic speeds and operational efficiencies at peak times should be of lesser importance than pedestrian safety, which is enhanced by maintaining a low speed environment for through traffic. The inclusion of separate right-turn lanes accessing Purves Road or public parking areas will increase the speed of through vehicles in the summit area at peak times. Similarly, the design of any treatments will need to consider the greater turning and storage requirements of bus/coach movements.
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Whilst improved crossing points for pedestrians (via formalised pedestrian refuge treatments) will be provided under the works recommended by Aecom, maintaining lower traffic speeds through the summit area is equally important as pedestrians can be expected to cross these roads at many locations, including away from preferred crossing locations.
5.3.3. Overflow Parking Areas and Other Improvements
The assessment indicates that there is likely to be a greater reliance on the overflow parking areas than anticipated by the Aecom report (Arthurs Seat State Park: Precinct Parking Management Plan), in part because the report did not account for the existing parking demands experienced in the public parking areas. While not specifically part of this application, it is expected that Parks Victoria will need to formalise some of the overflow parking areas identified in Section 5.3.3 to cater for the peak demand associated with the Skylift Gondola and existing uses in this precinct. This will ensure all overflow car parking demands are contained within off-street parking areas and reduce the likelihood that on-street parking occurring within the road reserve of Arthurs Seat Road and Purves Road. On-street Parking The parking management measures could be supplemented by ‘No Stopping’ signage along Arthurs Seat Road and Purves Road in the vicinity of the upper station and Enchanted Maze areas to encourage the use of off-street parking areas preferentially. Formalise Parking Areas Informal car parking areas should include some form of delineation of car spaces to ensure the parking areas are efficiently utilised (e.g. wooden linemarking similar to that used in other gravel car parking areas) by visitors to the precincts. Directional Signage Directional signage at the various areas including at the Arthurs Seat Road/Purves Road intersection could be provided in order to identify the distance and capacity of nearby parking areas. This would ensure that visitors to the area can identify preferable parking locations in the event that the initial carpark they access is fully occupied.
5.3.4. Parking Layout
Indicative parking layouts have been prepared as part of the application material for the parking areas to be constructed by Parks Victoria. Traffix Group has reviewed the carpark layout and access arrangements under the following guidelines:
Clause 52.06-8 of the Planning Scheme (Design standards for car parking),
AS2890.1-2004 – Part 1: Off-Street car parking (where relevant), and
AS2890.6-2009 – Part 6: Off-Street car parking for people with disabilities (where relevant). Whilst these plans are preliminary and do not detail a number of design elements that would be necessary for a detailed assessment (e.g. grades and annotated dimensions), I am satisfied that the general concepts for the parking layout and access arrangements are sufficient to provide the number of car spaces proposed in an efficient manner. It is expected that these plans would be subject to a further design review by qualified traffic and civil engineers, prior to works being implemented.
5.3.5. Commercial Vehicle Requirements
Loading Arrangements Under Clause 52.07 there is a requirement for a formal loading bay to be provided for the café use. I am satisfied that loading can be adequately accommodated within the parking resources surrounding the lower and upper stations, including within the ‘bus parking’ spaces which can accommodate larger vehicles as required.
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I am satisfied that the majority of deliveries will occur via smaller vehicles and can be accommodated within the proximate carparks. These are also most likely to occur on weekdays, which are off-peak times for the gondola use. Waste Collection Similarly to loading, waste collection can be adequately accommodated within the parking resources surrounding the lower and upper stations, including within the ‘bus parking’ spaces which can accommodate larger vehicles as required. A waste storage area is located at both the upper and lower stations and accordingly, waste collection will be required at both locations.
6. RESPONSE TO APPLICATION FOR REVIEW GROUNDS
The following table outlines my response to the relevant traffic and parking issues raised within the Application for Review. Table 9: Response to Application for Review Grounds
Issue Response
The proposed development will not result in an acceptable planning outcome having regard to the impact on traffic safety and traffic access to the site and within the surrounding area.
The traffic volume and parking analyses are based on empirical evidence from reports undertaken by Parks Victoria in 2002, when the previous chairlift was still in operation.
Children using the school bus stops close to the top station will be endangered by increased traffic.
Arthurs Seat Road is a narrow road and the potential increase in bus and car traffic will affect the safety of the road, particularly at night time.
As outlined throughout this report, the impacts of the proposed development with respect to safety and access are not expected to have an unreasonable impact on the nearby area.
The Arthurs Seat Road/Purves Road intersection does not require any mitigating works to cater for the expected traffic volume increases at peak times.
Whilst no existing pedestrian safety concerns were identified within the road safety review, the proposed works by Parks Victoria include a series of pedestrian upgrades to improve pedestrian crossing opportunities and linkages to car parking areas.
Council, VicRoads and Parks Victoria would be expected to continually monitor traffic, parking and safety in the precinct and if issues arise, address them accordingly.
Arthurs Seat Road is an arterial tourist road, which facilitates a single traffic lane in each direction. Arthurs Seat Road will continue to operate well within its environmental capacity post-development and delays/queues will not be extensive as a consequence of this development.
With respect to school buses, these are used by students at off-peak times for the gondola use (i.e. on weekdays, during the school term) and are unlikely to be affected by the proposed use.
I am satisfied that the proposed Skylift Gondola will not adversely impact on the safety or performance of the road network and that traffic generated by the use at peak times can be adequately accommodated by the surrounding road network.
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7. CONCLUSIONS
Having undertaken a detailed traffic engineering assessment for the proposed Arthurs Seat Skylift Gondola within Arthurs Seat State Park, I am of the opinion that: a) car parking demands generated by the Arthurs Seat Skylift Gondola can be accommodated in nearby public
parking areas of Arthurs Seat State Park, however, peak demands are likely to require the use of the overflow parking areas identified in the Arthurs Seat State Park Precinct Parking Management Plan (2013), prepared by Aecom,
b) traffic generated by the proposed gondola can be adequately accommodated by the surrounding road network and will not adversely impact on the safety or operation of nearby roads or intersections,
c) the design of parking areas will allow waste collection and loading activities to be adequately accommodated for the upper and lower stations, and
d) there are no traffic engineering reasons why a planning permit for the proposed Arthurs Seat Skylift Gondola should not be approved, subject to appropriate conditions.
I have made all inquiries that I believe are desirable and appropriate and there are no matters of significance which I regard as relevant which, to the best of my knowledge, have been withheld from the Tribunal.
CHARMAINE CHALMERS DUNSTAN B.E. (Civil) Hons., Masters of Traffic, M.IEAust., M.V.P.E.L.A
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APPENDIX A PRACTICE NOTE – PNVCAT2 – EXPERT EVIDENCE
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STATEMENT OF WITNESS Name Charmaine Chalmers Dunstan Position Director, Traffix Group Address Suite 8, 431 Burke Road Glen Iris 3146 Qualifications and Experience My qualifications and membership of professional associations are as follows:-
Bachelor of Civil Engineering (honours), Monash University, Clayton
Masters of Traffic, Monash University
Masters of Transport (current), Monash University
Member, Engineers Australia
Member, Victorian Planning & Environmental Law Association I have over 19 years experience as a Traffic Engineering and Transport Planning consultant with Traffix Group Pty Ltd and formerly Turnbull Fenner Pty Ltd. My experience also includes a number of local government appointments which involved acting in the role of Council’s Transport Co-ordinator or Senior Traffic Engineer. These appointments include the City of Moreland, City of Whittlesea and the City of Darebin. Area of Expertise I have experience and expertise in traffic management, road safety planning and engineering, parking management and strategy development, and development impact assessment of a range of land-use developments. Disclosure of Interests I disclose that I have no private relationship with the Permit Applicant. I have worked with other consultants associated with this project in the past. These relationships have not impacted on my ability to provide impartial Expert Evidence to the Tribunal. Engagement and Scope of Report I was retained by the Permit Applicant to provide expert evidence in relation to an Application For Review against Mornington Peninsula Shire Council’s Decision to Grant a Permit on Application No. P13/1992 lodged by Matthew Bisogni in his own right and on behalf of Save our Seat Inc. and others. The scope of my engagement in relation to the Application for Review has included the following tasks: site inspection, design assistance in the preparation of amended plans for the VCAT hearing, review of Council policies and other relevant documents, review of the amended plans, review of parking and traffic generation impacts of the proposal, traffic surveys in the nearby area, parking surveys in the nearby area, review of previous chairlift operation characteristics, review of road crash statistics, and preparation and giving of Expert Evidence in accordance with VCAT Practice Note No. 2 for Expert Evidence. I have reviewed the following documents as part of my assessment: Application Plans prepared by McGann Architects (dated 11th February, 2014), Arthurs Seat State Park – Precinct Parking Management Plan prepared by Aecom Australia Pty Ltd (dated 18th
November, 2013), Arthurs Seat State Park – Traffic Management Plan prepared by Aecom Australia Pty Ltd (dated 18th November,
2013),
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Parks Victoria Arthurs Seat State Park Visitor Vehicle Monitoring Project (dated November, 2002) Council Officer’s Report (dated 2nd June, 2014), VicRoads letter (dated 25th March, 2013) Notice of Decision to Grant a Permit (dated 6th June, 2014), Application for Review, Australian Standards (AS2890.1-2004 ‘Parking Facilities, Part 1: Off-Street Car Parking’), relevant sections of the Mornington Peninsula Planning Scheme. My assessment is based on the amended VCAT plans prepared by McGann Architects (dated 11th February, 2014). Facts and Assumptions As detailed in evidence. Reference Documents As detailed above and in evidence. Experiments I have visited the site to observe traffic and parking activity within the nearby area. I have commissioned traffic surveys to be completed between Saturday 27th September and Sunday 12th October, 2014 at the following locations:
Arthurs Seat Road (west) – approximately 20m west of Purves Road.
Arthurs Seat Road (east) – approximately 250m east of Purves Road (adjacent to Georges B&B).
Purves Road – approximately 30m south of Arthurs Seat Road. A Turning Movement Count was also undertaken at the Arthurs Seat Road/Purves Road intersection between 12pm and 2pm on Sunday 12th October, 2014. I have commissioned parking surveys to be undertaken at the following times:
9am-5pm (at hourly intervals) – Thursday 9th October, 2014, and
9am-5pm (at hourly intervals) – Sunday 12th October, 2014. Summary of Opinions Refer to evidence. Provisional Opinions Not applicable. Other members of Traffix Group involved in the preparation of Evidence David Beaton (Senior Traffic Engineer) assisted with site inspections, design review of the parking layout/access arrangements, supervision of surveys and the preparation of this statement. Experienced survey staff assisted with the parking surveys Report Completeness Final report.
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APPENDIX B PARKING SURVEY RESULTS
Arthurs Seat SkyliftRef: 17745Parking Surveys
Supervised By: David Beaton
Surveyed By: Jon Achilles Survey Dates & Times: See below
Nb/Sb - Northern/Southern Property BoundaryEb/Wb - Eastern/Western Property BoundaryMid pt - Mid pointROW - Right of Way Prepared by Traffix Group Pty Ltd Page 1 of 2
Arthurs Seat SkyliftRef: 17745Parking Surveys
Supervised By: David Beaton
Surveyed By: Jon Achilles Survey Dates & Times: See below
Note: Public parking includes spaces that are available to the general public and excludes 'No Stopping' areas and 'Bus Zone' areas during the relevant enforcement periods
Formalised/Sealed Angled Car Parking
Foamlised/Sealed Angled ar Parking Area
Nb/Sb - Northern/Southern Property BoundaryEb/Wb - Eastern/Western Property BoundaryMid pt - Mid pointROW - Right of Way Prepared by Traffix Group Pty Ltd Page 2 of 2
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APPENDIX C TRAFFIC SURVEY SUMMARIES
Copyright Traffix Survey Pty Ltd, 2003
TRAFFIC COUNT SUMMARY
Arthurs Seat Road, Arthurs SeatAt: mid-block
Between
Purves Road & Carpark
CUSTOMER: Traffix Group Pty Ltd MAP REF: 159 E12TYPE COUNT: 7 days, Speed Vol Class ACTUAL DURATION: 19 daysDATE START: 27/09/14 DATE FINISH: 03/10/14TIME START: 0000 TIME FINISH: 2300DIRECTION-1: Eastbound DIRECTION-2: WestboundCOUNTER NO: SPEED LIMIT: 60CLASSES: 1 - 12 SPEEDS: AllAll
All Vehicles 913 5.0 0.215 3.5 LOS A 1.3 9.8 0.27 0.32 55.3
Level of Service (LOS) Method: Degree of Saturation (SIDRA METHOD). Vehicle movement LOS values are based on degree of saturation per movementMinor Road Approach LOS values are based on worst degree of saturation for any vehicle movement.SIDRA Standard Delay Model is used. Control Delay includes Geometric Delay.Gap-Acceptance Capacity: SIDRA Standard (Akçelik M3D).HV (%) values are calculated for All Movement Classes of All Heavy Vehicle Model Designation.
Processed: Tuesday, 14 October 2014 3:30:31 PMSIDRA INTERSECTION 6.0.12.4072
All Vehicles 1225 5.0 0.305 4.0 LOS A 2.1 15.6 0.34 0.35 55.1
Level of Service (LOS) Method: Degree of Saturation (SIDRA METHOD). Vehicle movement LOS values are based on degree of saturation per movementMinor Road Approach LOS values are based on worst degree of saturation for any vehicle movement.SIDRA Standard Delay Model is used. Control Delay includes Geometric Delay.Gap-Acceptance Capacity: SIDRA Standard (Akçelik M3D).HV (%) values are calculated for All Movement Classes of All Heavy Vehicle Model Designation.
Processed: Tuesday, 14 October 2014 3:49:55 PMSIDRA INTERSECTION 6.0.12.4072
All Vehicles 1461 5.0 0.383 6.4 LOS A 3.3 23.8 0.37 0.45 49.4
Level of Service (LOS) Method: Degree of Saturation (SIDRA METHOD). Vehicle movement LOS values are based on degree of saturation per movementMinor Road Approach LOS values are based on worst degree of saturation for any vehicle movement.SIDRA Standard Delay Model is used. Control Delay includes Geometric Delay.Gap-Acceptance Capacity: SIDRA Standard (Akçelik M3D).HV (%) values are calculated for All Movement Classes of All Heavy Vehicle Model Designation.
Processed: Friday, 17 October 2014 4:39:12 PMSIDRA INTERSECTION 6.0.12.4072
All Vehicles 1991 5.0 0.600 7.0 LOS A 9.7 70.5 0.55 0.49 52.8
Level of Service (LOS) Method: Degree of Saturation (SIDRA METHOD). Vehicle movement LOS values are based on degree of saturation per movementMinor Road Approach LOS values are based on worst degree of saturation for any vehicle movement.SIDRA Standard Delay Model is used. Control Delay includes Geometric Delay.Gap-Acceptance Capacity: SIDRA Standard (Akçelik M3D).HV (%) values are calculated for All Movement Classes of All Heavy Vehicle Model Designation.
Processed: Tuesday, 14 October 2014 4:05:37 PMSIDRA INTERSECTION 6.0.12.4072
