Unfortunately, PPPs have more recently acquired a bad reputation as they have been used by governments as a mechanism to delay payments and defer risks, costing the public more over the long term. A new development of this approach is the private sector-led proposal, whereby the private sector pitches proposals to government so avoiding any real competition in the process
There are consistent themes that make the City of Melbourne PPPs different:
- All of the proposals were led from within Council by an in-house team of experts.
- The City contributed to the partnership by using its existing, or recently acquired assets.
- The City shared in the risk but put in place mechanisms to ensure this risk was managed and reasonable. This usually meant the City retained equity in the process until the risk was minimised.
- The process of finding a partner was always competitive, with quality design and public benefit high on the selection criteria.
- The City acted as an intelligent client through its in-house team, and recognised that successful partnerships take time to deliver and implement, often bridging two terms of office by the Councillors.
- The City started small and built confidence internally, and with the development industry.
- The partnerships needed to be well aligned with the Council’s goals, such as affordable housing, sustainability, and repair of the city fabric. These goals had been established in the City of Melbourne’s 1985 Strategy Plan which sought to:
- bring back people to live in the city, so adding density and mixed use;
- favour pedestrians and public transport over cars, so improving connectivity while giving back more space to people;
- remove all surface-level carparks, so ensuring an excellent street experience with a high-quality public realm that favoured walking;
- build on the city's physical attributes – its local character such as the laneways, bluestone and high-quality open spaces.
In the late 80s, when the PPP program started, the City had limited finances, and while there were funds for the basics, the more ambitious projects needed partners in order to be realised. The first two projects were reasonably conventional:
Cafe L’Incontro
A small open space on the corner of Little Collins and Swanston Streets was populated by more pigeons than people. The plan was to design, in-house, a small café elevated above the public space, providing a comfortable place to sit overlooking the recently pedestrianised Swanston Street. The cafe provided an active edge to the space, which was contained by an Akio Makigawa sculpture . The concept was put to the market in 1993/94 on the basis that the successful team would secure a lease over the site - in this case, 30 years - after which the development would revert to the City.
Tyne Elgin Street Carpark
The property was a surface-level carpark that accommodated an old house and 110 parking spaces. The proposal was to go to market for an underground carpark with 215 short-stay spaces. The strata above the slab would be for residential development. A special requirement was that the final development should reinstate the two laneways that had been compromised by the demolition to form the existing surface carparking. The City achieved all its requirements, with the extra parking welcomed by the retailers, and the repaired neighbourhood liked by the local residents. The City retained a quality carpark which has returned steady revenue for over 20 years.
The City Square
Similar to Tyne Elgin but on a grander scale that involved a land swap by the City. This allowed the building of a hotel and residential development which provided active frontages and passive surveillance of the square, a new laneway, 400 underground short-stay parking spaces, a new, softer City Square and the refurbishment of the historic Regent Theatre.
QV Melbourne
With the success of these three projects the City became more ambitious and following concern about the proposed development on the Queen Victoria Hospital site in Swanston Street in 2000, the City purchased the site from the Nauru government for $35m in order to determine the outcome. It then packaged a brief that required the developers to provide an underground supermarket to support the city’s rapidly increasing residential population, 2000 short-stay parking spaces to help the retailers and hospitality area of Chinatown, lanes and arcades with small tenancies and complete active frontage, and a childcare facility. It also required that the development should not be designed by a single architect but rather be a campus style development with multiple hands. The result was the QV development which helped turn around the declining retail in the CBD. The City returned a modest profit of $3.5m from interest earned by leaving its money in the development while retaining the land title until practical completion.
QVM Precinct Renewal
The most recent example, currently under construction, is the Munro site in Therry Street opposite the Queen Victoria Market. This forms part of a larger precinct and the QVM Precinct Renewal but is a crucial site. It will allow the City to remove surface level carparking, and place the parking underground, thus allowing for the creation of a circa 1.75-hectare Market Square. It also allowed the City to support retail at the market and avoid the introduction of a supermarket and chain stores. The successful developer is providing 15% affordable housing, building community facilities, including 120 space childcare, and providing lanes and open space. The safeguard built in for the City was that the developer was required to build the 500-space carpark and the community facilities before gaining title. The best way to explain the public benefit is in the waterfall chart below.
JH Boyd School
This Munro model has been repeated at the former JH Boyd School in Southbank where the City purchased the site for $10.5m, built in a library for $7m, and an open space for $4m, selling off a small parcel of land to a developer on the requirement that it provide 15% affordable housing and 1000 square meters of community space, all at a 6 Star Green Star rating. The price paid by the developer paid off all the previous investments and left the City with a residual site value of $23m.
Postcode 3000
Arguably, the most successful PPP carried out by the City was Postcode 3000. The program saw the inner city increase the number of its residential units from 650 in 1985 to nearly 50,000 today, so producing the single biggest change to the central city since the 19th century gold rush.
The secret to these kinds of projects is that Councils need to retain the in-house expertise that allows them in the first place to conceive of the projects, and then have the skills to negotiate and manage the risk of delivery. The City of Melbourne has done this for 30 years, and its communities continue to benefit from these actions while their credibility within private enterprise remains high.
This piece is taken from our upcoming book, Australia's Nobel Laureates, Vol. III, celebrating Australian science and innovation. Taking a whole-of-economy healthcheck on Australia's innovation ecosystem, the book features words from industry, academia, and Government.