Putting the Rad Back in Radburn: Rethinking the Radburn layout in the Pilbara region

This paper uses a case study to explore the potential of retrofitting the significant number of Radburn planned neighbourhoods in the Pilbara. This retrofit is directed towards providing much land for urban development but also enhancing the social, recreational, and ecological roles of Radburn generated public open space (POS). The proposition of a ‘retrofit’ project is significant in that the development of the Pilbara, and the Kimberley, which is often seen as a stage for the proposition of shiny new cities, and or new experimental urban models.

One of the most extraordinary examples of the former occurred in the 1980’s, when Lord Alistair McAlpine - Margaret Thatcher’s finance minister - pursued the vision of the tiny tourist town of Broome as the next Singapore. More recently Bernard Salt, demographer and urban commentator also urged Broome to become a major city with its own international airport (Bolleter & Weller, 2013). In 2013 Perth landscape architects ‘Eco-Scape’ won a national design competition with a proposition for a new capital city on the shores of Lake Argyle. Finally some of the language surrounding the development of Karratha has tended to dismiss the existing town as a relative blank slate from which a new ‘modern and vibrant’ city can emerge.

Radburn planning in the Pilbara

While the proposition of new cities in the north west of Australia is not new, neither is the proposition of relatively new and experimental urban models. One such model was the Radburn neighbourhood unit first developed at the American suburb of Radburn, New Jersey. At Radburn, vehicular and pedestrian traffic was separated by the use of internal landscaped spines that were both open space and pedestrian routes (Freestone, Garnaut, & Iwanicki, 2011). In the Pilbara region of Western Australia, what were then still experimental Radburn planning principles were applied in resource towns such as Dampier (1965), Shay Gap (1971- now demolished), Karratha (1979) and South Hedland (~1980) (Figure 1). Given their remote locations, it was considered these towns needed to be well designed to attract and retain a skilled workforce (Freestone et al., 2011). As such, governments of the time turned to planning professionals to create designed and ‘modern’ community settings, such as the Radburn plan, which was perceived would help to compensate for the ‘isolation’ and the ‘harshness’ of the landscape (Freestone et al., 2011).

Such is the prevalence of the Radburn plan in the Pilbara, that it quite rightly identified as forming a key part of the vernacular of the Pilbara in the ‘Pilbara Vernacular’ (Landcorp, 2012, p. 16). Indeed the Pilbara has a greater number of Radburn planned neighbourhoods than Perth, a situation which can be explained by a willingness to experiment with ‘new’ urban forms in the Pilbara. Despite the prevalence of Radburn planning in the Pilbara, the actual results have often been disappointing. Radburn planned neighbourhoods have been associated with reduced walkability, the concentration of socio-economic disadvantage, and excessive, barren, and sometimes dangerous1 open space2 (Figure 2).

1 In Bulgarra, a Radburn planned neighbourhood of Karratha, the most commonly reported crime is assault.2 These problems appear to have also been found in Australian Radburn planned neighbourhoods, such as Bonnyrigg and Macquarie Fields in New South Wales. Retrofits of these neighbourhoods have been carried out however the results are of marginal significance to this study. This is due to significant differences in demographic (Bonnyrigg and Macquarie Fields were housing commission developments), climate, and landscape.

While urban development in the Pilbara is often framed as being an opportunity for ‘new’ cities, and ‘new’ city models, we would argue that there is potential to equally think about retrofitting the Pilbara’s existing Radburn planned neighbourhoods so as to provide greater residential density and to perform better in recreational, ecological and social terms. While the problems of Radburn planned neighbourhoods are significant, the vast amount of public open space they absorb provides potential with respect to urban challenges, such as chronic housing shortages, which have been experienced in the Pilbara.

Rethinking Bulgarra

It was in relation to these issues that in 2012 LandCorp commissioned the Australian Urban Design Research Centre (AUDRC), in conjunction with Strategen Environmental Consultants, to consider the revitalisation of the Radburn planned suburb of Bulgarra.3 Bulgarra is located between Karratha town centre and the new Mulataga development to the east. The Pilbara Cities vision is aiming to boost Karratha’s population from 18,000, to 50,000 people by the year 2031 (Pilbara Development Commission, 2012) and as such this project was partly directed towards understanding what Bulgarra could contribute towards such targets.

Like most Radburn neighbourhoods the existing road network within Bulgarra is fragmented and based around a number of isolated cells of residential development.4 The relative isolation of one urban cell from another is compounded by intervening drainage corridors which conduit water from the rocky scarp to the north, to the ocean in the south. While these drainage corridors, provide a vast area of Public Open Space (POS), or 46% of the suburb area, they provide little amenity to residents (Figure 3). This is in part because of overzealous regulations which limit what can be done in a drain corridor and also because of simple economics. The existing population density doesn’t reach the threshold at which council rates and taxes could be directed towards the redesign and upkeep of these areas at a higher standard.

In relation to these constraints the proposed retrofit of Bulgarra was conceived to provide residential dwellings, which at the time were much needed, but which also could contribute to the upgrade of what is now mostly residual, low performing POS- a key aspect of achieving the Pilbara Cities goals of ‘sustainability and attractiveness’ (Pilbara Development Commission, 2012). The Bulgarra strategy was conceived in a number of key moves:

1. The first move was to thread a new bus route East West through Bulgarra so as to provide a public transport connection between the new town centre and Malutaga to the east (Figure 4). The aim of this is both pragmatic (providing a new bus route) but also symbolic. Radburn planned neighbourhoods are well known, and frequently criticised, for their introspective qualities. This initial move acts to puncture the introspective nature of Bulgarra’s urban form and reconnect the Radburn plan with its urban context. In a similar vein, road connections will also be provided between the residential cells of Bulgarra - essentially formalising the unofficial vehicle tracks which have been created by residents (Figure 5).

2. The second move is to construct 2-3 storey terrace building typologies along the edge of drainage corridors at appropriate locations (Figure 4). These buildings will principally face

3 This study has not been progressed with any actions or community consultation, in part due to changing economic situation in the Pilbara. We believe the study remains nonetheless informative.4 A situation which has resulted in social disparity between areas (Stretagen, 2012, p. 19).

outwards towards the drainage corridors - increasing visual surveillance of the POS and encouraging residents to take ownership of these spaces. As Freestone and Nichols explain: ‘The most effective internal reserves (such as these are) are ones which double as a ‘second backyard’. When adjoining owners have either low (or even no) back fences, the message of use and surveillance of specific spaces is clear to intruders and users alike’ (2012, p. 9). While these dwellings are to principally face the POS it is important that each dwelling has a flexible-use zone for that allows residents to ‘customize’ the street side of their home landscape, while maintaining a ‘communal, connective and orderly landscape’ on the POS side (Martin, 2004).

3. In conjunction with this residential development, the drainage corridors will be upgraded to become ‘green corridors’ and to provide higher amenity, ecological enrichment and small scale productive zones (Figure 4). Because of the large area of POS it is likely that most of the upgrade will involve revegetation with endemic species (such as the sporadic but beautiful existing Eucalytpus Vitrix- Figure 6) and infrastructure for passive recreation such as cycling and walking - active recreation activities being provided in Bulgarra oval (described in 3 below). While these corridors will be primarily revegetated it is important that their design is aligned with cultural values of residents. To this end, the edges of the corridors adjacent to residential dwellings could include mown borders, gateway plantings and carefully placed boardwalks that can convey care, foster more positive aesthetic experiences and promote stewardship of the broader POS by adjacent residents (Hunter & Hunter, 2008).

4. The third move is to propose a local neighbourhood centre at the juncture of Bulgarra with the encircling Sea Ripple Drive (Figures 4 and 7). This centre will incorporate the existing Bulgarra Oval / Community Centre and Karratha Primary School whilst also providing 3-5 storey perimeter blocks that capitalise on ocean views and provide shaded podium courtyards. The effect of this will be to move Bulgarra’s centre of gravity towards its perimeter - a situation which will facilitate greater interaction with Bulgarra and Karratha more generally.

Conclusion

To our estimation this hypothetical retrofit of a Radburn planned neighbourhood in Karratha could yield 9,100 new dwellings - or over 22,000 new residents - a significant proportion of the 32,000 residents projected for Karratha by 2036. At the same time the proposal rationalises POS to 25% of the suburb area. This figure which is still an exceptionally generous amount is within the realm of what the Shire of Roebourne may be able to afford to maintain; given the revenue the additional dwellings will generate through land sales, council taxes and rates.5

With the dominance of New Urbanism and its preoccupation with streets as the primary social realm, Radburn planning in has been often derided as a failed experiment best forgotten (Martin, 2004). Given its prevalence in the Pilbara, however, we believe it needs to be engaged with in a comprehensive and non- dogmatic manner. In this way of thinking some of Radburn planning’s biggest problems, such as excessive POS, are also its biggest assets in relation to problems such as providing housing to a fluctuating population. As this cursory study indicates - with careful planning - Radburn neighbourhoods in the Pilbara could experience a whole new lease of life.

5 The upgrade to the POS should also uplift the value of existing properties, which will in turn generate council rates increases, land taxes, increased stamp duty revenue .

References

Bolleter, J., & Weller, R. (2013). Made in Australia: The Future of Australian Cities. Landscape Urbanism(4).

Freestone, R., Garnaut, C., & Iwanicki, I. (2011). Cold War heritage and the planned community: Woomera Village in outback Australia. International Journal of Heritage Studies, 18(6), 541-563.

Freestone, R., & Nichols, D. (2012). Reinvigorating 20th century residential pocket parks for the 21st century. Paper presented at the 5th Healthy Cities: Working Together to Achieve Liveable Cities Geelong.

Hunter, M. R., & Hunter, M. D. (2008). Designing for conservation of insects in the built environment. Insect Conservation and Diversity, 1(4), 189-196. doi: 10.1111/j.1752-4598.2008.00024.x

Landcorp. (2012). Pilbara Vernacular Handbook. Perth.Martin, M. (2004). Designing the Next Radburn: A Green-hearted American Neighbourhood for the

21st Century. Paper presented at the Open Space/People Space: An International Conference on Inclusive Environments, Edinburgh: Research Centre for Inclusive Access to Outdoor Environments.

Pilbara Development Commission. (2012). Pilbara Cities. Retrieved 21.05, 2014, from http://www.pdc.wa.gov.au/pilbara-cities/

Stretagen. (2012). Bulgarra, Karratha Revitalisation Study. Perth: Landcorp.