Ms Peggy Danaee Committee Secretary JOINT STANDING COMMITTEE ON THE NATIONAL CAPITAL AND EXTERNAL TERRITORIES PO Box 6021 Parliament House ACT 2600

Via email: [email protected]

Dear Ms Danaee

INQUIRY INTO COMMONWEALTH AND PARLIAMENTARY APPROVALS FOR THE PROPOSED STAGE 2 OF THE AUSTRALIAN CAPITAL TERRITORY PROJECT

ACT Division of the Planning Institute of – Response to request for a submission

Thank you for the opportunity to provide a submission to the above inquiry. The key points of our submission are as follows:

1. The Planning Institute of Australia (PIA) supports investment in public transport to diversify transport options and provide transport choice.

2. The proposal to create the light rail network as part of the National Triangle and through the Parliamentary Zone is within an area of national significance.

3. The Commonwealth, via the National Capital Authority has planning responsibility for Designated Areas, recognised as areas of national significance. The design quality, breadth of consultation and planning outcomes should represent the significance of the area, in particular the Parliamentary Zone.

4. The National Triangle framed by Commonwealth Avenue, Constitution Avenue and Kings Avenue (including City south, Russell and the Parliamentary Zone) is the centre of the public transport network, providing connections to the rest of the Canberra network. Connecting light rail to the Parliamentary Zone south of the lake also opens up future corridors in Canberra’s south.

5. The PIA supports long term infrastructure planning that integrates land use and transport and is informed by strategic planning and high quality urban design.

Planning Institute of Australia Page 1 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act 6. Individual stages of light rail should be considered within the strategic context of the longer-term network as set out in the ACT Light Rail Network Master Plan.

7. A direct route in a separate reserve (right of way) between and the City Centre (Civic) is supported by past and present strategic planning policy including:

a. the framework of the Griffin Plan which was designed for light rail b. Canberra’s ‘Y plan’ structure which was predicated on a north south inter town transit spine c. the current National Capital Plan that includes reservation for the Inter town public transport corridor, and d. the ACT Government’s Light Rail Network Master Plan.

8. The current preferred light rail route proposes a significant diversion via the Barton employment precinct and the Parliamentary Zone and is not fully consistent with the Inter-town Public Transport corridor or the ACT Government’s Light Rail Network Master Plan. PIA acknowledge that servicing the Barton precinct has merit in terms of patronage, access to employment and living opportunities in Barton as well as a potentially earlier stage 2 project rate of return. It is also apparent that parts of the corridor on are likely to have more limited patronage growth and redevelopment opportunities. However, it is not clear that the opportunities arising from the Barton deviation should be part of the stage 2 North-South corridor project – or part of a planned future light rail spur towards the south west. It is also not clear what the implications of the deviation would be on the future extent, staging and role of elements of the Light Rail Network Master Plan. PIA would support a clear statement on the basis for the trade-offs involved.

9. The criteria for preference of the current route option is unclear and when considered against urban renewal opportunities, speed of service and patronage the key objectives of the light rail project need to be clarified. PIA is concerned that by adopting the Barton deviation as part of Stage 2, the opportunity for a faster north-south corridor service will be foregone. The resulting function and role of the light rail system would be different. This potential departure from a more rapid transit role of the network should be further justified against the overarching city planning and transport objectives that surround the project. Ideally a multi-criteria analysis using transparent criteria should be available, addressing each of the options.

10. There are other options that deliver an attractive service to the Barton employment precinct while maintaining the integrity of the ACT Light Rail Network Plan that have not been clearly articulated.

Planning Institute of Australia Page 2 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act 11. The NCA as the approvals authority should be adequately resourced to deal with the continued increased workload generated as a consequence of the light rail project (stages 1 and 2).

12. The NCA’s governance should reflect the need for planning and design expertise.

The PIA Infrastructure and its Funding Position Statement https://www.planning.org.au/documents/item/8889 is attached for information (Attachment 1). This reflects the views of the PIA on best practice for infrastructure funding and delivery that is integrated with land use and development.

Thank you for the opportunity to respond, and please contact me if you have any questions.

Yours sincerely

John Brockhoff BSc(Hons), MEnvPlan, MPA, MPIA Principal Policy Officer

Planning Institute of Australia Page 3 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act 1. The Planning Institute of Australia (PIA) supports investment in public transport to diversify transport options and provide transport choice.

Public transport and sustainable transport options such as light rail are integral to the realisation of more liveable, productive and sustainable cities. Transport plans when integrated with strategic land use plans are a powerful pathway for sustainable city transformation and the delivery of vibrant, connected, inclusive, resilient and healthy urban places for people.

The ACT and Commonwealth Government are ideally placed to leverage government land and investment in public transport and the public domain to deliver urban renewal and a more compact city with reduced car dependency and enhanced active travel options.

The world’s best and most liveable cities all have excellent integrated public transport networks, designed and planned in tandem with land use to create walkable, people-friendly communities with a range of transport options. The introduction of reflects a shift in the world where public investment is moving from highways and sprawl to transit and cities, and the role of design is shifting from building bigger roads to making streets that support quality places.

Canberra’s population is projected to increase from 400,000 to over 500,000 within the next two decades. With the highest car dependency of any Australian capital city, this population growth could result in significantly more cars. Through traffic currently dominates the main avenues and approach routes to the National Triangle and Parliament House. Growing Canberra around a light rail spine that is integrated with higher density pedestrian friendly precincts will deliver a National Capital that is more compact, sustainable and well connected, maintaining the world class standard of living experienced by Canberrans.

2. The proposal to create the light rail network as part of the National Triangle and through the Parliamentary Zone is within an area of national significance.

The National Triangle (including City, Russell and the Parliamentary Zone) is the centre of the public transport network, providing connections to the rest of the Canberra network. Connecting light rail to this important zone south of the lake also opens up future corridors in Canberra’s south.

Planning Institute of Australia Page 4 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act

3. The Commonwealth, via the National Capital Authority has planning responsibility for Designated Areas, recognised as areas of national significance. The design quality, breadth of consultation and planning outcomes should represent the significance of the area, in particular the Parliamentary Zone.

The National Triangle formed by Commonwealth, Kings and Constitution Avenues is the heart of the National Capital. These broad 60 metre wide Griffin avenues were sized to accommodate a right of way for light rail, mostly within their central medians.

The National Triangle connects the City Centre, Defence Headquarters at Russell, the Barton Office Precinct and Parliament House. This is the centre of employment and economic activity in the national capital holding 60% of all ACT jobs. The national cultural institutions attract more than 5 million visitors annually.

The national cultural attractions are fundamental to Canberra’s identity as the showplace of the nation and to its economic livelihood. Yet access to the city’s cultural offerings continues to be hampered by the dispersed nature of their locations, poor legibility and connections, and a lack of transport and activity support. A high quality and efficient light rail network could provide enhanced connection between our national cultural attractions if the route was carefully planned to link these attractions. In addition to supporting Canberra’s growing tourism and education sectors a well connected National Triangle will capitalise on the potential for agglomeration benefits of Inner Canberra.

4. The National Triangle framed by Commonwealth Avenue, Constitution Avenue and Kings Avenue (including City south, Russell and the Parliamentary Zone) is the centre of the public transport network, providing connections to the rest of the Canberra network. Connecting light rail to the Parliamentary Zone south of the lake also opens up future corridors in Canberra’s south.

The central Canberra area, including the National Triangle and surrounding areas, is a significant generator of demand for public transport. The Woden, , , Airport and Fyshwick corridors all converge on the National Triangle. Connecting this inner area with light rail will provide a more integrated Inner Canberra and encourage movements across the lake for social, economic and tourism purposes.

Parliament House, Commonwealth offices in the Parliamentary Zone and at Barton and national cultural attractions such as National Gallery of Australia, National Portrait Gallery, National Library, and Old Parliament House are all significant generators of demand.

Planning Institute of Australia Page 5 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act 5. The PIA supports long term infrastructure planning that integrates land use and transport and is informed by strategic planning and high quality urban design.

Strategic planning The National Capital Plan (NCP) identifies an Inter-town Public Transport (IPT) network for rapid transit that links Canberra’s town centres to the City Centre. The NCP requires that the route as much as possible is segregated into a separate right of way so that it has priority over other road users. The Woden to City IPT corridor runs via Adelaide Avenue, and Commonwealth Avenue to the City Centre. This route coincides with the most direct line of travel and aligns with main avenue framework of Central Canberra.

The ACT Government’s Light Rail Network Master Plan proposes a Woden to City route consistent with the IPT corridor shown in the NCP. This is to ensure that light rail will attract high patronage levels with travel times that compete favourably with other modes of travel such as cars and buses.

Multi-modal corridor supported by high quality urban design

The introduction of light rail provides the opportunity to transform the corridor into a high quality multi-modal corridor with improved active travel choices, better amenity and balanced growth of jobs and housing. In the short term light rail will provide approximately a two and half fold increase in the capacity for moving people – supplanting the need for increased vehicular capacity along the corridor. This lays the foundation for the sustainable transformation of the corridor as Canberra grows over the coming decades.

The light rail corridor should be planned as a high quality multi-modal corridor reflecting the original intention for Griffin’s main avenues as tree lined multi- modal boulevards. This will provide a high quality public space that supports a road user hierarchy where people are put first, then cyclists, public transport and finally cars.

6. Individual stages of light rail should be considered within the strategic context of the longer-term network as set out in the ACT Light Rail Network Master Plan.

The ACT Light Rail Network Master Plan is soundly based and uses Griffin’s framework of main avenues as they were intended. The ACT Government should be commended for preparing a long term city-wide Light Rail Network Master Plan. This provides a comprehensive network plan that integrates with current planning and land use strategies. The City to Woden light rail route should not depart from the longer-term ACT Light Rail Network Plan without strong justification and a review of the network.

Planning Institute of Australia Page 6 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act The ACT Light Rail Network Plan for the National Triangle proposes light rail routes that utilise the broad reserves of Commonwealth, Kings and Constitution Avenues which also provide direct and efficient routes to the City Centre and Russell from the Parliamentary Zone. These avenues connect to the broader network which logically extend outwards to Canberra’s town centres and other major destinations such as the Canberra International Airport, Fyshwick and potentially . The route follows Capital Circuit, which then connects to Adelaide Avenue.

Light Rail Network Plan for City to Woden and the National Triangle

City to Woden – Transport Canberra’s National Triangle – light rail network Light rail network

Planning Institute of Australia Page 7 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act 7. A direct route in a separate reserve (right of way) between Woden Town Centre and the City Centre (Civic) is supported by past and present strategic planning policy including: a. the framework of the Griffin Plan which was designed for light rail b. Canberra’s ‘Y plan’ metropolitan structure which was predicated on a north south inter town transit spine c. the current National Capital Plan that includes reservation for the Inter town public transport corridor, and d. the ACT Government’s Light Rail Network Master Plan.

Canberra is built on the framework of the Griffin Plan. The principal features of the Plan that characterise the city today include:

• the design of the Central National Area centred on the National Triangle; • the Land and Water Axes; • ; • the inner hills which enclose Central Canberra with a backdrop of bushland; • the main avenues, which provide the lines of communication, multi-modal transport corridors and vistas to surrounding landscape and key city landmarks; and the formal approach routes to the Central National Area.

The Griffin Plan proposed a model light rail city – with highly integrated land use and transport and Transit Oriented Development (TOD) throughout Central Canberra. The network of main avenues is direct and efficient, providing lines for rapid transit. The highest densities of retail, employment and residential development lined the main avenue transit network to support the transit system and vice versa. The layout of the main avenues responds to efficient patronage catchments and to ensuring that over 90% of the city was within a 5 minute walk of light rail.

Planning Institute of Australia Page 8 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act

Canberra’s structure of town centres arranged in linear form connected by a public transport spine and framed by peripheral parkways is a robust structure for accommodating growth and for consolidating growth along the spine. In line with international best practice the introduction of light rail should coincide with creating a more pedestrian orientated and civic transit spine. Light rail complements higher density and pedestrian oriented environments while providing for considerable increases in capacity for moving people. In tandem with the roll out of light rail, higher speed vehicular through traffic should be directed to the peripheral parkway network.

The north south transit spine travels along Adelaide Avenue and then through the National Triangle on Commonwealth Avenue connecting to in the City centre. In this way the National Triangle is an integral part of this civic spine.

8. The current preferred light rail route proposes a significant diversion via the Barton employment precinct and the Parliamentary Zone and is not consistent with the Inter-town Public Transport corridor or the ACT Government’s Light Rail Network Master Plan.

The ACT Government have released their preferred light rail route between the City and Woden to travel through Barton to capitalise on employment hubs and proximity to cultural institutions. The preferred route runs along King George Terrace in front of Old Parliament House, diverting into Kings Avenue and then along Windsor Walk in Barton (the Barton diversion).

Diverting from the IPT corridor and the Light Rail Master Plan to service employment at Barton, removes the routes effectiveness as a rapid intertown public transport system. For residents of Woden this will be a slower service than the express bus service currently operating or driving a car. A diversion from the most direct and legible route at Barton will penalise many kilometres of route beyond Woden Town Centre. Woden Town Centre is in urgent need of investment and renewal. This should be a prioritised with public transport that is competitive with the private car both in travel time and frequency.

It is essential that passengers from Woden can expect to board, interchange and alight with ease and speed. A diversion from the primary spine would likely reduce both the incentive and the real-world ability to interchange as future stages of light rail come on-line – e.g. Woden to Russell/Airport or to Kingston/Fyshwick/Queanbeyan or to Belconnen. These interchanges will most readily occur at Capital Circle and at in the City Centre. The current preferred Barton diversion option removes a potentially significant interchange that will penalise the system overall. This highlights a lack of alignment between strategic planning and infrastructure planning.

Planning Institute of Australia Page 9 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act 9. The criteria for preference of the current route option is unclear and when considered against urban renewal opportunities, speed of service and patronage the key objectives of the light rail project need to be clarified.

It is important that departures are justified and that the longer-term network is reviewed in light of any departures. Short term imperatives should not corrupt the integrity, efficiency and coverage of the whole network and routes should not be distorted to achieve coverage that would have otherwise been delivered with the construction of later stages.

10. There are other options that deliver an attractive service to the Barton employment precinct while maintaining the integrity of the ACT Light Rail Network Plan that have not been clearly articulated.

See attached information (Attachment 2) on further potential options, prepared by an ACT PIA member.

11. The NCA as the approvals authority should be adequately resourced to deal with the continued increased workload generated as a consequence of the light rail project (stages 1 and 2).

Light rail has increased the number and complexity of development applications (Works Approvals) that the NCA has to deal with, as well as ongoing regular and frequent meetings with Transport Canberra and Canberra Metro, which while improving communication between the ACT Government and the NCA are a huge resource impost, for a small Commonwealth government agency that has been terminally underfunded for years to deliver on its primary functions.

12. The NCA’s governance should reflect the need for planning and design expertise. We note that the current Board is increasingly called on to make planning and design decisions however there are no Board members with relevant experience in planning and design to inform these types of decisions. The breadth of the Board should be extended to include Board members with planning and design expertise and include members from outside Canberra.

Planning Institute of Australia Page 10 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act ATTACHMENT 1

INFRASTRUCTURE AND ITS FUNDING POSITION STATEMENT 16 November 2017

SUMMARY

Planning leadership Ë Planners are equipped to lead in shaping the outcomes sought for places and communities undergoing growth and change

Integrated Land Use & Infrastructure Planning Ë Strategic planning and infrastructure planning must be integrated to achieve adopted outcomes for places Ë Infrastructure project objectives must be consistent with the strategic planning outcomes sought

Infrastructure Appraisal & Prioritisation Ë Achieving these outcomes should inform the prioritisation of infrastructure to be funded Ë Infrastructure appraisal approaches should recognise the spatial context and respond to the wider economic, environmental and social costs and benefts over the long-term term planning horizon and whole-of-life of an asset Ë All available options (eg non-infrastructure) that meet the project objectives should be considered

Infrastructure Funding & Value Sharing Ë An infrastructure funding regime should: − be based on planning systems principles, nexus and the fair and proportional sharing of cost; − balance contributions obligations for developers with the needs of communities; − be transparent, be justifed and actioned via a comprehensive infrastructure funding and delivery plan; and

NATIONAL POLICY POSITION STATEMENT − be known at the time plans are released Ë Benefciaries of value generated by infrastructure and related land use changes should provide a share of the funding towards the corresponding investment

Infrastructure Delivery Ë A planning outcome should not be compromised by the project delivery approach – likewise, the opportunity to fund a project should not remove the need for a project to demonstrate planning merit

Planning Institute of Australia Leading efective planning for people and places

NATIONAL OFFICE Unit 16, Level 3 Engineering House 11 National Circuit, BARTON ACT 2600 | PO Box 5427 Kingston ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au

Planning Institute of Australia | Page 1 of 5

Planning Institute of Australia Page 11 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act Planning Institute of Australia Page 12 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act

Planning Institute of Australia Page 13 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act

Planning Institute of Australia Page 14 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act

Planning Institute of Australia Page 15 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act ATTACHMENT 2 - ALTERNATE OPTIONS

Option 1: Current ACT Government preferred route- Barton diversion

The route diverts from the ACT Light Rail Network Plan via The Parliamentary Zone (King George Terrace) and the Barton Employment precinct (Windsor Walk).

Option 2: Direct route via Capital Circle spine

A direct route located on the eastern side of Capital Circle with a stop serving both Parliament House and the Barton office precinct – this route is 1.32Km shorter than the “preferred” Barton diversion route.

Planning Institute of Australia Page 16 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act Option 3: Capital Circle spine + new line to

In addition to Option 1 a line running from Capital Circle along Canberra Avenue with stops serving the Barton Office precinct and Manuka Oval – this route is 0.34Km shorter than the “preferred” Barton diversion.

Option 4: Capital Circle spine + branch line to Kingston

A new line to Kingston Foreshore and Kingston Railway Station along Wentworth Avenue via Brisbane Avenue and Macquarie Street Barton connecting to King George Terrace – this route is 0.9Km longer than the “preferred” Barton diversion.

A Preliminary identification of the advantages and disadvantages of these 4 options is outlined in the following Attachment 3. This high level evaluation reveals that there may be substantial additional benefits that warrant further investigation.

Planning Institute of Australia Page 17 of 17 Australia’s Trusted Voice on Planning AUSTRALIAN CAPITAL TERRITORY c/- PO Box 5427 KINGSTON ACT 2604 | ABN: 34 151 601 937 Phone: 02 6262 5933 | Fax: 02 6262 9970 | Email: [email protected] | @pia_planning Planning Institute of Australia planning.org.au/act