- -- ~ • • • I VICTORIA ,.

• • • VICTORIAN TRANSPORT STUDY ... REPORT ON • COUNTRY ROADS • - - • - I Ordered by the Legislative Assembly to be printed ..• • •

I F. D. ATKINSON, GOVERNMENT PRINTER MELBOURNE 1980 • I No. 38

VICTORIAN TRANSPORT STUDY

The Honourable R.R.c. Maclellan, M.L.A., Minister of Transport, 570 Bourke Street, MELBOURNE, VIC., 3000.

Dear Mr. Maclellan, I have the pleasure to submit herewith a report on Country Roads. This is one of a series of reports being prepared to make known the results of the Victorian Transport Study. Yours sincerely, ~~~ W.M. Lonie COUNTRY ROADS

CON TENTS

Summary

1. Introduction

2. The Existing Road System and ihs Present and future Usage

3. The Draft Transport Plan 1978

4. Submissions

5. The Main Issues

6. Strategy for Road Development

7. Cone lusions

B. Recommendations SUMMARY

The country road network in Victoria is generally accepted as being a high standard system as a result of widespread development of roads with saaled surfaces throughout the closely settled areas of the State. There are however limitations to the traffic that a large proportion of the system can carry because much of it was developed, using low cost stage construc­ tion techniques, when traffic volumes and vehicle weights were far less than today. There is considerable concern throughout the State that funds available for maintenance and develop­ ment of the road system to cater for foreseeable traffic needs are not sufficient. There is also concern that deterioration in the State's most valuable transport assets could occur from reducing levels of maintenance, including the rate of resealing and reconstruction, as a result of increasing costs, and in the absence of substantial additions to the funds available for the purpose. Whilst the extent of the contributions by both Commonwealth and State Governments to the task of maintaining and developing the road system is recognised, the part played by local government authorities is equally important but not so widely recognised. The finance for the local government contribution to roads is however reaching finite limits, and there is a need for increased contributions at State and Federal levels for reconstruction and development of roads to meet standards required for present and likely future traffic.

1 •

1. INTRODUCTION

1.1 The State of Victoria now has a population of just over 3.8 million, of which approximately 1.1 million reside in the cities, towns and rural areas outside the Melbourne metropolitan area. In the State there is one registered motor vehicle for each two persons, and the safe and efficient movement of persons and freight throughout the State is a key factor in the economic development of Victoria and in the well being of its people. 1.2 The road network provides the primary means of land surface transport in Victoria. According to the Australian Bureau of Statistics there were approx­ imately 28,700 million vehicle kilometres of travel in Victoria in 1976, of. which over 12,000 million were on the State's road system outside the Melbourne metro­ politan area. 1.3 In Victoria, roads have long been a concern of Government. As early as November 1851, the Government appointed a Select Committee to inquire into, and report on, the state of roads and bridges in the Colony. As a result of the Committee's report, the Government in 1853 passed an Act to establish a Central Roads Board with exclusive powers over main roads. It also provided for District Roads Boards to construct and maintain local roads. 1.4 Over the next twenty years, responsibility for the construction and maintenance of roads was altered further by several Acts. These Roads Boards were basically the fore-runner of local Government in the State. The last of these Boards disappeared with the passing of the Local Government Act of 1874. 1.5 By 1910 it had become increasingly apparent that there was a need for a central road authority to assume responsibility for main roads. The Country Roads Act 1912 established the Country Roads Board, which commenced operations in 1913. The Board made detailed surveys of road needs, and road making and maintenance practices, and bagan to develop a State-wide road network. 2.

1.6 By the 1920's, motor vehicle numbers began to increase significantly, and to play an important role in the movement of persons and goods. In 1924 the Government passed the Highways and Vehicles Act, which provided for the declaration of State highways, the construction and maintenance of which were to be fully funded by the Country Roads Board. This Act recognised the importance to the economy of the motor vehicle and longer lines of communication, and it removed the burden of providing for long distance "through" traffic from the municipalities through which the routes passed. 1.7 Later Acts provided for tourists roads, forest roads and bypass roads (now called freeways). 1.8 Much of the road system was constructed at a time when traffic volumes and vehicle weights were far less than today, using low cost construction tech­ niques, including the use of local materials, the staged construction of pavements, and the use of sprayed surface seals. In recent years there has been a cont­ inuing increase in traffic volumes, and in the numbers, size and weight of commercial vehicles. At the end of 1975 the recommendations of a Study of The Economics of Road Vehicle Limits were released, and subsequently endorsed by the Australian Transport Advisory Council. In November 1976 the Victorian Government authorised the Country Roads Board to issue permits for vehicles up to limits recommended by this Study, pending an amendment of the Motor Car Act. As a result, vehicles with a gross mass of 38 tonnes are now permitted on Victorian roads. 1.9 The continuing increase in traffic volumes, and in the size and weight of vehicles has been such that many sections of the road system are now in need of improvement. However, because of the limited funds that are available, the rate of reconstruction and development of the road system is far less than is necessary to cater for present and likely future traffic. 1.10 This report deals with country roads, which for purposes of the report are defined as all Victorian roads, excluding those in the Melbourne metropolitan area. A separate report has been prepared on Metropolitan Roads. 3.

1.11 The Study Group has received a number of sub- missions related to roads outside the metropolitan area. It has also travelled extensively throughout the State, and has had many discussions with municipal Councils and other groups on the same topic. Almost without e.xcep ti on, concern about the state of the road s ys tern, and the lack of fullds for road works, has been expressed. 1.12 This report firstly described the existing road system and its usage. It mentions the Draft Transport Plan 1978, and then summarises the various submissions made to the Study. The report indicates that road travel throughout the State is likely to continue to increase in the foreseeable future, although the rate of growth may be slightly less than in the recent past. 1.13 The report outlines the main issues that have been raised during the Study, the predominant one being the need for additional road funds. A strategy for development of the road system is described, and the report concludes with appropriate recommendations. 4.

2. THE EXISTING ROAD SYSTEM AND ITS PRESENT AND FUTURE USAGE

The Existing Road System. 2.1 According to a comprehensive submission by the Country Roads Board to the Study, the existing road system for the State, excluding the Melbourne metro­ politan area, comprises a total of approximately 142,000 kilometres. 2.2 Under the provisions of the Country Roads Act, the Board may, subject to the confirmation of the Governor-in-Council, ''declare" any road to be a State highway, a freeway or a main road. The Board can also recommend to the Governor-in-Council that any road be proclaimed as a tourists' road or a forest road. 2.3 The Board, through funds made available to it, meets the full cost of works to cater for the needs of through traffic on State highways, freeways, tourists' roads and forest roads. 2.4 State highways and freeways, while serving the immediate district through which they pass as arterial roads, also carry a considerable volume of long distance traffic. 2.5 Tourists' roads and forest roads generally pass through areas where little or no rate revenue is available to the local municipality. 2.6 Main roads, the construction and maintenance of which are partly borne by local municipal Councils and partly by the Country Roads Board form what may be described as the principal secondary system of important roads in the State. 2.7 In addition, there is a large network of unclassified roads, many of which carry considerable traffic and for which municipal Councils are responsible. However, the Country Roads Board may provide some finan­ cial assistance for construction and maintenance works. 5.

2.8 The Country Roads Board's submission to the Study shows that the existing road system for the State, excluding the Melbourne metropolitan area, is made up as follows:- Freeways 173 km State Highways 6,615 km Main Roads 13,339 km Tourists Roads 767 km Forest Roads 1,031 km Unclassified Roads 120,000 km (approx.)

142,000 km (approx.)

2.9 The declared road system i.e. those roads in the first 5 categories in this list, is shown in Figure 1. 2.10 Two of the State highways are designated national highways - the Hume highway between Melbourne and Wodonga, and the Western highway between Melbourne and the South Australian border. 2.11 The network outside the Melbourne metropolitan area includes roads in the provincial cities of Geelong, Ballarat and Bendigo. For purposes of funding assistance, roads in these three urban areas are classified as "urban" along with those in the metropolitan area. All other roads in the State are classified as rural. Details of road classifications, the source of road funds, and information on how road funds are allocated, are set out in the Country Roads Board's publication "Financial Facts". Current Usage 2.12 The Australian Bureau of Statistics has estimated that there is over 12,000 million vehicle kilometres of travel each year on the State's road system outside the metropolitan area. 2.13 Victoria's population is now just over 3.8 million, of which approximately 1.1 million is outside the metropolitan area. Table 1 gives details of recent population growth in the main urban centres in the State, outside the metropolitan area. Figure 2 shows details of the cities and towns having population in various ranges between 500 and 25,000. 6.

TABLE 1

POPULATIONS OF MAJOR URBAN CENTRES IN VICTORIA

Annual Average Urban Centre 1 971 1976 Growth Rate ( Per.pent)

Geelong 115,181 122,080 1 20

Ballarat 58,620 60,737 0 72

I Latrobe Valley 54,798 53,402 - 0~ 51 (including Traralgon) Bendigo 45,936 50,169 1. 84 Shepparton 19,410 25,848 6.63 lJarrnambool 18,684 20,195 1. 62 lJangaratta 15,658 1 6' 157 0.64 Mildura 1 3' 1 98 14,417 1. 85 lJodonga 10,528 13,613 5.86 Sale 1 0' 436 12,111 3.21 Horsham 11,045 11,647 1.09 Bairnsdale 8,552 9,130 1.35 Benalla 8,255 8,300 0.11 Portland 8,216 8,298 0.20

Source:- Victorian Year Book, 1979. VICT RIA

MILOURA FREEWAYS STATE HIGHWAYS NATIONAL ROUTE Nos . E W MA IN ROADS DIVI SIONAL BOUNDARIES -- TOURISTS' ROADS MUNICIPAL BOUNDARIES l FOREST ROADS------INSET ( SE E REVERSE SIDE)

1 : 2,000,000

K>LO. TRU 0 20 40 60 80 100 " L . 0 > E=a~~==~==~~== ·- ...... :. HORSHAM r s 0 T H

WALES I r I KANIVA

I E 0 E FIGURE 1. l i411 R1¥tt E E GO LL RAT G E G

l'oinl . l b~ tJ nu IIIC ~•o NN\1111 )

onw R )

GEELONG 0 2

Li fllrltt~ r ll 'r " Point MELBOUR NE ,,

0 2 3 4 5 6 7 8 9 10 «caJi:: """

INDE X TO BRIDGE ROADS

.-,, Mat lbyri'YJI'IQ Brdge Road ~J @ Morolaod B r~ Ro.1d @ AJb4011 Br ldgp Road 0 Cunn1AQ Sl Snago Road ']) Ar !hurt on Brldl)8 Roac ® SI OecnQf s Ad _B r~ d ~ Roa d IJJ Jotmstan SI Brujgt:! Rca: t ® Swan Bndge R c<~d ~I Hoddle Br JdQ-e Road Upton Road Brr rSQe @) ! Me ~ roo~1111~n St!D)P\ JotlA&On St Bo dge Road ~DJ FREE WAYS I , .,. ~ rooo •' '" 6r10Qt'• ST ATE HIGHI".IAYS MAli·! ROA DS FOREST ROADS OTH ER ROADS NAT IONAL ROUTE Nos METR OPOLITAN ROUTE Nos RA ILWAYS, STATIONS DI VISIONAL BOUNDARIES M UNICIPAL BOUNDARIES

Compiled and produced by the Ttt le Surv ey Division, 1979 POPU L ATIO N OF Cl Tl ES AND TO WNS • 500 - 1000 • 100 0 - 1500 \V\\ n 1500 - 200 0 e 200 0 3000 0 10000- 5000

SCAlE OF KILOMETRES 3000 - 500 0 0 20 40 60 80 100 15000 - =-- - · - ·- : ~ 20000 5000 - 7000 ,-;ot Tll 20 000 • 7000 - 1000 0 25000 • 1 Sou rce C R 8

I ,.I --·· ~I

El-· 9-,. I

POPULATION OF VICTORIAN CITIES AND TO WNS

Source : Count ry Roads Bo ard.

Fi gu re2.

7.

2.14 Figure 3, which has been provided by the Country Roads Board, shows details of week-day traffic volumes on the State Highway system in 1979, determined from the results of its State-wide traffic surveys. The Board has also advised that holiday and week-end traffic volumes on several of the State Highways, particularly those catering for tourist or recreational traffic, would be significantly higher than those shown in Figure 3. 2.15 Commercial vehicles are a significant component of the traffic on the State's road system. Figure 4, also provided by the Board, shows details of week-day commercial traffic volumes on the State Highway system in 1979. 2.16 Table 2 indicates the diverse nature of goods carried by road in Victoria. Both the nature of these goods, and their widely dispersed origins and destinat­ ions throughout the State, are such that in practice there is very little scope to transfer them to other modes of transport without significantly increasing overall transport costs. 8.

TABLE 2

ANNUAL TONNE-KILOMETRES Of GOODS CARRIED BY ROAD IN VICTORIA (1976)

Million Commodity Carried Tonne-Kilometres Percentage

Livestock 536 6.6 fresh fruit and vegetables 342 4.2 Other agricultural products 514 6.3 Minerals 33 0.4 Sand, gravel, stone, earth 883 1 0. 8 Processed food 928 11.4 Timber (logs and sawn) 380 4.6 fertilisers 95 1. 2 Petroleum products 445 5.5 Cement and concrete products 287 3.5 Iron, steel and metal products 587 7.2 Other manufactured goods 1,838 22.5 Other goods 1 '129 13.9 Miscellaneous 152 1.9

Total 8 '149 1 oo. 0

Source:- Australian Bureau of Statistics March 1979 Census

Vol ume Ranges

- 0- 499 500 - 999 1000 4999 SCALE OF KILOMETRES 0 20 40 60 80 -- 5000 + 100 = j - ( Source C R 8 ) SOl 'TH

WALES

I .J -·_;;I

~~

1979 DAilY TRAFFIC VOLUMES ON STATE HIGHWAYS (Source: Country Roads Boa rd)

Figure 3_ lam - ?pm 12 hour Ma rch Traffic Census , 1979 )

Number of Commerc ial Vehicles SCALE OF KIL OMETRES 0 - 45 0 20 •o eo so 100 - 45 - 150 - 150 450 450 SOt TH - 750 Above 750

WALES

I .J -I

_,

COMMERCIAL VEHICLE VOLUMES ON STATE HIGHWAYS Sou rce: Count ry Roads Board

Figure 4 9.

2.17 The Country Roads Board has also provided the following information about road freight:- Df the total tonnage of freight moved in Victoria in 1976, 53.2% was handled by trips within the metropolitan area, 6% moved between Melbourne and the rest of the State, 3.3% moved interstate, and the remaining 37.5% moved between origins and destinations within the State but outside the metro­ politan area. The tonne-kilometres of commercial vehicle travel within Victoria has been growing at the rate of 4% per annum during the past 15 years, and is now nearly three times that carried by rail. • About 60% of road freight is tran- sported on articulated vehicles, 35% on rigid trucks and the balance in panel vans and utilities. In 1962, less than 2% of trucks on the Hume highway had more than 4 axles. Now nearly every second truck on this highway has 5 or 6 axles, the proportion of 6 axle articulated vehicles having increased from 3% to 23% of trucks in the past 3 years. The increased proportion of larger trucks on the Hume highway has led to an increase in the average pay load. The average pay load of all trucks on the Hume highway is now 13 tonnes. As a result of adoption by the State of the recommendations of the Study of The Economics of Road Vehicle Limits, the maximum gross vehicle mass of commercial vehicles is now 38 tonnes. Increasing road congestion results in an increasing cost of road transport, which is passed on to the consumer in the form of higher prices. 1 o. lrends in Usage 2.18 Future travel on the State's road system will depend on a number of factors such as future population growth, vehicle ownership, the nature and extent of future State development, and the future availability and price of fuel. 2.19 The State Co-ordination Council has estimated that Victoria's population will rise to between 4.3 and 4.5 million by the early 1990's, and to between 4.7 and 5.1 million by the year 2000. Most of the growth of the State's population is likely to be in the Melbourne metropolitan area, although the current population of 1.1 million outside the metropolitan area could be expected to grow steadily in the years to come. 2.20 The future non-metropolitan population in the State will depend to a significant degree on the nature and extent of future State development. Steady growth can be expected in centres such as Geelong, Ballarat, Bendigo and several other important centres. More rapid growth is likely at Portland and in the Latrobe Valley, depending on the rate of industrial development. 2.21 There are now 510 registered motor vehicles (including trucks and motor cycles) per 1,000 population in the State, or 410 registered motor cars and station wagons per 1,000 population. These figures could be expected to approach 600 and 500 per 1,000 population respectively by the year 2000, if anticipated trends continue. 2.22 The Study Group has examined the question of the future availability and price of fuel for transport in some detail, and has prepared a separate report on this topic, entitled Fuel for Transport. This separate report says that as far as Victoria is concerned "it can be expected that, even though the price of fuel will increase perhaps quite significantly over the next 10 to 15 years, the resulting effects will to some extent be compensated for by fuel conservation practices. In the longer term, alternative fuels and/or alternative energy systems will cater for a larger proportion of road traffic. At this time there is no evidence to suggest that road transport, as we now know it, will not continue to increase well into the future, although the rate of increase might not be as great as in the past, principally due to economic factors, to reduced population growth and to some stabilization of annual vehicle miles of travel." 11 •

2.23 The Study Group has been advised that in recent years, rural road travel in Victoria has been increasing at the rate of approximately 5% per annum. The Country Roads Board has estimated that the growth of traffic in rural areas will continue at around 3% to 4% per annum for the foreseeable future. 2.24 As earlier indicated, the Study Group has been advised that commercial vehicle travel has been growing at about 4% per annum in recent years. It has also been advised that there has been a significant trend to the use of larger trucks with larger pay loads. These trends are likely to continue in the foreseeable future, although the growth rate is likely to be some­ what less than in the past. The growth rate in commercial traffic will, to some extent, be affected by the amount of shift from rail to road as the regulation of road freight is removed. 2.25 Bus travel on the State's road system is now an important consideration. This includes both passenger services (interstate and intrastate) and school bus services. 2.26 Recreational travel is a significant component of travel on many roads, and, according to the Country Roads Board, recreation trips are the second largest trip purpose after work trips4 About 85 to 90% of recreation trips are made by car, usually at a higher car occupancy than trips for other purposes. 2.27 As an example of the relative importance of recreational travel, the Study Group has been advised that weekend and holiday traffic volumes are regularly about 20 to 40% higher than on week days in the Calder highway corridor between Melbourne and Bendigo. Maximum weekend and holiday volumes in this corridor are up to almost double week day volumes. The position is similar on several other Victorian roads. Growth in recreational travel can be expected to continue for the foreseeable future.

2.28 In summary, travel on the Victorian road system can be expected to continue to grow in the foreseeable future, although the growth rate may be somewhat less than in recent years. 12.

3. THE DRAFT TRANSPORT PLAN 1978

3.1 The Draft Transport Plan 1978 was released in three vo~umes for community discussion in December 1978.

3.2 Volume I describes the principal transport issues, the policies that the Government has agreed upon 1n response to these issues, the strategy for developing the program of works, and a process for updating the Plan.

3.3 Based on the considerations in Volume I, Volume II contains programmes for transport throughout Victoria for the five year period 1978-79 to 1982-83 based on a capital expenditure over the period which was assumed to be 10% higher in real terms than the expenditure that would be achieved by continuing the 1977-78 level of expenditure. It also indicates proposals beyond the five year period. 3.4 Volume III contains supporting data on transport, demographic and other matters relating to transport needs. 3.5 The Draft Transport Plan lists a number of policies for rural areas. As far as roads are concerned, these include:- Improve competition between road and rail freight and remove unnecessary controls and restraints. Supplement passenger rail transport by extending the feeder service system, including replacement of lightly patron­ ised rail services with buses. Maintain and reconstruct the road system where required, up-grading sub­ standard sections, and increasing the capacity on highly trafficked routes. Provide additional facilities for tourists using highways, such as wayside stopping places and rest areas. Improve transport connections between the metropolitan area and major provincial cities. 13.

3.5 In the cities and towns outside the metro­ politan area, the Draft Transport Plan says that:- The emphasis on public transport will be directed to bus services and terminal facilities. Special attention will be paid to the problems of through traffic. 3.7 The Draft Transport Plan says that the "transport strategy must : Work within realistic funding limits. Focus on a short to medium term works programme rather than a longer term blue-print. Place more emphasis on obtaining best use of existing facilities by appropriate modifications. Be flexible seeking to preserve as many options as possible for future development. Use stage construction as far as possible. Include a process for continual monitoring of supply and demand factors, periodic review, and co-ordinated planning and implementation." 14.

4. SUBMISSIONS

4.1 The Study Group has received a number of submissions from municipal Councils, authorities and other groups. In addition, the Study Group has tr~velled extensively through the State during the course of the Study and has had discussions with a number of municipal Councils, with the Transport Consultative Committees for the five transport regions embracing all of Victoria outside the metropolitan region, and many other groups. Practically all have indicated that they consider that there is a need for increased expenditure on the main­ tenance and development of roads. In addition, the Study Group has had detailed discussions with represent­ atives of the Municipal Association of Victoria who put a strong case for additional funding. A brief summary of the main submissions is set out below. 4.2 The Calder Highway Improvement Committee made a comprehensive submission and had discussions with the Study Group. Its submission can be summarised in its own words as follows:- "The Committee submits that the Calder Highway, between Keilor and Bendigo, is desperately in need of a substantial allocation of funds annually to carry out a large number of major improvement works. In addition, a special allocation of funds and a government commitment will be required to complete a series of major, long awaited projects such as freeway standard by-passes." 4.3 The Committee says that the condition of the highway:- Produces slow journey times, particularly at weekends and holiday periods. Inhibits development in the towns and rural areas that it serves and forces a number of potential users to seek alter­ native routes to Bendigo and to the north­ western part of the State. 1 5.

4.4 The Loddon Campaspe Regional Planning Authority also made a detailed submission, and had discussions with the Study Group. The main points made by the Authority concerning roads are:- "The Authority has consistently and unanimously agreed that the upgrading of the Calder Highway between Melbourne and Bendigo is the most important transport issue in the Loddon Campaspe Region." The Authority then presents a case for upgrading of the highway. There are serious flood problems in the region's northern municipalities which have an adverse effect on roads. A number of roads in the region require upgrading. The classification of roads in the region requires review (and the Authority has made available a copy of a report it has prepared on "The Regional Arterial Road Network".) The Authority is concerned that a lack of funds is preventing implem­ entation of the recommendations of the Bendigo Transportation Study. The rapidly escalating costs of road construction are of "great concern to all municipalities". 4.5 In a supplementary submission the Authority says:- "The rise in the price of bitumen products is increasingly being felt by municipalities. Further rises will seriously jeopardise the works prog­ rammes of Councils. Special attention to this problem must be given by the Government if the rate of new sealings and re-sealings is to be maintained. Recent price increases have forced some projects to be abandoned this financial year." 16.

4.6 In another submission the Authority draws attention to the bridge crossing the Murray River at Echuca. It says that although a new bridge is planned for Echuca to cater for road traffic, it is not aware of any upgrading to fully utilise the existing rail crossing bridge over the Murray. 4.7 Mrs E.B. Martin of Strathfieldsaye considers that "the most pressing transport need for many people living in the Bendigo area of Victoria is for the urgent upgrading of the Calder Highway from Melbourne to Bendigo to Freeway standard". She also considers that a by-pass of Strathfieldsaye is desirable. 4.8 The Western Victoria Transport Committee, in both its written submissions and in discussions, has expressed concern about the costs of upgrading and maintaining a road system to carry freight such as grain, wool and super-phosphate. Basically, the Committee preferred to retain the Hamilton-Noradjuha railway line to serve western Victoria. 4.9 A number of municipalities in western Victoria have expressed concern about the inadequate road system in that part of the State, and of the likely impact on the road system of additional traffic due to the closure of railway lines. They consider that if railway lines are to be closed adequate funds should be made available to upgrade the road system. Councils who have made submissions on these lines include the Shires of Arapiles, Dunmunkle, Kowree, Mount Rouse, Portland and Wannon. 4.10 In addition, the Shires of Arapiles, Dundas, Kowree and Wannon have jointly made a detailed submission on the Natimuk-Hamilton Road. The submission says that works totalling approximately $1.2 million are desirable to bring the road up to satisfactory standards, and that a further $4.4 million will be required over the next 15 years. It says "that serious deficiencies are evident, which is also a reflection on the rest of the road network system". 17.

4.11 The joint submission makes the point that uA drive over roads forming the major component of the road network system would indicate that the road system is in reasonable condition. However, one should not be deceived by appearances because there are a number of established trends which will inevitably lead to intolerable situations in many instances"~ It then lists the following:- The length of reconstruction of State highways is only 1.5 to 2% per year compared with a desirable rate of 5%. Funds allocated for construction have been steadily declining, and partly at the expense of maintenance allocations which have been increasing slightly. "Obviously there is an economic limit as to how long a deter­ iorating road can be maintained." The bost of road making materials is increasing at rates greater than the inflation rate. Road and bridge reconstruction in undulating terrain is more costly than in flat terrain. "The greater portion of the main roads within the road system was constructed during the 1950's and 1960's •••••• A crisis point is likely in about 5 years because deterioration will accelerate from now on as traffic volume increases. Widespread deterioration of the main roads in the road system would occur if there were two consecutive wet winters." 4.12 The City of Mildura, Shire of Mildura, City of Swan Hill and Shire of Swan Hill have all raised the need for additional road funding, and the particular problems relating to roads in their areas, in discuss­ ions with the Study Group. 1 8.

4.13 The Geelong Regional Commission considers that:- "Construction of the third Barwon crossing should be commenced as soon as possible. Construction of the Geelong Outer freeway should be commenced as soon as possible. Improved road access from the Princes Highway to the Port of Geelong should be provided." 4.14 The Geelong Harbour Trust Commissioners consider that: "Improved road access should be provided from the Princes Highway to the northern berths of the Port of Geelong." 4.15 The Shire of Werribee "is concerned that demands on its road sys~em are increasing without any commensurate. increases in road funding. Road funds provided by the State and Commonwealth Governments are inadequate to cope with road needs for maintaining and upgrading present road systems. Road funding grants are not keeping pace with increased road construction costs." 4.16 The Council is also concerned about the present State and Commonwealth road classifications, and also because "the present Commonwealth system of classificat­ ion •••••• arbitrarily places the whole of the Shire of Werribee within the Melbourne Urban Area •••••• Steps should be taken to introduce a logical and uniform system of road classification which identifies roads according to their present usage, and such a system should be continually monitored." 4.17 Another outer urban Council, the Shire of Pakenham has also presented a case for increased funding for roads and bridges, and for a review of road class­ ifications. The Council also sees the need for "an equitable formula for allocating funds from all sources". It considers that the "State Government should look more closely at the relative proportion of the State Revenue being allocated to roads and in particular the proportion of revenue available for roads from fees collected from motorists." 1 9.

4.18 Both the Werribee and Pakenham Shires believe that the Commonwealth should allocate a greater prop­ ortion of petrol taxes to roads. 4.19 Echuca City says that "if road transport increases, then consideration must be given to the arterial roads primarily used in the increased traffic. Additional expenditure must be provided for roads primarily used in this new function". The Council also "considers the construction of the new bridge for road traffic at Echuca as a priority. The bridge currently in use is 100 years old and restricts both road and rail transport". 4.20 The Shire of Rochester has indicated that many of its roads are lightly constructed, carry relatively heavy traffic, and deteriorate rapidly particularly after a wet season. The Council says that "the physical problems can only be overcome by provision of additional finance", and it is concerned that allocations are not keeping pace with inflation. It says that "needs for maintenance work9 are increasing because of the extended road system, heavier loads at higher densities increase rate of deterioration, and therefore absorb greater proportion of the available funds". The Council "believes there is a need for a larger proportion of road user based tax to be returned to the road system and for a larger part of those taxes to be directed to rural areas". It also expressed concern about the effect of bulk milk tankers on roads throughout the irrigation areas, and "believes that significant economics could be achieved if milk collection could be rationalised". 4.21 The Shire of Deakin "believes that its road system, particularly its declared Country Roads Board Main Roads, is falling back in standard of road. We are unable from the funds provided to keep the road surface in a really safe condition, problems of inter­ section visibility are not given the attention desirable". The Council also "believes the need to stabilise the formula for provision of funds for roads and for the allocation of those funds to municipalities is of major importance". It says that a series of allocations during the year creates work flow and financial budgeting difficulties. 4.22 The Rural City of Wodonga has drawn attention to road development it considers necessary in the Wodonga area, and to the need for additional road funding. 2 o.

4.23 The Shire of Bright says that "the Council is anxious to see a greater allocation by both Federal and State Governments for road construction and maintenance". It describes some of its reading problems, and says "there is no doubt that the availability of more funds for road construction and maintenance is the crux to the problem". 4.24 The Shire of Tallangatta has drawn attention to road needs in its area. 4.25 The Albury-Wodonga Development Corporation considers that specific road requirements in its area are:- By-pass highways to reduce congestion in Albury-Wodonga's urban areas. Arterial roads to ensure efficient movement of urban traffic. 4.26 The Shire of Buln Buln made a detailed submission on the need for increased road funding. The Council says "the greatest single threat to the road transport network within this State is the failure of Commonwealth and State Governments to recognise the level of funding necessary to maintain the present road system, let alone improve it for present and future needs". When referring to the forthcoming National Association of Australian State Road Authorities Roads Survey the Council says that "sufficient information should be obtained •••••• to enable a factual reclass­ ification of the road system to be carried out". 4.27 The Shire of Narracan is concerned that "the closure of the rail services will immediately increase the volume and weight of motor vehicle transports using the country roads system. This could produce disasterous results when Government is deliberately contracting the money available for reading, particularly in country Victoria". The Council goes on to say that "One of the immediate consequences in the deterioration of the country roads system is that many of the school bus routes are likely to be declared unsafe for school buses". 4.28 The Shire of Warragul considers that deregulation of road freight could result in "rapid deterioration of rural arterial roads caused by large increases in heavy traffic (which) could lead to further increases in fund­ ing required for maintenance and construction of these roads". 21.

4.29 The Shire of Morwell has also expressed concern about the effects of deregulation of road freight on roads. The Council also says that it "jointly with the Cities of Moe and Traralgon have on two occasions approached the Minister of Transport seeking the upgrading of the Princes Highway East and the early construction of the Morwell by-pass". In discussion with the Study Group, the Shires of Buln Buln and Warr ul also expressed concern about the need to accelera upgrading of the Princes Highway East. 4.30 The Victorian Farmers and Graziers Association considers that:- "Additional road work funds also need to flow back to local authorities and the CRB from the State fuel tax and Federal fuel excise duties - especially from the windfall gains resulting from the world parity oil-pricing policy. In this context, the Association is deeply concerned about the fuel tax imposed -by the State Government in the latter half of 1979 •••••• Furthermore, the purpose to which the revenue gained is to be diverted is only partially defined in the legislation, sa there is no guarantee that funds derived from road transport users (broadly defined) will be spent on projects related to roads". 4.31 The Association also believes that:- "Much faster progress in duplicating the busier highways dissecting the State (e.g. Hume and Princes Highways) needs to be made in order to improve the road transport systems and thus reduce wasteful inefficiency due to lost time on over­ loaded and congested highways". 4.32 The Shires of Korumburra, South Gippsland and Alberton have expressed concern about the level of road funding and about the need to accelerate upgrading of the South Gippsland highway. These three Councils have expanded on these matters in discussion with the Study Group, as also have the Shires of Woorayl and Mirboo. 22.

4.33 The South Gippsland Conservation Society (Inverlock Branch), in both a written submission and in discussion with the Study Group has raised the matter of the environmental effects of road improvements. 4.34 The Leongatha Chamber of Commerce considers that the South Gippsland highway is now in need of dup­ lication, and that deregulation of road freight will worsen conditions. 4.35 The Phillip Island and District Chamber of Commerce considers that urgent attention should be paid to the upgrading of roads (and public transport) in the Phillip Island area. 4.36 The Decentralisation and Development Association of Victoria has expressed concern about the level of road funds available. It says "Our suggestion is that the Victorian Government should invest far more of its resources in a road works program. Then saving our community many millions of dollars in transport, medical and social costs. These costs are directly related to our present inadequate road system". 4.37 The Australian Road Federation submits that additional funds are required for roads. "New roads should be built to serve the total State needs and should be of such quality that maintenance is kept to a minimum. Existing roads should be updated and rebuilt to meet modern traffic requirements in relation to such important aspects as safety, vehicle economy, reduced road maintenance, accessibility to all parts of the State, freight economy, driver comfort, and moving into the national sphere defence requirements". 4.38 The Cement and Concrete Association of Australia has suggested that greater use should be made of concrete roads, particularly as Middle East crude oil for bitumen continues to increase in price, and as suitable locally occurring road making materials become scarcer. 4.39 The Country Roads Board has made a detailed submission on many matters concerning the State's road system. As far as this report is concerned, the follow­ ing extracts from the Board's submission are particularly relevant:- "The State's road network is one of its most valuable assets, and one of the Board's most important responsibilities is to maintain the utility of this asset. 23. continued ••• (4.39) This function can only be performed adequately if sufficient funds are provided". "The first priority when allocating funds is to provide for adequate levels of maintenance, including resealing and rehabilitation of pave­ ments and bridges, and after meeting these requirements to allocate the balance of the road budget to the highest priority improvements to the network. In practice, this is not always achievable, due to factors including the categorisation of funds, the overall limitation of funds and the urgent need to carry out improvements at locations where the road network is already deficient". 4.40 The Board's submission also says that:- "A number of major inter-regional highways are now carrying high traffic volumes and require duplication or development to freeway standards to cater for existing and projected traffic volumes, In particular, the Hume Highway between Melbourne and the New South Wales border and the Western Highway between Melbourne and Ballarat are to be progressively developed to freeway standards under the National Highways Programme. The Princes Highway East between Melbourne and Traralgon and the Calder Highway between Melbourne and Bendigo are to be developed as four-lane roads with works, as far as practicable, being suitable for future development standards, The South Gippsland Highway between Melbourne and the Bass Highway junction, the Princes Highway between Geelong and Colac, and the Bellarine Highway between Geelong and Queenscliff will require duplication in the future. In addition, there is a need to make many local improvements to the network throughout the State. These works include duplication and improvements of highways and township areas, replacement 24. continued ••• (4.40) of bridges which are structurally deficient or lacking adequate water way area, and improvement of sections of road with deficient geometry". 25.

5. THE MAIN ISSUES

Finance for Roads 5.1 The Study Group is obliged to record that by far the main issue relating to Victorian Roads (excl­ uding the metropolitan area) is the level of funding for road maintenance and development. In all parts of the State concern has been expressed about what is considered the current inadequate level of funding, and concern that the roads of the State are likely to deteriorate if additional funds are not forthcoming for both maintenance and re-development to standards appropriate for today's traffic and transport require­ ments. 5.2 In its submission, the Country Roads Board explained that:- "The funds available to the Country Roads Board are derived from State and Commonwealth sources in a complex series of arrangements that categorise and cross-categorise both income sources and the manner in which funds may be expended. Further, the nature of these sources and the decision making processes by Governments are such that the level of funding is not completely assured over any reasonable medium and long term planning and budget­ ary horizon". 5.3 The Board has made available a copy of its publication "Financial Facts" which sets out details of revenue and expenditure patterns. 5.4 The Board further explained:- "A review of road expenditure over the past decade shows that in real terms total expenditure has declined from around $275 million (1978-79 prices) at the start of the decade to just over $230 million in 1978-79 with estimated 1979-80 expenditure being $257 million (or $231 million in 1978-79 prices), a decline of 16%. At the same time, total road travel has increased by about two-thirds". 26. continued ••• (5.4) "This overall trend is of serious concern to the Board, and if it continues there will be a deter­ ioration in the physical standard of Victoria's road network related to traffic demands on the network". 5.5 The Board also pointed out that:- "This assessment is independently supported by the Bureau of Transport Economics report An Assessment of the Road System 1979-Part 1, which indicated that an economically warranted road programme for the period 1979-80 to 1982-83 would require an increase in real expend­ iture in Victoria of 8.8% per annum". 5.6 Figure 5 shows the trend in road expenditure in terms of constant 1978-79 prices from 1967-68 to 1978-79. 5.7 Table 3 sets out details of expenditure on rural roads in Victoria for the 1978-79 financial year. 5.8 The Study Group considers the following aspects of Table 3 to be important in a study of the financial position relating to road financing and development:- • Construction of National Roads in 1978-79 i.e. development of the Hume and Western freeways (highways) accounted for one third of the total expenditure on road construction in Victoria outside the metropolitan area. A large proportion of the cost of maintenance of unclassified roads is borne directly by municipal Councils, and is not reflected in the figure for this category of work in this tabulation. 27.

300

280

260

240 Total Road Expenditure 220 =A+ B+C LJ.J u"" 0::: 200 Cl.. 0'> ...... 180 ""- ...... 00 0'>...... 160 ""0::: <::( _! 140 _! 0 0 -·-...... 120 0 ./' '" ~·-·-A Rural (Road Only) ""z ,... ----...... ~ ---"ll...--...... ~ 0 100 .; ...... ->·~· ::J _! ' SE 80 '----- ...... - B Urban ( Road Only )

60 _------.. - _ _ .- ... -- C Mise & Non Road 40 ...-.-.,..,.,... ._...... - ( including MMBW Admin. )

20

0 67/08 68/69 G9/70 10171 nm nm 73/74 14ns 75/76 76/77 nns 78/79 YEAR Source : Country Roads Board

FIGURE 5 ROAD EXPENDITURE 1967 I 68 - 1978 I 19 ( IN CONSTANT 1978 I 19 PRICES ) 28.

TABLE 3

( 1 ) EXPENDITURE ON RURAL ROADS IN VICTORIA 1978-79 ($ MILLIONS)

(2) ( 3) CONSTRUCTION MAINTENANCE TOTAL

National Roads 25.183 3.082 28.265 4 Freeways( ) 4.792 0.211 5.003 4 State Highways( ) 12.600 11.655 24.255 5 Main Roads( ) 10.549 11.067 21.616 Tourists Roads 1.651 1. 827 3.478 Forest Roads 0.746 1. 052 1.798 5 Unclassified Roads( ) 20.074 6.268 2 6. 342

Total Expenditure 75.595 35.162 110.757

Total Expenditure excl­ uding National Roads 50.412 32.080 82.492

Total Expenditure excl- uding National and 30.338 25.812 56.150 Unclassified Roads

Notes:- (1) Excludes Melbourne, Ballarat, Bendigo and Geelong (2) Includes resheeting and other minor improvements (3) Includes patrol (routine) maintenance and reseals (4) Figures exclude National Roads (5) Figures exclude contributions by municipal Councils 29. continued ••• (5.8) Excluding National and Unclass­ ified Roads, expenditure on con­ struction and maintenance appears to be about equal. However, the Study Group has been advised by several of the groups making submissions that the cost of maintenance is likely to continue to increase. 5.9 The contribution by local Government to the cost of maintenance and development of the State's road system, and particularly the unclassified road system, is quite substantial. According to the Bureau of Transport Economics Report on "An Assessment of the Australian Road System: 1979", approximately 40% of the total funds provided for roads throughout Australia in 1978-79 came from local Government. It is estimated that the corresponding figure for country roads in Victoria would be of the order of 30 to 35%. 5.10 In addition the Study Group has been advised that resheeting and other relatively minor works req­ uired to maintain the existing road system are classified as construction activities rather than maintenance. Thus, funds for new construction are much less than the total for construction shown in the table, and unless there is an increase in the total funds available, the amount for construction will decrease. 5.11 The Country Roads Board has advised that in order to maintain the road system in a satisfactory condition under increasing traffic volumes, "it is imperative that each year approximately 3 to 4% of the system be reconstructed and approximately 12% to be resealed". Figure 6 illustrates the rates of resealing and reconstruction on the declared road system that have been achieved since the Second World War, and shows dis­ quitening trends over the last few years. 5.12 The Board has also advised that:- "There are approximately 8,500 bridges and major culverts in the rural road system in Victoria. More than half of these are over 30 years old, and were not constructed for heavy, high speed traffic. Between 2,500 and 3,000 of these bridges are of timber construction and subject to deterioration from a number of causes. To replace the timber bridges alone would cost approximately 30. 18

16

14 :r 1- r ~ 12 : w .,. .... ''"'''"' ,,,, '\ _J \ - _J . r·~ ~ -9.8{ v , ~ 10 0 1- \------.---i-~--'rj¥-t ----\::::t-~ESEAL 0 8 w <::> L.-\) V ·.

o~----~----~----~~----~----~----~---- 45/46 50/51 55/56 60/61 65/66 70/71 75/76 YEAR STATE HIGHWAYS

14

:r 12 1- o::> z ~ 10 _J \.·\ • A""'' '"''""' R•to- 7.4% ~ ~ 8 --- -::.cf- :..-:.r -A- [')>:-r-:::~ T""\""--- -::;:.. w ~ 6 V J V V \...... RESEAL 1- 'v z 4 0::t5 w 0... 2

45/46 50/51 55/56 60/61 65/66 70/71 75/76 YEAR TOURISTS', MAIN & FOREST ROADS

Source : Country Roads Board

FIGURE 6 RATE OF RESEALING & RECONSTRUCTION ON C.R.B. DECLARED ROADS 31. continued ••• (5.12) $180 million, and at present rates of expenditure would take more than 50 years. In this period many of the bridges would have collapsed or have had severe load restrictions imposed unless additional maintenance costs to repair these bridges were incurred". 5.13 The Board also says that:- "A structure which is deficient whether by physical deterioration or insufficient width is a serious hazard, and could well be the cause of an accident costing the community more than the cost of replacing the structure. It is essential that additional funds be made available for expenditure to replace old timber bridges on the rural road system". 5.14 The overall position can be summarised as in the following extract from the Board's submission:- "Restrictions of available funds may reduce funds available for either or both of the following - firstly, maintenance of the structural integrity of roads and secondly, improvements to the net­ work which maintain the operational quality". "Reduction of funds for maintenance of the structural integrity of roads could lead to a situation where large expenditures may be required to restore the road system to a satisfactory condition". "Reduced funds for improvement of the road network may result in the rate of improvement falling further behind the demands made on it. In this situation the road network deteriorates in a operational sense. 32. continued ••• (5.14) For example, increasing traffic volumes on an unimproved network will cause increasing congestion, delay and accidents, all of which lead to an increasing cost of travel for the community". "An increase in funding levels is necessary if both the structural integrity and the operational quality of the road network is to be retained". 5.15 The Study Group is satisfied that throughout the State the road network has a vital role to play in the movement of persons and freight, and that this role is likely to continue to increase in the years to come. The Study Group is also concerned that sufficient funds be made available to maintain the existing road and bridge system and to progressively develop it to cater for increasing traffic needs. It is satisfied, from the many submissions it has received during its discuss­ ions throughout the State, and from what it has seen on its extensive travels, that there is a strong case for additional allocations to the State's road system, on the basis of need. 5.16 The Study Group is not in a position to suggest the desirable level of funding. However, in this regard, it has been advised that the National Association of Australian State Road Authorities (NAASRA) is now commen­ cing an Australia wide Study of Road Needs, covering all classes of road, and that this Study will be carried out in liaison with Local Government and Commonwealth Agencies. 5.17 It also understands that the NAASRA Study will provide detailed information on the road system and its condition, and on its current and likely future usage, in order to demonstrate the likely effects and implicat­ ions on the physical conditions, transportation costs and levels of service of the different parts of the road system that would arise from different levels of funding. Thus, the Study should provide a factual basis for the assessment of roads needs on various classes of roads throughout the State. 33.

Calder, Princes East and South Gippsland Highways 5.18 A number of submissions have concarned the need to up~rade specific State highways, notably the Calder, Princes East and South Gippsland highways. The Study Group has travelled over each of these highways and is satisfied that there is a good case to accelerate development of them. However, the Study Group has been advised that development is only constrained by the availability of funds, and that planning activities are well ahead of likely construction. The need for planning and engineering activities ahead of develop­ ment would not limit progress even if substantially increased funds became available. 5.19 Municipal Councils and other groups along each of these three highways have submitted that their particular highway should be given a higher priority for development. Each group made comparisons with the rate of development of the Hume and Western highways as a basis for more expenditure on their highways, and requested additional funds for highway development. 5,20 The Study Group has been assured by the Country Roads Board that a wide varity of factors is considered when priorities for works are being determined. The Board also confirmed that the Hume and Western highways have been declared National highways, and are thus covered by special funding arrangements from the Common­ wealth Government. 5.21 On the Calder highway, the Study Group notes that construction of a bypass of Keilor is proceeding. Other principal needs no doubt could be a bypass of Gisborne, a bypass of Kyneton and a bypass of Diggers Rest (or elimination of the gated level crossing at Diggers Rest) if and when money is available, in the interests of residents of the area and to facilitate movement of traffic from further afield. 5.22 However, as far as highway travel to Bendigo and beyond is concerned, the Northern and Mcivor highways are reasonable alternative routes over most of their length, and being in relatively good condition, travel times and travel distances via these are not much differ­ ent to those along the Calder. For travel between the northern and north eastern parts of the metropolitan area and Bendigo, the Hume - Northern - Mclvor highways route has obvious advantage. While the Study Group is not in a position to determine priorities it does consider that the presence of these alternatives must be a factor to be considered. 34.

5.23 In contrast, the Princes Highway East and the South Gippsland highway serve a number of relatively important centres without significant alternatives. Both highways carry high volumes of week-day and/or weekend traffic. While the Study Group agrees that upgrading of the Calder highway between Melbourne and Bendigo is desirable, the development of the Princes Highway East and parts of the South Gippsland highway may warrant higher priority in view of the lack of reasonable alternatives. Allocation of Funds to Municipal Councils 5.24 The Study Group was advised that funds are allocated to municipal Councils by the Country Roads Board for construction and maintenance works on main roads. The Board also assists Councils by making grants for works on unclassified roads. 5.25 It is understood that Councils are required to make a financial contribution towards works for which funds are allocated by the Board. According to the Country Roads Board's publication "Financial Facts 1980'', the average contribution by Councils for works on main roads is approximately one dollar in every twelve dollars expended. On unclassified roads, the municipal contrib­ ution averages approximately one fifth of the total sum of the allocations made by the Board for construction work. 5.26 Several municipal Councils have put forward the view that special problems in their areas are not recognised when the Country Roads Board allocates funds to them. Examples that have been put forward include:- The increasing numbers, and weight and size of vehicles using lightly constructed roads in the western part of the State, at least due in part to the development of the Port of Portland, and to the movement by road of increasing quantities of grain, fertiliser and live stock. The problems associated with State development projects, such as at Portland, in the Latrobe Valley and at Wodonga. A number of heavily trafficked unclassified roads in the north-west of the State. 35. continued ••• (5.26) Difficult and costly road making conditions in the irrigation areas. Difficult and costly road making conditions in central and southern Gippsland. Additional traffic generated by the closure of railway lines, and the development of railway freight centres. Increasing traffic to tourist and recreation areas, including the snow fields and coastal areas. Shortage of suitable road making materials in some areas. The problem of the rapidly develop­ ing areas on the outskirts of the metro­ politan area. Problems associated with the main­ tenance of old timber bridges in various parts of the State. 5.27 The Study Group appreciates all of these types of problems. After having considered a large number of written submissions, and having travelled extensively around the State observing problems at first hand and discussing them with a wide range of interested parties, the Group can only conclude that each region within the State has its own particular problems associated with its own characteristics, and that allocations of funds must necessarily take into account the different costs involved in providing road services in the various regions. These problems are all real, but all different. For example, problems of the western part of the State are different to those of the Alpine areas, which again are different to those in the irrigation areas or in central or southern Gippsland. 5.28 The Study Group has been assured by the Country Roads Board that all relevant factors are taken into account by the Board when it is allocating funds to municipal Councils. Other Matters 5.29 A small number of municipal Councils and the Loddon Campsaspe Regional Planning Authority have suggest­ ed that road classifications should be reviewed and up­ dated. In this regard, the Country Roads Board submiss­ ion says that "there is a sound case for expansion of the declared road network both in Melbourne and in the provincial cities. Insufficient funds have prevented such an expansion. There is also a case to review and resolve classification anomalies in rural areas where development and traffic conditions have changed". 5.30 Perhaps somewhat surprisingly there have been only relatively few submissions or discussions dealing with road development in the various cities and towns throughout the State (outside the Melbourne metropolitan area). 5.31 In Geelong, the Geelong Regional Commission submitted that construction of the third Barwon River crossing and of the Geelong Outer Freeway should be commenced as soorr as possible, and both the Commission and the Geelong Harbour Trust Commissioners consider that improved access is required to the Port of Geelong. 5.32 The Study Group understands that the Country Roads Board publicly released proposals for the third Barwon River crossing earlier this year and invited comment from all interested agencies and the public, with a view to finalizing the proposals at an early date, so that detailed design and construction could then follow on. 5.33 The Study Group is also aware that, as a result of a joint study by the Geelong Regional Commission, the affected municipal Councils, and the Country Roads Board, action has been taken to protect the land required for the future Geelong Outer Freeway. The Study Group noted that this joint study concluded that construction of this freeway would not be required until about the 1990's and that, in any case, initial construction over part of the length could be for a lesser facility capable of later upgrading to freeway conditions.' 5.34 The Loddon Campaspe Regional Planning Authority has expressed concern that a lack of funds is preventing implementation of the recommendations of the Bendigo Transportation Study. The Study Group understands that this is generally the position, although it notes that 37. continued ••• (5.34) the implementation of the STATCDN priority system has been such that it reinforces the arterials and sub-art­ erials classified in the Study. 5.35 The Rural City of Wodonga and the Albury-Wodonga Development Corporation have referred to the need for improved arterials and by-passes in the Wodonga area. The Study Group is aware that pre-construction activities for the Wodonga By-pass are at an advanced stage and that early construction of it is programmed. It has been advised that planning for the extension of the Wodonga By-pass to connect to the Albury Relief Route via a new Murray River crossing, and with a connection to the Murray Valley Highway, is proceeding. It is also aware of planning for local by-passes in Wodonga itself. 5.36 The Study Group has been advised that by-passes of several cities and towns on the main highways have been planned and that action has been, or is being, taken to protect the land required for them, and that some are now under construction. It has also been advised that action has been taken to protect land for the future duplication of various sections of several State Highways. Roads in State Development 5.37 The Study Group's studies have confirmed the significance of roads in the balanced development of the State. 5.38 There is an obvious need to provide adequate roads to service industrial and other developments in areas such as the Latrobe Valley, Portland and Wodonga. In these areas, planning for roads and other transport facilities as well as land use are an integral part of the planning and investigation of major development proposals. 5.39 The Study Group has had discussions with represent- atives of the State Electricity Commission on its recently released conceptual plan for the future utilisation of the brown coal fields in the Latrobe Valley. It under­ stands that the Commission currently envisages population increases associated with possible future development in the area being centred on several of the existing urban areas in the Latrobe Valley. It could be to the longer term benefit of the residents of the Latrobe Valley, and in the best interests of balanced development of the State, to concentrate development largely in one suitably 38. continued ••• (5.39) located urban area. This may enable a wider range of community services to be provided more economically, and may assist in the provision of more effective transport services. This possibility could receive consideration as the Commission's proposals develop. These considerations should also have regard for other possible industrial developments in the region. 5.40 The Study Group has examined the handling and transport of grain in some detail, and in a separate report has outlined concepts for the development of improved and more efficient grain handling facilities. These concepts envisage that the bulk haul transport of grain will be by rail from a lesser number of receival points. This will enable the closure of certain rail tracks and rail facilities no longer required, but will involve transport of grain by road from farm to rail receival points over distances of up to 60 to 80 kilometres. 5.41 The need to improve the road system to cater for expected future grain traffic is an integral part of the concepts. · If and when they are being implemented, adequate funds for the necessary road improvements should be made available. 5.42 Similarly, in a separate report, the Study Group has proposed rationalisation of the country rail system, including the closure of uneconomic lines. The possible impact of these proposals on the road system, and the need for additional funds for roads, should be kept in mind when they are being considered. 5.43 During its visit to East Gippsland, the Study Group's attention was drawn to the consideration being given to the development of alternative proposals for the Omeo highway, namely:- Progressive development of the existing road as traffic requirements dictate and as the availability of finance permits, or Construction of a low level deviation over a substantial length, at a cost understood to be of the order of $51 million. 39.

5.44 In view of the many road needs in the State, and the shortage of road finance, the Study Group is concerned that large scale expenditure is being contemplated on a relatively lightly trafficked road. Even though an upgraded highway may have potential to attract tourist traffic, the present and likely future traffic on it is such that little support, other than the progressive upgrading and logical development of it over a number of years, is warranted. 5.45 The suggestion by the Cement and Concrete Assoc- iation of Australia that consideration be given to the greater use of concrete roads, particularly as Middle East crude for bitumen continues to increase in price, and as suitable locally occurring road making materials become scarcer (and therefore more costly) has been discussed with representatives of the Municipal Assoc­ iation of Victoria and with the Country Roads Board. 5.46 The Study Group has been advised that:- Consideration is given to the use of concrete pavements, particularly on the higher volume urban roads, and that the selection of pavement type is largely a matter of economics, taking into account both the initial cost of con­ struction and the continuing cost of maintenance. As the cost of flexible pavements increases, the use of concrete pavements on the higher volume urban roads will become more competitive. In rural areas concrete pavements are unlikely to have much application in the foreseeable future, although there will be increasing use of cement as an additive to locally occurring materials to improve their properties to provide more economic pavements. 5.47 The Study Group believes that continuing and increasing effort should be directed towards the develop­ ment of economic pavements, including where appropriate the use of concrete pavements and/or cement or other additives to improve the quality of locally occurring materials. 5.48 The Study Group also notes that the increased use of cement based techniques in road construction could also lead to the further development of cement 40. continued ••• (5.48) manufacturers within the State, and that in the long term this could be a factor to be considered in the balanced development of the State. It is understood that some States in North America undertake the develop­ ment of concrete roads as a means of supporting local cement manufacturing industries. 5.49 The Study Group draws attention to the present position concerning bridges on the road networ~ and particularly to the large number of old timber bridges, as set out in paragraphs 5.12 and 5.13 of this report. Bridges are a key link in the road system, and every effort should be made to ensure that sufficient funds are provided for the progressive replacement and/or upgrading of old bridges before they become a serious hazard. 5.50 Several of the municipal Councils and other groups along the Murray River raised the need to upgrade the various bridges across the Murray to cater for present day traffic. The Study Group understands that proposals are being developed by the Country Roads Board and the DepartmeQt of Main Roads, New South Wales for replacement of several of the bridges. It would appear that there is a need to finalise proposals, and to provide adequate funds to enable bridges to be replaced or upgraded without delay. 41.

6. STRATEGY FOR ROAD DEVELOPMENT

6.1 Any strategy concerned with travel in Victoria must recognise that for t~e State to function efficiently and effectively, it is essential that persons and freight should be able to move throughout the State with reasonable freedom, economy and safety. 6.2 In Victoria, the rural road system has been developed by the widespread use of low cost construction techniques, including the use of local materials, the staged construction of pavements and the use of sprayed surface seals. With the continuing increase in traffic volumes and the increasing size of vehicles, first priorit must be given to maintaining and improving this existing as through an adequate programme of: Maintenance, including routine resealing and construction of existing pavements.

Improvements relating to increased road stre t~ tD traffic management and to increased traf c safety.

6.3 In this latter category, improvements should take cognisance of the need to improve road conditions to cater for increasing traffic volumes, increased speeds and increased loading of heavy vehicles by:

Strengthening of pavements. Pavement widening. Improvement of substandard curves. Regrading of the crests. Widening or replacement of narrow bridges, including those that have inadequate waterway or are structurally deficient.

Intersection improvements.

The provision of climbing lanes. 6.4 The number and severity of accidents on the road system is of concern. In addition to the need to continue education and other safety related programmes, there is a need to continue to improve existing intersections, signing and marking, and to remove existing road side hazards wherever practicable. 42.

6.5 Whilst there is an obvious need to cater for the increasing demand for travel by upgrading certain of the higher volume State Highways to divided road or rural freeway standards, limitations of finance should dictate an approach to major arterial road development that aims to achieve the most effective use of the finance available by progressive stage development within the framework of an overall long range an by:

The removal of bottlenecks. The upgrading of specific sections of road selected on the basis of need, and costs and benefits. The provision of sections of divided arterial road, with at-grade intersections and using the existing road where practicable. Provision for ultimate upgrading to freeway conditions at some later stage. 6.6 In the cities and towns, it is necessary to continue the progressive development of arterial roads, including the removal of bottlenecks and the provision of sections of new arterials and/or duplication of existing arterials, together with increasing emphasis on the application of traffic management techniques. 6.7 The Study Group is aware of the various statements of Planning Policy that affect roads, and in particular of State of Planning Policy No.5 - Highway Areas. This Statement says: "It is planning policy that: The Planning of highways and the planning and control of land use and development in the areas through which they pass shall be coordinated and undertaken as an integral operation. Any new use or development of land in the vicinity of an existing or proposed highway shall be so planned and regulated as to avoid detriment to the levels of service, safety and amenity desirable for that highway in both the short and long term. New highways shall be located and designed as to minimise detriment to the environment and disruption of residential communities and their amenity. The planning of highways and of areas in their vicinity shall be designed to achieve standards of visual amenity commensurate with the importance of the highway". 43.

6.8 The Study Group believes that an appropriate strategy directed towards the objective of providing and preserving balance in the development of a road system capable of meeting the needs of the people of Victoria would be as follows:

A programme of maintenance, routine reconstruction and resealing of existing pavements, improvement of substandard curves, regrading of sharper crests, widening or replacement of narrow bridges, including those that have inadequate waterway or are structurally deficient, pavement widening, intersection improvements, the provision of climbing lanes, and improved signing and marking of various sections of the road network. The regressive upgrading of the higher volume Sta Highways to divided road or rural freeway standard. In general, development of these Highways should take place in pro ressive steps towards divided highway developm with at grade intersections and where appropriate capable of ultimate upgrading to freeway conditions. Bypasses of selected townships could be provided as part of this devel~pment, but their need or otherwise should be fully examined in each case. The progressive upgrading of other important rural arterial roads b reconstruction and widening to satisfy traffic ne , and in conjunction with land use and other development proposals. The regressive development of important arterial roads wi n cities and towns by intersection improvement, reconstruction, widening, duplication, and construction of new sections to remove bottlenecks and discontinuities in the network. The wider application of traffic management on both rural roads and in urban areas throughout the State. The reservation and protection of land for longer term proposals, including future bypasses of selected urban areas.

6.9 The Study Group understands that the above strategy is basically that which is currently being followed in the development of the State's road system. 44.

6.10 Because of the limited funds available for road works, and the many demands on these funds, as evident from the number of submissions that the Study Group has received and from the many discussions in which this matter has been raised throughout the State, the Study Group considers that:

First priority on the use of funds be for the maintenance and preservation of the existing asset.

As far as practicable new works should be carefully selected, and be of appropriate standards, to ensure that the most cost effective projects are implemented. Projects that are implemented, however should have regard to likely future traffic needs, should be capable of future upgrading as required and should be carried out expeditiously in order to preserve the integrity of the financial commitments to the project. 45.

7. CONCLUSIONS.

7.1 Throughout the State, the Study Group has encountered concern about what is considered to be an inadequate level of funding for roads, and concern that the road system is likely to seriously deteriorate unless additional funds are made available for road and bridge maintenance and for new works. 7.2 The Study Group has noted advice from the Country Roads Board that: . Road expenditure in real terms has declined by 16% over the last decade while total road travel has increased by about two thirds.

"To maintain the (road) system in a satisfactory condition under increasing traffic volumes, it is imperative that each year approximately 3 to 4% of the system be reconstructed and approximately 12% be resealed 11 , and that over the last two years "The Board was able to allocate sufficient funds to enable only approximately 1% to be reconstructed and only 10% to be resealed".

There are approximately 8,500 bridges and major culverts on the rural road system, of which more than half are over 30 years old, and that between 2,500 and 3,000 of these bridges are of timber, and subject to deterioration. Replacement of these bridges would cost $180 million, and at present rates of expenditure this would take over 50 years. "It is essential that additional funds be made available to replace old timber bridges". 7.3 The Study Group has also noted:

The many submissions and representations to it about the need for additional funds to urgently upgrade some State Highways, notably the Princes Highway East, Calder Highway and the South Gippsland Highway, and to enable municipalities to adequately maintain their road systems. 46.

7.3 (Continued) .... The estimate in the 1977/78 Annual Report of the Country Roads Board that the shortfall in funds for road works in the State in 1978/79 would be about $48 million, of which about $18 million would be for rural roads. The estimate in the 1978/79 Annual Report of the Country Roads Board that for the year 1979/80 an additional $45 million could be spent to accelerate work on a selected list of "essential projects in both the urban and rural areas of the State". The assessment by the Bureau of Transport Economics in its report "An Assessment of the Road System 1979 - Part 1 11 , that an economically warranted road programme for the period 1978/80 to 1982/83 would require an increase in real expenditure in Victoria of 8.8% per annum. 7.4 The Study Group believes there is a strong case for additional funds to be allocated to the maintenance and development of country roads, including the replacement of old timber bridges. While it is not in a position to assess the real requirement, the Study Group has concluded that additional funds of the order of $20 million per annum for country roads would not be unreasonable. 47.

B. RECOMMENDATIONS.

8.1 It is recommended that:- In view of the importance of an adequate road system to the economic and balanced development of the State, and to the well being of its people, there be a substantial increase in the funds made available for the maintenance and development of the State's road system. The basic strategy, summarised in paragraphs 6.8 and 6.10 of this report, be adopted as the means of addressing the objective of providing a road system that will enable persons and freight to move or be moved throughout the State with reasonable freedom, economy and safety.