Public Transport in SEQ Options to deliver value and innovation in future South East
Queensland public transport infrastructure January 2012 A research report by GHD for the Council of Mayors (SEQ) GHD was commissioned by the Council This report not only develops a list of of Mayors (SEQ) to provide advice on priority projects, but proposes a new innovative and value for money options for vision for SEQ Public Transport that puts investment in the public transport network the commuter at the heart of the system. in South East Queensland (SEQ). It is being released to encourage public discussion about options for investing in A key challenge for the investment public transport infrastructure across SEQ. program for public transport infrastructure in SEQ is how to meet the needs of The report does not represent an endorsed a growing region within the nancially policy position of the Council of Mayors constrained scal environment now faced (SEQ), which will not consider the report by all levels of government. and public reactions to it until after the 2012 local government elections. The A key concern is whether the funds exist Council of Mayors (SEQ) will consider to proceed with the State Government’s all options in developing its future input iconic $7700M Cross River Rail project. into the next iteration of the Queensland Some SEQ Councils are concerned Infrastructure Plan. that funding the project may delay other important projects in the region, while The Council of Mayors (SEQ) looks forward failure to deliver the project may stymie to further developing a constructive growth of the regional rail network. working partnership with the Queensland For these reasons, GHD was asked to Government on planning for the consider whether the objectives of the infrastructure that SEQ will need over the Cross River Rail project can be met in a next decade to maximise the liveability, more cost effective way. sustainability and productivity of this great region. The State Government has invested an average of about $1500M annually over the last four years on public transport infrastructure. GHD was asked to consider what could be delivered if expenditure was maintained at around that level over the next decade, having regard to the priorities in the Queensland Infrastructure Plan and the priorities identi ed by the Council of Mayors (SEQ). Contents
06 40 Executive Summary On the Main Stage
What Needs to be 40 page 15 Delivered in the Next Five Introduction to Ten Years? Financing the Plan 42 page 16 Introducing Competitive 45 page State of Play Tension into the System
Current Public Transport 16 page Proposals 46 Major Problems 19 page Conclusion
The Opporunity 20 page
Affordable, Timely and 22 page Innovative Solutions The Cleveland Solution 24 page Projects Beyond 2022 39 page Photo: Brisbane Marketing In many ways, South East Queensland is at the cross roads as policy makers face the challenge of providing the public transport facilities needed to underpin the region’s population growth, productivity and maintain our lifestyle and standard of living in a contracting scal environment.
6 The current Û scal and planning environments are uncertain
Uncertain Planning • Critical bottlenecks (such GHD’s Commission Where are the problems? Environment as the Merivale Bridge) are strangling the network In recognising that policy While vast improvements to the The current planning – the additions of new makers are at the cross roads public transport network have environment is uncertain: branch lines to the SEQ and face several critical been made over the last • The scal positions of the network effectively means decisions, the Council of decade, several critical State and Commonwealth train paths compete for Mayors, South East Queensland problems remain: Governments are track in the congested CBD (COMSEQ) has commissioned • Servicing areas in the extremely tight – the ability core which progressively GHD to investigate innovative outer network where there of the public sector to make dilutes the level of service in and value for money options are low urban densities large investments in capital outer networks. for investment in the public – the busway system has transport network in SEQ. projects has been greatly • It seems increasingly been a very effective diminished. unlikely that the current GHD’s approach has been to strategy to address this • The private sector has Cross River Rail proposal answer ve basic questions: issue but it is becoming a little appetite to take on can be afforded in the 1. What is the current state of victim of its own success as patronage risk for current scal environment play and priorities for public inner city connections transport projects – the – Cross River Rail can transport capital congest in peak hours. private sector is just not address many of the expenditure? • The inner city rail “core” is willing to invest through network connectivity issues 2. Where are the major at capacity and as new traditional PPP models, and bottlenecks in the core problems? branch and spur lines are particularly in public but the solution is expensive introduced, service levels transport projects. and currently unfunded. 3. What does the commuter and frequency in the wider want from the public network are being • Patronage has generally • The sheer scale of the transport network in SEQ? increased and is expected Cross River Rail progressively diluted. to continue to grow – this investment may also act 4. What needs to be delivered • The demand for public is placing pressure on to ‘crowd out’ other in the next ve and ten years transport is increasing and services and reliability. projects needed across and what can we afford? the availability of funds to • The costs (subsidy) to South East Queensland as 5. Are there innovative and service that demand is deliver public transport funds become increasingly value for money approaches constrained by a tight services has been steadily scarce to nancing and delivering scal environment. increasing – in the order of • While rail is described as the priorities and delivering what • There is also a nagging $550M in 2007/2008 to ‘backbone’ of future public the commuter wants? issue of the con ict approximately $700M in transport infrastructure, between Citytrain services 2013/2014. buses carry twice as many and freight movements to passengers as trains and a the Port of Brisbane and balanced infrastructure across the CBD. plan needs to include all modes of transport.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 7 South East Queenslanders want higher frequency services
What does the commuter To sum it up: GHD recommends a new A Change in Philosophy – actually want? • South East Queensland vision for SEQ public Moving to a truly integrated In framing our report and commuters want transport that puts the network recommendations, GHD has increased service commuter rst: The great urban rail (and sought to address the key quality, reliability and The public transport public transport) systems of question – what do SEQ greater frequency and system for SEQ will be the world (both large and commuters (and tax connectivity – “no characterised by high medium sized cities) are payers) really want? timetables – just turn up frequency peak services, integrated networks that adapt various modes of In this regard, South East and go”. off peak services that transport for the function Queenslanders are no • South East respond to demand, required (and what the different to other urban Queenslander taxpayers seamless interchanges, commuter needs). real time passenger commuters. They want: want better value for They are true networks of money solutions. information systems, value • Enhanced performance for money, effective independent lines and service reliability These practical desires of integrating with each other delivery and a focus on through common nodes, • Increased service quality SEQ residents are consistent customer service that is where passengers change to and frequency with the Council of Mayors. second to none. other lines. • Better use of assets and COMSEQ wants a public From the users’ perspective, increases in productivity transport system that is an Developing Value for they function effectively as engine for regional economic Money Solutions one integrated system • Cost reductions per growth, but also one that is regardless of vehicle type, passenger journey greener and safer and When developing its particular technology and improves quality of life in our recommendations, GHD has mode. • Better connectivity and proposed both a broad opportunities to communities across the In Australia, our public whole of our region. philosophical change and seamlessly transfer to several pragmatic and value transport systems – different modes. particularly rail – have evolved for money alternatives. This from CBD based radial philosophical approach and systems progressively the value for money extending branch lines into alternatives are supported by new suburbs from the core. assessing the role of: In SEQ’s radial network, • Different and new each new branch line technologies effectively adds another line through the central • Innovative nancing core and can only be • Introduction of new accommodated by sharing operators into the system existing stations and track or by building new • System integration. infrastructure.
8 The Existing Rail Network
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 9 The Cleveland Transitioning the existing Solution radial system to an integrated network
As the city grows, the The “Cleveland Solution” In essence, by extracting the solutions become very removes the Cleveland Line Cleveland, Ferny Grove and expensive – hence the services from the Merivale Doomben lines from the core: 1 $7700M cost of the current Bridge (almost 50% of its • Nearly half of the Cross River Rail proposal. current demand) by capacity of train paths GHD argues that SEQ can constructing a new rail line on Merivale Bridge continue to compound the from the Park Road Station to become available at central core capacity problem Roma Street Station, via a about one-third of the with more branch lines and tunnel to Woolloongabba, current Cross River Rail expensive core then a new bridge over the cost enhancements, or we can river beside (and imitating) the Captain Cook Bridge and • Platform and track space transition the existing radial through the central core is system to an integrated Riverside Expressway, and network. then via a tunnel under released Herschel Street to a new • A real opportunity to inject The rst step to achieve this underground platform innovation, private could be to extract some beneath Roma Street Station. lines from the core and investment, competition reintroduce them as New underground stations and importantly, value for independent lines crossing would be provided at Park money into the system, is the core – this is the basis of Road, Woolloongabba and facilitated the “Cleveland Solution”. Roma Street, with two new • A higher frequency elevated stations at Gardens service is achieved Point (QUT) and Queen The First Step – the Street. • Citytrain rolling stock is “Cleveland Solution” released to the wider After Roma Street Station, network. The “Cleveland Solution” the proposal would then run involves fast tracking of a on surface up the Exhibition Underpinning the “Cleveland “value for money” option to Line corridor, with a new Solution” is innovative address inner city rail Exhibition Station and a new nancing, new technology capacity and transition from a Bowen Hills (West) Station and potential entry of a new “radial” to an “integrated” before joining into the Ferny operator. system at a cost of $2500M Grove Line at Breakfast Cross River Rail1: OfÛ ce of the as opposed to the $7700M Creek. Infrastructure Coordinator, Commonwealth of Australia, April total estimate for Cross River 2011 for the 2011 Infrastructure Rail. The Light Metro operation on Priority List. the Cleveland Line will include the duplication of the track from Manly to Cleveland. The Light Metro will also be segregated from freight movements to the Port of Brisbane and an additional freight line passing loop will be provided at Norman Park. 10 Value for money, innovative solutions
What role can new Is there a role for private “Availability contract PPPs” What about the entry of a technology play? nance? may offer a mechanism to new operator? Introducing Light Metro The reality is the current fund “value for money” As well as being integrated technology into the SEQ rail scal environment prevents major public transport networks combining various network provides a range of the funding of “mega projects, where contractors modes of transport for the advantages for lines not projects” such as Cross and operators are paid on the function required (and what carrying freight, including: River Rail – there is simply no basis of the time the asset is the commuter needs), a made available to the user. • Higher frequency of public funding available for a number of the great urban services project of this scale. The The model is reasonably public transport systems project is currently unfunded. common in social have more than one • Far greater operational There is also empirical infrastructure but emerging in operator on their network. exibility evidence over many years of public transport across It could be argued that • Improved vehicle consistent cost overruns in several jurisdictions, including Queensland Rail’s performance “mega projects” such as for the Gold Coast Rapid monopoly sti es Transit System. • Lower capital and Cross River Rail. innovation. The subsidy to operational costs The key nding of the Mott Adopting an Availability PPP operate the service is MacDonald Report (2002), may also enable accessing of increasing from (in the order • Opportunity to introduce a funds from a wider range of of) $550M in 2007/8 to new operator and Review of Large Public Procurement in the UK, HM sources – bonds, approximately $700M in competitive tension into superannuation funds etc – 2013/14. Furthermore, the system. Treasury, London, National Audit Of ce was: “high particularly where incentives empirical research and Light Metro technology is levels of optimism in are used and a long contract practical experience show used extensively in mid-sized project estimates arising life is adopted (e.g. 20+ multiple operators within an European cities such as from underestimating years). integrated system: Frankfurt, Lisbon and Vienna project costs and duration • Introduces “competitive and is ideally suited to the or overestimating project tension” to the network steeper grades and tighter bene ts”. curves of the “Cleveland • Drives innovation Solution”. In other words “mega • Can reduce the cost per projects” will almost inevitably passenger journey. experience a budget blowout. There is also no Importantly, the competition appetite for a traditional is driven by what the PPP for a project of this commuter wants due to the scale where capital costs are nature of the availability high, patronage risk would be contracts developed. transferred to the private sector, and the new infrastructure would form part of the Queensland Rail passenger network.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 11 Seeking ways to reduce car dependency across SEQ
The Second Step – Beyond GHD has also identi ed The legislative frameworks the “Cleveland Solution”, priorities for the 6-10 year are in place to enable Local what are the key priorities? horizon valued at an Government to accumulate As inner city rail capacity is additional $7500M. funds which can be so critical to the ef ciency Several of these projects are hypothecated to nominated and effectiveness of the current commitments but public transport infrastructure entire network – a problem GHD has also assessed and services. that won’t go away – a key some of the current Such projects would need to aspect of GHD’s proposals and recommended be subject to needs recommendations centre revised scope and lower cost assessment, rigorous cost around investment of (value for money) solutions. bene t analysis and be clearly $2500M on the “Cleveland Several new projects have articulated in local and Solution”. This is a priority regional plans to ensure project to be delivered over also been included where appropriate use of monies. the next 5 years as the there is a demonstrated need demand over the Merivale and value for money is Direct local government Bridge exceeds its capacity. achieved. contributions towards In tight scal times, value for public transport could aid Over the last four years the money solutions, based on in funding needed Queensland Government has commuter needs – should be infrastructure and/or services invested around $1500M per the underlying objective. in a timelier manner than year in public transport. This would otherwise be the case. report argues the Several councils are already Queensland Government How can Local making substantial needs to continue to invest at Government make a contributions to public the same level ($1500M per contribution? transport, from dedicated year) to build the public Making a contribution to the transport levies (e.g. GCCC, transport network that can provision of public transport SCRC) or direct from rates deliver the services required infrastructure and services ts (e.g. BCC, MBRC). to meet the mode share well with local government. targets. Local overnment is well Having a stake-in-the-game Based on our assumption of placed to de ne and work will encourage local $7500M to be expended on with major providers and the government to take a more average over a ve year State in developing active role in community period, the second stage of appropriate services that promotion and in seeking GHD’s analysis involved deliver locally and integrate ways to reduce car assessing and well across jurisdictions. dependency across SEQ. recommending a range of It also gives local government other priority projects valued a more attractive “seat at the at $5000M over the next ve table” when determining years. strategic priorities - this would be a positive step forward.
12 Recommended Investment Program
Recommended Investment Program
After assessing other project Table 01: Short Term Years 1 - 5 Table 02: Short Term Years 6 - 10 options, GHD recommends the following project priorities Capital Capital Capital and their estimated capital Project Priorities Expenditure Project Priorities Expenditure Project Priorities Expenditure expenditure for the next ve (EST) (EST) (EST) years, set out in Tables 01 and 02. Sunshine Coast Connect $420M Eastern Bus Priority - Bus lanes New passenger rail stock $500M Carindale to Capalaba $160M Gold Coast Rapid - to Helensvale $850M Inner City Rail (The Cleveland $2500M Solution) Eastern Busway 2A $25M South East Busway to Springwood $420M New Citytrain Stabling Depot at Freight Line Improvements $575M $100M Clapham CBD Bus Infrastructure Capacity $1000M Rail - Spring eld to Redbank Plains $200M Program Gold Coast Bus Lanes $30M Northern Busway - Sadlier St to $60M Northern Busway - Chermside to Gold Coast Rapid - Broadbeach to Rode Rd $600M $280M Aspley Parkwood Northern Bus Priority - Rode Rd to $50M Rail - Varsity to Elanora $1400M Rail - Comera to Helensvale $430M Chermside Sunshine Coast Light Rail (planning $600M Rail - Kuraby to Kingston and Rail - Richlands to Spring eld $280M and property) $230M Loganlea Rail - Kepera to Ferny Grove $29M Rail - Acacia Ridge to Flagstone $300M Eliminate Open Level Crossings $400M Translink Station Upgrades $161M Eliminate Open Level Crossings $500M New passenger rail stock $300M Bus Priority Toowoomba $20M Rail - Redbank to Ripley $450M Rail - Lawnton to Petrie third rail track $200M Bus Priority $350M Rail - Beerburrum to Landsborough $470M Public Transport 5 Year Priority Program = $7,498M Park n’ Ride $350M Moreton Bay Rail Link (MBRL) $253M Brisbane Metro (planning & property) $200M CBD Bus Infrastructure Capacity Program $25M
Public Transport 6 to 10 Year Priority Program = $7,520M Eastern Busway - Main Ave to Bennetts Rd $300M
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 13 Short, medium and long term solutions
GHD recommends the Table 03: Medium Term Priorities following projects to be considered in the medium Projects Beyond Ten Years term, beyond the next 10 years: South East Busway (Springwood to Loganholme)
Rail - Elanora to Coolangatta
Sunshine Coast Light Rail Future Stages
Rail - Redbank Plains to Ipswich
Rail - Acacia Ridge to Flagstone (future stages)
Gold Coast Rapid Transit (future stages)
Rail - Gowrie to Grandchester (future stages)
Brisbane Metro
Northern Busway (future stages)
Bus Priority and Park n’ Ride
Eastern Busway Future Stages
Redland Bus Priority
14 Introduction A new vision for SEQ public transport that puts the commuter Û rst
In recognising that GHD’s analysis and • Which projects are policy makers are at recommendations are based relevant to the commuter on some key assumptions needs over the next 5 and the cross roads and and baseline criteria: 10 years? face several critical • On average, $1500M is • Are the current projects decisions, the Council spent on capital relevant to these needs of Mayors, South East expenditure for public and do they deliver a transport in SEQ per timely solution to the Queensland (COMSEQ) annum in recent years – problem they are seeking has commissioned GHD to this represents up to to address? investigate innovative and $7500M over 5 years. Budget papers indicate • Are the proposals value for money options that over the last 4 years affordable in the current for investment in the public Queensland has invested; scal environment? transport network in SEQ. • Do the projects and - 2008/09, $1503M proposals represent value for money investment of GHD’s approach has been to - 2009/10, $1427M the public transport answer ve basic questions: - 2010/11, $1605M dollar? 1. What is the current state - 2011/12, $1112M. The result is not only a list of of play and priorities for • In consultation with priority projects across the public transport capital COMSEQ, GHD has region but a new vision for expenditure? identi ed public transport SEQ public transport that 2. Where are the major projects that are puts the commuter at the problems? considered key to solving heart of the system. 3. What does the commuter the region’s future public want from the public transport needs. transport network in SEQ? • GHD has identi ed Photo: Adelaide Street, Brisbane (Brisbane Marketing) 4. What needs to be projects and assessed delivered in the next ve whether they meet the and ten years and what region’s needs and offer a can we afford? value proposition for the taxpayer. 5. Are there innovative and value for money In considering the critical approaches to nancing problems to be addressed, and delivering priorities GHD then assessed and and are they delivering prioritised projects and what the commuter proposals on the basis of wants? answering these questions:
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 15 Current Public Tranport Proposals
To identify the range of projects to be A new vision assessed in this report, GHD identi ed priorities and proposals for public transport for SEQ public transport that puts the commuter at the heart infrastructure in South East Queensland of the system documented in several publications including: • 2011 Queensland Budget papers • Queensland Infrastructure Plan 2011 (QIP) • Various SEQIP and QIP publications over recent years • Council of Mayors (SEQ) Getting SEQ Moving 2011-12 Infrastructure Priorities.
16 Which projects are relevant to the commuter...
Table 04: Signi cant Public Transport Projects (with published estimates) Capital Signi cant Public Transport Projects Capital Expenditure (EST) Project Priorities CONT. Expenditure (EST) The 2011 Budget listed However, they were public transport projects examined for relevance to the Moreton Bay Rail Link $1147M Sunshine Coast Connect $420M totalling $3725M over 3 existing public transport years. The projects are either needs. Some of these New passenger rail stock (new Rail - Gowrie to Grandchester rail line $1680M being completed or projects could form the early generation program) $1214M Northern Busway - Future Stages committed by virtue of the stage of the ultimate $29M funding, and consequently con guration (e.g. Coast Rail - Coomera to Helensvale $432M (planning) are not generally new Connect could be an early New Stabling Facilities (planning) $35M initiatives, but prior form of CAMCOS). Rail - Varsity to Elanora $1391M commitments. A number of other Allied In consultation with Public Transport Projects Rail - Elanora to Coolangatta $840M COMSEQ, GHD identi ed has also emerged as Signi cant Public Transport Projects = $30,641M two categories of projects components of the major and proposals: initiatives such as Cross River Rail - Kuraby to Kingston and Loganlea $230M • Signi cant Public Rail, or other signi cant Table 05: Allied Public Transport Projects Transport Projects – developments (see Table 05). Rail - Lawnton to Petrie third rail track $114M Capital Expenditure major public transport When we take into account Project Priorities (EST) projects speci cally these two categories of Gold Coast Rapid Transit - future stages $2160M identi ed in planning projects, there are currently Rail - New Citytain Stabling Depot at documents, accompanied almost 30 budgeted, South East Busway (Eight Mile Plains to $100M with cost estimates signi cant and allied Springwood) $276M Clapham projects listed at a value of • Allied Public Transport Freight Line improvements (coal line just over $35000M that are Redland Bus Priority $156M $2000M Projects – projects grade separations identi ed as components considered priorities to varying degrees. of major projects, or other CBD Bus Infrastructure capacity program $500M signi cant developments. The Signi cant Public Gold Coast Bus Lanes $31M A number of Transport Projects and Allied Eastern Busway Future Stages $3917M Signi cant Public Transport Projects Rail - Acacia Ridge to Flagstone $900M Public Transport Projects became the target projects (with capital expenditure Inner City Rail (Cross River Rail) $7700M Rail - Spring eld to Redbank Plains $200M estimates) has also been for this study. GHD reviewed those projects and identi ed in published Rail - Ipswich to Spring eld $1800M Rail - Redbank Plains to Ripley $400M planning documents, such as recommended priority QIP (see Table 04). projects over two ve year timeframes: Rail - Beerburrum to Landsborough $480M Eliminate Open Level Crossings $770M These projects vary from • 2012 – 2017 Rail - Landborough to Nambour $2160M Cross RIver Rail (Stage 2 - Inner City reasonably current to long Uncosted term aspirational projects • 2017 – 2022. Metro) beyond the 5 to 10 year Rail - CAMCOS $3960M horizon of this study. Allied Public Transport Projects = $4,401M
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 17 18 The Major Problems Several critical problems remain despite vast improvements to the network
The public transport system In particular, the inner city As the road system becomes So while vast improvements primarily consists of the rail sections of the South East congested, more people are to the public transport and bus infrastructure that Busway are under increasing travelling the longer distances network have been made serves South East pressure and the Victoria to the city on the Gold Coast over the last decade, several Queensland (SEQ). This Bridge and Adelaide Streets Line, the Caboolture Line and critical problems remain: infrastructure has historically link, for example, are Ipswich Line. Services to the • Servicing areas in the evolved to serve the low frequently experiencing extremities of these lines are outer network where urban densities that are signi cant bus congestion being extended and there are low urban typical of the suburban during peak periods. expanded to meet this densities – the busway developments in SEQ. The Brisbane City Council demand. The inner city rail system has been a very In the past, this model of low has commissioned a $2M “core”, between Roma Street effective strategy to density suburbs suited the feasibility study on building a Station and Bowen Hills address this issue but it is high mobility offered by the ‘green bridge’ for buses from Station, is now approaching becoming a victim of its motor car, but as traf c the Busway to connect to a capacity with the growth in own success as inner city congestion on the road tunnel under Adelaide Street, extremities of the rail network. connections congest in network grew with Brisbane’s effectively extending the The Cross River Rail (CRR) peak hours. population, more pressure Busway right through the city. project was conceived to • The inner city rail “core” has been placed on public This transformational project solve this problem. CRR was is at capacity and as new transport services to offer a is projected to cost upwards also an opportunity to branch and spur lines are viable alternative for the of $2000M. address the con ict between introduced, service levels movement of people. The rail system has evolved the Citytrain services and the and frequency in the Photo: Harrison Saragossi Over the last decade, the over a much longer period of freight movements to the Port wider network are being time and tends to address of Brisbane and across the Queensland Government has city. progressively diluted. invested heavily in the the longer journeys across • The demand for public express busway system as a the urban area. Its Recent trends would also transport is increasing strategy to provide an catchments are limited by the indicate the demand for as the population grows ef cient public transport geographic location of those investment in public transport and the cost and service to the low densities of railway lines and the modes is increasing and the congestion of the private the dormitory suburbs. that feed its stations. availability of funds to service alternative increases that demand is now being This strategy has been so In response to the increasing • There is also a nagging congestion in the transport constrained by a restrained successful that the busway scal environment. issue of the con ict system is now experiencing system, urban densities are between Citytrain signi cant congestion and increasing around railway It has become apparent that services and freight further investment is required stations, improved feeder the public transport dollar movements to the Port of to fund a number of services and park and ride needs to be stretched further Brisbane and across the proposals to solve these facilities and new spur lines through prudent project CBD problems. are generating the demand scoping to solve the for additional rail services. immediate problems in the • Investment in public system. transport will be constrained by the availability of funds.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 19 The Opportunity
The State Government’s To put that into scale, the Table 06: Annual public transport passengers 2003-04 to 2009-10 recently released Integrated system accommodated an Regional Transport Plan for extra 56 million passengers in SEQ “Connecting SEQ 2031” 2009-10 compared to 2003-4. includes an ambitious target It will need to accommodate of increasing the modal share an extra 276 million of regional daily trips taken on passengers by 2031 to meet public transport from 7% the State Government’s (2006) to 14% (2031). targets. Given population growth, that This ambitious target is would represent a trebling of achievable – in the six years to total trips by public transport 2009-10, public transport from 652,000 trips per day to patronage grew by 47%, three 2 million trips per day. This times faster than population will require a substantial growth. investment in public transport This has been on the back of a infrastructure and also infrastructure program to operating expenses. improve the network services of busways and rail improvements. Source: Translink Transit Authority public transport patronage data. However, failure to make this Note: Excludes passenger boardings on ferry services. investment will result in a seriously congested road network which is already costing the region around $3000M a year in lost productivity.
20 Substantial investment into public transport needs to occur right across the region
Substantial investment into This report argues that, Table 07: 2031 Mode Share Targets by Local Government Area public transport needs to notwithstanding its nancial Modal Share 2031 Modal Share Target occur right across the region constraints, the State needs Local Government Area (LGA) 2006 (%) Target (%) Increase as demonstrated by the to continue to spend at public transport daily trip around the same level targets by local government ($1500M a year) to build the Brisbane 360,000 10.3% 860,000 20% 500,000 area (LGA) in Connecting network that can deliver the SEQ 2031 shown in Table 07. services needed to meet the Ipswich 33,000 6.5% 185,000 12% 152,000 These targets highlight the modal share target. challenge not just of It is a huge challenge, but it is Moreton Bay 72,000 6.2% 190,000 11% 118,000 commuting from green eld also a huge opportunity for areas in the outer suburbs, SEQ. SEQ residents have but also the need to shown that if public transport Logan 50,000 5.5% 140,000 10% 90,000 signi cantly increase public is ef cient, affordable and transport modal shares in reliable, they will embrace Redland 25,000 5.7% 65,000 10% 40,000 Brisbane and Gold Coast as public transport. the population density of This behavioural change will these cities increase. need to be promoted over Gold Coast 72,000 4.4% 400,000 15% 328,000 Over the past four years, the the next two decades if our State Government has region is to accommodate Sunshine Coast 40,000 3.6% 175,000 10% 135,000 invested around $1500M a projected population growth year into public transport without compromising infrastructure in SEQ, productivity, liveability or although investment agged sustainability. a little this year: • 2008-09 ($1503M) • 2009-10 ($1427M) • 2010-11 ($1605M) • 2011-12 ($1112M) (Source: Budget papers)
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 21 Affordable, Timely and Innovative Solutions
In considering the critical A number of projects (listed in Listed projects considered necessary and appropriate for Listed projects considered necessary and appropriate for problems to be addressed, Budget 2011, QIP) are 2012-2017 year program are: 2017 - 2022 year Program are: GHD assessed and considered to be timely and prioritised projects and valuable investments: Table 08: Project Priorities 2012-2017 year Program Table 09: Project Priorities 2017-2022 year Program proposals on the basis of answering these questions: Capital Capital Project Priorities 1-5 year program Expenditure • Which projects are Project Priorities 6-10 year program Expenditure relevant to the commuter (EST) (EST) needs over the next ve and ten years? Moreton Bay Rail Link (MBRL) $1147M Gold Coast Rapid Transit (Stage 2) $850M • Are the current projects New Citytrain Stabling Depot at Clapham $100M South East Busway (Eight Mile Plains to $276M relevant to these needs Springwood) and do they deliver a Gold Coast Bus Lanes $30M timely solution to the problem they are seeking Rail - Ripley to Spring eld $650M to address? Rail - Coomera to Helensvale $432M Rail - Varsity to Elanora $1400M • Are the proposals Rail - Kuraby to Kingston and Loganlea $230M affordable in the current Redland Bus Priority $156M scal environment? Eliminate Open Level Crossings (over 10 years) $770M • Can they be staged to reduce the initial Sunshine Coast Connect $420M investment? Listed projects considered to be beyond the 10 year Program Rail - Lawnton to Petrie third rail track $200M are: • Do the projects and proposals represent value Rail - Beerburrum to Landsborough $470M for money investment of Table 10: Projects beyond the 10 year Program the public transport Translink Station Upgrades $161M Capital dollar? Projects beyond the 5 - 10 year Horizon Expenditure The key questions are: Rail - Richlands to Spring eld $270M (EST) • Where do South East Queenslanders get the Rail - CAMCOS $3960M best value from dollars spent? Rail - Elanora to Coolangatta $840M
• Are we extracting South East Busway (Springwood to maximum value for users $600M from our systems and the Loganholme) funds allocated? Rail - Ipswich to Ripley $1150M
22 How do Queenslanders get the biggest bang for their buck?
Project Proposals to be Reviewed
As well as some new project Table 11: Signi cant Public Transport Projects proposals, several projects provide an opportunity to Capital review the scope, reduce Signi cant Public Transport Projects Expenditure cost and hence improve (EST) the value of the investment. These projects to be Cross River Rail (CRR) $7700M reviewed, and the published estimated cost, are: Eastern Busway Future Stages $3917M Northern Busway Future Stages (part of) $620M
CBD Bus Infrastructure capacity program $500M
Table 12: Allied Public Transport Projects
Capital Allied Public Transport Projects Expenditure (EST)
Rail - New City Train Stabling Depot at $100M Clapham
Freight Line Improvements $2000M
Rail - Acacia Ridge to Flagstone $900M
Cross City Metro $6000M
Photo: Victoria Bridge buses
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 23 Signi cant Projects for Review
Cross River Rail or The The project includes four new Expressway, and then via a Cleveland Solution underground stations at tunnel beneath Herschel The inner city rail network is Boggo Road, Street to a new underground operating close to capacity Woolloongabba, Albert Street platform under the Roma with the city platforms from and Roma Street and two Street Station. Roma Street Station to new surface stations at New underground stations Bowen Hills experiencing Yeerongpilly and the would be provided at Park high utilisation and effectively Exhibition. The project also Road and Woolloongabba, no room for expansion. includes a new Citytrain and elevated stations at stabling facility at Clapham, In the morning peak hour, the adjacent to Moorooka. Gardens Point (QUT) and/or Merivale Bridge over the Queen Street. Brisbane River currently While the Cross River Rail After Roma Street Station the operates 19 services on the project is a visionary solution proposal would then run on Gold Coast (4), Beenleigh (7) to the capacity problems of surface up the Exhibition Line and Cleveland (8) Lines. At 3 inner city rail network, the corridor, with a new Exhibition minute headways the single $7700M estimated cost of Station and a new Bowen northbound track over the the proposal will seriously test Hills (West) Station before bridge is considered to have the borrowing capacity of joining into the Ferny Grove a theoretical capacity for 20 most governments and Line at Breakfast Creek. train paths in the morning would only attract very peak hour. This capacity modest private capital. A This proposal would remove more affordable solution both the Cleveland Line and restriction is con rmed by the appears to be warranted. the Ferny Grove Line from the delays regularly experienced congested rail network core by these services during the Financing a project of this between Bowen Hills and morning peak. scale would necessarily lead Roma St (but would The available capacity on this to delays in delivery of other interchange with the northern inner city network is urgently needed public line at those two stations). dominated by the Citytrain transport infrastructure across the rest of the SEQ Critically, the proposal services in the peak hours, network. releases the Cleveland Line signi cantly impairing the train paths (8 in peak hour) ability to operate reliable The “Cleveland Solution” across the Merivale Bridge, freight services across the removes the Cleveland Line providing an immediate city or to the Port of services from the Merivale capacity gain of over 70% for Brisbane. Consequently, the Bridge by constructing a new growth on the Beenleigh and Inner City Rail Capacity rail line from the Park Road project was developed and Station to Roma Street Gold Coast Lines. the Cross River Rail proposal Station, via a tunnel to was identi ed to construct Woolloongabba, then a new two new tracks in tunnel from bridge over the river beside Yeerongpilly in the south to (and imitating) the Captain north of Bowen Hills. Cook Bridge and Riverside
24 While Cross River Rail is a visionary solution, a more affordable solution is needed
The “Cleveland Solution” is Consideration needs to be made possible by introducing given to minor technical Light Metro rolling stock that works and rescheduling of can negotiate the tighter services to mitigate these corners and steeper grades delays before the “Cleveland of the proposed alignment Solution” is affected. between Park Road and Duplication of the Ferny Grove Roma St Stations. Line, from Keperra to Ferny Light Metro rolling stock has Grove was funded in Budget a capacity of approximately 2011-12 for $29M. 600 passengers per train and would operate at 3 to 5 The CRR project was originally minute headways to service planned to meet the Merivale the demand on the Cleveland Bridge capacity crisis in 2016, Line. Consequently, the but with limited funding its Cleveland and Ferny Grove completion has now been Lines would enjoy a much delayed until 2020. more frequent service. The Clevelend Solution is more The cost of the proposal, affordable, easier to fund including a new eet of rolling through an Availability PPP and stock, is estimated to be could be delivered to meet the $2500M. It would release 24 2016 deadline. existing 6 car electric multiple The Light Metro operation on unit (EMU) sets back to the the Cleveland Line will include Citytrain network at an the duplication of the track from estimated value of $240M. Manly to Cleveland. The Light A major project such as the Metro will also be segregated “Cleveland Solution” (or the from freight movements to the Cross River Rail) will take Port of Brisbane and an several years to deliver, e.g. 4 additional freight line passing years to 2016, and over the loop will be provided at Norman next few years rail Park. passengers on the three lines entering the city over the Merivale Bridge will continue to experience increasing congestion and signi cant delay. A visionary approach – moving to an integrated network – Stage 2. Extracting the Cleveland/ Ferny Grove and Doomben lines from the core.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 25 Photo: Light Metro, Paris
26 The Cleveland Solution - Myths and Facts
MYTHS FACTS Cross River Rail addresses the need for additional inner city capacity to support northern The Cleveland Solution addresses this issue by running both the Cleveland and Ferny Grove corridor rail services soon after 2016 – the Cleveland Solution doesn’t address this issue. lines as a pair down the Exhibition Line, releasing capacity on the northern and southern corridors.
The Cleveland Solution is not consistent with Connecting SEQ 2031 – An Integrated The Cleveland Solution addresses short, medium and long term requirements to meet future Transport Plan for SEQ which requires the network to meet future transport needs in the transport needs by transitioning the rail network from a radial to a fully integrated system short and long terms. which is consistent with the objectives of Connecting SEQ 2031 – An Integrated Transport Plan for SEQ. However, Connecting SEQ is totally dependent on the timely funding and delivery of Cross River Rail.
The Cleveland Solution would inevitably lead to a reduction in capacity on the Cleveland Line EMU capacity on the Cleveland Line could run at 20 trains per hour or 15000 people per as light rail carries less passengers than heavy rail EMUs. hour to match its predicted growth of 4% pa. Light metro 3 car trains can carry an equivalent capacity to EMU sets but at a far greater frequency because of reduced headways.
Light rail rolling stock can’t operate at the same speeds as heavy rail resulting in increased The proposed rolling stock is project speci c light metro rolling stock which can operate at transit times for commuters. 80kmh, particularly with higher oors and larger wheels. This is the same speed as heavy rail travels on the Cleveland Line.
The proposed alignment would remove direct services from Cleveland to key inner city areas The Cleveland Solution does not run directly through South Brisbane. However, major of South Brisbane. interchanges at Park Road, Roma Street and Bowen Hills will provide direct access to the heavy rail network as well as key centres such as the University of Queensland.
Commuters interchanging at Park Road and Bowen Hills may not be able to transfer to the The main interchange will always be Roma Street but as the Cleveland Solution allows heavy rail network on the north / south corridor as trains maybe full during peak hour. almost 50% extra capacity across Merivale Bridge, far higher frequency services should be able to be achieved on the north / south corridor and the Gold Coast / Beenleigh lines in particular.
Cross River Rail provides a new station at Albert Street whereas the Cleveland Solution only The Cleveland Solution provides much needed additional access for students at QUT and provides new stations on the river precinct. the growing river precinct. An Albert Street station can be included in the scheme at a higher cost. However, the Portside to Indooroopilly driverless metro proposed for 2017 – 2022 provides for additional CBD underground stations.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 27 The future of the SEQ public transport system
Eastern Busway Future It is understood that Stages | Stage 2 Main Ave congestion on Old Cleveland to Bennetts Rd Road is signi cant in peak The 1km Stage 1 of the periods but the discrete use Eastern Busway - Buranda to of on road bus lanes (in lieu of Main Avenue, Coorparoo, a bus tunnel) and limited was recently completed at a investment in bus stops (in cost of $466M. A section of lieu of a full bus station) may this project known as 2A has provide better value for been funded in the 2011-12 money. Budget and the $25M The proposed solution allocation has been included includes the full bus station in the 2012-2017 Program. proposed for the Myer site, The next stage from Main with grade separated access Ave to Bennetts Road is from Old Cleveland Road, understood to also be in and bus lanes on Old tunnel at a cost of $690M. Cleveland Road at a more affordable cost of $300M. This cost for approximately 1.5 km of busway is These bus lanes would be considered extravagant given additional to existing traf c the congestion downstream lanes and would involve in the busway network some widening of the (discussed above) and the roadway and resumption of localised congestion on Old kerbside parking. Cleveland Road. The bus lanes from Carindale to Capalaba (including a direct access into the Carindale Centre) at an estimated cost of $160M are included in the ve year program.
28 Northern Busway Future and should be accelerated as Stages | Stage 2 Sadlier St a high priority capable of to Rode Rd being implemented by mid The rst stage of the northern 2012. busway is being delivered The alternate proposal is to with the Airport Link tollway construct this section at to Kedron. It will access north surface level (and avoid onto Gympie Road at Sadlier tunnel sections) by widening Street. A study is currently Gympie Road locally to developing the concept to create a bus lane in each extend the busway from direction (in lieu of kerbside Sadlier Street to Prince parking only). The work Charles Hospital via Rode would include establishing Road and then to Braken major stops and other bus Ridge via Chermside and priority measures along Rode Aspley. Sections of this Road and Hamilton Road to busway are proposed to be Chermside. in tunnel or involve acquiring Bus priority should be property for a surface provided at all con ict points busway at signi cant cost. with general traf c, including Airport Link is due to open to traf c signals as required. The traf c in mid 2012 and is estimated cost of work along expected to increase traf c Gympie Road is $60M, while volumes on Gympie Road to additional bus priority super saturated levels. This measures on Rode Road and environment will be Hamilton Road are $50M. inappropriate for buses accessing the northern These bus lanes would be busway along Gympie Road additional to existing traf c and it is unlikely that the lanes and would involve major schemes being some widening of the considered could be affected roadway and resumption of for several years. kerbside parking. Consequently, as an The further extension of alternative scheme, the rst busway facilities including section of the Northern grade separated access to Busway must facilitate the Chermside, and a busway to safe and expedient Aspley would be provided in movement of buses along the second ve years, 2017- this section of Gympie Road 2022 at a cost of $600M.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 29 South East Queenslanders want reliability and higher frequency services
CBD Bus Infrastructure Capacity Program The popularity of the South East Busway into the city has resulted in congestion from the busway tunnel onto Melbourne Street, through the Cultural Centre Bus Station and over the Victoria Bridge into the CBD (note that some bus routes currently utilise the Captain Cook Bridge to ease congestion on the busway). Buses can also experience some delay as they pass through three sets of signalised intersections at the busway tunnel/Melbourne Street, Grey Street/ Melbourne Street and North Quay/William Street. The main delay, however, appears to be at the Cultural Centre Bus Station and can be random in nature. It is not uncommon for buses to experience long queues on the busway between Melbourne Street and South Bank Station heading towards the CBD (in morning peak hour) and from the Cultural Centre stop over the Victoria Bridge (in evening peak hour).
30 Understand the effectiveness of bus priority initiatives before committing to capital expenditure
The Cultural Centre Bus Current public transport In the short term, operational Station has become the planning suggests that bus modi cations could improve funnel for bus services services will only increase the ow of buses through this crossing the Brisbane River within coming years with the corridor. These modi cations to Southbank and West End. development of the Eastern could include: It accommodates more and Northern busways, so a 1. Designate bus routes to services than the bus stations viable solution to ease speci c stops at the at King George Square congestion is required. Cultural Centre Bus (KGS), Queen Street, The problem appears to be a Station platform (e.g. King Adelaide Street or Southbank combination of factors that George Square) Bus Station (that feed it). may not be solved through a 2. Pre-sell tickets to non The introduction of the high single capital work regular users with platform frequency City Glider service investment, although planning based ticket sales to West End through the is underway to develop a Cultural Centre Bus Station longer term solution, such as 3. Re-route the West End has increased the load on a dedicated river bus bridge services (including the City this bus station and. ($500M) into an Adelaide Glider) around the Cultural consequently, it now appears Street tunnel ($1500M). Centre Bus Station, to new stops between Grey to be beyond is operational The Brisbane City Council capacity. and Merivale Streets has commissioned a $2M (estimated cost of $5M) The current mode of feasibility study into an operation at the Cultural extension of the South East 4. Grade separate the Centre Bus Station directs Busway into the city via a con ict point between arriving buses to the lead bridge parallel to Victoria general traf c on stop with follow up buses Bridge and a tunnel under the Melbourne Street and the occupying available space on length of Adelaide Street to busway tunnel exit a random basis (as per Post Of ce Square. Such an (estimated cost of $20M). Southbank Bus Station). This ambitious project would be A $25M provision for point 3 “free form” platform soon likely to cost in excess of and 4 above has a new bus exhausts its capacity and bus $2000M. bridge across the been queues build as buses wait A cross river bridge (without a included in the program for for available kerb space. tunnel through the city) is 2012-2017. The high proportion of non- included in the Queensland regular users (e.g. tourists) Infrastructure Plan costed at can impede the boarding $500M. process with driver ticketing We have made provision for also creating random events $1000M of expenditure to that throw the operation of progress this project in the the station, and its Program for 2017-2022. approaches, into congestion. Photo – The Go Card System (The Brisbane Times)
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 31 Buses and busways are ideal for low density areas
Bus Priority/Park and Ride In Toowoomba, the The Program includes population is forecast to investment for speci c increase from 160,000 to elements of the Northern and 230,000 by 2031. Eastern Busways and the Toowoomba acts as a focal CBD Bus Capacity Program. point for interstate and Hence, complementary intrastate freight movement, investment will need to be as three major highways made for various bus priority converge in Toowoomba. improvements and park and As a result, Toowoomba ride facilities feeding the streets carry a high Busway system. concentration of commercial/ The 2017-2022 Program heavy vehicles and its central includes $350M for bus business district provides a priority and $350M for park highway function for heavy and ride facilities. vehicle through traf c. The proposed Toowoomba Bypass will divert some of this commercial traf c around the city, but traf c on the city road network will continue to frustrate public transport services. A suite of bus priority facilities has been proposed to ensure public transport provides a viable option to Toowoomba residents. A $20M provision for bus priority facilities in Toowoomba has been included in the 2012-2017 Program.
32 Allied Projects for Review
Rail New City Train Stabling Depot at Clapham The Cross River Rail project included a new stabling facility at Clapham. The existing Mayne Stabling Yard has little opportunity for expansion and with the anticipated future growth in the Citytrain services a new stabling facility will be required. A stabling yard on the southern side of the city would be desirable and the facility proposed for the Cross River Rail project at Clapham is an appropriate investment. These stabling yards are estimated to cost $100M.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 33 ConÜ icts between passenger and freight movements have to be Û xed
Freight Line Improvements The existing rail corridor is - coal line grade relatively narrow and a fourth separations track will require some The Cross River Rail project property acquisition and included a tunnelled section engineering solutions to from Yeerongpilly to Park accommodate the fourth Road to release surface track track. This proposal will also currently shared with the need to include the grade Gold Coast Line for freight separation of a freight line into movements across the city the Tennyson Line at and to the Port of Brisbane. Moorooka (for the long coal This section of tunnel is trains to the Port of Brisbane). estimated to cost $2000M. In comparison to the $2000M The “Cleveland Solution” tunnelled section of the Cross does not provide any River Rail solution south of additional capacity south of Brisbane River, the Park Road Station so an “engineered” fourth track at alternative needs to be an estimated cost of $575M, considered. appears to offer signi cant The rail corridor between value in the current scal Park Road and Yeerongpilly environment. has three tracks, An Up and This would free up the third Down Track for the Beenleigh track for additional public Line (and non-peak direction transport movements along Gold Coast Line services) the Gold Coast line and and a dual gauge line for the facilitate increased frequency peak direction Gold Coast of services. Line services and any freight or interstate passenger trains. These freight and passenger movements are generally prohibited during peak hours due to the dominance of the Citytrain services. Hence, there is a need for a fourth track to permit freight movements, especially to the Port of Brisbane, to operate independently from the Gold Coast Line.
34 Is there a better way?
Toowoomba Access The 2010 SEQIPP had a The Cross River Rail target completion timeline of improvements to resolve the 2026-31 for the project, con ict between public although the 2011 QIP transport services and the commits only to a Surat freight line to the Port of Basin rail corridor feasibility Brisbane raises the associated study to be conducted 2011- issue of freight access down 2013. the range from Toowoomba. While important to freight Public transport services movements of mining and between Brisbane and agricultural to the Port of Toowoomba could bene t Brisbane, its public transport from a more modern and bene ts are fairly minimal in faster alignment of the rail line the short or medium terms. between Grandchester and As such, the rail project is Gowrie, particularly the range beyond the scope of this crossing. The twice weekly report. Westlander service currently The Council of Mayors (SEQ) takes over 4 hours to current list of priority projects complete the trip. Regular includes funding for a second Citytrain services terminate at range road crossing around Rosewood. Toowoomba which would The existing rail alignment reduce heavy freight from Gowrie to Grandchester movements through the is very slow and has been Toowoomba CBD. The rail identi ed for realignment to project would be a logical improve freight access to medium term complement to Brisbane, particularly coal to this urgent priority, and would the Port of Brisbane and is be a key investment in the already running at capacity. strategic freight network for the region. As such the line will be unable to cope with expected It is likely that substantial expansion of the mining investment from the industry in the Surat Basin. resources sector would be needed to fund the Gowrie to The Gowrie to Grandchester Grandchester project. rail realignment project involve several kilometres of tunnelling and is expensive, listed in the 2009 SEQIPP with an estimate of $1400M. Photo: Toowoomba Range
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 35 Servicing new growth in the Southern corridor
Rail - Acacia Ridge to Flagstone There is increasing pressure for urban and light industrial development to occur in the southern corridor to Beaudesert. With signi cant urban development being considered from Parkinson to Boronia, Flagstone and Bromelton, there is an opportunity to utilise the existing standard gauge track to provide an embryonic passenger rail service from these developments to greater Brisbane. The proposal would be to construct island platform stations at Flagstone, Boronia and Parkinson and a new standard gauge platform at Salisbury. This infrastructure would facilitate a 15 minute frequency diesel-powered shuttle service to the Beenleigh and Gold Coast Lines at Salisbury station. The stations, track and rolling stock for the Flagstone rail service is estimated to cost $300M.
36 Brisbane Cross City Metro Consideration has also been The Cross City Metro is a - Portside to Indooroopilly given to an extension further visionary project to facilitate In 2007, the Lord Mayor’s west to Darra railway station the quality development of Taskforce Investigation via the suburbs of Kenmore, inner Brisbane as the city (LMTFI) identi ed three inner Jindalee and Mount matures in a “Peak Oil” city metro lines (University, Ommaney at a cost of environment. It is unlikely to Hospital and Sports Lines) as $2000M. be justi ed within the 10 year shallow tunnel, “tube” style The Metro as a medium term horizon but the $4000M rst shuttle services. project: stage to Indooroopilly should be considered for delivery in In 2008, the Inner City Rail • Effectively links the the medium term (2022 - Capacity Study considered valuable peninsulas of the 2027). how these lines may con ict Brisbane River with a high or synergise with the Cross frequency shuttle service The extension from River Rail (CRR) proposal and to facilitate and connect Indooroopilly to Darra at a concluded that a metro line, more intensive potential cost of $2000M would also like the University Line – from developments along the be beyond the ten year St Lucia to Teneriffe – could river. horizon subject to the ability of the project to attract PPP complement the CRR and • Connects a new “string” funding. form a subsequent stage to it of inner city stations (at (referred to in this study as Albert Street, Centenary Funding for the planning and Cross River Rail Stage 2). Place and James Street) property acquisition GHD has assessed both offset to the east of the associated with the Brisbane these proposals and has existing CBD rail stations Metro of $200M has been given consideration to an with potentially high included in the Program extension of the University density developments 2017-2022. Line concept in the form of a along the river. Driverless Underground Metro on a corridor from • Signi cantly enhances Indooroopilly, in the west, to accessibility across the Portside, in the east, via river and forms another Bulimba. The line would key plank in the goal of integrate with the Citytrain transitioning the system network at interchanges at from a radial to an Indooroopilly and South integrated network of Brisbane. The project cost is independent lines. approximately $4000M for this stage.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 37 Moreton Bay Rail Link - a long time coming but here to stay
An observation about The residents in the Petrie to Moreton Bay Rail Link - Kippa-Ring corridor have MBRL waited some time for heavy The 12km heavy rail spur line rail. The project enjoys from Petrie to Kippa-Ring is support from all sides of being funded by the politics at the local, state and Commonwealth, State and Commonwealth levels and Morten Bay Council will be delivered in 2014. governments following a Funding has been committed 2010 Federal election by the Commonwealth commitment. ($742M), Queensland ($300M) and Moreton Bay The project had been Regional Council ($105M). discussed for over 50 years and was submitted to It would be remiss however, Infrastructure Australia for not to note that a less funding in 2008 as a heavy expensive, higher frequency rail spur line. The project customer focussed solution proposes six stations at an could be achieved for the average spacing of 2km and residents of the corridor if a a terminus on the edge of the high frequency busway or suburb of Kippa-Ring. light rail was considered. The spur line con guration A light rail or bus shuttle will be required to share would interchange at Petrie platform space through the Station on the main northern network core of CBD stations line with potentially higher and consequently this service frequency services to will struggle to achieve Caboolture. attractive frequencies of The advantage of a bus or service. light rail based transit would be its ability to penetrate further into the low density Redcliffe peninsula. The 2011-12 Budget makes a $253M provision for planning/property and early works that is included in the 2012-17 Program.
38 Projects Beyond 2022
Longer term public transport projects considered to be beyond the current ten year program, but worthy of future consideration are shown in Table 13:
Table 13: Projects Beyond Ten Years Projects Beyond Ten Years
South East Busway (Springwood to Loganholme)
Rail - Elanora to Coolangatta
Sunshine Coast Light Rail Future Stages
Rail - Redbank Plains to Ipswich
Rail - Acacia Ridge to Flagstone (future stages)
Gold Coast Rapid Transit (future stages)
Rail - Gowrie to Grandchester (future stages)
Brisbane Metro
Northern Busway (future stages)
Bus Priority and Park n’ Ride
Eastern Busway Future Stages
Redland Bus Priority
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 39 What needs to be delivered in the next 5 and 10 years?
There are a range of pressure points for What needs public transport infrastructure in SEQ but the priority should be given to providing a reliable to be Delivered Between Now and 2022? and frequent service for users and to overcome existing issues critical to the safe and smooth operation of the public transport system.
40 Providing a reliable and frequent service for users
Recommended Investment Program
After assessing project Table 14: Public Transport 5 Year Priority Program, 2012 - 2017 Table 15: Public Transport 5 Year Priority Program, 2017 - 2022 options, GHD recommends the project priorities with Capital Capital Capital estimated capital expenditure Project Priorities Expenditure Project Priorities Expenditure Project Priorities Expenditure (QLD Budget) for the next ve (EST) (EST) (EST) year periods, 2012 - 2017 and 2017 - Sunshine Coast Connect $420M Eastern Bus Priority - Bus lanes New passenger rail stock $500M 2022 as: Carindale to Capalaba $160M Inner City Rail (The Cleveland Gold Coast Rapid - to Helensvale $850M $2500M Solution) Eastern Busway 2A $25M South East Busway to Springwood $420M New Citytrain Stabling Depot at Freight Line Improvements $575M $100M Clapham CBD Bus Infrastructure Capacity $1000M Rail - Spring eld to Redbank Plains $200M Program Gold Coast Bus Lanes $30M Northern Busway - Sadlier St to $60M Northern Busway - Chermside to Gold Coast Rapid - Broadbeach to Rode Rd $600M $280M Aspley Parkwood Northern Bus Priority - Rode Rd to $50M Rail - Varsity to Elanora $1400M Rail - Comera to Helensvale $430M Chermside Sunshine Coast Light Rail (planning $600M Rail - Kuraby to Kingston and Rail - Richlands to Spring eld $280M and property) $230M Loganlea Rail - Kepera to Ferny Grove $29M Rail - Acacia Ridge to Flagstone $300M Eliminate Open Level Crossings $400M Translink Station Upgrades $161M Eliminate Open Level Crossings $500M New passenger rail stock $300M Bus Priority Toowoomba $20M Rail - Redbank to Ripley $450M Rail - Lawnton to Petrie third rail track $200M Bus Priority $350M Rail - Beerburrum to Landsborough $470M Public Transport 5 Year Priority Program = $7,498M Park n’ Ride $350M Moreton Bay Rail Link (MBRL) $253M Brisbane Metro (planning & property) $200M CBD Bus Infrastructure Capacity Program $25M Public Transport 6 to 10 Year Priority Program = $7,520M Eastern Busway - Main Ave to Bennetts Rd $300M
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 41 Financing the Plan Is there a Role for the Private Sector?
Is there a Role for the The model is reasonably Adopting an Availability PPP The incorporation of an Private Sector? common in social may also enable sourcing of effective incentive regime can bring signi cant bene ts to The current scal infrastructure and emerging in funds from a wider range of public transport across sources – bonds, public transport users and environment prevents the several jurisdictions. superannuation funds etc – the State budget. funding of “mega projects” Speci cally, the bene ts are such as Cross River Rail – An Availability PPP is the particularly where incentives are used and a long contract in terms of service levels, there is simply no public model being used to nance life is adopted (20+ years). reduced costs to the State funding available for projects and deliver the Gold Coast per passenger trip or of this scale. There is also no Rapid Transit. It is critical for opportunities kilometre travelled and appetite for a traditional PPP “Availability” contracts, or with relatively modest returns improved market share to for a project of this scale hybrid schemes, generally to offer value to investors, public transport with where capital costs are high involve the builder and/or and in the case of public improved asset utilisation. and the patronage risk is transport, this can be transferred to the private operator taking some limited achieved by adoption of The availability model offers patronage risk through a the State a real opportunity sector, particularly public performance regime (risk and reasonably lengthy contract transport projects. terms and up front capital risk to extract maximum value in reward) covering: sharing. public transport infrastructure In general, the private sector • Availability (e.g. related to and service provision in SEQ. appetite for demand risk is vehicles/rolling stock Furthermore, a key issue for very low, if not non-existent. available to operate Government in adopting this Public transport projects are services and limited funding model for public viewed by private investors service cancellations) and transport is recognising that it and equity as even less reliability (e.g. on time can set the standards of the attractive than toll roads – service it seeks for and the recent Australian running performance) of customers. track record in that regard is, services at best, patchy. • Vehicle and other facilities’ This will enshrine standards – can be very performance in a well- “Availability contract PPPs” broad in scope, e.g. constructed ‘risk and reward’ may offer a mechanism to cleanliness, average eet regime that rewards delivery fund “value for money” major age, removal of graf ti, above agreed standards and public transport projects, on-board facilities such as applies penalties where where contractors and real time passenger performance drops below operators are paid on the agreed standards. basis of the time the asset is information etc, made available to the user (at • Customer service contractually agreed levels of standards – covering service quality and aspects such as call operational performance). response times, on platform/station staff, internet and other media facilities, ticketing systems etc • Revenue protection.
42 How can Local Government make a contribution?
How can Local As well as the levies already Government make a in place, the Gold Coast City Contribution? Council is also making capital Making a contribution to the contribution towards the Gold provision of public transport Coast Rapid Transit, and the infrastructure and services ts Moreton Bay Regional well with Local Government. Council is making a capital Local Government is well contribution of $105M toward placed to de ne and work the Moreton Bay Rail Line. with major providers and the Having a stake-in-the-game State in developing will encourage local appropriate services that government to take a more deliver effectively locally and active role in community integrate well across promotion and in seeking jurisdictions. ways to reduce car The legislative frameworks dependency across SEQ. are in place to enable Local A levy on rateable properties Government to accumulate may offer a mechanism for funds which can be local government to take a hypothecated to nominated more active role in public public transport infrastructure transport provision in a range and services. Such projects of ways; from policy would need to be subject to development, improved needs assessment, rigorous advocacy capacity, cost bene t analysis and be development of clearly articulated in local and demonstration/pilot projects, regional plans to ensure ‘seed funding’ for projects or appropriate use of monies. straight investment in A local government levy for operations or infrastructure. public transport could aid in Clear rules would need to be funding needed infrastructure put in place setting out the and/or services in a timelier purposes for which any manner than would otherwise public transport levy could be be the case. Gold Coast City used. Another key Council and Sunshine Coast consideration would be Regional Council already whether any such levy should have such levies in place, be applied on a regional basis while Brisbane City Council across all local government makes a substantial jurisdictions in SEQ or on a contribution to public selective, localised basis. transport out of its rates revenue each year.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 43 44 Introducing Competitive Tension into SEQ should follow the lead of the System international cities in urban transport
There is a growing norms and procedures Futhermore, allocative recognition around the world (e.g. staf ng levels and ef ciency (producing outputs that the provision and pay scales determined most closely meeting market operation of transport across sectors rather than demands) is more likely services which are separable by business needs) achieved in a competitive from transport infrastructure • Constraints on nancial market where consumers are can deliver better outcomes autonomy and investment free to express their for commuters in situations due to government demands through market where competitive pressures budgeting processes choice and where prices are limited, and where re ect production costs. supported by an appropriate • Competition for resources regulatory framework. from the core government In order for the best functions of health, outcomes to emerge from a Like Melbourne, many cities education, welfare etc competitive public transport around the world from Dublin provider market, a number of to Jakarta, from Jerusalem to • Reducing the overall size elements need to be put in Lagos, from London to the of subsidies for passenger place as noted previously, Gold Coast, from Mumbai to journeys (or at least including: St Petersburg have subsidy per passenger embarked on ventures in journeys in a growing • A base level of demand urban public transport market - size and/or commensurate with the involving private sector share) to reduce crowding operations and participation in a variant of out of both public investments envisaged the Public Private Partnership transport investment and • Carefully structured (PPP) model. investment in other payments regime – Photo: Paul Harris sectors. Reasons for bringing private containing both penalties operations to what have Private businesses operating for poor performance and been traditional government in competitive markets have rewards to exceeding owned and operated services more focussed aims and agreed standards/ include: incentives. From an ef ciency benchmarks perspective, gains of • Contracts of suf cient • Contradictions in a introducing market tension duration to enable the Government trying to be are now well understood in private sector to extract policy maker, regulator public transport. and operator at the same maximum value from time International experience investments due to better suggests that technical certainty vis-à-vis • Confusion (and often ef ciency (producing outputs longevity and contracts ineffectiveness) in trying to at least cost) is more likely to that are more re ective of act commercially while be achieved by a private the nature of services and pursuing laudable social management responsible and assets involved. goals accountable for achieving • Restrictions on stable and measurable management freedom commercial objectives. caused by public service Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 45 Value and innovation are available to the public transport users of SEQ
46 Greater frequency, seamless interchanges, value for money and a focus on the customer
This report introduces some new thinking to the public transport delivery debate in South East Queensland. “The Cleveland Solution” accomodates the immediate needs and frees up rail capacity and scarce funds for other needed projects. The initiatives in this report deliver on: • frequency • operational exibility • asset utilisation • capital and operational costs. Furthermore, the report shows how “opening up” the market to the private sector can build on the bene ts of prioritised projects. The plan set out in this report is one which clearly puts the public transport user at the heart of the system.
Public Transport in SEQ | Options to deliver value and innovation in future South East Queendland public transport infrastructure | January 20112 | 47 GHD Pty Ltd Council of Mayors (SEQ) 201 Charlotte Street 239 George Street Brisbane Brisbane Australia Australia www.ghd.com www.councilofmayorsseq.qld.gov.au
© GHD Pty Ltd 2012 This document is and shall remain the property of GHD Pty Ltd. The document may only be used for the purpose for which it was commissioned and in accordance with the Terms of Engagement for the commission. Unauthorised use of this document in any form whatsoever is prohibited.
Maps: © 2012. Whilst every care has been taken to prepare this map, GHD and NAVMap make no representations or warranties about its accuracy, reliability, completeness or suitability for any particular purpose and cannot accept liability and responsibility of any kind (whether in contract, tort or otherwise) for any expenses, losses, damages and/or costs (including indirect or consequential damage) which are or may be incurred by any party as a result of the map being inaccurate, incomplete or unsuitable in any way and for any reason. Data Sources: GoogleEarth Pro - Imagery (Extracted Dec 1/11); NAVMap - Streets (2010); GHD - Metro, Stations (2011).