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Urban Transport Challenge Urban Transport Challenge: PlanninG FOR GROwtH in SOutH East QUEENSLAND Infrastructure Partnerships Australia 8th Floor 8-10 Loftus Street Sydney NSW 2000 T +61 2 9240 2050 F +61 2 9240 2055 www.infrastructure.org.au For more information please contact: Brendan Lyon Executive Director Infrastructure Partnerships Australia PO Box R 1804, Royal Exchange, Sydney NSW 1225 T +61 2 9240 2050 E [email protected] Peter Colacino National Manager - Policy Infrastructure Partnerships Australia PO Box R 1804, Royal Exchange, Sydney NSW 1225 T +61 2 9240 2050 E [email protected] Phil Bullock Senior Manager Saha International Suite 1, Level 12, Tower 3, Darling Park 201 Sussex Street, Sydney NSW 2000 T + 61 2 8299 4236 E [email protected] 3 Contents Preface 2 Executive summary 3 Recommendations 6 Introduction 8 Setting the scene 8 The growth challenge 10 The response so far 16 What next? 20 Conclusion 32 Recommendations 34 References 35 1 Preface During the final stages of preparing this paper, the Auditor- • The continued use of out of date key transport documents General of Queensland released a major report to Parliament, and plans may result in decisions that are based on Transport Network Management and Urban Congestion obsolete data and assumptions, and will not effectively in South East Queensland: A Performance Management address the current challenges; and Systems Audit. As with this paper, the research on which the Auditor-General’s Report is based was undertaken during the • Inconsistencies in data collection and reporting might have final quarter of 2008 and the first quarter of 2009. significant impacts on the entities’ ability to base their plans on accurate, complete and timely data, as well as to The Audit, released in June 2009, considered the impact of report on outcomes achieved. urban congestion on South East Queensland and the growing pressure on the transport network caused by population The Auditor-General concluded that “no one entity can deal growth and increasing economic activity in the region. with the critical issue of congestion alone and genuine collaboration is vital to tackle it successfully”. The Audit also The Auditor-General specifically examined the governance found “an integrated government response involving entities structures and systems for the planning, reporting and working across portfolios, agency boundaries and tiers of management of the transport network in South East government is necessary”. This recommendation and others Queensland. In his report, the Auditor-General found that from the Audit complement the conclusions drawn from this while both the Queensland Government and Brisbane City paper. Council are ‘committed to an efficient transport network and have identified urban congestion as a significant issue’, While the Auditor-General focused on the identification of a lack of coordination and weak governance structures were deficiencies in the planning and governance process, this hindering progress towards significant efficiency gains. The paper considers a broader range of issues and presents Auditor-General identified four key areas of concern: a series of positive recommendations to strengthen the planning process through a partnership between key • Leadership at the state level is not coordinated effectively government jurisdictions and the private sector. and makes it more difficult for government agencies to manage the transport network and urban congestion in an It should also be noted that the Queensland Government integrated and coordinated manner; announced during May 2009, the commencement of a process towards the development of a new integrated • Due to a systematic weakness in integrated planning transport plan for the region - Connecting SEQ 2031. This across government agencies, there is no certainty that the plan represents a worthy incremental change in the State’s agreed responses will achieve the right mix between the planning process towards the goal of a truly long-term, multi- different elements of an urban transport network, such as jurisdictional, integrated transport plan. land-use, transport infrastructure, demand management and intermodal options; 2 Executive summary Background Maintaining a commitment to deliver projects in the ‘infrastructure pipeline’ will be critical to managing congestion Infrastructure Partnerships Australia (IPA) in partnership with and securing regional growth, but is a significant challenge Saha International (SAHA) have developed a discussion paper given current economic circumstances. on urban growth and congestion in South East Queensland. Planners and policy makers are now faced with further This paper analyses the historical and projected rapid growth challenges, and opportunities. in population, the economy and congestion in South East Queensland, and the impacts of this growth on transport infrastructure. It considers the reasons why congestion may continue to increase, even when taking into account the The congestion challenge current suite of projects which are under development or being planned. The paper then explores policy responses A key challenge will be managing congestion in the face of which may be needed beyond infrastructure projects strong population growth. While the current global financial planned in the medium term, including integrated planning, crisis will undoubtedly slow the region’s economic growth, strengthened governance regimes, non-infrastructure longer term population estimates and their implications solutions and various investment and reform measures. cannot be ignored. By 2020 it is expected that congestion will cost the Brisbane economy around $3 billion per annum. In the longer term, this cost is likely to be substantially higher. Depending on the estimation method used, our analysis Urban growth and infrastructure suggests that by 2055 congestion costs in Brisbane could be responses between $6 billion and $9 billion per annum if improvements to the transport system are not delivered – two to three times South East Queensland is one of the fastest growing regions higher than cost predictions for 2020. The figure below shows in Australia. Between 1986 and 2004, the region’s population how congestion costs will increase over time, based on our increased by an average of 50,000 people each year. By 2031, upper estimate of $9 billion per annum. South East Queensland will have a population larger than Queensland’s current total population. It is important to recognise that these are not just one-off costs to the economy, but are incurred every year. These costs This population growth has placed a strain on infrastructure. are for Brisbane alone - the figure is undoubtably higher if So far the responses by governments to this challenge have congestion for the whole of South East Queensland is taken been substantial, and there has been an unprecedented level into account. of investment in a wide range of infrastructure projects. FIGURE 1 Annual congestion costs over time The principal State Government planning strategy to manage this growth, the South East Queensland Regional 10 Plan (SEQRP), provides a medium to long term approach 9 for land-use planning. Since the introduction of SEQRP, 8 the infrastructure planning process has been strengthened 7 6 through the creation of a supplementary document specifically 5 focused on infrastructure requirements - the South East 4 Queensland Infrastructure Plan and Program (SEQIPP). 3 2 1 State and local governments have worked in partnership to Annual congestion costs $ (billion) 0 address some of the key limitations of the transport network, and have developed an improved, more integrated transport 2046 2050 2006 2010 2014 2018 2022 2026 2030 2034 2054 2042 2038 system. Since its first release, SEQIPP has become a widely Year accepted infrastructure program across different tiers of government, and is linked with State Government budget planning processes. 3 Strong, proactive decision making in relation to long-term transport infrastructure projects, and to thoroughly integrate transport and land-use planning will be vital to avoid rapid transport and land-use planning across various modes in its growth in congestion costs. For example, delaying difficult infrastructure planning development. decisions about preserving land corridors for the future will carry a large opportunity cost and dramatically increase levels A centralised authority for road and transport planning of car dependency and congestion in the long term. and governance could provide important benefits to South East Queensland. The recent amalgamation of the State’s Policy makers in South East Queensland also have an Department of Main Roads and Department of Transport opportunity to learn from the experience of other Australian represents an important step towards more integrated cities that are further along the population growth path, and planning processes. However, further steps are required to have already confronted some of these issues. provide local authorities with greater input into the planning process, particularly Brisbane City Council, which is a major public transport operator in its own right, and is currently Planning processes and governance delivering major transport infrastructure projects. arrangements Many Australian cities do not have a clear vision for Planning horizons infrastructure development. Historically, Australian state governments have been poor at developing integrated land- To produce the best social,
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