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The Airport Link Project Report Report of the Queensland Ombudsman The Airport Link Project Report An investigation into complaints about night-time surface work. June 2011 Report of the Queensland Ombudsman The Airport Link Project Report An investigation into complaints about night-time surface work June 2011 © Queensland Ombudsman, 2011 Apart from any fair dealing for purposes related to the functions of the Ombudsman or the purpose of private study, research, criticism or review, as permitted under the Copyright Act, no part of this document may be reproduced by any process without permission. Inquiries should be made to the publishers, Queensland Ombudsman. ISBN 978-0-9807523-7-3 ISBN 978-0-9807523-8-0 (online format) Queensland Ombudsman Level 17, 53 Albert Street Brisbane QLD 4000 GPO Box 3314 Brisbane QLD 4001 Tel: 3005 7000 Fax: 3005 7067 Email: [email protected] Web: www.ombudsman.qld.gov.au 27 June 2011 The Honourable R J Mickel MP Speaker Parliament House George Street BRISBANE QLD 4000 Dear Mr Mickel In accordance with s.52 of the Ombudsman Act 2001, I hereby furnish to you my report, The Airport Link Project Report—An investigation into complaints about night-time surface work. Yours faithfully Phil Clarke Queensland Ombudsman Enc Table of contents Table of contents Dictionary and abbreviations ................................................................................... viii Executive summary ................................................................................................. xiv Chapter 1: Introduction .............................................................................................. 1 1.1 Background ..................................................................................................... 1 1.2 The Project ...................................................................................................... 2 1.3 The parties ....................................................................................................... 9 1.4 Project progress ............................................................................................. 13 Chapter 2: Complaint and issues for investigation ................................................... 14 2.1 The complaint ................................................................................................ 14 2.2 Other residents’ contact with my Office .......................................................... 15 2.3 Complaints generally ..................................................................................... 16 2.4 Issues for investigation .................................................................................. 17 2.5 Issues for this report ...................................................................................... 18 2.6 Issues for future report ................................................................................... 18 Chapter 3: Jurisdiction ............................................................................................. 19 3.1 Overview ........................................................................................................ 19 3.2 Jurisdiction in relation to the parties ............................................................... 19 Chapter 4: About Ombudsman investigations .......................................................... 21 4.1 Procedure for gathering evidence .................................................................. 21 4.2 Standard of proof and sufficiency of evidence ................................................ 21 4.3 Investigative steps taken to date .................................................................... 21 4.4 Procedural fairness or natural justice ............................................................. 23 4.5 References to legal advice ............................................................................. 24 4.6 Responses of agencies .................................................................................. 24 4.7 De-identification ............................................................................................. 25 Chapter 5: Relevant legislation and policy ............................................................... 26 5.1 State Development and Public Works Organisation Act 1971 ........................ 26 5.2 SDPWO Act regulatory tools .......................................................................... 30 5.3 Environmental protection legislation – offence of causing environmental nuisance ........................................................................................................ 31 5.4 EP Act regulatory tools .................................................................................. 31 5.5 Imposed conditions ........................................................................................ 32 5.6 Relevant noise standards and policies ........................................................... 35 5.7 PPP policies and guidelines ........................................................................... 40 v The Airport Link Project Report Chapter 6: Project documents ................................................................................. 42 6.1 Overview ........................................................................................................ 42 6.2 EIS – October 2006 ....................................................................................... 43 6.3 Supplementary EIS – April 2007 .................................................................... 47 6.4 Evaluation report – May 2007 ........................................................................ 47 6.5 Request for project change – 2008 ................................................................ 49 6.6 Change report ................................................................................................ 49 6.7 Wooloowin request for project change ........................................................... 50 6.8 Wooloowin change report .............................................................................. 51 6.9 TJH submission ............................................................................................. 51 6.10 Opinions and recommendations ................................................................... 52 Chapter 7: Steps leading to 24/7 work ..................................................................... 61 7.1 Overview ........................................................................................................ 61 7.2 TJH decision to work 24/7 .............................................................................. 62 7.3 Advice to and response from the general community ..................................... 68 7.4 Night-time surface work in Project precincts................................................... 78 7.5 Response to community regarding 24/7 work ................................................ 81 7.6 Queensland Ombudsman meeting with agency officers ................................. 83 7.7 Analysis ......................................................................................................... 87 Chapter 8: Is surface construction work permitted at night? .................................. 101 8.1 Overview ...................................................................................................... 101 8.2 Opinion of Senior Counsel for KWRA .......................................................... 101 8.3 DIP and CNI legal advice ............................................................................. 101 8.4 Queen’s Counsel’s opinion .......................................................................... 102 8.5 Is surface construction work permitted at night? .......................................... 104 Chapter 9: Excessive noise under imposed condition 7(b) .................................... 105 9.1 Overview ...................................................................................................... 105 9.2 Guide to noise terms .................................................................................... 106 9.3 Noise goals .................................................................................................. 107 9.4 What construction work is subject to the noise goals? ................................. 108 9.5 What is excessive noise? ............................................................................. 105 9.6 Outline of noise modelling and monitoring reports ....................................... 131 9.7 Analysis of Airport Link monitoring reports ................................................... 144 9.8 Assessing noise generated against the goals .............................................. 153 9.9 Analysis of noise reports by WM .................................................................. 188 9.10 Summary ................................................................................................... 194 vi Table of contents Chapter 10: Investigation and enforcement of imposed condition 7(b) .................. 197 10.1 Overview .................................................................................................... 197 10.2 What is an enforceable condition? ............................................................. 197 10.3 Relevant statutory provisions ..................................................................... 197 10.4 Powers of the parties ................................................................................. 198 10.5 Steps taken and view
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