ACT s strategic framework for transport 7. Canberra Plan (2004, revised 2008) Provides a comprehensive vision for the long-term future of Canberra

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2 TRANSPORT Integrated transport Transport planning in the ACT has undergone a significant change over the last 10 years, driven primarily by a desire to make the ACT more environmentally, socially and economically sustainable. Transport planning is now being undertaken in a multi-modal manner that involves both integrating the planning of road, private transport, public transport, walking and cycling, and integrating transport with land-use decisions. Transport planning also takes into consideration the Canberra Airport and identifies it as a potential regional transport hub. However, as the Canberra Airport does not come within the planning controls of the ACT Government, there have been significant problems arising from a lack of coordinated planning. Unlike most other States, railways do not feature prominently in ACT transport infrastructure planning. This is because rail does not offer urban transport and offers very limited services to Sydney. Integrated multi-modal transport and land-use planning is occurring through a series of cascading policies, principles and action plans. These are illustrated in the figure below. ACT s strategic framework for transport 7 Canberra Plan (2004, revised 2008) Provides a comprehensive vision for the long-term future of Canberra Canberra Spatial Plan (2004, revision due in 2010/11) Establishes a spatial framework for the future development of Canberra over the next 25/30 years Canberra Social Plan (2004, revision due in 2010/11) Establishes the ACT Government s vision for Canberra in a social context Economic White Paper (2002) Outlines the economic and industry policy framework to achieve sustainable growth and development Sustainable Transport Plan (2004) Provides the goals and policy actions to support sustainable transport development Integrated Transport Framework (2008) Establishes a set of principles to govern consideration of transport policies and initiatives both now and into the future Capital Development: Towards Our Second Century (2008) Revises the ACT s economic direction An Infrastructure Plan for the ACT (2008) Provides guidance and direction for the development of the first ACT infrastructure plan ACT Government Infrastructure Plan (2010) Identifies infrastructure priorities over the next 10 years Transport for Canberra (all elements currently under development) Infrastructure initiatives Transport for Canberra Action Plan (2010/2016) Policies Public Transport Parking Strategy 7

3 Transport for Canberra will consist of three elements that together define how the ACT Government will support the implementation of the Sustainable Transport Plan The elements are: Infrastructure initiatives, which are and will be delivered through the ACT Budget and other funding mechanisms. Programs, which will be delivered through the Transport for Canberra Action Plan. This plan was previously referred to as the Sustainable Transport Action Plan , but its title was changed to reflect its broader focus, which includes integrating transport with land-use planning and environmental outcomes. Policies, which will consist of: Public Transport Strategy. This strategy will set out policies and actions that will support agreed levels of public transport use to the city, town centres and other employment centres. In July 2009, a draft Strategic Public Transport Network Plan was released that conceptualises a long-term public transport network consisting of four types of service rapid, frequent local, peak and coverage. The 'rapid' and 'frequent local' elements of this long-term network together create a 'Frequent Network', where services will ultimately run every 15 minutes, all day, seven days a week. Two 'rapid' corridors of this long-term network are part of the current bus network. The network will expand transport corridors and guide decisions on land use, urban development and density (that is, lead to the designation of transport-oriented development corridors and nodes). The 'rapid' corridors will also inform the locations of bus priority infrastructure. Parking Strategy. This strategy will present a medium to long-term strategy to manage parking demand within the policy framework of a sustainable transport plan. It also outlines parking supply options for the short-term and mechanisms for delivering the required parking. The draft Parking Strategy was released in Cycling Strategy. This strategy will build on past cycling planning for the ACT, and aims to increase the mode share for cyclists in accordance with the STP mode share targets. The strategy will explore opportunities for new approaches to cycling infrastructure, including better integration with public transport, and will include policies around demand management measures to influence whether, why, when, where and how people travel. Walking Strategy. The ACT s first-ever walking strategy will aim to build networks to connect people and places, promote and encourage a culture of walking, integrate walking with public transport, and better integrate walking into land-use planning. Transport Infrastructure Plan. This strategy will expand the transport elements of the ACT Government Infrastructure Plan, and include indicative infrastructure to support the longerterm elements of the new Transport for Canberra policies. The Transport Infrastructure Plan will set out the capital investments both to secure greater mode shifts towards sustainable transport options, and to respond to urban growth and capacity constraints in the transport system in the short to medium term. The ACT Government s planning decisions need to align with the National Capital Plan (NCP). Developed by the National Capital Authority, the NCP is designed to ensure that the Australian Government s interests are protected and that Canberra and the Territory are planned and developed in accordance with their national significance. The NCP s general policies apply to the whole of the Territory and demonstrate a logical and strategic approach to planning. Outside the urban areas (in the National Capital Open Space System, the Broadacre and Rural Areas) the NCP sets out broad land-use policies. It also sets out detailed conditions of planning, design and development for Designated Areas, those areas that have the special characteristics of the national capital. 8 The figure below shows the Designated Areas for which the National Capital Authority has responsibility for works approvals. 8

4 Designated Areas for which the National Capital Authority is responsible for works approvals 9 9

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6 1 Roads 1.1 Summary Infrastructure Type ACT 2010 ACT 2005 National 2005 National 2001 Roads overall B B C Not rated National roads Not rated Not rated C+ C State roads Not rated Not rated C C- Local roads Not rated Not rated C- D This rating recognises that while improvements in road infrastructure have occurred, road usage has increased at a faster rate. It also recognises that despite having good asset management plans, maintenance funding has not kept pace with infrastructure needs. More work is needed to manage demand. Without this, sustainable transport outcomes cannot be achieved. Since the last Report Card, the major road sector developments have been: An increase in road congestion Significant major road works including further development of the parkway system, in particular by duplicating the Gungahlin Drive extension and preparation for constructing the Majura Parkway The commencement of developing a charging and services network for electric vehicles Bus priority infrastructure, including bus lanes and park and ride facilities Enhanced on-road and off-road cycle and community paths to increase active travel. Recently completed and in-progress major infrastructure projects include: Fairbairn Avenue Upgrade, completed in 2006, $9.5 million Sutton Road Upgrade, completed in 2006, $5.6 million Horse Park Drive (Gundaroo Drive/Federal Highway), completed in 2007, $11.4 million Gungahlin Drive Extension Package A (Barton Highway to Aranda), completed 2008, $75.3 million Gungahlin Drive extension and duplication Upgrade of Airport Roads, Stage 1, completed in 2009, $15 million Rehabilitation of Cotter Road Pavement, completed 2009, $2.9 million Duplication of Athllon Drive (Anketell Street to Drakeford Drive), $2 million 10 Lanyon Drive Upgrade (Monaro Highway to Sheppard Street), completed 2009, $5 million Upgrade of Tharwa Drive, Stage 1, 2010 Upgrade of Airport Roads, Stage 2, 2010 Community Paths Program Cotter Road Cycle Connections, Jerrabomberra Wetlands Cycle Path 2010 Kings Highway Realignment, 2010 New Tharwa Bridge, 2011 Gungahlin Drive extension and duplication (Stage 2) (2009/12) Lanyon Drive, Stage 2, 2010/11 Bonner Western Distributor Road, 2010 Clarrie Hermes Drive Construction, 2010/11 Mulligans Flat Road Extension, 2010/11 Well Station Drive Extension, 2010/11 Sandford Street Extension to the Federal Highway, 2010/11 Forde Access Road, 2009/10 Macgregor West Parkwood Road Infrastructure, 2010 Burgmann Anglican School Access,

7 Horse Park Drive Extension to Burramarra Avenue, 2010 Kingsford Smith School (West Belconnen School) Access Road, 2009 Belconnen Town Centre Cohen Street Extension, 2010 Bushfire Memorial Entrance Car Park, 2010 Braybrooke Street Extension, 2010 Molonglo Roads, North Weston Pond and associated infrastructure, 2010/11 Northbourne Avenue, London Circuit and Majura Road Pavement Rehabilitation, 2010/11 Fyshwick Stormwater Augmentation, 2009/11 Extension of Edinburgh Avenue, 2010/11 Majura Parkway Kings Avenue Parkes Way Intersection Constitution Ave improvements Anzac Parade road rehabilitation A third lane on Parkes Way from the Glenloch Interchange to the Acton Tunnel ($14.7 million), Preliminaries, 2010/11 Upgrade of Cotter Road from the Tuggeranong Parkway to Yarra Glen ($7.1 million), Preliminaries, 2010/11 Upgrade of Barry Drive and Clunies Ross Street intersection ($7 million) Intersection improvements (various), 2009/11 Public transport infrastructure (bus lanes, bus seats, bus shelter) (ongoing) Cycle infrastructure (various) (ongoing). Challenges to improving road infrastructure include: Reducing road congestion and increasing average road speeds through demand management measures Achieving sustainable transport targets Managing cross-border traffic Managing the demand for car parking. 1.2 Infrastructure overview System description The ACT road infrastructure comprises: National highways, 20km, 11 and arterial roads in Designated Areas, both of which are the responsibility of the National Capital Authority Territorial roads, 830km 12 (defined as state-managed roads owned and operated by Roads ACT, including all the arterial road networks that are the responsibility of the National Capital Authority) 13 Municipal roads, 1,880km 14 (defined as all collector and local access roads owned and operated by Roads ACT with the exception of National Capital Authority roads). 15 Roads ACT is responsible for traffic management and maintenance for all roads in the ACT, except roads on National Land, including Main Avenues and Approach Routes in Designated Areas. The National Capital Authority is responsible for maintenance of its Main Avenues and Approach Routes in Designated Areas. Planning for roads in the ACT is shared between the ACT Government and the National Capital Authority. Main avenues and approach routes in Designated Areas (such as State Circle and Barton Highway) are the responsibility of the National Capital Authority. A Designated Area is an area of land having special characteristics of the national capital and all works in these areas require approval by the National Capital Authority. The National Capital Plan sets out the planning of national and arterial road systems throughout the Territory. 16 The Plan defines national roads as 12

8 Roads major approach routes to the city that link Canberra with other capital cities and with the national highway network. These are the Federal, Barton, Kings and Monaro Highways from the Territory border to State Circle. In addition, all roads within the National Triangle formed by Commonwealth, Kings and Constitution Avenues, are classed as National Roads. The plan defines two types of arterial roads those that are major traffic collectors and distributors, and the network of peripheral parkways that serve to carry traffic between towns centres. 17 Figure 1.1 shows the ACT s road network. Figure 1.1: ACT s road network 18 13

9 Road and related assets include: 224 roundabouts traffic signals, of which 87% are at road intersections and 13% at pedestrian crossings km of cycle paths and 1,880 kilometres of footpaths 21 1,067 bridges and structures, with 687 on the general access road network, and 380 on the oversize vehicle network, managed by Roads ACT; the National Capital Authority maintains a number of bridges throughout the ACT, the main ones being on Commonwealth Avenue and Kings Avenue Two short tunnels, one on State Circle managed by the National Capital Authority and one in Acton managed by Roads ACT 72,000 street lights controlled by Roads ACT. 22 Most roads in the ACT were planned, designed and constructed by the Australian Government. In addition, many parkways and arterial (and distributor) roads were designed at a time when the current projections were for a population much greater than the population likely for the near future. The legacy handed over to the ACT Government is therefore a very comprehensive road infrastructure network that requires an above average funding commitment if it is to be maintained at appropriate levels. 23 The high quality of the ACT s road infrastructure is reflected in the fact that the ACT has: Almost no unsealed State roads, as the ACT has few rural areas The highest percentage of bitumen or concrete road lengths for any State or Territory The highest average road travel speeds in Australia 120 persons/km of roadway compared to 36.7 persons/km for NSW A higher road density than any State or Territory at 1.12km/km² of land compared to 0.68km/km² for Victoria. 24 Higher Mass Limit vehicle routes From 1 July 2006, transport operators were able to use Higher Mass Limits vehicles on ACT roads. These vehicles include trucks with tri-axle groups fitted with dual tyres with a mass limit of 22.5 tonnes. Higher Mass Limit approved routes are listed in Table 1.1. Table 1.1: Higher Mass Limit approved routes 25 Road Starting Point Finishing Point Barton Highway ACT/NSW Border (entire length) Mitchell Industrial Estate or Federal Highway, ACT Federal Highway ACT/NSW Border (entire length) Mitchell Industrial Estate or Barton Highway, ACT Approaches to Mitchell Industrial Estate 1. Barton Hwy/Gungahlin Drive 2. Barton Hwy/Federal Highway/Flemington Road 3. Federal Highway/Flemington Road All roads in the area bounded by and including Gungahlin Drive, Sandford Street, Well Station Drive, Hoskins Street, Vicars Street, Flemington Road & Lysaght Streets Mitchell Industrial Estate area All roads in the area bounded by and including Gungahlin Drive, Sandford Street, Well Station Drive, Hoskins Street, Vicars Street, Flemington Road & Lysaght Streets Street trees in non-designated areas Street trees are an important aspect of the road network, and have been instrumental in converting the ACT from a treeless plain to what it is today. Most of Canberra s trees were planted in one of the two main plantings that coincided with periods of significant urban expansion. Between 1910 and 1930, deciduous and evergreen trees were planted in what are now the older parts of Canberra. Between 1955 and 1975, mainly eucalypt and hardy natives were planted. 26 Post-1975, about 55% of all planted trees have been natives and 45% exotic. 14

10 Roads Trees planted on the nature strips alongside roads are the responsibility of Parks, Conservation and Lands (PCL), which is a branch within Department of Territory and Municipal Services. Removal of street trees requires the approval of PCL which is also responsible for their pruning, removal and replacement. 27 Many of the street trees and those in the urban forests are reaching the end of their natural lives, and some mature trees are dying faster than expected due to water stress. Consequently, over the next 25 years a substantial number of trees will need to be replaced. The activity to replace the trees is called the Urban Forest Renewal Program. 28 In 2009, the ACT Government committed to investing $250,000 each year for the next 10 years to plant 62,500 trees and tall shrubs along suburban roads. 29 Due to concerns about the scale of the renewal program, the ACT Government has commissioned the ACT Commissioner for Sustainability and the Environment to undertake an investigation into the Government s tree management practices and the renewal of Canberra s urban forests. This is to be completed in the second half of Cyclists and pedestrians The ACT Government has recognised the environmental and health benefits of cycling and walking. The ACT Government is seeking to promote walking and cycling so that they account for 14% of all journeys made to work by Policy and governance The ACT Government s strategic vision for transport is to achieve a more sustainable transport system via a shift towards more use of walking, cycling and public transport. 31 Within this policy framework, the ACT Government will develop an integrated road transport system to improve the efficiency of Canberra s transport system, address traffic congestion, reduce transport emissions and provide better transport options for the ACT community. 32 The ACT Government has committed to continued investment in the Territory s road infrastructure with the objectives of: Providing an efficient network for inter-centre travel by completing the development of the ACT parkway system, in particular by constructing the Majura Parkway and duplicating the Gungahlin Drive extension Providing infrastructure to support a sustainable transport system Maintaining and extending the arterial road network linking the key centres and new development areas and providing connections between the parkways and employment and retail areas Maintaining the accessibility of centres by the progressive upgrading of intersections and removal of congestion points Improving the safety of the ACT road network Reserving and developing public transport corridors to allow for future population growth. 33 Key ACT road-related pieces of legislation are: ACT (Planning & Land Management) Act 1988 (Commonwealth) ACT Government Procurement Act 2001 ACT Utilities Act 2000 (plus subsequent amendments) Environmental Protection Act 1997 Heritage Act 2004 Planning and Development Act 2007 National Environment Protection Council Act 1994 Road Transport (General) Act 1999 Road Transport (Mass dimensions and loading) Act 2009 Road Transport (Safety and Traffic Management) Act 1999 Roads and Public Places Act 1937 Territory Act 2002 Tree Protection Act

11 Waste Minimisation Act 2001 Road Transport Act Key multi-jurisdictional and government bodies are: Department of Territory and Municipal Services (TAMS). TAMS manages the ACT road network including design, construction and maintenance of the infrastructure, and the development and implementation of road transport policies. The particular divisions within TAMS that deal with road infrastructure are: Roads ACT. Roads ACT is responsible for the construction and maintenance of roads and associated infrastructure including bridges, community paths, driveways, street signs, line marking, traffic signals, street lighting and urban stormwater drainage assets. Transport Regulation and Planning. Transport Regulation and Planning is responsible for transport planning and regulatory policies. It develops transport strategies, plans transport for medium and long-terms, sets standards, prepares contract specifications and develops policy for commissioning road assets. ACT Planning and Land Authority (ACTPLA). ACTPLA is the ACT Government s statutory agency responsible for planning for the future growth of Canberra. It designates new roads for suburbs and subdivisions. National Capital Authority. The National Capital Authority is responsible for the maintenance of key roads and infrastructure within the Parliamentary Triangle, and to a limited extent, other infrastructure assets in the ACT. The Australian Government owns the roads that the National Capital Authority manages. In a planning context, the National Capital Authority identifies Main Avenues as State Circle, Kings Avenue, Commonwealth Avenue, Sydney Avenue, Brisbane Avenue, Hobart Avenue, Canberra Avenue (to Hume Circle), Melbourne Avenue, Adelaide Avenue, Perth Avenue, Northbourne Avenue, Edinburgh Avenue, University Avenue, Ainslie Avenue, Limestone Avenue (south of Ainslie), Anzac Parade and Constitution Avenue. Its Approach Routes are the Barton Highway, Federal Highway, Fairbairn Avenue, Morshead Drive/Pialligo Avenue to the ACT border, Canberra Avenue from Hume Circle to the ACT border, and the Monaro Highway and its extension as the Eastern Parkway to Morshead Drive. 34 Funding The arterial and other road links are funded by the Territory or Australian Governments. 35 In new suburbs or towns, ACTPLA defines road corridors, and the Department of Land and Property Services (the portfolio agency responsible for the Land Development Agency) identifies alignment and develops housing estates. Australian Government funding of ACT roads consist of: National Projects. These are targeted projects on the National Land Transport Network designed to improve efficiency and safety. In the ACT over the 2008/09 to 2013/14 periods, National Projects funding will total $37.5 million for new projects and $2.98 million for road maintenance programs. 36 Roads to Recovery. This program addresses the problem of local roads reaching the end of their economic lives, and their replacement being beyond the financial capacity of local governments. The ACT will receive $28 million for the period July 2009 to 30 June Black Spot Program. This program improves the physical condition or management of hazardous locations with a history of crashes involving death or serious injury. ACT Black Spot projects announced in 2009 totalled $1.79 million. Ongoing Black Spot projects as of March 2009 totalled $425, Financial Assistance Grants for roads. Grants for roads paid directly to the ACT Government totalled $40.38 million in 2009/ Total roads funding for the ACT is listed in Table 1.2: 16

12 Roads Table 1.2: ACT Government road expenditure on construction and maintenance for financial years 2004/05 to 2008/09 (excludes National Capital Authority roads) 40 Funding ($millions) 2004/ / / / /09 Servicing and operating Road pavement and shoulder construction: Routine maintenance Periodic surface maintenance 1 3 Bridge maintenance/rehabilitation Road rehabilitation Low-cost safety/traffic Asset extension/improvements: Pavement improvements Bridge improvements 25 2 Total Major future road projects are identified in Table 1.3. Additional projects introduced in the 2010/2011 ACT budget include: Parkes Way Widening ($14.7 million) Cotter Road Improvements ($7.150 million) Barry Drive and Clunies Ross Street Intersection Upgrade ($7 million) Canberra Avenue Bus Priority Measures ($8.2 million) Northbourne Avenue Bus Priority Measures and Dickson Major Bus Station ($4.250 million) Park and Ride Facilities ($4.1 million) Belconnen to City Transitway Stage 1 (Barry Drive and College Street Sectors) ($7.3 million). Table 1.3: Road projects to 2011 over $1 million 41 Region Completion date Project ($ million) Upgrade of Tharwa Drive Stage 1 September Upgrade of airport roads Stage 2 September Community Paths Program Cotter Road Cycle Connections June Kings Highway realignment September New Tharwa Bridge December Lanyon Drive Stage 2 October Barton and Federal Highways maintenance Sector trends Increasing urban congestion While road congestion in the ACT is not at the level experienced by other Australian cities, it has certainly increased over the past few years. For instance, the number of ACT roads having traffic counts in excess of 40,000 vehicles per day increased by 143% between 2000/01 and 2005/ Road congestion is escalating as road travel is increasing at a faster rate than road supply. A measure of road congestion is the volume wanting to use the road compared to its theoretical maximum. Called the volume to capacity (V/C) ratio, the implication of each ratio band is below. Below 0.7, traffic speeds and journey time reliability will generally be acceptable. Between 0.75 and 0.85, journey speeds begin to decrease and journey time can become unreliable as congestion can grow quickly. When traffic accidents occur, they cause a significant delay. Greater than 0.95, road speeds slow significantly and will occasionally reach a standstill. 43 Table 1.4 shows the estimated number of kilometres that will be affected by congestion in the ACT for 2011, 2021 and

13 Table 1.4: Estimated length of congested roads 44 Year V/C ratio km 54km 75km km 31km 33km km 41km 38km km 37km 51km >1.0 10km 21km 29km Figure 1.2 represents the projected morning peak hour congestion levels that will be experienced in Canberra by The red shaded areas represent a V/C of greater than one, while the blue areas represent a V/C of greater than Figure 1.2: Modelled congestion by Cross-border traffic growth About 30, people travel from Queanbeyan into the ACT and back each day. This figure is expected to rise significantly as Queanbeyan s population is predicted to double to nearly 70,000 18

14 Roads by The growth, particularly in Jerrabomberra, has resulted in congestion over the past few years on the major arterial roads connecting Canberra business centres and Queanbeyan. Recent projects completed or underway to alleviate this include duplicating the section of road from the Monaro Highway to Shepherd Street in Hume, and the upgrade and duplication of Lanyon Drive. With the development of Googong and the potential development of Tralee, as well as the future expansion of the Hume Industrial Area, cross-border traffic levels will increase. To coordinate development, a Memorandum of Understanding between the ACT and NSW on cross-border region settlement was signed in and it established a set of principles to guide the sustainable growth of residential and employment lands in the NSW/ACT cross-border region. While this has improved settlement planning on the ACT s borders, coordination and construction of road infrastructure still remains a challenge due to a lack of a cost-sharing agreement between the ACT and NSW on cross-border roads. ACT and NSW are working to establish a task force for cross-border transport. Development in the electric vehicle network Canberra has been selected as one of three cities worldwide where a charging and services network is being built for electric vehicles. The physical roll-out of the network will commence in The network is funded by Better Place Australia and investors include ActewAGL Performance The levels of service for road infrastructure are determined by a number of factors including: Customer expectations Technical, safety, and environmental requirements Legislative and common law requirements Economic considerations and corporate strategies. These levels of service are delivered through each agency s asset maintenance regime, reflecting asset use and age, and incorporating new assets into the program. There is a duty of care element in the maintenance of roads infrastructure that acts as a key driver in keeping the assets at a certain level of performance. The key document covering the ACT s roads is the Roads ACT Asset Management Plan. The latest edition of the plan was in 2005 and covered the period 2004 to A new edition is currently being developed and is expected to be available by mid The new edition, covering 2010/2012, will outline the broad approach that Roads ACT adopts to manage the condition and use of road assets. The plan will also provide future directions for road use and network capacity, safety, and recurrent maintenance and capital works programs for road assets. 50 The information contained in the 2005 edition of the Roads ACT Asset Management Plan is now out of date. However, as there are no other public sources for much of the data in the Plan, this chapter has used information from that edition. Table 1.5 lists the current and target service standards for road assets. Table 1.5: Current and target service standards for road assets Issue/Attribute Service Standard Current Target Programmed Maintenance Municipal roads Treat 3% annually Treat 7 10% annually Territorial roads Treat 3% annually Treat 8 10% annually Arterial road intervention levels 19

15 Issue/Attribute Service Standard Current Target (a) Roughness 95% <100 counts/km 50% <75 counts/km (b) Rutting Based on a subjective assessment of <15mm in >95% of any km (c) Cracking safety <30% on any 100m increment (d) Skid resistance All sections >30m exceeding Austroads recommended level investigated Routine Maintenance Inspections Ad hoc Structured inspection program Intervention levels (a) Potholes and edging Repaired within 1 week Repaired within 2 days (b) Heavy patching Ad hoc Repaired within 1 month Table 1.6 lists the current and target service standards for bridge assets. Table 1.6: Current and target service standards for bridge assets Issue/Attribute Service Standard Current Target Programmed Maintenance Replace bridge joints Every Years As required following inspection Re-level approach slabs Every Years As required following inspection Replace bridge bearings As required As required following inspection Re-analyse major arterial bridge strength First analysis now in progress As required following inspection, prior to any increase in legal load Routine Maintenance Inspections Based on structured inspection program and reaction to public Based on structured inspection program complaints Cleanliness, waterways, removal of blockages and hazards Based on assessment of safety and government priorities Based on assessment of safety and government priorities Table 1.7 lists the current and target service standards for bridge inspections. Table 1.7: Current and target service standards for bridge inspections Issue/Attribute Service Standard Current Target Level 1 Level 2 Barriers 3 years 6 months 3 years Timber bridges 12 months 6 months 12 months Concrete bridges 3 years 6 months 3 5 years Prestressed concrete 3 years 6 months 3 5 years Culverts 3 years 6 months 3 5 years Retaining walls As required As required As required Tunnels 1 week 3 years 3 years Note: Level 1 Routine inspections of larger bridges, Level 2 Condition inspections of all bridges Pavements have been designed for a service life of 20 to 25 years. This life can be extended given correct rehabilitation and maintenance regimes that form part of the asset management program. Figure 1.3 shows the age distribution of ACT Road s assets. With over 75% of the ACT s roads constructed more than 20 years ago, and more than 60% of the municipal roads having a road surface older than 10 years, it is not surprising that currently over 30% of municipal road pavement surfaces were rated in 2005 as in poor to very poor condition. 20

16 Pavement Area Constructed (Million m2) Roads Figure 1.3: Age distribution of ACT Road Assets Pre / / / / / / /05 Table 1.8 identifies the road performance measures Table 1.8: Road performance measures 52 Indicators 2008/09 Est. Outcome 2009/10 Targets 2009/10 Est. Outcome 2010/11 Targets Annual percentage of territorial roads resurfaced 4% 5% 5% 5% Annual percentage of municipal roads resurfaced 3.8% 4% 2.20% 4% Percentage of customers satisfied with the management 70% 70% 72% n/a of infrastructure services Percentage of territorial roads in good condition 90% 88% 88% >88% Percentage of bridges that meet SM1600 standard on the B Double Network 51% 53% 63% >60% Asset management improvements underway include: The completion in 2009 of a network-wide survey using Multi Laser Profilometres to determine roughness 53 The Bridges Upgrade program that will continue to investigate the load-carrying capacity of bridges on the B-double network and strengthen sub-standard bridges, to enable the expansion of the Higher Mass Limit network in line with the Australian Government s objective for higher productivity vehicles to access more of the road network. 54 Given the limited current information available, the following observations on road assets can be made: The link between asset planning and service standards is of a high quality There are very well developed asset management strategies and plans, together with systematic monitoring, enabling effective and transparent decision-making by Roads ACT The bridge assets are in fair to good condition. Some minor deficiencies occur throughout the system in relation to wearing surfaces, expansion joints, and signage. Generally, the condition of ACT bridges is better than interstate assets, as other States have more aged and exposed bridges Road safety The quality of road infrastructure influences road safety. According to the Australian Transport Council, improving the safety of roads is the single most significant achievable factor in reducing road trauma. It notes that road investment improves road safety through general road improvements typically new roads are safer than old roads as well as thorough treatment of black spots

17 The ACT Government has developed a road safety strategy and a road safety action plan. The current ACT Road Safety Strategy is a higher level 'policies and principles' document. It is supported by two, two-year Action Plans, that spell out specific activities to achieve the goals and objectives of the Strategy. These documents address road safety issues thorough an integrated approach using the '4 Es' of road safety Education, Encouragement, Engineering and Enforcement. The current Strategy covers the four-year period 2007/2010, and a new Strategy is being developed for the period 2011/2020, in line with stronger 'Vision Zero' objectives. The ACT Strategy and Action Plan also adopts and complements the principles and objectives of the National Road Safety Strategy and related Action Plans. Work is underway to develop a new National Road Safety Strategy, also covering the period 2011 onwards. This will provide a strong national context for developing the next ACT Strategy. The current ACT Road Safety Strategy aims to achieve lower than the national target of fatalities, maintain the low level of ACT crash rates and reduce the number of crashes by ACT drivers interstate. The ACT s road safety strategy outlines three strategic goals: That road trauma rates continue to be reduced despite increases in population and travel That the community shares responsibility for road safety That there is an improvement in road safety coordination and support arrangements. 56 The two key indicators for road accidents are: Fatality rate per 100 million vehicle kilometres Serious crashes per 100 million vehicle kilometres. Table 1.9 provides details of these indicators. The ACT has consistently achieved a low fatality and serious casualty rate compared to other jurisdictions. Table 1.9: Road safety indicators 57 Road safety ACT/National indicator Average Fatalities ACT Fatality rate ACT per 100 million National vehicle kilometres* average *This series is no longer being produced by Austroads ACT s accident data shows that: The peak times for crashes coincide with morning and afternoon traffic volume peaks 15% of all crashes are single vehicle crashes (indicative of driver error or actions independent of the road system or other traffic) 46% of all crashes are rear-end collisions (the most frequent crash type) 27% of all casualty crashes are right angle collisions (the most frequent type in terms of severity) 71.6% of road user casualties are car drivers or passengers, 12.3% were motorcycle riders or pillions, 7.0% are bicycle riders and 7.0% are pedestrians 37% of casualties are aged under Engineering solutions being pursued in the ACT to enhance road safety include: Delivery of the Australian Government funded Nation Building Black Spot Program and ACT black spot treatments Installing traffic calming measures in residential areas if justified, based on traffic volume, speed, accident history and land use

18 Roads Programs to address frequent crash types such as right angle crashes, rear-end crashes and single vehicle crashes Using low-cost treatments for sites that do not warrant major engineering solutions, and implementing improvements as part of the minor new works program Upgrading traffic lights at the Wentworth Avenue/Cunningham Street signalised intersection 59 Employing point to point speed cameras. A disproportionate number of road causalities are bicyclists. They accounted for 14.8% of on-road ACT casualties in 2008, however, due to under-reporting, this figure is believed to be much higher. 60 Additional funding has been provided in the 2009/10 Budget for cycling and footpath works, amounting to $8.4 million over four years. This is in addition to paths provided as part of the capital works program or as part of new developments. 61 Bike paths on major roads are not physically separated from the road traffic lanes. Other safety improvements underway include the installation of safety screens to prevent rockthrowing on high and medium risk bridges over roads with a speed limit greater than 60km/hour. 62 In August 2009, the ACT Government announced a $2.4 million initiative to install safety screens on 14 bridges across the ACT. Construction began on several of these projects in September 2009 and all screens are to be constructed by Environmental sustainability ACT road usage generates 23.5% of the Territory s greenhouse gas emissions. 64 A key objective of the ACT s transport policy is to minimise the levels of greenhouse gas emissions from the transport sector and to be more sustainable. 65 To achieve this, the ACT Government is seeking to increase usage of public transport and promote active transport modes such as walking and cycling. 66 The ACT Government has developed a Climate Change Strategy that outlines a sustainable transport network as a key objective of the ACT Government s response to climate change. Ongoing environmental challenges include: Vehicle emissions and greenhouse gases Water quality from road run-off Transport noise. Reducing private vehicle use contributes to improving sustainability. One avenue being pursued by the ACT Government to do this is by supporting transport-orientated developments. These consist of high density developments close to major transport nodes and along major transport routes, supported by high frequency public transport. The new residential district of Molonglo is one such development. Located beside Cotter Road and within 15km of Canberra s city centre, Molonglo is expected to eventually have a population of 55,000 people. The district s first suburbs being developed are Coombs and Wright. To further reduce road usage, the suburb will have an extensive network of pedestrian and cycle paths that link shops, schools and parks with surrounding residential and recreation areas Future challenges The future challenges to achieving improvements in road infrastructure are: Reducing road congestion through demand management measures. The traditional response to increased road demand is building more roads and making their operation more efficient, such as introducing no parking zones during peak periods and optimising traffic signal operation. However, this imposes a heavy cost on governments and demand will continually exceed supply in peak periods. An increasingly important tool to reducing congestion is to introduce demand management measures. These include introducing paid parking, improving 23

19 public transport, cycling and walking, encouraging split shifts, working at home and introducing a road-use pricing regime. Achieving sustainable transport targets. While the ACT Government aims to develop a sustainable transport system that will allow both people and goods to move around freely and efficiently, it requires not only the meshing of strategies to encourage public transport, cycling and walking, but also integrating them with parking policy and urban development. Managing cross-border traffic. Cross-border traffic flows will increase significantly with time, resulting in major traffic congestion. This can only be addressed effectively if road and public transport planning is coordinated and funded. 1.5 Report Card rating Infrastructure Type ACT 2010 ACT 2005 National 2005 National 2001 Roads overall B B C Not rated National roads Not rated Not rated C+ C State roads Not rated Not rated C C- Local roads Not rated Not rated C- D Based on considerations of planning, funding, and infrastructure capacity and condition, the ACT s road infrastructure has been rated B. This rating recognises that while improvements in road infrastructure have occurred, road usage has increased at a faster rate. More work is needed to manage demand. Without this, sustainable transport outcomes cannot be achieved. Positives that have contributed to the rating are: Good asset management plans exist Road development is linked to land-use forecasts Ongoing bridge strengthening program Encouragement of public transport, riding and walking. Negatives that have contributed to the rating are: Inability to achieve road asset management plans due to lack of funding Increased congestion at peak times on key roads Large number of major road projects occurring simultaneously. 24

20 2 Rail 2.1 Summary Infrastructure Type ACT 2010 ACT 2005 National 2005 National 2001 Rail F Not rated C- D- This rating recognises that there is a lack of definition on the rationale and future of rail heavy rail, light rail and high speed rail services in the ACT and the existing infrastructure, including its connections into the NSW system, are inadequate for competitive passenger and freight services. Since the last Report Card, the major rail sector developments have been: The cessation of rail freight services into the ACT The development of a proposal for a light rail network Proposals for the rationalisation and relocation of the Canberra Railway Station and railyards Improvements in passenger rail service frequency to Sydney. Challenges to improving rail infrastructure include: Defining the future of interstate rail in the ACT Developing and planning for appropriate light rail or other mass transit system in the ACT Planning for high speed rail. 2.2 Infrastructure overview System description The ACT rail infrastructure comprises: One operating railway station located in the suburb of Kingston 8km of rail line from the NSW border to the Canberra Railway Station 68 Railyards at the Canberra Railway Station. Figure 2.1 displays the regional context of the ACT rail infrastructure. Canberra is 330km from Sydney by rail and 100km from the Goulburn junction of the main south line. 69 The rail line to Canberra was once a branch line of the Bombala line at Queanbeyan but the line now terminates in Canberra. The Bombala line originally extended from Goulburn through Queanbeyan to Bombala. The line south of Queanbeyan to Bombala was closed in 1986 for normal major freight traffic but reopened in 1993 for historic railway use. Until recently, historic rail services only travelled as far as Royalla on this line as a number of timber trestle bridges between Royalla and Michelago were unsafe. Following the severe storm on New Year s Eve 2006, the entire line closed for repair and will remain so for the foreseeable future. 70 The Bungendore to Captains Flat line closed in

21 Figure 2.1: The ACT region rail lines 72 Within the ACT, the 8km rail corridor extends from Kingston to the ACT/NSW border near Queanbeyan, through Fyshwick to its termination at the railyards in Kingston. Within the Fyshwick segment of the line there are two tracks parallel to the main line that were used by fuel trains to service the Shell sidings. The track continues through the rail corridor underneath the Monaro Highway and over Jerrabomberra Creek into the railyards at Kingston. 73 The existing ACT railway corridor is much wider than it needs to be for its current services. This width is a legacy of the past when the corridor was used for services to the Kingston Power Station, the Government Printers, dairy farmers and a considerable number of passenger services. Today, the corridor includes a large historic steam museum and industrial sidings that are no longer in operation. CountryLink service The NSW Government-owned Rail Corporation (RailCorp) provides a passenger rail service to the ACT through their CountryLink operation. The service operates from Sydney s Central Station with its terminus at the Canberra Railway Station and operates Xplorer trains. As of May 2010, 26

22 Rail CountryLink operates two services daily between Canberra and Sydney, departing each morning and midday. In addition, there is an evening (5pm) service each way on Monday, Wednesday, Friday and Sunday. CountryLink has a servicing and storage facility at Canberra Railway Station that allows the stabling of trains overnight. 76 Passenger numbers are seen in Table 2.1. A NSW review of patronage found that numbers using the service had dropped 43% between 2002/03 and 2007/08. This was primarily attributed to the fact that the midday service only ran in one direction on alternate days of the week. 77 Table 2.1: Passenger numbers on Canberra CountryLink services / / / / /09 Boarding in Canberra 48,823 49,059 40,691 37,072 35,223 Alighting in Canberra 50,678 51,300 43,553 39,730 37,598 Freight service In January 2010, Shell Australia ceased using rail to transport fuel into the ACT through the Shell sidings in Fyshwick. This was the only rail freight service in operation in the ACT. This decision was made following the NSW Government s decision to remove the fuel on rail subsidy of 1.5 cents per litre on the Blue Mountain route. Shell Australia says that the rail service was replaced by seven fuel trucks each day. 79 Rail track maintenance Rail Infrastructure Corporation, a NSW Government agency, maintains the rail track infrastructure in the ACT Policy and governance The rail network into the ACT is operated by RailCorp, which is responsible for the network s operation and maintenance, with its CountryLink division operating the passenger service into and out of the ACT. The ACT Government has investigated several proposals for greater investment in rail infrastructure within the ACT, including developing a proposal for a light rail network and planning for a potential fast train service between Sydney and Canberra. The ACT Government has developed a Railway Master Plan for the ACT that considers the most appropriate utilisation of railway land in the ACT and offers options for relocation. However, the Plan fails to define what the ACT Government considers is the future of rail in the ACT. Heavy rail is not mentioned in the ACT Government Integrated Transport Framework (2008). The ACT Government currently does not have a formal agreement in place with the NSW Government regarding rail services, including frequency, scheduling, and quality of services. However, discussions have been initiated with the NSW Government regarding the development of a formal agreement covering rail services to the ACT. A Deed of Licence is in place with Rail Infrastructure Corporation covering its management of the ACT s rail infrastructure and a separate Deed of Licence with Rail Corporation NSW is being negotiated to formalise their use of the Canberra Railway Station. The ACT Government does not provide any financial subsidy to these NSW organisations for the provision of rail services, or their use of ACT rail infrastructure and the Canberra Railway Station. 80 Light rail The ACT Government has outlined a strategic vision for a light rail network to achieve its goal to make the nation s capital a more sustainable and liveable city. The ACT Government believes that 27

23 a light rail network would be an economically and environmentally sustainable solution to the city s traffic congestion caused by low density and a lack of public transport infrastructure. 81 The network would consist of routes radiating from the city centre to Belconnen, Tuggeranong, Gungahlin and Kingston. The proposed length would be 54.43km and would run in dedicated reserves, on the median strip, or alongside the road wherever possible, to minimise the amount of land required. The estimated cost of the project is $2.95 billion. Figure 2.2 displays the proposed routes. Figure 2.2: Proposed ACT light rail network 82 28

24 Rail The ACT Government sought funding for this project from the Australian Government through the 2008 National Infrastructure Audit process. Infrastructure Australia declared the ACT Light Rail network as a project worthy of further analysis, however, did not list it among the National Infrastructure Priorities in May High speed rail A high speed train could travel to Sydney in 50 minutes. While there has been no decision made to build a high speed rail line to Canberra, Canberra Airport s Master Plan recognises and plans for potential high speed rail infrastructure at the airport as part of a regional transport hub. The ACT Railway Masterplan Report also indicates that any future high speed rail would be located at the airport and make the existing Canberra branch line irrelevant. 83 The ACT Government supports further investigation and investment into a high speed train connection. 84 A north-south corridor for future high-speed rail along the Majura Valley has already been identified. A high-speed rail passenger service may also accommodate a freight service. 85 Infrastructure Australia declared the Very Fast Train as a project worthy of further analysis, however, it did not list it among the National Infrastructure Priorities in May The cost of the project was estimated at between $32 and $59 billion Sector trends Relocation of rail infrastructure The area surrounding the Canberra Railway Station was identified in the Canberra Spatial Plan (2004) as an area to be investigated for urban revitalisation. The ACT Government is developing the area into a new sustainable residential development in partnership with the CSIRO. This development is known as East Lake. The ACT Government believes that the inefficient nature of the rail infrastructure in Kingston and the development pressures in the area will require a rationalisation of the rail facilities in the ACT and a relocation of the station. 87 The 2007 East Lake Urban Renewal Draft Planning Report suggested options for rationalisation of rail infrastructure and these were refined in the 2009 ACT Railway Master Plan Report. 88 Figure 2.3 displays the possible sites for the relocation of the Canberra Railway Station and other rail infrastructure. Figure 2.3: Possible locations for a new rationalised railway station Performance Passenger service network performance Key parameters to assess the performance of passenger services are efficiency, levels of service and safety/security. Table 2.2 provides details of on-time running times for the Canberra CountryLink services compared to the NSW CountryLink services. It shows that Canberra services 29