..
11 VICTORIA- - -• - • VICTORIAN TRANSPORT STUDY -
REPORT ON
I METROPOLITAN ROADS
I
• - •
Ordered by the Legislative Assembly to be printed • ...------._... - - -11 - • I
No. 37
•
VICTORIAN TRANSPORT STUDY
The Honourable R.R.C. Maclellan, M.L.A., Minister of Transport, 570 Bourke Street, MELBOURNE, VIC. 3000.
Dear Mr. Maclellan,
I have the pleasure to submit herewith a report on Metropolitan Roads. This is one of a series of reports being prepared to make known the results of the Victorian Transport Study.
Yours sincerely,
W.M. Lonie. METROPOLITAN ROADS
CONTENTS
Summary 1. Introduction
2. The Existing Road System and its Usage 3, Past Significant Events Relating to Metropolitan Transport Planning 4. Submissions 5. The Draft Transport Plan 1978 6. Metropolitan Growth Strategies 7. Future Road Travel 8. Existing Road System Needs and Concerns 9. Current Techniques for Developing Roads 10. Maintenance
11. Traffic Management 12. Protection of Future Options 13. Construction of New Works 14. Future Needs and Development Proposals 15. Strategy for Road Development 16. Priorities for Road Development 17. Recommendations SUMMARY
The Melbourne metropolitan area comprises some 2000 sq km of relatively l0w d~nsity city and suburban development, w1th a population of 2.7 million persons, There is currently close to one registered motor vehicle for each two persons in the metropolitan area, and the motor vehicle is the dominant form of transport for the movement of both persons and goods, This report firstly describes the existing road system and its usage. It summarises past significant events relating to metropolitan transport planning, and outlines the submissions made to the Study relating to metropolitan roads. It includes some notes on the draft Transport Plan 1978, and discusses metropolitan growth strategies. The report indicates that road travel in the metropolitan area is likely to continue to increase in the foreseeable future. It then outlines in fairly general terms the existing and likely future road system needs. A strategy for addressing these needs is described. The report concludes with some appropriate recommendations.
2.
1. INTRODUCTION
1.1 Metropolitan Melbourne, comprising some 2,000 square kilometres of city and suburban development, now houses some 2.7 million people, and extends up to 40 Km from the seat of government of the State.
1.2 Since World War 11, as a result of a doubling in the population, and continued outward growth of the urban area, predominately to the east and south-east, the statistical centre of the metropolitan area has shifted to approximately 13 Km to the east of the original city development, commonly called the Central Business District. As a result, the centre of population is now well to the east of the central focus of the radial train system which was largely developed by the turn of the century when the metropolitan population was of the order of half a million.
1.3 In the Melbourne metropolitan area,the motor vehicle is now the dominant form of travel, (Figure 1), a domination which reflects the high standard of living and the nature of the urban development, in the post World War 11 period, and a highly mobile and flexible lifestyle,
1.4 Approximately 88% of the total people movements trips made by some form of transport other than walking or cycling in the metropolitan area ~ by motor vehicle. Virtually all freight tasks or movements within the metropolitan area take place on roads, as does all public transport other than the suburban electric train system. The key to transport activities within Victoria, and the metropolitan area in particular, is the road system and the nature of its evolution,
1.5 All of the road system of the 19th Century Melbourne, i.e. the area within about 8 Km of the original centre, was laid out before the advent of the motor car, and in the context of completely different conditions to those pertaining today. However, this system still ten~ to dominate the traffic patterns of the metropolitan area, and the actions of municipal and state authorities, planners and developers. Representations made to the Study in the form of submissions and discussions basically reflect these attitudes, the lifestyle, and the work experience of those making the submissions.
1.6 In the inner city area, the road system predated the evolution of the railway system. The tram system evolved in the context of the development pattern of the inner suburbs, and in the absence of any alternative other than horse drawn vehicles. The metropolitan city of the post World War 11 period developed in the context of freely available motor transport and motor fuels, a high standard of living, completely different economic conditions to those pertaining in the earlier pioneer period, a changing social environment, and completely different demands and expectations from the road system. 25
20
=g .. = •. = . ~ • •. l:3 15 • a:: •• 1- • UJ .• :::::= . 0 •• _J • :;;:: .•• "' a:: .• ~ 10 . z .·· UJ V> ..· V> 0: <.:. "~.·•• _J ::"-~··· <( 'X_~ •• • ::::> z: .· z: 5 <( ...... TRANSPORT .-···. tramway bus ...... ··········· ······ ...... 0 ········ .... 1920 1925 193{) 1935 1940 1945 1950 1955 1960 1965 1970 1975 1980 YEAR ENDING JUNE
Source :Melbourne & Metropolitan Board of Works
FIGURE 1 ANNUAL PASSENGER TRAVEL IN MELBOURNE 4.
1.7 The large number of motor vehicles used within the metropolitan complex of roads can be considered to be a reliable indicator of the State's prosperity and progress, and demonstrates peoples' preference for a flexible transport system. At the same time there is a degree of criticism of the motor vehicle, and some advocate that people should be forced to use public transport. An interesting facit of the objection to the use of the motor car is the continuing use of motor transport, on account of its flexibility and convenience and reliability factors, by some of the objectors. 1.8 The evolution of motor transport and imposition of this flexible form of transport on the 19th and early 20th Century road system has not all been beneficial and some problems have emerged particularly in the last 10 years. For example, travel by motor transport has evolved certain characteristics with little or no regard for other modes of transport or the environment in which it takes place, As a result, the wishes and desires of people travelling by motor vehicle are incompatible with the desires and wishes of the people living in the areas through which they wish to travel, and with the availability of funds to meet desires insofar as the road system is concerned. 1.9 This report firstly briefly describes the existing road system and its usage. It summarises past significant events relating to metropolitan transport planning and then outlines the submissions made to the Study relating to metropolitan roads. It then discussed metropolitan growth strategies, and includes some notes on the Draft Transport Plan 1978. 1.10 Some estimates of future road travel in the metropolitan area are put forward. The report then outlines in general terms the existing road system needs. It then discusses the four main categories of road developments, namely maintenance, traffic management, protection of future options and construction of new works. 1.11 Expected future needs in the metropolitan road system are identified, and a strategy for addressing current and expected future needs is described. The report concludes with some appropriate recommendations. 5.
2. THE EXISTI~G ROAD SYSTEM AND ITS USAGE
2.1 The existing road system in the Melbourne Statistical Division comprises a total of 19,432 km, made up as follows : Freeways 115 km State Highways 407 km t'lain Roads 1,505 km Tourists Roads 31 km Metropolitan Bridges Unclassified Roads 17,374 km
19,432 km
2.2 Freeways, State Highways, Main Roads, Tourists Roads and Metropolitan Bridges are roads declared in accordance with the provisions of the Country Roads Act, Main Roads and unclassified roads are under the direct control of the local municipalities, The remaining categories of roads are under the direct control of the Country Roads Board. Other agencies also have responsibilities for certain aspects of the road system. 2.3 548 km of the road system are divided roads, including 115 km of freeways, and 220 km of State Highways,
2.4 The widths of road reservations vary from approximately 15 metres to 60 metres, with the width of over half the system being close to 20 metres,
2.5 For the State as a whole, there are now 510 registered motor vehicles (including trucks and motor cycles) per 1,000 population. There are 410 registered motor cars and station wagons per 1,000 population, For the metropolitan area, comparable figures would be close to 495 and 395 respectively, i,e, within the metropolitan area there are approximately 1.3 million motor vehicles (including trucks and motor cycles), or over 1 million motor cars and station wagons. 2.6 The Ministry of Transport estimated that in 1977 17% of households in Melbourne had no cars, 47.1% had one car, 29,5% had two cars and 6.4% had three or more cars. The percentage of households with no cars has fallen from 36.6% in 1964, and the percentage of households with two or more cars has risen from 14.0% in 1964 to 35.9% in 1977, 2.7 In 1964, there were 1.08 trips per person per day by motor vehicle in the metropolitan area, being 64% of the total trips per person per day. By 1972 these figures had risen to 1.83 trips per person per day, and 80% of the total trips. Based on preliminary results from the 1978-79 Home Interview Survey, conducted by the Ministry of Transport, it is estimated that in 1978 there were approximately 2.0 trips (or close to 88% of the total trips) per person per day by motor vehicle. 6.
2,8 The distribution of person trips per day by various modes in the Melbourne Statistical Division in 1978, obtained from the preliminary results of the above Survey, is shown in Figure 2. It might be noted that, while Figure 2 indicates 270,000 person trips per day by tram, actual ticket counts indicate that this figure could be as high as 350,000. The difference could be due to a significant under-reporting of tram trips in the Home Interview Survey, 2.9 The population of Melbourne is now approximately 2.7 million and the total number of trips by motor vehicles per day is close to 5.5 million. Of these trips, about 200,000 (or just under 4%) have origin or destination in the Central Business District, and the remaining 5.3 million trips have origins and destinations widely scattered throughout the whole of the metropolitan area, Trips are made for many different purposes, including work, shopping, business, social and recreation. 2.10 The total trips by motor vehicle in 1978 included about 325,000 trips per day by bus, and about 38,000 trips per day by taxi. 2.11 In 1971, total travel by motor vehicle in the metropolitan area amounted to 12,585 million kilometres per annum. By 1976, this figure had risen to 15,678 million kilometres per annum - an increase of about 25% in 5 years, or an average annual increase of 5%. The total travel by motor vehicle in the metropolitan area is now probably between 18,000 and 20,000 million kilometres per annum. 2.12 Of the total tonnage of freight moved in Victoria in 1976, 53.6% was handled by trips within the metropolitan area. A further 8 to 9% of the total tonnage had either origin or destination within the metropolitan area, It has been estimated that 99.5% of all internal metropolitan freight tonnage is moved by road. The external movement is much more evenly split between road and rail. 2.13 In Melbourne, the main concentration of truck trips is in the inner suburbs, including the major sea, rail and road terminals, such as the docks of Port Melbourne, the Victoria-Appleton-Swanson Dock area, Melbourne and Dynon railway goods yards, the Footscray Road market and road truck terminal area, and the Central Business District. It is estimated that ap~roximately 25% of all freight movements in Melbourne have either origin or destination in these areas.
2.14 Other concentrations of truck traffic occur in the western industries and varehourse areas and other suburban industrial areas such as Preston, the Moorabbin-Dakleigh Dandenong, and Craigieburn areas, 7.
CAR 4800000
* see para. 2.8 Source : Ministry of Transport
FIGURE 2 PERSON TRIPS PER DAY BY VARIOUS MODES IN THE MELBOURNE STATISTICAL DIVISION 1978 8 0
2.15 In recent years increasing population and increasing goods consumption have resulted in a significant increase in the total tonnage of freight handled in the metropolitan area. Australian Bureau of Statistics "Surveys of Motor Vehicle Usage" sho111 that this trend has been accompanied by an increase in truck size and a substantial increase in the use of utilities and panel vans. Accordingly, the gro111th in truck volumes has been limited to about 2% per annum, even though the increase in freight moved has been greater. Current trends are likely to continue for the foreseeable future. 2.16 On some roads, for example the Maroondah High111ay and Nepean High111ay, recreational travel is no111 very significant. 2.17 Figure 3 sho111s the estimated 1979 average daily traffic volumes on urban arterial roads in the metropolitan area. The average daily traffic volumes on some of the most heavily trafficked roads in the metropolitan area are : vehicles per day Punt Road (Richmond) 78,000 Flemington Road (Melbourne) 67,000 Princess High111ay East (Caulfield) 65,000 Footscray Road (Melbourne) 62,000 Kings111ay (South Melbourne) 60,000
CRAIGIEBURN
MAHONEYS 1<4ELTON ;i mr
I N ~
POF~T GEHSROOK
LEGEND < 10000 Veh I day - 10000 - 20000 Veh I day 20000 - 30000 Veh I day - > 30000 Veh I day =
SCALE Of KILOMETRES 0 2 4 8 I lD ESTIMATED 1979 DAILY TRAFFIC VOLUttES PJ-JJLLJP BJ-\Y URBAN ARTERIAL ROAD NETWORK (PARTS Source : Country Roads Board Figure 3. 10,
3. PAST SIGNIFICANT EVENTS RELATING TO METROPOLITAN TRANSPORT PLANNING
3.1 The first major attempt at transport planning in Melbourne began in 1922 when the Government set up a Metropol itan Town Planning Commission, In 1929 the Commission produced a report on the future development of Melbourne. It is noteworthy that some of its transport recommendations have been implemented only in recent years. For example, the widening of the Nepean Highway between Elsternwick and Moorabbin is now in hand. 3.2 In the early 1950's the Melbourne and Metropolitan Board of Works (MMBW) (the Metropolitan Planning Authority) was active in the preparation of a comprehensive planning scheme for the metropolitan area. In its 1954 plan for future metropolitan development, transport was a significant consideration, The plan included comprehensive road and public transport proposals, 3.3 In 1963, the Government established the Metropolitan Transportation Committee. The Committee carried out a detailed survey of travel in Melbourne, and as a result information was obtained on the daily movement of persons and freight throughout the metropolitan area, and on population, land use and transport system characteristics, In 1969 the Committee released a Transportation Plan for Melbourne. Features of the Plan were provision for the construction of the underground rail loop, proposed extensions to rail and tram routes, a considerable increase in bus services, arterial road improvements, and a proposed 490 kilometre network of of freeways. The Plan was accepted in principle by the Government. 3.4 When the 1969 Plan was released it led to very little community comment or reaction. In the early 1970's sections of the community became more aware of the implications of large scale urban works, and began to question certain of the proposals on the 1969 Plan. At the same time, the effects of inflation on road finance and road works budgets began to be felt, and there was increasing recognition of the uncertainties of the longer term effects of population growth and vehicle ownership trends, of environment protection policies, and of changing community attitudes. 3,5 In response to these changing conditions, in December 1972 the Victorian Government issued a Policy Statement that no new freeways would be commenced in inner areas where their construction would involve substantial loss of established housing and community disruption, but that freeways under construction would be completed, and further freeways would be built in areas where proper planning could ensure minimum community disruption and substantial overall benefits to the community as a whole. 11.
3.5 (Continued) The Statement placed emphasis on improved public transport, and on the upgrading of arterial streets. The Statement recognized that "there is a real and proper place for the motor car, but action must be taken so that the motor car adds to the amenity of life, which it is so well capable of doing, without assuming such proportion that the city is a place for the motor car to move rather than for people to live". 3.6 In March 1973 the Government issued a further Policy Statement reiterating the principles of the December 1972 Statement, and listing a number of specific freeways shown in the 1969 Plan that "will not now proceed", 3.7 In December 1975, a further Policy Statement, expanding in the principles of the December 1972 and March 1973 Statements, was issued. 3.8 In December 1978 the Government released a Draft Transport Plan for community comment. 3.9 In June 1979 the Legislative Assembly of the Parliament of Victoria carried a motion "that in the opinion of this House the Government should : (a) Institute a study into all freight and passenger transport within Victoria, and to and from Victoria, in order to produce a co-ordinated transport system capable of meeting the needs of all residents of Victoria, having particular regard to the effect of transport on the balanced development of the State; and (b) ...... " This motion led to the Victorian Transport Study. 12.
4. SUB~1ISSIONS
4.1 Many submissions to the Study Group dealt with metropolitan roads, some in considerable detail. The submissions presented a wide range of comments, views and information, and all have been helpful to the Study Group. As well, a number of the discussions held with interested parties, including several of those who made submissions, have related to metropolitan roads.
4.2 The City of Melbourne has forwarded a copy of a report by its City Planner. The report says that "improved public and private transport facilities are required to promote ready access to the City Centre. Vital elements are the provision of upgraded public transport equipment and services, improved fare structures and the construction of inner Central Business District bypass roads". 4.3 The report says that the "Council is most concerned by the large volume of traffic which uses the Municipality's road network purely as a means of travelling from one location outside the City to another. As a first step in controlling this situation the Council has developed and approved a Street Classification Scheme for the City". The report comments on the Melbourne and Metropolitan Board of Works Hierarchy of Roads proposals and suggests a number of changes to them. 4.4 The report says that "a bypass road is essential now, not possibly some time in the future". In this regard the report says : *The Western Bypass Fl4 (i.e. the southerly extension of Tullamarine Freeway to Footscray Road and then to West Gate Freeway) "should be in the 5 year plan if only for detailed planning in order that it may be commenced towards the end of the first 5 years". *Punt Road, south of Wellington Parade should be widened at least as far as the Yarra River. *The question of a northern bypass "should not be left in limbo. It is the Council's view that in the Park Street/Brunswick Road corridor, Park Street would not be the ideal road to develop". *"Every endeavour should be made to develop firstly the F9 (West Gate) Freeway. The present proposals fall short of the proper solution and will only compound problems which are at present felt in the area". *"The F2 Freeway should be abandoned, and priority given to a western link to the Tullamarine Freeway". *"The outer ring road proposal should be abandoned in favour of concentration on the central bypass". *"In the long term the Council would like to see the separation of trams and vehicles in Swanston Street". 13.
4.5 The report says that an improved traffic signals system, "via centralized computerization is essential if overall effectiveness and effiaiency is to be achieved". It also gives a summary of its experience with traffic signals.
4 • 6 Action in ~1 e 1 bourn e s a.y s that "a critic a 1 aspect for any revitalisation programme for a CBD (Central Business District) is an improvement in the level of accessibility of the CBD for all sectors of the community and from all parts of the metropolitan area, Public transport has an important role to play in this process •••••.••••••••.•• However, the role of private transport in providing direct access to the CBD must not be under-rated". It goes on to say that "a critical need for the City now is for the State Government to adopt as a matter of the utmost priority the development of a complete ring road system around the CBD" to remove through traffic from, and reduce congestion and its adverse effects in the CBD. Action in Melbourne sees this ring road system as including : *Construction of an extension of Tullamarine Freeway to Dynon Road and to Footscray Road. *Upgrading of a northern bypass link along Victoria Parade, Victoria Street and possibly Miller Street. *Connection of the West Gate Freeway with the South Eastern Freeway, possibly via a tunnel under the Alexandra Gardens and King's Domain. *The widening of Punt Road. 4.7 The West Gate Bridge Authority says that there is "a serious lack of feeder routes on both the Eastern and ~Jestern approaches" to the Bridge. It recommends that *Work on the West Gate Freeway to Kingsway and St. Kilda Road be expedited. *The West Gate Freeway be connected directly to the South Eastern Freeway. *A direct freeway link between the West Gate Freeway at the Princes Highway West and the Western Highway be provided as a matter of high priority. *Construction of an arterial road between Sunshine and the Williamstown Road Interchange should be expedited. 4.8 The Authority has also forwarded a preliminary concept, prepared by a Consultant, for a tunnel under the Domain, extending from the west of St. Kilda Road to the Swan Street Bridge - Alexandra Avenue intersection, and it recommends that the design of the West Gate Freeway at Grant Street, South Melbourne takes into account the tunnel portal location for this proposal, 14.
4.9 The Institution of Engineers, Australia (Victoria Division) says that undu~ emphasis should not be placed on commuter travel to the Central Business District. It points out that revitalization of the CBD has not occurred "notwith standing considerable public investm~nt and heavy public transport subsidies. To continue with such a policy in the light of past failure, and without considering the cost or the probability of success of such a policy is seriously questioned",
4.10 The Institution also draws attention to the need to pay attention to needs of the transport disadvantaged, to goods movement, to local area public transport and to traffic management.
4.11 The Victorian Chamber of Manufacturers says that "upgrading of roads to allow more efficient use needs urgent study. This is required both within the Melbourne Metropolitan area and country Victoria. Co-ordination of traffic signals leading to improved traffic flow also needs urgent study to reduce costs and increase road utilization".
4.12 Traffic Action "assumes the continued use of a motor car and the need to allow for this. However economic considerations have dominated transportation planning since 1945, to the point where the full social and economic implications such as noise, air pollution, accessibility, uneconomical use of land and accident costs have mainly been ignored".
4.13 Traffic Action is critical of the Melbourne and Metropolitan Board of Works Heirarchy of Roads Stury. It says the concept is basically sound, but that a road classification based on the envrronmental capacity of roads is necessary. 4.14 Traffic Action supports the concept of rationalization of heavy freight policy by the development of regional freight centres as suggested by the Urban Freight Group, 4.15 The Urban Freight Group has forwarded a detailed report on freight in Melbourne. The report is in two parts : *Urban freight problems, policies and prospects. *The freight industry.
4.16 The report proposes that action be taken to remove traffic, particularly heavy transport trucks from streets in residential areas to reduce congestion, noise and air pollution. It points out that "whilst amenity and dislocation are at present largely inner city problems they will increasingly disperse outwards and grow in scale unless a co-ordinated and wide ranging programme of action is undertaken in the near future". Suggestions put forward include : 15.
4.16 (Continued) *Provision of suburban road and rail freight centres, *Connection of all docks to the rail network, *Incentives and land use zoning to encourage industry to locate near tot and uset rail facilities, *Improved efficiency in road frieght movement, including computer co-ordination, *Measures to minimize the en~onmental impacts of freight movement.
4.17 The Transport Group from Monash University says that "the movement of goods in urban areas is an absolutely vital component of our daily life; our cities simply could not function without it". The Group points out urban freight distribution patterns are exceedingly complex, and that because almost all movements "require door to door delivery they are almost exclusively the preserve of the motor truck".
4.18 The Group believes "that more explicit consideration of goods movement in the planning phase could lead to significantly reduced costst and reduction of the environmental problems associated with trucks, We would caution however against having too high an expectation of the results of such action" because of the complexity of the urban freight system, and because many of the problems and costs of freight are built into, and result from, the existing urban fabric. 4.19 The Group submits "that road and freeway building in Melbourne be accelerated, in particular by linking some of the presently isolated freeway segments, for both economic and environmental reasons. We further submit that solutions involving tunnels should be considered in certain key areas". 4.20 The Flemington Association expresses concern about any proposals that would direct further traffic on to the Tullamarine Freeway which, it says, "would be detrimental to the Flemington and adjoining areas". The Association : *Is opposed to additional traffic lanes on the Freeway, and suggests that instead any available space should be used to reduce the effects of noise and pollution, and for landscaping. *Is opposed to extension of Fl4 along Moonee Ponds Creek to link with F9, to a link that would direct Hume Highway traffic to Tullamarine Freeway, and to an arterial along Park Street and/or Brunswick Road between the Eastern and Tullamarine Freeways. 16.
4.20 (Continued) *Supports an outer ring road from the Hume Highway (or Freeway) to the Princess Highway (Geelong Road), but with no entry or exit points for city bound traffic. It also says that consideration should be given to an outer ring road from the Hume Highway (Freeway) to Diamond Creek Road. *Suggests that greater use should be made of rail to move goods to reduce numbers of heavy transports through residential areas. It suggests removal of the Dynon Road road transport terminal to suburban freight centres. 4.21 The City of Broadmeadows has expressed concern about heavy vehicles in its municipality, It considers that "The ultimate solution to the problem is the construction of El4 extended from Hume Highway to the Outer Ring Road, (F5) connecting to Tullamarine Freeway, and whilst it is realised that the funds required for such a project would be enormous, it is considered that either this proposal be investigated immediately, or a suitable temporary alternative be found to relieve the traffic problems in Pascoe Vale Road, with special emphasis being placed on the removal of commercial vehicles".
4.22 The Northern Municipalities Transport Group has forwarded a copy of a submission it made on the Draft Transport Plan 1978, It has also had discussions with the Study Group on : *The Melbourne and Metropolitan Board of Works Hierarchy of Roads Study.
*Circumferential transport needs ~ith its region, *Freight transport, and in particular the Altona Somerton-Tullamarine pipe-line project. *Matters arising out of a Consultants report commissioned by the Group (and a copy of this report has been made available to the Study Group). *Other transport issues in the region. 4.23 The Town and Country Planning Association says that "we believe that planning priority must be given to developing a more adequate public transport system, and the urban road system requires more careful planning to carry the loads placed upon it without excessive social and environmental damage to the community". The As 4.23 (Continued) The Association also draws att@ntion to the need to plan residential road networks for public transport. 4.24 The Victorian Road Transport Association has expressed concern about road closures and truck bans on arterial roads when adequare alternatives are not available, because of the costs and delays involved, It points out that these costs must be passed on in the form of increased prices. It says that ''we strongly urge that prDposed bans, closures, installations of traffic roundabouts, new signalling systems, etc., be controlled through one authority", 4.25 The Association also says that "freeways are of equal concern to us and modern communication demands that they be built in order to more adequately decentralize the metropolis and give service to the major areas outside the central district. Equally, ring roads are an essential feature and must be built to by-pass the Central Business District. The Government must be prepared to give more concentrated effort to improve the traffic flow to aid freight and passenger distribution and as an effort to contain rising costs", 4,26 The Transport Workers Union of Australia (Victorian Branch) "believes that there is a clear need by the Victorian Government to establish a tribunal or monitoring authority to co-ordinate traffic management relative to heavy commerical vehicles". It sees this authority being involved in traffic control at intersections, operation of over-dimensional vehicles, traffic control between intersections and specifically the use of speed hump and safety bars, road closures, roundabouts and weight restrictions, route numbering, co-ordination of traffic signals, clearways and accident analysis, 4.27 The Union "believes that the implementation of area wide traffic signal control systems within the Melbourne metropolitan area would provide for the safe and efficient movement of all users of the road system, including pedestrians, cyclists, private motorists, public transport and commercial vehicles", It also suggests that when transit lanes are proposed consideration should be given to their use by trucks and commercial vehicles, The Union points out that there are many relatively minor road improvements that could be carried out to improve truck movements, 4.28 The Royal Automobile Club of Victoria (RACV) Ltd. has made a submission that deals largely with metropolitan roads and related matters. It includes sections on : *Urban development. *The Road system. *Fuel prices and traffic demand. *Public Transport. *Traffic management, *A proposed Department of Motor Vehicles. 18. 4.29 The Club has also forwarded, as part of its submission, its comments on the Draft Transport Plan 1978. 4.30 The Country Roads Board has made a comprehensive submission dealing with roads on a State-wide basis, including *The role of roads in transport, *Responsibilities of the Board and Municipalities. *The road network. *Road finance. *Planning considerations. *Movement of goods by road, *Road based passenger transport. •Road construction and maintenance. *Issues of concern, 4.31 Of the issues of concern raised by the Board, those that relate directly to metropolitan roads include : *Development of a satisfactory arterial network in the metropolitan area. *Movement in the inner areas of Melbourne. *Future access to Tullamarine Airport. 4.32 The Board says "the major problem experienced by users of the road network in the Melbourne metropolitan area is congestion during peak periods, •.••••••• , •••• , • Circumferential travel in the inner metropolitan area is particularly poorly served as the sparse and fragmented network of geometrically high standard divided roads are predominately radial in orientation. The natural barriers of the Maribyrnong and Yarra Rivers, and to a lesser extent, Merri and Gardiners Creeks, together with man made barriers such as railway lines, limit the spacing and connectivity of the arterial routes concentrating traffic at the few available crossing points". 4.33 The Board goes on to say : "There are a number of bottlenecks and discontinuities within the network and for an efficient, well balanced system these should be progressively eliminated, In the outer suburban areas, where population growth is occurring, there is a need to develop new arterial roads for access. Current deficiencies are compounded by a continuing traffic gr6wth rate of about 4 per cent per annum". 4 ,J 4 The Board also comments that 11 Congestion in the inner areas of t4elbourne brought about by a deficient road system carrying high traffic volumes is a continuing concern. ••••••••••••••••••• There is a need to establish a hierarchy of roads which defines the function of roads in the area, and to direct improvements and traffic management programmes toweards reinforcing this hierarchy and improving flow on the arterial roads so defined. The Melbourne City Council Street Classification in its Strategy Plan and the Melbourne and Metropolitan Board of Works Hierarchy of Roads Study could provide useful starting points in defining such a hierarchy • , ••••• , , • , ". 19. 4.• 3 5 The Board considers that : "Construction of a significant number of ne111 roads, and large scale major alterations to existing roads, can only be regarded as long term possibilities due to the difficulty in developing proposals that are generally acceptable to the diverse interests in this area", 4.36 The Board also says that : "The Tullamarine Free111ay provides the main form of surface access to Melbourne Airport, as 111ell as serving the urban area through 111hich it passes, and traffic ori nating beyond the Airport. , .•••••••••..•••••• The Free111ay is is currently operating at capacity in these (peak) periods and any increase in traffic volumes •• , •••••• , ••• 111ould result in extending the present duration of congested operation. •••••••·••••••••••••••• It is apparent that the Department of Transport foresees a significant increase in air passenger travel and 1110rk force at Melbourne Airport, It is also apparent that there 111ill be difficulty in servicing this demand if the present proportion of access by private motor vehicle continues". 4.37 The Board go~s on to say that " "Some relief could be provided by more extensive bus services, possibly serving a number of terminal points in the metropolitan area. Major improvements to the road system •••••••••••••••••••••••• 111ould be extremely expensive, and in vie111 of the current limitations on funds,could not be financed for many years". 4.38 The Road Safety and Traffic Authority has made available papers relating specifically to metropolitan roads on : *Report on Traffic Management in the Context of a State-111ide Transport Plan. *On-road Public Transport Priority. *On-road Commercial Vehicle Movements in Urban Areas. *The Cost of Road Accidents. 4.39 The Melbourne and Metropolitan Board of Works has provided details of its Hierarchy of Roads Study, including *Hierarchy of Roads Study Report. *Urban Arterial Roads Suggested Net111ork and Explanatory Notes. *Draft Report on Ideas on the Management of the Road Hierarchy. *Urban Arterial Roads Steering Committee Draft Net111ork. 4.40 The Minister for Conservation says there should be "more emphasis on traffic management (such as co-ordinated signals) and other cost effective 111orks utilising the existing infrastructure rather than planning high capacity, high cost ne111 routes", 20. 4.41 The Victorian Employers' Federation "considers that some measures need to be taken to act as a disincentive to the use of the motor car as means of commuting to the Central Business District'', such as by the "introduction of more restrictive car parking provisions". The Federation suggests that all day parking facilities should be provided in the inner and middle suburbs, with priority to those in the inner suburbs (although it says it recognises the difficulties involved). It also suggests the all day street parking should be abolished within say 5 km of the G.P.O,, subject to provision for local residents to park. 4.42 The Melbourne and Metropolitan Tramways Board points out that increasing road congestion has an adverse effect on tram and bus operation. In order to reduce these effects, the Board "has sought priority at traffic signals and separation of trams and buses from the traffic at appropriate locations". It points out that priority measures may result in increased delays for other road users. 4.43 The Australian Tramways and Motor Omnibus Employee's Association favours priority to trams by physical separation from road traffic in the wider streets, by suitable adjustment to traffic signals, and by the control or banning of right turns when trams are present. 4.44 The Train Travellers Association advocates the "curtailment of development of urban freeways, especially radial freeways which duplicate existing public transport". 4.45 The Tram and Bus Travellers Association says there should be "priority to buses and trams where conflicts with car traffic occur, and by establishing a tram and bus preferential streets system". 4.46 The Anti-Ring Road Organisation has made available a copy of its recent submission to the Minister for Conservation on the Outer Ring Road (Diamond Creek to Ringwood). The submission sets out is reasons for opposing "the making of a reservation for the new road link". 4.47 Blakistons Limited has provided information on a public country freight terminal, including maintenance facilities and driver amenities and offices, it has developed in the Yarraville area. At the terminal, the services of selected country carriers are co-ordinated. Freight is received, consolidated, loaded and dispatched, The Company says there is a "need for this type of facility to ensure the effective operation of country road services and the survival of the small operation in a capital intensive and management demanding industry", 21. 4.48 The Werribee Shire Council ''is especially concerned with the fact that the 1979 Bureau of Transport Economics report found that Urban Arterial road grants particularly have suffered a decline in real terms. This is because Council will be faced with the responsibility of constructing a number of major urban roads in the developing of residential areas of the Municipality in the next feu years". 4.49 A number of other submissions also referred either breifly or in general terms to metropolitan roads. 4.50 The Study Group has had discussions with representations of the Municipal Association of Victoria on various aspects of metropolitan roads, including road finance and traffic management. 22. 5. THE DRAFT TRANSPORT PLAN 1978 5.1 The Draft Transport Plan 1978 was released in three volumes for community discussion in December 1978. 5.2 Volume I described the principal transport issues, the policies that the Government has agreed upon in response to these issues, the strategy for developing the program of works, and a process for updating the Plan. 5.3 Based on the considerations in Volume I, Volume II contains programmes for transport throughout Victoria for the five year period 1978-79 to 1982-83 based on a capital expenditure over the period which was assumed to be 10% higher in real terms than the expenditure that would be achieved by continuing the 1977-78 level of expenditure. It also indicates proposals beyond the five year period. 5,4 Volume III contains supporting data on transport, demographic and other matters relating to transport needs. 5. 5 The Draft Transport Plan says that "the main features of the Governmen~'s metropolitan planning strategy that affect transport are : *To re-affirm the role of the Central Business District as the core of metropolitan Melbourne and Victoria. *To re-vitalize the inner and middle areas. *To encourage urban growth ~ithin Preferred Development Areas of selected corridors based on the major *transport routes and other services, and to maintain as non-urban the "wedges" between corridors. *To encourage increased densities along the main transport routes, *To assist and attract increased papulations to the north and west as far as practicable, and to fare-close options in areas of environmental sensitivity to the east and south". 5.6 The Draft Transport Plan says that "the transport strategy must *Work within realistic funding limits. *Focus on a short to medium term works programme rather than a longer term blue-print. *Place more emphasis on obtaining best use of existing facilities by appropriate modifications. *Be flexible seeking to preserve as many options as possible for future development. *Use stage construction as far as possible. *Include a process for continual monitoring of supply and demand factors, periodic review, and co-ordinated planning and implementation". 23. 5.7 As far as the Metropolitan area is concerned, proposed policies are listed for the Central Business District, the inner areas, the middle areas, and outer areas. For each of these areas, and for the metropolitan area in general, road proposals listed in the Draft Transport Plan include traffic management proposals, road safety proposals, road improvement proposals, and a program of Planning Scheme reservation review. 24. 6, METROPOLITAN GROWTH STRATEGIES 6.1 The 1954 Metropolitan Planning Scheme covered a planning area of 1800 sq.km., and made provision for a population fo 2.5 millions expected by the end of the century. Basically it provided for the maintenance of then current population levels within built-up areas, the maintenance of the Central Business District as the major activity centre supplemented by five District Centres at "key" locations, co-ordinated development of outward growth areas, growth of industrial and other activities to the east and south where the major population growth was occurring, and controlled outward extensions of development into a rural zone which surrounded the defined urban areas. 6.2 In 1967, two reports on the long-term development of the metropolitan area were published. One of the reports concerned "Organisation for Strategic Planning" and was prepared by the Town and Country Planning Board. The other was on "The Future Growth of f~elbourne" and was prepared by the MMBW. This latter report advocated'an extension of the metropolitan area, adoption of the corridor-wedge concept, and encouragement to increased development in the north and west, possibly through satellite towns. The report also discussed the possibility of major re-development within built-up areas as a means of accommodating part of the then anticipated population growth, but pointed out that, even if major re-development were to be pursued, substantial outward urban expansion would still need to occur. The Government generally agreed with the MMBW's views, and in 1968 it expanded the Metropolitan planning area three-fold, approved the Planning Scheme, and adopted the policy of corridors and green wedges for the future development of Melbourne. 6.3 In 1971 the MMBW released a further report on "Planning Policies for the Melbourne Metropolitan Region", together with an Amending Planning Scheme. The proposals included statutory recognition of the corridor-wedge concept, the development of major metropolitan parks, extension of urban areas within the corridors, staged outward development, and permanent non-urban areas, 6,4 In 1974, the MMBW reported to the Government, and recommended an interim strategy providing for outward growth to be continued with a reduced number of corridors, and limited satellite development. Ministerial Statements in 1974 and 1975 supported the MMBW proposals, 25. 6,5 In recent years, the Melbourne and Metropolitan Board of Works has continued its studies into the further growth of Melbourne, In March 1979 the Board released a report titled "The Challenge of Change". The purpose of this report was "to outline Melbourne's recent gro111th characteristics and policy responses to date, to illustrate some implications of expected growth patterns and, within that context, to comment on recent Board investigations into the desirability and feasibility of modifying the city's growth pattern over the next two decades". 6.6 "Challenge of Change" said that : "A new Melbourne has developed since 1945 characterised by the private car and the detached house, and increasing dispersal of employment. There has been a general reduction in population and many activities in much of the terrace-and tram central city and inner and middle suburbs". "Strategic issues are emerging which could be critical if the metropolis continues to disperse. These issues are energy management, capital shortage, structural unemployment, and concern for the environment". "Planned change to urban structure, the general arrangement of land uses, and associated movement patterns 1s ••••·•··•·•••••••••• a complex and long term process when re-development is involved", "Recent research indicates that the general intent should now be towards achieving the goal of a more contained city. This will reduce the current and potential problems associated with the dispersed city". 6.7 Following release of "Challenge of Change" and community responses ot it, the Melbourne and Metropolitan Board of l-Jorks released a report on "Alternative Strategies for Metropolitan Melbourne" in October 1979 and "Alternative Strategies for Metropolitan Melbourne-Background Papers" in November 1979. The October 1979 report examined the implications of four basic development alternatives for Melbourne, namely : *Dispersing Growth - this alternative is basically a continuation of the dispersal of population and activities, It would entail the accelerated development of land in defined corridors. Population levels in inner and middle suburbs would be likely to continue to reduce. *Centralised Growth - this alternative would give relative emphasis to the Central Business District as the focus of commercial activity rather than the further growth of centres in suburban areas, and to the use of radial public transport networks rather than the provisions of major road improvements in suburban areas. 26. 0 t. Con t: i :>'led ) •Suburbanised Growth - this alternati~e would encourage the location of activities at selected centres ser~ice~ b~ fixed rail transport and surrounded bv intensive housing development. *Incremental Growth - this alternative would maintai" a vital Central Business District and provide for some r~-de~elopment of the inner suburbs, with controlled development in middle and outer suburbs, and allowing higher densities along fixed rail routes and development in areas already well serviced. 6.8 The report did not express a preference for any one alternati~e, but said that it was "intended to provoke discussion of the path which Melbourne should follow in its development as a preliminary to the eventual selection of an appropriate development strategy". 6.9 In July 1980 the Melbourne and Metropolitan Board of vJorks released a further report on "r"letropolitan Stretagy". This report recommended that the concept of Incremental Growth be adopted as the growth strategy most appropriate for Melbourne, The report identified five key policy areas, namely housing, transport, employment, community services and activity centres, and set out draft objectives for each of them. 6.10 The report said that : "The Board, •.Jhilst accepting that the car will still be a major mode of travel in Melbourne, believes that a balanced approach for both public and private transport, through overall transport management, is essential". "This will be apparent as innovative transport systems emerge. Fuel price increases will lead to more fuel efficient cars and a desire for high quality roads to improve traffic flow. Road congestion will need to be minimized to cut fuel wastage, air pollution and inconvenience. It is essential that there be an effective transport system to ensure the efficient functioning of the urban area equating ~ith the incremental growth strategy. Traffic management can assist in this regard. Ho~ever, some further road improvements will be necessary to maintain or where appropriate, enhance accessibility. In this respect, improvements in circumferential transport within inner and middle suburbs should be implemented before further fr.inge radial routes are constructed." 6.11 The report also said : "Many ~ill see considerable threats to residential amenity, particularly from measures which include maintaining the accessibility of Central Melbourne on the facilitating of activity centres. The Board believes this can be lessened by its initiatives in further developing the hierarchy of roads and metropolitan parking concepts". 27. 6.12 The report indicated that the next step would be to "release an amendment to the Metropolitan Planning Scheme incorporating objectives and a report for public comment", 6.13 The outcome of these types of considerations are very significant with regard to future transport strategies, which should be evolved within the context, and in support, of any adopted land use strategy, 6.14 The efficacy of such planning proposals in the light of the apparent ease with which developers can subdivide in the outer fringe areas, and the rapid increases in house prices in a limited house availability situation in the inner suburbs of Melbourne, may be indications that there will be little change in the foreseeable future of the trends of the past 10 years. 6.15 In view of the amount of land already zoned for residential development in the outer suburbs, and because the prices of houses and land in the inner suburbs now exceed those of the middle distance and outer suburbs, in a general sense, the Study Group is led to the conclusion, in considering the long term needs for transport that the trends of the last 10 years are unlikely to be significantly reversed in the foreseeable future. 6.16 As a result of study of the many submissions and discussions on the subject of the future Melbourne, the Study Group can only comment that the main features of metropolitan planning strategy appear to merely follow the planning concepts of the previous 20 years, with undue concentration on the Central Business District, and a considerable degree of academic or wishful thinking about the characteristics of the Central Business District and associated transport activities, The personal transport requirements of the people and the movement of goods and freight throughout the whole of the Melbourne metropolitan area on roads exceed the transport requirements relating to the shopping and office activities of the Central Business District by a factor of at least 20 to 1. 6.17 The fixed rail public transport systems radiating from the Central Business District now carry less people than when the population of the whole metropolitan area was only one million people. Indeed the total patronage directly served by the fixed rail transport systems has changed little in the intervening period, but the people travellin by public transport now basically originate in the middle di ance and outer suburbs. 28. 6.18 Traffic in, and to and from, the Central Business District has thus become of less relative significance except for the very sharp peak travel requirements associated basically With office \J/Orkers, although it has been reported to the Study Group that travel in the inner suburbs across but not to the Central Business District is still increasing. Other Business Districts of significant size and importance are rapidly evolving in varous parts of the metropolitan area. 29. 7. FUTURE ROAD TRAVEL 7.1 Future road travel in the Melbourne metropolitan area will depend on a number of factors such as future population growth, the nature and extent of future land use development patterns and the location of jobst housing and other activitiest the extent of use of public transportt and the future availability and cost of fuel. 7.2 Melbourne's population is now 2.7 milliont and is expected to rise to over 3.0 million by the early 1990's (Figure 4). 7.3 As indicated earlier, the Melbourne and Metropolitan Board of Works is carrying out continuing studies pf growth and desirable future development of Melbourne. Howevert current trends are for continued outward growth and continued dispersal of population and activities. Bearing in mind the current land use zonings and the current economic conditionst it would be quite unrealistic to expect other than a continuation of current land use trends at least in the short term. In any case, work reported by the Melbourne and Metropolitan Board of Works in its report on "Some Transport Implications of Containment" suggests that at the year 2000 the two extreme limits of future land use development (i.e. dispersal following current trends at the one extreme and a concentrated city at the other) would result in a difference of only about 5 % in the total vehicle kilometres of travel in the metropolitan area. 7.4 The Study Group has examined the question of the future availability and price of fuel for transport in some detailt and has prepared a separate report on this topict titled "Fuel for Transport". This separate report says that as far as Victoria is concerned "it can be expected thatt even though the price of fuel will increase perhaps quite significantly over the next 10 to 15 yearst the resulting effects will to some extent be compensated for by fuel conservation practices. In the longer termt alternative fuels and/or alternative energy systems will cater for a larger proportion of road traffic. At this timet there is no evidence to suggest that road transportt as we now know it, vill not continue to increase well into the futuret although the rate of increase might not be as great ~s in the past, principally due to economic factors, to reduced papulation growth rates and to same stabilisatian of annual vehicle kilometres of travel". 7.5 Figure 4 shows trends in the papulation of the l~elbourne metropolitan area and in motor vehicle registrations. 3.0 ~····'""'$1/t'i.i'S~~~··*] LJ.J z 0::: :::J 0 CD u:: 2.0 I.N :r;: 0 V>z 0 _j _j 600 cL ;§ 0 --- 1-=--- a.. z 0 ------500 ~ 1------r- ~~ 0 0 1960 1970 1980 1990 2000 Estimated range of future population FIGURE 4 TRENDS IN POPULATION AND VEHICLE OWNERSHIP 31. 7.6 Figure 5 shows the trends in the person trips per day by motor vehicle and by public tranaport since 1964, with estimates for the next 20 years, and Figure 6 shows trends in train, tram and bus patronage. While acknowledging that the longer term is very difficult to predict because of all the inherent uncertainties, it seems clear that: *At least in the short term there is no reason to expect any significant increases in train patronage. At the best, a halting of the current downward trend or even a slight increase would seem all that could be expected, *At least in the short term, it is possible that tram and tramway bus patronage could remain steady or even slightly increase but there is no reason to expect a substantial increase, *A massive swing to public transport would be necessary if future road travel were to be held at present levels, For instance, in 20 years time over 30% of the total trips would have to be by public transport, compared with about 15% at the present time. In other words, public transport patronage would have to more than dnuble in the period. At this time, there is 'no reason to expect this to happen. 7,7 Estimates of future travel in Melbourne can be arrived at as follows : *From Figures 4 and 5, trips by motor vehicle could be expected to be about 20% greater than at present by 1990 and close to 30% greater than at present by 2000. *Work reported by the Melbourne and Metropolitan Board of ~~orks in its report on "Some Transport Implications of Containment" suggests that the total vehicle kilometres of travel by the year 2000 could be between 75 and 80% greater than that in 1978 depending on the future pattern of land use. *In its submission, the Country Roads Board says that "allowing for a marked increase in petrol prices, it is estimated lhat the vehicle kilometres of travel on Melbourne's road network vill increase by 40% by the end of the century". *Other estimates of anticipated future traffic volumes are published in the results of major planning studies. For example, the Gardiners Creek Valley Study Steering Committee estimated that, if there were to be no change in the existing road system between the Mulgrave and South Eastern Freeways, traffic in that corridor could grow by about 40% between 1976 and 1991. Furthermore,in the Outer Ring (Diamond Creek to Ringwood) Study, the Road Planning Liaison Committee estimated that by the year 2000 vehicle kilometres of travel in the study area could increase by between 40 and 66% depending on the form of future land use development and the price of fuel. 3.0 ;------~~~~~~~~~~~~ ···:~:::=::w:::%ffitt=?f!f@)Ji}lfti!i~!iii!i!!ii!~{!!iiJ!{!}!} - ..-·~·· -- -;~:::zz::::mm~~n~=~=m~~&~f~~~\~~ITiB~~-1~18\j~~ ;;: 2.0 /""" Cl 0::: LJ..J a... N"" V>a... 0::: I- z: 0 V> 0::: :5: 1.0 ------~ . ._-•••• t 1 .. :;:"+' '' • .;:·.·.·.·.·.·.~:f.;.•.·•;•;;;:::~!;:;:;:;:::::;:;:;:;:i:;~:~:~:;:;:~:~=~~~ili=:::: 0 1960 1970 1980 1990 2000 ~ lliiliiliJ Estimated range of future person trips per day FIGURE 5 TRENDS IN PERSON TRIPS PER DAY 400 350 300 c::: 0 1920 1930 1940 1950 1960 1970 1980 1990 2000 Estimated range of future trips per year FIGURE 6 TRENDS IN PUBLIC TRANSPORT PATRONAGE 34. 7.8 Even though there are seve~al uncertainties about the future, all the indications at the present time are that road travel will continue to increase, and that by the year 2000 the total road travel in metropolitan Melbourne could be of the order of 30 to 40% greater than at present. 7.9 This estimated growth of travel means a flat average rate of growth of 1~ to 2% per annum over the next 20 years - a figure considerably less ~nan the current growth rate, which has been nearer to 4% per annum in recent years. It is considered realistic in view of the fact that the people who will be making the travel decisions have already been born, and are growing up in an environment dominated by transport and movement, rather than containment and settlement. 7.10 Actual traffic growth could be somewhat less than, or significantly greater than, the estimated 30 to 40% by the year 2000, depending on future circumstances, Hence it will be necessary to continually monitor future conditions and trends, and for planning to be flexible, and capable of future updating and modification as circumstances change, 35. 8. EXISTING ROAD SYSTEM NEEDS AND CONCERNS 8.1 The Study Group was advised that road needs can be identified by measuring performance against selected criteria, such as spacing, physical bottlenecks, availability of adequate public transport, the relation between actual traffic volume and road capacity, and travel times. 8.2 In addition, several of the submissions to the Study have indicated people's perception of needs, which include *Heavy congestion at various points throughout the metropolitan area at certain times of the day. *Lack of adequate bypasses around the Central Business District, and other areas of concentration of people and work activities. *Problems at the ends of freeways, particularly at the end close to the Central Business District at peak periods. *Inadequate provision for truck traffic from the Port and areas of concentration of work. *Bottlenecks and/or discontinuities at some intersections, at rail road level crossings, and at narrow sections of arterial roads, *Lack of river crossings over the Yarra and Maribynong Rivers, and to a lesser extent over the Merri and Gardiners Creeks. *Inadequate continuous circumferential arterials in the middle suburbs. *Inadequate bypass arterials around the metropolitan area. 8.3 These deficiencies, which result in inefficient and more costly travel, increasing traffic noise, air pollution, safety hazards, and increasing diversion of through traffic to local areas and interference with local traffic movement, might be tolerated for some time if traffic volumes were likely to remain static or to decline in the future. Indeed, serious suggestions were made to the Study that traffic congestion could be used as a means of traffic management, and in particular for controlling access to the Central Business District, and other areas considered to be sensitive to motor car traffic. 8,4 Some inner suburban City Councils have instituted street closures with the object of discouraging traffic from entering parts of their municipality. However, as indicated earlier, it is likely that traffic in the metropolitan area will continue to increase, and if attempts are made to limit access of motor verocles to central areas, business activities in these areas are likely to be adversely affected. 36. 8.5 Several other concerns relating to metropolitan roads have been mentioned in submissions to the Study, and/or in discussions between interested parties and the Study Group, These include : *The wisdom of planning for continued use of the motor car in an uncertain energy future, *The problems of trucks in urban areas, as well as in freight generation centres, *Concerns for the environmental amenity of the urban area and in particular of residential areas. *The complexity of planning procedures and decision making. 8.6 As earlier mentioned, the Study Group has examined the question of the future availability and price of fuel for transport, and the likely implications for future travel, in some detail. The position is summed up in paragraph 7.4 of this report, 8,7 Truck traffic in urban areas is of real concern because of the effects of congestion and delay on the cost of transport, and because of its adverse environmental effects in suburban centres and in residential areas, 8.8 The main problem is that freight movements within the metropolitan area have a multiplicity of scattered origins and destinations throughout the whole area, demanding flexibility in the transport system, and as a consequence virtually all metropolitan freight deliveries are by road. Even so, there would seem to be scope for better co-ordination and consolidation of at least some of the freight movements, possibly involving the establishment of relatively small freight collection and distribution centres at key locations in the metropolitan area, and perhaps some form of computer matching. There may be a case to designate certain routes as advisory truck routes as has been done through South Melbourne and St. Kilda, but on a metropolitan scale, This type of designation should be done within the framework of an agreed road hierarchy (see paragraphs 11,4 to 11.9), 8.9 A major difficulty that the Study Group encountered in examining freight movement in the metropolitan area is the lack of up-to-date factual data. The last comprehensive survey of freight movement in the metropolitan area was in 1964, Since then, the metropolitan area has grown considerably in population and area, and the freight task has no doubt increased to a much greater extent in both magnitude and complexity, In view of this, and because of the apparently fairly wide spread concern about the problem, the Study Group considers there is a good case to undertake a detailed survey and analysis of freight movement in the metropolitan area, with a view to arriving at practical proposals for alleviating the present problems. Because of the nature and complexity of the problem, magical solutions are not likely to be found, although any improvement could be worthwhile. 37. 8.10 Environmental problems, including noise, air pollution, intrusion of traffic into local areas, hazard, and so on are of continuing concern. 8.11 The nature of the existing metropolitan road system, and traffic volumes on it, are such that in the short term there is not much scope for significant improvement of the urban environment. 8.12 In the medium to longer term there is scope for ~orth~hile improvement of the environment by means such as : *Adoption of a hierarchy of roads, and the application of traffic management techniques to it, to ensure minimum cost transport ~ithin the metropolitan area, and at the same time providing a measure of protection to local areas from the effects of through traffic (this measure has been implemented in some areas already, and it could be extended to other areas reasonably quickly). *Changes in ~ehicle design, including emission and noise controls. In the longer term, use of electric vehicles could have a ~orth~hile environmental effect, as ~ell as economic benefits. *Construction of ne~ facilities with provision for noise amelioration, landscaping, etc. Construction of new facilities can result in significant benefits in local areas by diversion of through traffic from them to the facility. 8.13 No~adays planning procedures and decision making are complex and time consuming. The requirement to adequately consider all proposals, to have regard for planning, environ- ment and other factors, to involve the community in the development of proposals and to satisfy statutory requirements is accepted.' Ho~ever, the Study Group has noted that, at least in some cases, the procedures can be used to th~art their intent. This, and apparently unnecessarily long decision making, can be very costly and time consuming, and adds to community concern and uncertainity. 38. 9. CURRENT TECHNIQUES FOR DEVELOPING ROADS 9.1 The Country Roads Board's submission indicates that the total funds currently available for metropolitan roads from State and Commonwealth sources is of the order of $75 million per annum. There is also additional expenditure by municipal Councils but this figure is not readily available without a complete survey of all the municipalities. 9.2 There is a continuing need for expenditure on maintenance to protect the existing public investment in the metropolitan road system, and to avoid the need for more expensive re-construction at regular intervals. Other expenditure, considered desirable, or already committed, to ensure maximum utilization of the existing road system, and to cater for future requirements, is involved in overcoming identified deficiencies and improving .the urban road system • 9.3 Accordingly, comments on works necessary to maintain and develop the road system can be considered within the following categories *Maintenance. *Traffic management. *Protection of future options. *Construction of new works. 39. 10. MAINTENANCE 10.1 According to the Country Roads Board and a number of City and Shire Engineers maintenance of the existing road system should always be of first priority insofar as expenditure is concerned, 10.2 Maintenance comprises the following elements : *Routine maintenance, includes pavement patching, attention to drainage, guide posts, guard fence, signs, markings, lighting, the roadside and landscaping. *Resurfacing, includes sprayed surface seals and minor asphalt overlays when cracking or oxidation becomes significant or to correct surface shape, or to improve skid resistance. *Rehabilitation, which includes reconstruction, re-sheeting and major patching. 10.3 The Country Roads Board has advised that, at the present time, the annual expenditure on maintenance (as defined above) on the declared road system in the metropolitan area is of the order of $16 million. There is likely to be an increasing need for additional maintenance expenditure in future years as the road system extends and as traffic volumes increase. Funds for maintenance should at least keep pace with inflation in view of the relative labour intensive nature of the activity. 10,4 There is additional expenditure on the maintenance of unclassified roads, but this figure is not readily available. 40. 11. TRAFFIC MANAGEMENT 11.1 A relatively low cost method of providing increased road capacity and improved traffic flow within existing road reserves is by the application of traffic management techniques. These techniques include : *The linking of traffic signals to give progressive traffic flow on a route and/or area wide basis, *The improvement of intersections by channelisation, roundabouts, flaring, turn lanes and/or turn prohibitions and use of appropriate controls (traffic signals or signs and markings). *One way streets. *Priority routes, truck routes,and the like. *Reversible lanes, *Parking prohibitions and/or the installation of clearways, *Review of pedestrian crossing treatments. *Lane marking. *Signing. *Control of loading zones and bus stops. 11.2 All of these techniques are well known, and are proven means of improving traffic flow. For maximum effect all of these techniques should be applied in a systematic and comprehensive fashion along selected arterials, and/or on an area wide basis. Most of the techniques are relatively low cost, and can be implemented relatively quickly. 11.3 However, it appears that there is a limit to what can be achieved by application of these techniques. While their application will usually give some immediate benefit in the form of improved flow and reduced congestion, normal traffic growth often could be expected to negate the beneficial effects, particularly in peak periods in congested areas, within a relatively short time. The real benefits of many traffic management measures usually are noticed in off-peak periods - which after-all may be 20 hours or so of the day, Development of a R~ad Hierarchy 11.4 A number of the submissions to the Study Group explained that to effectively apply traffic management techniques in an urban area, it is most desirable to develop and agree a road hierarchy or road classification system for all roads in the area. The basic principle is to ensure that each road is able to serve its proper function - firstly, by having sufficient capacity and directness in the arterial road network so that all traffic can be adequately and efficiently accommodated, 41. 11.4 (Continued) and secondly by introducing a sufficient degree of restriction in the local street system to make it unattractive to through traffic and hence to protect the amenity of local areas. 11.5 The Study Group is aware of the Hierarchy of Roads Study initiated by the Melbourne and Metropolitan Board of Works. In view of the advantages that could flQW from a plan or network agreed on a metropolitan area basis, and with local Government, the Study Group believes that every effort should be made to reach agreement on, and finalize, these proposals as quickly as possible. Then, traffic management techniques should be applied to reinforce the adopted classification, 11.6 Most of the submissions referrinq to this matter, and those with whom the Study Group had~tliscussions, agreed with the concept of a hierarchy of roads, and to the proposals generally, except for some relatively minor variations which would need to be the subject of negotations. 11.7 The Study Group's attention has been drawn to a number of apparently indiscriminate road closures and other forms of traffic restriction on certain roads implemented by municipal Councils. While appreciating that these measures have been implemented to protect the amenity of local areas, the Study Group is also conscious of the need to provide for an adequate standard of mobility in the metropolitan area, Road closures and other forms of traffic restriction should be applied within, and in accordance with, an overall road hierarchy plan. 11.8 The Study Group notes there is nothing new in the concept of restricting the movement of traffic on certain streets. Examples of the use of traffic engineering techniques can be found from the earliest times, For example, clearways in Assyria, one-way streets in Pompeii, and Julius Caesers prohibition of carts in cities during the day time, 11.9 The Study Group notes that solutions that may appear to be effective in say reducing accidents in one local area could well compound similar problems in adjoining areas. The Group's attention was also drawn to exampl~s of local Councils desiring solutions to particular problems within their municipality, but requiring the solutions be found in areas outside their direct central. 42. 11.10 Several of the submissions received referred to the desirability of ptoviding priority for road based public transport. The Study Group believes that the aim should be to efficiently move persons and freight, and that, as a basic principle, priority should only be given to public transport when it can be shown that the overall movement of persons and freight will be improved, For example, the aim should be to minimize delays and to minimize travel time. The demand for automatic priority for public transport put forward by some of those who made submissions cannot be accepted, Ease ease must be considered on its merits in the context of the overall movement of persons and freight. Linking of Traffic Signals 11.11 The Study Group was advised that traffic flow along an arterial road can be significantly improved if the traffic signals at intersections along it are linked (or co-ordinated) so that a platoon of vehicles passing through the green phase at the first intersection will, if they travel at the appropriate speed, arrive at successive intersections during their green phases. 11.12 It is understood to be a relatively simple matter to link the traffic signals along any given arterial road to provide for progressive traffic flow in one direction (normally the direction of peak flow)along it. Whether or not progressive flow in both directions is possible will depend on the spacing of adjacent intersections, signal cycle times and the desired speed of progression. In certain circumstances, it is possible to extend the linking of traffic signals to provide co-ordinated flow along several arterials, or even on an area-wide basis, The extent to which effective co-ordination can be achieved on all roads over an area no doubt depends on factors such as the spacing of roads and intersections along them, traffic flows, etc. 11.13 The Study Group was also advised that varying degrees of signal co-ordination are possible. The simplest system is to link signals along an arterial on a fixed time basis. With this system, the signals operate at a pre-determined pattern, irrespective of changing flow patterns. The next level of complexity is to link signals on a fixed time basis, but to vary the signal settings at a few predetermined times during the day to better accommodate changing traffic patterns. The most sophisticated system of linking signals is to use a fully dynamic system, in which each traffic signal controller is linked to a computer, which receives input from detectors in the road pavement on the approaehes to intersections, so that signal settings can vary continually in response to variations or changes in traffic demand. 43. 11.14 Linked traffic signals improve traffic flow, reduce delays, reduce fuel consumption, and reduce air pollution and accidents. 11.15 While an area-wide computer controlled co-ordinated signal system will apparently produce maximum benefit, significant (and not much lesser)benefits can accrue from simple fixed time linking along selected arterials, at a much lesser cost (of installation and of maintenance), 11.16 The Road Safety and Traffic Authority, the Country Roads Board and the Melbourne City Council have all referred to the desirability of implementing a computer-based system of traffic signal co-ordination. Such a system has recently been supported by the Conservation of Energy Resources Committee of the Parliament of Victoria in its report on Traffic Management. The Study Group also supports this concept, and considers that concerted action should be taken to implement it. 11.17 However, the extent of the area selected for computer control, and the possible staged implementation of the scheme, should be carefully reviewed to ensure that a major committment is not made to equipment that could become obsolete in a relatively short time, in view of the rapidly advancing technology in this area, Expenditure on Traffic Manacement 11.18 The Study Group has been advised that the current expenditure on traffic management in the metropolitan area is about $5 million per annum. Implementation of a computer based system of traffic signal control, generally within selected areas ~ithin about 15 km from the Central Business District, and on other selected arterials, could add an additional cost of up to $15 million over a 5 year period. Thus, if such a scheme were to proceed, the total expenditure on traffic management could amount to about $8 million per annum over the next 5 year. 11.19 The Study Group is of the opinion that an expenditure of the order of $15 million on computerized traffic signal control should be incurred only after very detailed consideration of the possible benefits of the system, and that implementation of any such system should proceed on a step by step basis, initially along selected arterials and in selected small areas, It is easy in 1980 to suggest a large scale computer solution to traffic problems, but it is necessary te take account of all the possible alternatives, and to proceed in stages to ensure that any proposals that are implemented are cost effective, 44. 12. PROTECTION OF FUTURE OPTIONS 12.1 For many years it has been the practice of the Melbourne and Metropolitan Board of Works to include reservations in the Metropolitan Planning Scheme for future road proposals. Financial responsibility for these reservations, in accordance with the statutory provisions, has been accepted in some cases by the Melbourne and Metropolitan Board of Works, and in some somes by the Country Roads Board. 12.2 This practice has sometimes been criticised, and there have been suggestions that a time limit of, say 20 years should be fixed, after which any such reservations should lapse, 12.3 The Study Group was advised that Planning Scheme road reservations are subject to continual review and, that as conditions change, reservations are sometimes amended or deleted from the Planning Scheme, The Study Group commends this practice, but believes that in certain cases it may be appropriate to retain reservations for longer periods than 20 years, particularly where major developments might be involved, even though their implementation may be many years away as a result of financial or other considerations, 12.4 In areas that are now substantially undeveloped but in which development may occur in the relatively near future, protection of land for future public purposes must be good planning practice, Protecting the land while it is still undeveloped, avoids significant community disruption and much higher costs at the implementation stage, Also, by having the future land requirements defined, adjacent development can take place in full knowledge of future requirements and can be properly integrated with them. This no doubt applies particularly to future road requirements in the outer suburbs, such as for example the Outer Ring Road, and in connection with reservations to provide for the widening of arterial roads, 12.5 Good examples include the recent widening of Hoddle Street,Collingwood, and High Street, St. Kilda, the widening of Nepean Highway, Elsternwick to Moorabbin now being implemented, and reservations for the future widening of Punt Road and Bridge Road. The Study Group was advised that reservations relatinq to these projects have existed for over twent~ years and that Tittle or no objection has been raised to their development. A new proposal to widen these roads in 1980 could have proved unacceptable to the community. 45. 12.6 It is recognised that new reservations should only be added to Planning Schemes after careful consideration and proper investigation of the need for them. This does not imply that existing reservations in substantially built-up areas should now be removed, In the case of the reservations that have existed for many years in the Melbourne Metropolitan Planning Scheme, some compensation will already have been paid, and new developments should have taken place in full knowledge of the reservations. If such reservations were removed now, it would be extremely difficult to reinstate them later if they were found to be required. 12.7 The recent Committee of Inquiry into Town Planning Compensation also gave consideration to this matter. In its report, the Committee has stated : "As to the problem of longstanding reservations in planning schemes, the Committee has come to the view that it is undesirable to fix a maximum time to operate in all circumstances. It will be difficult to find any meaningful time limit and any adopted would have to be hedged about with so many qualifications and provisos as to result in complexity without any real usefulness". 12.8 The Study Group considers that the present practice of reserving land for future options, and the continual process of reviewing these reservations should continue. 12.9 It is understood that the current cost of protecting reservations that will not be required for road purposes for at lease ten years is of the order of $4 million per annum. 46. 13. CONSTRUCTION OF NEW WORKS 13.1 The Study Group has been advised that of the total of about $75 million per annum currently available for metropolitan road improvements, up to about $28 million per annum could be required in the short term for maintenance, traffic management and protection of future options. As a result, only about $47 million per annum is currently available for the construction of new works (if current expenditure levels are maintained), 13.2 Major projects currently under construction in the metropolitan area include : *West Gate Freeway - extension from Graham Street (Port Melbourne)to Kingsway, with an arterial road extension to St. Kilda Road. *Eastern Freeway - arterial road extension from Thomsons Road to Doncaster Road, *Nepean Highway - widening from Elsternwick to Moorabbin. *Calder Freeway - bypass of Keilor. *Princess Freeway - bypass of Berwick *Mulgrave Freeway - extension to Warrigal Road, *Doncaster Road - duplication between Koonung Creek and Elgar Road. *Bell Street - widening between James Street and O'Keefe Street, *Intersection improvements on the western approaches to West Gate Bridge. *Ashley Street, Tottenham - Railroad grade separation. *Stud Road - continuation of duplication north of Mulgrave Freeway. *Dandenong-Frankston Road - continuation of duplication. *Canterbury Road - continuation of duplication. *and several other generally smaller projects. 13.3 At the current rate of expenditure on the construction of new road works, and assuming no change in the availability of funds, the Study Group has been advised that these particular projects will absorb all the funds available for new construction over the next 3 to 4 years or so. The rate of inflation and increasing co~ts of consf~uction will determine the actual dates at which these works will be completed. 47. 13.4 On the other hand, assuming an increase of 10% per annum in the availability of funds for road construction a number of projects were listed in the draft Transport Plan for completion or commencement during the period 1978/79 to 1982/83. The Study Group was advised that planning, design and other pre-construction activities for most of these projects are well advanced, and in several cases there is community expectation of construction commencing within a few years. These projects include : *The link between the Mulgrave and South Eastern Freeways. *Princes Highway - reconstruction of the Caulfield to Malvern section, *Outer Ring - Heidelberg Kinglake Road to Dalton Road and an arterial link to Greensborough Road. *Maroondah Highway - reconstruction and deviation at Lilydale. 13.5 Other proposals, for which planning is well in hand, and which the Study Group has been advised are considered to be of relatively high priority include *Punt Road - widening Bridge Road to Alexandra Avenue. *Bridge Road - widening Punt Road to Church Street. *Western Highway - widening Princes Highway to Ashley Street. *Calder Highway - Keilor to Diggers Rest and Diggers Rest by pass. *Bell Street - Banksia Street connection. *Route E6 - (Eastern Freeway to High Street and/or i'arp Road). *Route E7 - (to bypass existing bottlenecks on Springvale road. 13.6 The Study Group was advised that if these two groups of projects, which are essentially to eliminate existing bottlenecks, proceed they are likely to absorb funds of the order of $50 million per annum over a further period of 5 years (i.e. until close to the end of the 1980's). 13.7 A number of other projects which have been mentioned in submissions to the Study as being urgently required, including : *Extension of Tullamarine Freeway southerly from Flemington Bridge to Footscray Road and ultimately to West Gate Freeway. *A connection between the West Gate Freeway in South Melbourne and the South Eastern Freeway in Richmond. *Parts of the Outer Ring, 48. 13.7 (Continued) are thus likely to be constrained through lack of avaiability of funds, unless there is a substantial change in policy by both Commonwealth and State Governments as to the funding for road developments in the metropolitan area. 13.8 For example, the Study Group has been advised that these three projects alone would involve several hundreds of millions of dollars (depending on how much of the Outer Ring is included), They, and all the projects listed earlier, would absorb all the available funds (at the current rate of annual expenditure) up to and beyond the mid-1990's, even if no other projects were started. 13.9 However, in fact there are many other projects, some major and some lesser, including road widenings, new road connections, improvements of intersections, extension of duplication, rail-road grade separations and the like that would be essential within this sort of time span. 13.10 Thus, it is clear that, uneess there is a substantial increase in urban road funding, many relatively high priority major projects will not even be started within the next decade, 13.11 The Study Group strongly supports recommendations for the allocation of additional funds for road construction. However, it believes that the priorities afforded particular projects already approved and in the advanced planning stage should be kept continually under review, to ensure that funds available are spent to achieve maximum benefit. In this regard,in some cases the earlier completion of widening projects and freight roads, including particular bottlenecks, instead of more costly freeway projects, could well result in earlier and greater overall benefit to the maximum number of people. 13.12 The Country Roads Board has assured the Study Group that priorities are continually under review, notwithstanding that because of environmental and financial considerations, and the planning and consultative procedures that must now be followed, the lapsed time between conception and completion of a major road project may now be a minimum of 10 to 12 years if construction follows on immediately after planning and design. If construction does not follow on immediately, i.e.if the outcome of the planning phase is simply to proteet a reservation to keep open future options, the lapsed time can be 20 years or even more. 49. 14. FUTURE NEEDS AND DEVELOPMENT PROPOSALS 14.1 It has been indicated earlier that by the year 2000 i.e. 20 years hence, the total road travel in metropolitan Melbourne is likely to be of the order of 30 to 40% greater than at present. This increase in travel ~ill be reflected over the ~hole of the metropolitan area, although it will be more pronounced in the developing outer areas rather than in the inner suburbs. 14.2 It has also been indicated that, unless there is a substantial increase in urban road funds,a large number of major projects now considered desirable(and in some cases, urgent,) to overcome existing deficiencies will not be able to be undertaken for many years. 14.3 Under such conditions, current problems could be compounded in future years, ~ith the effects of congestion being felt over an increasingly wider area for more hours of the day. 14.4 In the short term, the application of traffic management techniques, including implementation of computer based systems of traffic si9nal co-ordination along selected arterials and in appropriate areas is expected to result in some worthwhile improvement, as a means of both improving traffic flo~ on arterials and of preserving local areas from the effects of through traffic. However, there is a limit to what can be achieved by traffic management. Particularly on arterials in peak periods the short term benefits may to some extent be offset by the effects of normal traffic growth within relatively short periods, although of course, conditions would still be better than if traffic management had not been applied at all. Off-peak period benefits, and the benefits of protecting local areas, could be of a longer term nature. 14.5 Several of those who have made submissions to, or have had discussions with the Study Group have been concerned about the future of the Central Business District and the nature of accessibility to it, 14,6 One fairly common view is that the motor car should be discouraged from the inner suburbs and that access to them and to the Central Business District should be predominantly by public transport. 50. 14.7 This view is already manifesting itself in specific action by the Melbourne City Council and adjacent Councils to actively discourage motor transport, in the inner areas by the control of parking, by street closures, and by controls on development, with the principal objective of encouraging people to use public transport by making it difficult to use private transport. These types of pressures are compounded by pressures from socially concerned groups who see the motor car as destroying the environmental amenity of their areas. 14.8 However, as Professor Leyton said in a paper presented at a seminar on the marketing of public transport held in Melbourne in March, 1976 : "Thus, there are demands to ban the car from the CBD, to raise parkin fees to very high levels, to govern speeds, to es blish bus only traffic lanes, to raise the level of registration fees, etc. It is worth noting that this indeed has often been tried with very little alleviation of the traffic pattern or increase in market share. Finally, as we have seen, the market place itself demands higher and higher levels of individually determined access". 14.9 Statistics made available to the Study Group shows that *Much of the traffic in the inner suburbs and in the Central Business District is simply passing through the area, and that because of its scattered origins and destinations it could not be catered for by public transport. *Much of the truck traffic in the inner suburbs and in the Central Business District is servicing those areas i.e., it has either origin, or destination, or both within the area. *The Central Business District is being avoided for shopping purposes, particularly by the people of the "new" 1'1elbourne, who are more than adequately served by the large shopping complexes in the outer areas. 14.10 Others consider that good access in the inner suburbs and the Central Business District by public transport should be complemented by a system of high capacity bypasses around the Central Business District to remove through traffic from it and from the adjacent inner suburbs, while still providing good access to the inner areas. They see this as necessary if the Central Business District is to retain and perhaps strengthen its role as the focal point for metropolitan Melbourne. They also see it as a means of re moving through traffic from the streets of the Central Business District and inner suburbs, and hence of improving the environmental amenity of the area. 51. 14.11 Proposals that have been put forward to provide these inner area bypasses include : *The extension of Tullamarine Freeway southerly from Flemington Bridge to Footscray Road and ultimately to the West Gate Freeway, *The extension of the West Gate Freeway from South Melbourne via a tunn~l under the Domain to join with the South Eastern Freeway. *The widening of Punt Road. 14.12 The need for a northern bypass has been raised, although no specific proposals have been put forward, However, the Melbourne City Council's submission said that the Brunswick Road-Park Street corridor should not be used, 14.13 The Study Group supports the concept of inner area bypasses, generally as outlined above. In this regard, the Group : *Recognises the high cost of the projects involved, and that at current funding levels, construction of these projects, may not be possible until about the 1990's, at the earliest, unless special funding arrangements are made, *Understands that preliminary planning and investigations for the extension of the Tullamarine Freeway southerly from Flemington Bridge, and for the widening of Punt Road are proceeding, and that these investigations are considering possible lower cost staged development of the proposals. *Is aware that the Melbourne and South Melbourne City Councils and the Country Roads Board are jointly examining traffic management measures that could be implemented in the corridor between the West Gate Freeway in South Melbourne and the South Eastern Freeway. *Is aware that the Planning Scheme reservation for a future road across the Domain has recently been deleted. *Believes that traffic management measures on the roads between the West Gate and South Eastern Freeways will have only limited benefits, and that in the longer term a high standard connection may be the only effective means of over coming the problems that otherwise will occur. 52. 14.14 The Study Group has been advised in some detail of recent and current planning inv-estigations in the metropolitan area, including : *The Outer Ring Road from the junction of the West Gate Freeway and the Princes Highway West at Brooklyn northerly and easterly to the Hume Highway and to Diamond Creek. *The development of Paramount Road and Ashley Street between the West Gate Freeway and the Western Highway, including the upgrading of the Tottenham rail underpass which is currently in hand. *The southern extension of Tullamarine Freeway to Footscray Road and to West Gate Freeway. *Traffic management studies in and south of the present Tullamarine Freeway terminal at Flemington Bridge, *The traffic management study between the Westgate and South Eastern Freeways. *The widening of Punt Road between Bridge Road and St, Kilda junction, *The widening of Bridge Road between Punt Road and Church Street. *Route E6 between the Eastern Freeway and High Street. *The link between the South Eastern Freeway and the Mulgrave Freeway. *The Outer Ring Road between Diamond Creek and Ringwood. *The Bell Street-Banksia Street connection, 14.15 The Study Group has been assured that, as appropriate, these investigations include consideration of lower cost stage development of the proposals (i,e. the initial provision of lower cost development that ultimately can be upgraded as traffic increases). The Study Group has also been assured that careful consideration is also given to priorities, and that these are regularly reviewed to allow for changing circumstances. 14.16 The Study Group considers that in due course there should be an investigation of a future connection between the l·Jest Gate and SCJuth Eastern Freeways. Among other things· this investigat~on should examine all 'a.]ternatives, and include the feasibility,location and nature of possible connections, environmental effects, likely costs of construction and operational considerations. A number of of groups have suggested that of the possibilities, tunnelling under environmentally sensitive areas may be the most practical solution, 53. 14.17 The Study Group agrees with the representations to it that a traffic management study should be carried out within the corridor immediately north of the Melbourne City environs to determine the way in which best use can be made of the existing street system, have regard for social and environmental issues and concerns, to provide a northern bypass of the Central Business District and connections between the Eastern and Tullamarine Freeways. 14.18 The Study Group understands that action is in hand to remove the Freeway FZ reservation between Bell Street and Clifton Hill from the Metropolitan Planning Scheme. The Study Group draws attention to problems relating to traffic movement and traffic congestion in the inner northern suburbs (i.e. between Royal Parade and Bell Street), and that these problems will increase as traffic grows in the future, Positive action should now be taken to examine the range of possible solutions in this area. Accordingly, the Study Group considers that a study of the existing road system in the area generally bounded by Bell Street, High Street Plenty Road, Park Street and Sydney Road should be carried out to *Examine current and likely future road deficiences in the area, *Determine the way in which best use can be made of the existing street system, having regard for the likely traffic patterns of the 1990's, and for social and environmental issues and concerns in the area. *Determine the likely need for larger scale jmprovements in the area, and to examine a range of possible alternatives, 14.19 The Study Group believes that bold initiatives will be required in this area to overcome likely future deficiencies, It is mindful of the vision shown by those who produced the 1929 Metropolitan Plan, and that some of the proposals then put forward are only now being implemented, 14.20 There is a need to develop a continuous, relatively high capacity circumferential route through the middle suburbs so it can act as an intermediate ring road, The Study Group considers there is potential to develop Springvale Road Doncaster Road-Manningham Road-Bell Street by the application of traffic management along the whole route. 14.21 The Study Group has been advised of the position concerning planning of the Outer Ring Road from the junction of the West Gate Freeway and Princes Highway West a~ Br~nklyn northerly and easterly to the Hume Highway a~d beyond. It is aware that there is a Planning Scheme reservation over this length, and considers that there may be a case for relativily early construction of an arterial road along part or parts of this reservation. This should be taken into account when priorities for road proposals are being reviewed. 54. 14.22 The areas identified above are considered by the Study Group to be the most urgent. However, traffic will almost certainly grow at a greater rate in the developing areas, and problems can be expected to accelerate in them, Thus, it will be essential to continually monitor traffic conditions, and to tackle other problem areas as the need arises, and in accordance with priorities established and reviewed from time to time. 14.23 It seems clear that there is a strong case for substantially increased funds for future major road developmement and improvements. The Study Group ia not in a position to make recommendations on the extent of this increase, but it is aware that the National Association of Australian State Road Authorities is about to undertake an Australia-wide Roads Study in conjunction with local Government, with a view to determining future road needs on a factual basis. 14.24 Because it appears likely that future needs may be far greater than available funds for many years to come, the Study Group considers that the concept of stage development of new proposals should be considered and adopted where-ever practicable. For example, the Study Group believes that in many situations requiring new and major developments in the road system, it could well be preferable and more cost effective to provide new arterial roads in the first instance, to a design appropriate to future upgrading to freeway conditions as the need arises, and as finance becomes available. ss. lS. STRATEGY FOR ROAD DEVELOPMENT 15.1 Ariy strate~y concerned with transport must recognize that, for the metropolitan area to function efficiently and effectively, it is essential that persons and freight should be able to move or to be moved through, around and across the urban area with reasonable freedom and safety, and in such a fashion that any adverse effects of the transport system and transport vehicles on its environmental and social fabric are minimised, 1S.2 The Study Group recognizes that Victorians have accepted the idea that road and public transport systems each have a role to play in transport in the metropolitan area, but in recent years, such has been the impact of the highly personal nature of the motor vehicle that road based transport now dominates, and will continue to dominate, the transport scene into the foreseeable future. On the other hand, there is little prospect that the current trends in the use of public transport will change significantly, at least in the foreseeable future. 15.3 Bearing in mind the reality of the situation, there appears to be a continuing need for substantial road developments with the next 10 to 20 years. However, unless there is a substantial increase in urban road funds, there will be a back-log of road developments for many years to come, and needs will accumulate, which will eventually result in a massive demand for major funding that will affect spending on other government responsibilities. 15.4 The Study Group believes that an appropriate strategy directed towards the objective of providing and preserving balance in the development of a road system capable of meeting the needs of the people of Victoria would be as follows : *Give priority to the maintenance of the existing system throughout the metropolitan area, and ensure that maintenance does not get deferred or avoided, Regular funding on a basis that at least keeps pace with inflation should be fundamental. *Place emphasis on the application of traffic management techniques, along selected arterials and in selected areas to maximize traffic operation in the arterial road system, and to protect the environmental quality of local areas. *Place emphasis on the maximum development of existing arterials and the removal of bottlenecks by im~rnving intersections, widening of narrow sections, elimination of on-street parking, the construction of new links at existing discontinuities, and the reconstruction of structurally deficient sections. 56. 15.4 (Continued) *Provide new arterial roads to ensure reasonable capacity for uninterrupted movement of people and freight within and around the metropolitan area and around the Central and Suburban Business Districts and centres of traffic concentration of suitable design for eventual conversion to freeway standards where warranted, *To set aside land for future roads in areas that are likely to be subject to development in the longer term. *To be flexible, and to close off future options only after full consideration of the consequences of so doing. *To work within and towards established policies for land use development, State development and environment protection and for developments for long term transport needs. *To work within realistic funding limits, (which could be higher than at present provided for). 57. 16, PRIORITIES FOR ROAD DEVELOPMENT 16.1 Within the above strategy, the priority for road development over the next decade or so should be as follollis First Priority Maintenance of the existing system, Second Priority Traffic management along selected arterials and on an area lliide basis in the metropolitan area. Particular attention should be given to *Revielli and progressive extension of clearlliays. *Traffic signal co-ordination, *Traffic management in the east-illest corridor immediately north of the Central Business District and generally betllieen the Eastern and Tullamarine Freelliays, *Traffic management in the east-west corridor betllieen the West Gate and South Eastern Freelliays. *Traffic management in the inner northern suburbs, *Traffic management along the Springvale Road Doncaster Road-Manningham Road-Bell Street route to provide an effective circumferential route. *Traffic management between the Princess Highlliay West and the Hume Highway. Third Priority Completion of projects currently under construction, Protection of land required for long term proposals (Subject to periodic review), Fourth Priority Construction of projects to provide for the development of foreseeable requirements in arterial flow by the removal of bottlenecks and points of discontinuity within the existing system. Projects in this category should be selected from those already identified as necessary, and from additional projects that may be identified from time to time~ The priority of projects in this category should be periodically reviewed to ensure that works programmes contains the meat cost-effective projects, Examples of such proJects which have already been mentioned in the drgft Transport Plan 1978 include : 58. Fourth Priority (Continued) *Punt Road - widening ~ridge Road to Alexandra Avenue, and later further southerly to St. Kilda Junction. *Bridge Road - widening Punt Street to Church Street. *Western Highway - widening to Princes Highway to Ashley Street. *Connection between the Mulgrave and South Eastern Freeways. *Calder Highway - Keilor to Diggers Rest and Diggers Rest by-pass, *Bell Street-Banksia Street connection, *Route E6 - Eastern Freeway to High Street. *Route R7 - sections to by-pass bottlenecks along Springvale Road, *Other generally smaller projects to remove bottlenecks to extend or complete duplicatioa, to improve intersections, or to widen narrow sections, throughout the metropolitan area. Fifth Priority The continuation of conceptual planning and assessment of alternative strategies to overcome future transport needs, with a view to defining appropriate projects, including their staged development and estimated costs and assessment of relative priority, so that the most likely projects can be injected into works and budget programmes when funds become available, or as necessary when priorities are being reviewed, Examples of projects in this category include : *Extension of Tullamarine Freeway southerly from Flemington Bridge to Footscray Road and ultimately to West Gate Freeway. *A connection between the West Gate and South Eastern Freeways possibly via a tunnel. *Parts of the Outer Ring from the Princes Highway West to the Hume Highway, *Extension of the Eastern Freeway from Doncaster Road to Ringwood. *Other projects that may be identified as the result of conceptual studies in the future, 59. 17. RECOMMENDATIONS 17.1 It is recommended that : 1. A substantial increase in road funds be made available for road development and construction in the light of (i) the increasing cost of maintenance of the expanding urban system to ensure continued availability of the system for present and anticipated transport needs. (ii) foreseeable increases in transport related to freight and people movements resulting from expected population growth and household formation within the next 20 years, and an expected total population of the order of 3.1 million. (iii) expected increasing traffic congestion arising from the increasing number of motor vehicles employed in freight and passenger movement approaching the limits of capacity of parts of the existing road system, 2. The basic strategy, summarised in paragraph 15.4 of this report, be adopted as the means of addressing metropolitan road problems, 3. Detailed investigations and analyses of road freight movement in the metropolitan area be carried out, with a view to arriving at practical proposals for alleviating the present problems. 4. The Melbourne and Metropolitan Board of Works Hierarchy of Roads Study be finalised as soon as possible, and that it then be used as a framework for the application of traffic management techniques to facilitate and improve traffic movement along arterial roads while protecting the environmental amenity of local areas. 5. Emphasis be placed on the application of traffic management along selected arterials and in selected areas, with particular attention being given to : (i) Progressive extension of clearways. (ii) Computer controlled traffic signal co-ordination in selected areas and on selected arterials, particularly in the various business districts throughout the metropolitan area. (iii) Inner and outer metropolitan circumferential transport requirements, and freeway endings. (iv) Access through the northern quadrant of the metropolitan region particularly for road freight traffic. (v) Access for freight traffic from areas of concentration such as port and industrial areas, and aimed at bypassing residential areas. 60. 6. The current practice of reserving land in the Metropolitan Planning Scheme to protect future road improvement options, particularly in areas where substantial development or re-development is likely to occur in the relatively near future, and the continual review of all Planning Scheme road reservations, continue, 7. An investigation of a future connection between the West Gate and South Eastern Freeways be carried out, This investigation should examine the alternatives, including the feasibility, location and nature of possible connections, environmental effects, likely costs of construction, operation considerations, and other relevant aspects.