947 Agenda – Ordinary Meeting 9/12/09 - #2411351 ORDINARY MEETING 9 DECEMBER 2009 50 CAIRNS BRUCE HIGHWAY UPGRADE AND CAIRNS TRANSIT NETWORK (LATE AGENDA ITEM) Fiona Dix FD : 1/3/21-09: #2401976 RECOMMENDATION: That Council: A. Provides in-principle support for the Cairns Bruce Highway Upgrade and the Cairns Transit Network. B. Request an extension to allow for a future submission on the Cairns Transit Network and Cairns Bruce Highway Upgrade once Council officers have obtained the necessary data to allow for a proper evaluation of the options. C. Resolve to make a preliminary submission on the Cairns Bruce Highway Upgrade and Cairns Transit Network. D. Delegate Authority to the Mayor and Chief Executive Officer pursuant to section 472 of the Local Government Act 1993, to negotiate and finalise all matters relevant to finalise the submission to the Department of Transport and Main Roads. E. Request a report back to Council on the preferred Option for the Cairns Bruce Highway Upgrade by DTMR following the evaluation of the Multi Criteria Analysis. F. Request that DTMR establish a suitable funding commitment and associated timeframe to undertake the proposed works. INTRODUCTION On 4 November 2009 the Department of Transport and Main Roads presented public consultation material on the Cairns Bruce Highway Upgrade and Cairns Transit Network to Cairns Regional Council. This material was made available to the general community the following day on 5 November 2009. Council officers have reviewed the proposals and identified a number of issues that impact on Council activities. These issues are identified in a submission that is to be submitted to the DTMR for consideration. A copy of the draft submission is attached to this report. Consultation on both the Cairns Bruce Highway Upgrade and Cairns Transit Network concludes on 18 December 2009.
Transcript
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ORDINARY MEETING
9 DECEMBER 2009
50 CAIRNS BRUCE HIGHWAY UPGRADE AND CAIRNS TRANSIT NETWORK (LATE AGENDA ITEM) Fiona Dix FD : 1/3/21-09: #2401976
RECOMMENDATION: That Council: A. Provides in-principle support for the Cairns Bruce Highway Upgrade and the
Cairns Transit Network. B. Request an extension to allow for a future submission on the Cairns Transit
Network and Cairns Bruce Highway Upgrade once Council officers have obtained the necessary data to allow for a proper evaluation of the options.
C. Resolve to make a preliminary submission on the Cairns Bruce Highway
Upgrade and Cairns Transit Network.
D. Delegate Authority to the Mayor and Chief Executive Officer pursuant to section 472 of the Local Government Act 1993, to negotiate and finalise all matters relevant to finalise the submission to the Department of Transport and Main Roads.
E. Request a report back to Council on the preferred Option for the Cairns Bruce Highway Upgrade by DTMR following the evaluation of the Multi Criteria Analysis.
F. Request that DTMR establish a suitable funding commitment and associated
timeframe to undertake the proposed works.
INTRODUCTION On 4 November 2009 the Department of Transport and Main Roads presented public consultation material on the Cairns Bruce Highway Upgrade and Cairns Transit Network to Cairns Regional Council. This material was made available to the general community the following day on 5 November 2009. Council officers have reviewed the proposals and identified a number of issues that impact on Council activities. These issues are identified in a submission that is to be submitted to the DTMR for consideration. A copy of the draft submission is attached to this report. Consultation on both the Cairns Bruce Highway Upgrade and Cairns Transit Network concludes on 18 December 2009.
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BACKGROUND In April 2009, the Department of Main Roads and Queensland Transport merged into one department to become the Department of Transport and Main Roads. As a result, the community engagement for the Cairns Bruce Highway Upgrade project and Cairns Transit Network project are being rolled out together. Cairns Bruce Highway Upgrade The Cairns Bruce Highway Upgrade involves planning for the infrastructure required on the Bruce Highway from Wrights Creek, south of Edmonton, through to Draper Street, near the Cairns city centre, to establish the multi-modal corridor needs of this existing transport corridor for the next 30 years. According to DTMR there is no fixed timeline for the roll out of the master plan and the majority of the upgrade will be constructed in the medium to long term. The first phase of the upgrade is expected to be between Sheehy Road and Ray Jones Drive and is a $150 million Australian Government funded initiative being delivered by the Queensland State Government. Council officers have been involved throughout the planning process for the Cairns Bruce Highway Upgrade. Officers from Planning Strategies and Infrastructure Management have been involved in both the technical working group and Steering Committee for this project. Other members of the technical working group include officers from DTMR, consultants AECOM, and the Department of Infrastructure and Planning. Following the work undertaken in the Technical Working Groups, three draft options have been released for the future upgrade of the Bruce Highway south of Cairns between Wrights Creek near Edmonton and Draper Street near the Cairns city centre. Each of the three draft options include future provision for public transport, motor vehicles, the rail corridor, a high speed cycleway and connections to local bicycle and pedestrian paths. The draft options have been developed as part of the Planning Study which has considered a range of criteria including noise, drainage, visual and environmental impacts, Indigenous and Non-Indigenous heritage considerations and existing and planned public transport activities in the project area. Traffic movements and traffic modelling have been used to replicate current travel patterns and predict future traffic movements based on forecast population growth. Three options have been put to public consultation (see Attachment 1) although DTMR have indicated that a hybrid will likely be developed as a final proposal put to the community.
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Option One Option One features three full interchanges located at Deppeler Road, Bentley Park and Sheehy Road. two half interchanges at Rigg Street and Kate Street and an overpass at Foster Road. Each intersection along Ray Jones Drive between Lyons Street and Draper Street would be upgraded allowing traffic travelling in both directions to continue to enter and exit the highway. South of Deppeler Road interchange, Option One proposes to shift the alignment of the current highway to the western side of the highway. The design includes a new bridge crossing at Wrights Creek. Option Two Option Two features three full interchanges at Deppeler Road, Mill Road and Foster Road, two half interchanges at Rigg Street and Sheehy Road and an overpass at Robert Road. Each intersection along Ray Jones Drive between Kate Street and Draper Road would be upgraded allowing traffic travelling in both directions to continue to enter and exit the highway. Just south of Mill Road interchange, Option Two proposes to shift the alignment to the eastern side of the highway. The design includes a new bridge crossing at Wrights Creek. Option Three Option Three features three full interchanges at Deppeler Road, Bentley Park and Foster Road and three half interchanges at Sheehy Road, Rigg St and Kate Street. Each intersection along Ray Jones Drive between Lyons Street and Draper Street would be upgraded allowing traffic travelling in both directions to continue to enter and exit the highway. South of the Deppeler Road interchange, Option Three proposes to shift the alignment to the western side of the highway. The design includes a new bridge crossing at Wrights Creek. Cairns Transit Network The Queensland Government has commenced planning for a new transit network for Cairns. This planning includes building a network to deliver dedicated public transport spines that will connect the length and breadth of Cairns. The network will improve public transport by giving buses priority with a bus rapid transit system via separate bus or transit lanes or on dedicated bus-only roads called busways. The project is investigating three key corridors for the network totalling approximately 70 kilometres, to link the major communities in Cairns from Palm Cove, to Gordonvale via Redlynch and the city.
COMMENT The Cairns Bruce Highway on the southern approach to Cairns suffers from congestion and is a hot spot for accidents in the region. A relatively minor incident can cause lengthy delays for commuters. The problems associated with the current state of the Cairns Bruce Highway and also the need for an efficient public transport system are recognised by Council and if not rectified, these problems will place further strain on council’s local road network.
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Council officers used the key elements associated with the four pillars of the quadruple bottom line (QBL) for the preliminary assessment of the Cairns Bruce Highway Upgrade and the Cairns Transit Network. These elements include Social, Environmental, Economic and Governance. Under these heading key issues were identified under the banners of both the Cairns Bruce Highway Upgrade and the Cairns Transit Network. Social Pedestrian and cycle connectivity: Currently pedestrians and cyclists have largely unrestricted access across of the Bruce Highway. It is also noted that these links provides vital connectivity for East and West communities. It is essential that outcomes of the proposed Highway upgrade maintain this community connectivity. Concern is raised over the impact on pedestrian and cycle connectivity on access to areas such as the cairns CBD and Esplanade. It is suggested that on the routes identified in the Cairns Transit Network pedestrian and cycle connectivity is clearly identified along with evidence to suggest the existing level of service will not be adversely impacted by the network. Environmental Loss of vegetation: Concern is raised over the negative impact on mature landscaping vegetation particularly in the City and Cairns north spine of the Cairns Transit Network. Reductions in resumptions of areas containing mature landscaping is suggested. Economic Future Capital Works: Both schemes potentially have a considerable cost implication for Council due to associated upgrades of Council’s infrastructure. Governance Public consultation: Council supports the public consultation and community engagement process, however officers are concerned at the timing of the consultation and also the amount of information that has been disseminated to the public. More specific issues were identified by Council officers and investigated in terms of a quadruple bottom line under the titles of Economic, Environmental, Social and Governance.
CONSIDERATIONS: Corporate and Operational Plans: Corporate Plan: Due to the magnitude of both the Cairns Bruce Highway Upgrade and Cairns Transit Network, there are links to each of the six goals identified within Council’s corporate Plan.
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Statutory: CairnsPlan and the Sustainable Planning Act: Outcomes of both the Bruce Highway Upgrade and Cairns Transit Network will not trigger immediate changes to the CairnsPlan but will inform the new Planning Scheme for the Cairns Regional Council. This scheme will be prepared in accordance with the soon to commence Sustainable Planning Act. Land Acquisitions Act 1967: In the Schedule - Purposes for Taking Land under the Land Acquisitions Act 1967 land for Roads may be resumed as it is identified as a resumption for the purposes relating to transportation. The Department of Transport and Main Roads operate under state legislation including the Transport Infrastructure Act 1994 and the Transport Planning and Coordination Act 1994 that relate directly to these projects. Financial and Risk: The staging of any upgrades to both the Cairns Bruce Highway Upgrade and the Cairns Transit Network would require considerable input by Council so as to determine adequate funding to improve the local road network where required. Adequate funding would be required from future Capital Works programs and possible cost sharing arrangements with the Queensland Government where required. Sustainability: The need for a dedicated public transport system for Cairns is outlined in a range of Queensland Government planning polices and strategies including the Far North Queensland Regional Plan 2009-2031 and the Cairns Integrated Public Transport Plan 2005. The Far North Queensland Regional Plan 2009-2031 identifies targets of 10% of all Cairns Southern Corridor Trips are by Public Transport by 2016 and 20% of all Cairns Southern Corridor Trips are by Public Transport by 2036.
CONSULTATION Council officers from Infrastructure Management, Planning Strategies and Sport, Recreation and Community Development were involved in evaluating the material provided on options for the Cairns Bruce Highway Upgrade and the Cairns Transit Network.
This evaluation was presented to the Council and members of the Urban Design Advisory Board on 4 December 2009.
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OPTIONS: That Council: Makes a submission to DTMR on Cairns Bruce Highway Upgrade and Cairns Transit Network and Cairns Transit Network in accordance with the issues raised in the attachment with amendments; or Does not make a submission to DTMR on Cairns Bruce Highway Upgrade and Cairns Transit Network.
CONCLUSION: In principle, Council officers support both the Cairns Bruce Highway Upgrade and Cairns Transit Network, however adequate information has not been provided to assess the impact on Council Infrastructure and the liveability of residents and businesses. Comments have been provided based on the time constraints of the public consultation period. Insufficient information has been made available through the public consultation process to allow Council to fully predict the impact on Council infrastructure and social amenity. As this information has not been made available for the whole consultation period, Council requests an extension of submission time to enable a more thorough assessment of the Options provided for both the Cairns Bruce Highway Upgrade and Cairns Transit Network. It is acknowledged that significant assessment of the short listed options has occurred through a Multi-Criteria Analysis (MCA) undertaken by DTMR. The MCA is considered to be an effective tool that considered a number of different factors under the five categories – Environmental Sustainability, Transport Efficiency, Social Amenity and Cost. Council officers will continue their involvement in the planning process with their presence in the technical working group and steering committee for the Cairns Bruce Highway Upgrade. While Council officers have been involved, it is requested that DTMR report back to Council on the findings of the Multi-Criteria Analysis for the Cairns Bruce Highway Upgrade.
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ATTACHMENTS: Attachment 1: Options for Cairns Bruce Highway Upgrade Attachment 2: Options for Cairns Transit Network Attachment 3: Analysis and summary of issues FIONA DIX Executive Officer STEPHEN TYTER Manager Infrastructure Management ROSS MCKIM Acting General Manager Works and Services LYN RUSSELL Chief Executive Officer
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Attachment 1: Options for Cairns Bruce Highway Upgrade
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Attachment 2: Options for Cairns Transit Network
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Attachment 3: Analysis and summary of issues
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Comments 1 Cost implication associated with
required road upgrades X X X It is acknowledged that the success of all three schemes has
a heavy reliance on the concurrent implementation of upgrades on Council’s road network. This has significant financial implications on Council that must be considered in the development of any staging plan for the project.
2 Provision of new road links and service roads to facilitate scheme
X X X X It is noted that there is a requirement for new road links, service roads, upgrades and realignments not currently identified in Council’s ultimate road network planning. The responsibility for the provision of these components is expected to be funded by DTMR.
3 Property resumptions required along local road network
X X X X The resumption of properties associated with new road links, service roads, upgrades and realignments not currently identified in Council’s ultimate road network planning is expected to be the responsibility of DTMR.
4 Pedestrian and Cycle connectivity X X X X Cairns Bruce Highway Upgrade: Further investigation is required in relation to the impact reduced connectivity across highway will have on the local community and businesses. In addition details associated with connectivity adjacent to and along the highway corridor. Cairns Transit Network: There appears to be insufficient provision of safe crossing points for pedestrians and cyclists other than at the signalised intersections. Further detail is
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requested in this regard. Consideration should also be given to locations along the route where parking is only provided on one side of the carriageway requiring pedestrians to cross should they wish to access properties/ facilities on the opposite side.
5 Property Impacts X X X X X X All three proposals have significant impacts on properties abutting the local road network due to increased traffic volumes. The impacts needs to be considered in further detail in terms of access, safety and amenity
6 Impacts on Council’s local road network
X X X It is expected that DTMR will be responsible for the mitigation of any adverse impacts on the local road network directly related to the proposed highway upgrade
7 Local Street access restrictions X X It is noted that access is to be restricted to left in/ left out for several local streets intersecting with a major road accommodating a median bus facility. There is significant concern to the impact the re-distribution of traffic may have on the surrounding network. Support for any access restrictions to local streets can not be provided in the absence of a detailed traffic analysis being undertaken (i.e. transport model) that demonstrates the satisfactory operation of the surrounding network. There is also amenity impacts associated with restricting access to local streets as residents may be required to travel longer distances to access their properties.
8 Signalised intersection configuration along routes with median running bus facilities
X Given the limited road reserve available at a number of intersections along the routes, the proposed layouts do not provide for turn lanes, in particular right turn lanes. The capacity of each intersection is therefore significantly reduced. An intersection traffic analysis will need to be undertaken at each of the affected intersections to satisfy Council that they will operate satisfactorily with the proposed configuration.
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9 Intersection Upgrades X X Any associated re-configuration of intersections along the route which are inconsistent with Council’s ultimate road network planning will need to be funded and facilitated by DTMR
10 Cross section X X Further detail is required for re-configured roadways to ensure sufficient carriageway and verge widths can be accommodated.
11 Stormwater drainage impacts X X X X Further detail is required on drainage impacts of the proposal and re-configured roadways and creek crossings where widening may be required
12 Asset ownership X X X The footprint of the majority of the network is within road reserve managed by Council. It would be expected that this area be declared by the State to be the responsibility of DTMR
13 Impacts on abutting properties X X X The impact on adjacent properties in terms of access, safety and amenity requires further investigation.
14 Access to abutting properties X X It is noted where a median running facility is provided right turn access into and out of adjacent properties is restricted. Sufficient and safe u-turn opportunities will need to be provided along the route to facilitate these movements.
15 Local Business impacts X X X X Further detail is required in relation to the impact the proposal may have on local businesses in terms of customer access, loading zone opportunities for deliveries etc.
16 Loss of parking X X X X The impact the proposals will have on businesses along the route associated with the loss of adjacent on-street parking needs to be examined in further detail. In particular older areas external to the CBD where vehicles may have no alternative i.e on-site parking may not have been a requirement at the time of establishment. This relates to residential properties as well as businesses.
17 Loss of vegetation X X X The provision of a dedicated bus facility will result in a significant loss of existing landscaped areas including several
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roundabouts that will be replaced with traffic signals. How will this environmental and visual amenity impact be managed?
18 Implications on Cairns North open space & sporting facilities
X X X The required widening Lake Street will impact on the sporting fields located to the east as it will reduce the available space for activity. The area currently includes 3 Vigoro pitches and space to accommodate multiple hockey fields used year round by Cairns Hockey Association and Cairns Vigoro Association. Any resumption in this section of Lake St will encroach on these fields and will potentially have the following detrimental impacts: - a reduction in the boundary from the pitch to the Lake St may mean that the pitches will need to be relocated. This will be a cost to council, not the user group. - the reduced space may mean that 3 pitches may not be able to fit in the space. - impact on environmentally sensitive adjacent mangroves to provide required facilities
18 Costs associated with the Transit Network Infrastructure provision and on-going maintenance
X X It would be expected that all capital & on-going maintenance costs of infrastructure associated with the transit network be funded by the State. This includes the bus way infrastructure, associated landscaping and station facilities.
19 Council revenue implications X X The extent of revenue implications for Council associated with the loss of a significant number of parking spaces in the CBD needs to be examined in further detail.
20 Council Property Impacts – McCoombe Street
X X Options for northern end of Cairns Bruce Highway Upgrade impact on Council land/depot at McCoombe Street
21 Timing of consultation X X X Council officers support the process of decision making undertaken by DTMR, concern has been raised at the timing of the consultation and also the information that has been made available for members of the public. There is a large
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amount of information to go through during a relatively short time frame.
22 Public Transport disruptions X X The work may affect the present service that Sun Bus delivers to residents along the chosen route for re-development. This can have a number of concomitant effects: • People will be unable to access the routes they need to
get about their daily business • People will have to go further to access their normal
routes which for some people (parents of young children, people with a disability, elderly people etc.) may restrict their mobility
• Journeys may take longer All of the above may have the effect of increasing road traffic because the PT network does now not meet their needs
23 Increased traffic volumes X X X X In some case where traffic is diverted then there will be reduced amenity as increased traffic volumes travel along suburban roads. This may have the following effects: • Increased road congestion along normally quiet
suburban roads (this could lead to increased accident rates as children/pets mix with this increased traffic environment)
• Increased road noise leading to mental and physical health issues
• Increased localised air pollution leading to mental and physical health issues
• Parking issues for residents • Decreased learning opportunities should the traffic
volumes pass by schools • Issues for local shopkeepers such as loss of revenue –
can people access the stores and shops they normally do and can the store/shop owners readily get their
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supplies delivered? Increased journey time – delays and diversions may have an effect on journey times thereby increasing the time spent actually getting to and from work, to and from school and to and from leisure venues.
24 Loss of home/livelihood
X X X There will be instances where some people lose their homes to the upgrade work or have the value of their home decreased through the work (or planning of it). Lobbying the Department to put dates to planned work and narrowing the land to be sequestered might be of use to those people. Is there a compensation package available – Council should advocate strongly for the best possible outcome for its citizens.
25 Access issues X X X We need to be aware that working on the road, which ever option is chosen, there will be disrupted access to people’s homes, businesses, schools, libraries, cultural venues and recreational outlets which may result in increased accidents, environmental impact, personal health issues and a negative view of Council.
26 Loss of control or self determination issues
X X X Whilst the work is being undertaken people may have the feeling that they are not in control of their environment - the consequences could be mental and physical health issues, increased family/domestic violence issues, drugs and alcohol issues, general/localised rage etc. We could also see increased contact for Council at this time with greater work load experienced by a variety of departments.
27 Influence X X X Whilst or just before the work commences, people may have the opportunity to influence and to lobby for personal areas of interest such as connected transport options, routing, more pedestrian and bicycle access etc. which may enhance feelings of well being.
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Bruce Highway Upgrade
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comments 28 Ray Jones Drive resumptions X It is requested that the final interchange fro the Ray Jones Drive intersection
have minimal resumptions of land contained within the Industry Planning Area to minimise impacts on available Industrial land.
29 Deppeler Road South and Wrights creek alignments.
X It is suggested that Alignments for this section in Options 1 and 3 be refined to move the proposed alignment further East, to be located closer to the existing highway. This is required to minimise fragmentation of available Urban Land and allow for internal road infrastructure within the Mount Peter Master Planned area. Initial Planning for the Mount Peter Master Planned area has identified the need for an internal link road to be located between the unnamed hill and the existing highway. The current alignment for Options 1 and 3 moves the proposed highway further to the west of the existing highway that will create undesirable road locked parcels that will not integrate with the surrounding development within Mount Peter.
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Cairns Transit Network
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comments 30 Western Corridor
Alignment X X The Western Corridor Alignment should be located along Gatton St to
minimise impacts on vehicle traffic flows around the Tafe and adjacent School. Re-alignment of this corridor will still service the Tafe and school with a 400m catchment. This alignment also provides for an opportunity to locate a landmark station at the entrance of the Tafe and a possible rear access to the Mann Street Sporting Grounds. This suggested option is considered to be the most beneficial long term Strategic alignment to service the community and have minimal impacts on traffic flow adjacent to the Tafe and school. An interim solution of running buses on Grove, Martyn and Gatton could also be implemented in the short term (this is identified on the diagram in green). Land Acquisition would be required over the current Ergon Energy site and it is understood Ergon Energy will be relocating.
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comments 31 Required Transit Station
on Pease Street (Piccones IGA)
X X It is suggested that a transit station be identified on Pease street to service the existing District Centre. This extension of a Pease street spine would provide the opportunity for a significant transit hub with opportunities for park and ride facilities to service the residential areas surrounding the site. The hub would also directly service significant areas of high density residential development adjacent to the site. Significant vacant road reservations currently exist along the proposed spine. A diagram displaying the suggested spine extension and hub is attached.
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General Comments (Planning Strategies): Bruce Highway upgrade: Planning Strategies has in principle support for the Bruce Highway Upgrade and options development process and request continued involvement in the TWG for the refinement of a preferred option. It is acknowledged that significant assessment of the short listed options has occurred through a Multi-Criteria Analysis undertaken by DTMR. The MCA is considered to be an effective tool that considered a number of different factors under the five categories – Environmental Sustainability, Transport Efficiency, Social Amenity and Cost. Cairns Transit Network: Planning Strategies has in principle support for the Cairns Transit Network and request continued involvement in the TWG for the continued plan development for the CTN. It is also vital that the city centre station develop as low bus speed environment and pedestrian and cycle movement is maintained across (east-west) the city station. East-West pedestrian and cycle connectivity across the bus way should also be considered and given consideration along the cairns north spine. The proposed Minnie Street intersection is an example of where East-West Pedestrian and Cycle connectivity will be adversely affected.
