Planning Institute of Australia State Conference Paper Longreach September 2008

Integrated land use / transport infrastructure in the context of delivering the By Matt Longland, Ryan Huelin and Jeanine Stone

Table of Contents INTRODUCTION...... 3 BACKGROUND...... 3 BUSWAY NETWORK FOR ...... 3 Why develop a busway network for Brisbane? ...... 5 TRANSIT ORIENTED DEVELOPMENT ...... 6 INTEGRATED LAND USE / TRANSPORT OUTCOMES ...... 7 LEGISLATIVE CHANGES...... 7 PARTNERING WITH PLANNING AGENCIES...... 8 INTEGRATION IN ACTION ...... 10 CONCLUSION...... 12

Introduction Integration is a word that planners appear to be using a lot these days. Planners look to undertake integrated planning, to achieve integrated outcomes and create integrated communities. But achieving real integration on the ground is very often much easier said than done.

In the area of land use/transport planning, a number of barriers limit true integration. Some of the key obstacles relate to restrictions around the State’s ability to sell surplus land to encourage the right mix of uses around stations, plus ensuring that planning appropriately considers future land uses adjacent to stations in a timely manner.

This paper examines these two obstacles and demonstrates how they have been overcome in the context of delivering the Eastern Busway project in Brisbane. Firstly, we examine recent changes to legislation which address land disposal restrictions. Secondly, we show how partnering with state and local government planning agencies and the development industry ensures delivery is cognisant of future land use and built form outcomes along strategic public transport corridors.

Background

Busway Network for Brisbane South East will undergo significant change and population growth during the next 20 years. By 2026 the region’s population is expected to increase from 2.6 million to about 3.7 million. An important aspect of achieving sustainable growth in South East Queensland is the development of an accessible, attractive and efficient transport system. The busway network is a key feature of this transport system and will improve the speed, reliability and integration of public transport within the region.

The Queensland Government has identified an investment of $83.5 billion over the next 20 years on transport projects in South East Queensland (source: South East Queensland Infrastructure Plan and Program (SEQIPP) 2008-2026, p.2). This investment presents some exciting opportunities for those of us who will contribute to planning and delivering public transport infrastructure.

Busways are a key component for the pubic transport network for Brisbane. The busway network is an integral part of the Queensland government's long term plan to meet the transport needs of a growing city. The busway network is designed to fill the gaps between Brisbane’s existing rail lines to complete the city’s primary public transport network and create a world class system for the future.

Busways are dedicated roadways that separate buses from general traffic. Like a train network, busways offer commuters a congestion free run on fast, frequent and reliable services. Brisbane’s busways offer: • Faster travel times – a busway is only used by buses and emergency vehicles, allowing buses to avoid congestion, especially during peak traffic periods • Better reliability through consistent trip times as each journey takes the same time as services are not impacted by traffic congestion • Greater frequency and reliability of bus services as express, rocket and all stop services can use the busway • Single seat journey as suburban bus services are able to access the busway at key locations providing a point-to-point journey from your local bus stop • Purpose built architecturally designed bus stations that are to fit into the local area that they serve and contain real time information on bus arrival • Compatibility to be converted to light rail in the future if the need exists

The busway network is quickly taking shape across Brisbane with the SEQIPP identifying plans to build new and expand existing busways along the northern, southern and eastern transport corridors as shown in Figure 1 below. Priority busway corridors include the Northern Busway (Royal Children’s Hospital to Kedron), continuing work on the Boggo Road Busway and Eastern Busway (Princess Alexander Hospital to Buranda) and starting the Eastern Busway (Buranda to Main Avenue, Coorparoo). Brisbane's busway network is part of a balanced approach to managing congestion in a growing city.

Figure 1: Brisbane’s busway network

Why develop a busway network for Brisbane? A bus-based system was considered to be an ideal solution for Brisbane as it will serve the greatest number of people. Most people will walk five minutes, or 400 metres, to catch public transport. Some will walk up to ten minutes, or 800 metres. This principle makes major public transport services, including bus-based transit, rail and light rail, very attractive for people living in the immediate vicinity of stations.

However, the advantage of bus-based transit systems over other transport solutions is that they cater to very broad catchments. With a bus-based transit system, local buses can pick people up in their local streets before joining the network. This means the busway network is as close as the local bus stop. For the Eastern Busway, this is demonstrated in Figure 2. Also, bus-based transit systems are more flexible to build than rail lines, making them ideal for established neighbourhoods. The Brisbane busway network has been planned and designed to enable conversion to light rail or other suitable technology if desired in the future. This means that if population growth and local land use changes warrant it in the future, a light rail system could be introduced to operate on the network.

Figure 2: Walkable Busway catchments

Walkable Catchment around busway stations

Busway catchment with local bus services

Transit Oriented Development A key focus for the state government in the South East Queensland (SEQ) Regional Plan is to promote the integration of urban development, transport infrastructure, employment and community services to achieve vibrant communities and create efficient use of urban land. Section 8.7 states:

“Accommodating future residential and employment growth in areas with good access to high frequency public transport and a mixture of land uses promotes social equity, travel choice, and maximises efficient use of existing and planned infrastructure. Integrating land use and transport reduces the need to travel; creates shorter journeys; provides safer and easier access to jobs, schools and services; supports more efficient use of land and existing infrastructure and maintains the environmental benefits of compact development."

Transit oriented development principles were identified for application in major activity centres and for land in close proximity to high capacity, high frequency public transport nodes and corridors. In these locations, influencing the scale, density, design and mix of uses will assist in achieving integrated communities that are able to maximize the use of existing and planned infrastructure.

Land use and transport integration principles to be employed adjacent to busway stations are identified in numerous policy documents including the SEQ Regional Plan and TransLink Network Plan. A summary of these principles include: • ensuring land use and transport planning is undertaken concurrently • ensuring the right mix of uses such as residential, commercial and retail use at the right densities. Providing extended hours of operation through a variety of functions provides for a lively urban environment • co-locating complementary land uses and significant trip generating land uses with busway stations to enhance accessibility and reduce the need to travel • provide efficient pedestrian connections between the station and surrounding development to ensure a short, direct and a seamless transition for patrons to stations • protecting existing corridors and facilities from developments and uses that may impact on the safety, viability and efficiency of public transport • identifying future corridors so that future land uses can be planned to support good public transport outcomes, with mechanisms to prevent inappropriate land uses. • managing car parking provisions in uses adjacent to public transport nodes to support walking, cycling and public transport accessibility

The state government is committed to achieving transit oriented principles at suitable locations. The SEQ Regional Plan identifies a prerequisite for a transit oriented development site to be serviced by high quality and frequent public transport, plus have the capacity to provide levels of development density to support public transport.

It is recognized that not all sites surrounding busway stations are potential transit oriented development locations. Some busway stations have the capacity to be surrounded by greater densities and possess redevelopment opportunities, whilst others do not. As the Eastern Busway will traverse through an established urban area, not all locations are suitable for intensive development as the local character surrounding many stations will not lend itself for high density uses. .

Integrated Land Use / Transport Outcomes To achieve greater integration of land use with delivery of the busway network consistent with State government policy, two different strategies have been employed whilst undertaking the planning and design for the Eastern Busway. This includes: • Changes to the legislative framework to assist in the delivery of better outcomes on the ground; and • Partnering with the development industry and state and local planning agencies to consider future land use and built form outcomes along priority sections of the corridor.

Legislative Changes The problem Queensland Transport identified issues around the use of surplus land as a key blockage to achieving land use and transport integration around future busway stations. Surplus land comes about when building infrastructure, as often more land is needed to construct the project than is needed to operate it - space is required for construction, works, storage and spoil. This is especially so for busway projects where land is often required for shallow tunnel works. Tunnels constructed using the 'cut and cover' method require the full acquisition and then demolition or removal of all surface properties above the tunnel. However, once the tunnel is constructed, the surface land becomes available for redevelopment. This land is considered 'surplus' to the project – it was required for the project’s construction, but not its operation.

In land use planning terms, it's just common sense that this land should be put to its highest and best use – it is high quality land in close proximity to a rapid transit station. The previous legislative provisions required any surplus land to be offered back piecemeal at market value to its original owner within seven years if not required for a public purpose. History showed in that almost every single case, property owners had moved on with their lives and had not taken up this offer to buy back land. This has led to the potential for land immediately surrounding transport infrastructure to remain vacant, often for several years, before a commercial interest or other party purchases the land and develops this land. The law inadvertently could result in busway stations being seen as discrete islands in the middle of a community.

The solution Recent changes to the Transport Planning and Coordination Act 1994 (TPCA) have enabled surplus land to be sold or leased without the requirement to offer land back to the original owner. Land can be bundled or repackaged into a larger ‘development parcel’ for what is called “transport associated development”. It is not 'transit oriented development' in the classical sense, because it only includes the land that was needed to construct the infrastructure.

Transport associated development within the TPCA is defined as a development that: (a) primarily is or, when constructed, will be a development that supports the object of part 2A [of the TPCA, see attachment] and the integration of a prescribed transit node into the community within which it is to operate in a way that contributes to the economic and social wellbeing of the community; and (b) includes, or will include, commercial, community, educational, government, high or medium density residential, medical, retail or recreational facilities, places of worship or open or recreational spaces' This definition refers to development that is focused on integration of land use with public transport infrastructure into the community within which it is located.

The amendments will help achieve better outcomes for the community by allowing the state government to facilitate integrated development around select public transport stations. This is not limited to busways but all forms of public transport including rail and light rail which could potentially be used for other appropriate transit oriented development. Surplus land could be amalgamated and offered to the market in a timely manner to allow the station, and private development around the station, to be constructed at the same time as the public transport corridor. This reduces community impacts and achieves integration of the busway with its surrounding environs and community.

Importantly, the state government has no intention of becoming a developer. These changes simply help facilitate development around transit nodes by allowing the State to amalgamate surplus land into developable parcels and offering them for sale to the market. Private developers will generally be responsible for delivering development outcomes, subject to agreements with the state government which will ensure that integration objectives are met. Under these changes local councils will continue to retain responsibility for development assessment in line with their local planning schemes.

There are a number of other important safeguards built into the new legislation to limit how and where ‘transport associated development’ can occur. Firstly, any land acquired through the resumption process must be required to deliver transport infrastructure. The amendments do not increase Queensland Transport's land acquisition powers as land can not be resumed for ‘transport associated development’ alone. Secondly, any ‘transport associated development’ must be associated with a prescribed transit node. A transit node generally means a busway, rail or light rail station. The land must be able to be developed to support public transport and the integration of the transit node into the community. Thirdly, the transit node to which the transport associated development will apply must be prescribed by regulation by the Minister for Transport. This ensures transparency in the process. Finally, the land owners will be informed in the resumption notice that, as well as being needed for a transport or incidental purpose, the land may also eventually be used for transport associated development and they won't be offered back any surplus parcels.

Partnering with Planning Agencies The problem To deliver the Eastern Busway, the state government has purchased considerable land holdings and will need to resume additional land along the corridor as the project progresses. Understanding future land uses and the form of future development is critical to ensure that construction of the busway and associated stations does not preclude future land use and transport integration.

Brisbane’s draft Local Growth Management Strategy (LGMS) identified the Eastern Corridor as a high priority growth corridor to investigate for increased residential density potential. However the land use policy direction along this corridor (identified in the planning scheme), was prepared at a time when a dedicated public transport spine was not envisaged. For state government transport agencies, it was difficult to consider future land uses adjacent to the busway in the absence of supporting policy.

It became critical to deliver the Eastern Busway that the state government needed to gain a greater understanding of possible future land uses. This would ensure the construction of the busway would not prejudice appropriate future uses and density from occurring due to a lack of detailed planning up front. The current planning scheme did not provide the level of detail about the form and type of future development envisaged and without such, the state government was unable to be assured when setting out engineering specifications for construction that integrated land use / transport integration opportunities would be captured.

The solution The state government’s Department of Infrastructure and Planning, in partnership with Brisbane City Council and transport input from Queensland Transport is jointly undertaking a planning study along the priority sections of the Eastern Busway (See Figure 3 below). This planning study will deliver detailed precinct plans for key strategic areas, which includes land adjacent to future busway stations. This study will assist Queensland Transport to understand potential future planning opportunities plus deliver comprehensive precinct plans adjacent to busway stations with detailed design, architectural, engineering and interface requirements. This will also be used by Brisbane City Council as a basis to consult with the community and possibly prepare amendments to the Planning Scheme.

Figure 3: Eastern Corridor Study follows the Eastern Busway alignment from Princess Alexander Hospital to Bennetts Road, Camp Hill.

The benefits of partnering for land use planning along the Eastern Corridor include: • Provides the state government with a stronger level of certainty as to the future type, form and intensity of development adjacent to busway stations, enabling the State government when tendering construction to include specification to ensure future development is not prejudiced or can be integrated into the construction of the busway • Achieves SEQ Regional Plan outcomes • Provides Local government an opportunity to investigate future land uses along a corridor identified as a priority in the draft LGMS • Provides state and local government ownership of the outcomes which may lead to reduced plan making and assessment times, allowing both state and local government to be in a better position to respond to development applications. • Enables local government to understand how the busway and associated stations will exist within the built environment and what design parameters or specifications need to be stipulated in a statutory document to ensure new development respects and integrates with the busway infrastructure • Captures opportunities (provided by the future infrastructure) for state government as a major land owner • Identifies publicly owned sites that could be developed to contribute towards the State’s provision of affordable housing • Ultimately increased patronage in association with the investment in public transport infrastructure

Although the outcomes of this study will undergo some changes when consultation with the community occurs, it will ensure that the busway is designed and constructed with consideration of future built form outcomes. Without understanding the engineering implications of delivering infrastructure, many desired planning outcomes have failed to be realized. Understanding both the planning and engineering requirements simultaneously will ensure that integration with the busway will occur.

Integration in action In light of recent changes to the Transport Planning and Coordination Act 1994, let's consider the Stones Corner station (see Figure 4 and 5 below) on the Eastern Busway to show how the amendments could work in reality. East of this station, a large parcel of land needs to be resumed in order to construct a cut and cover tunnel. Once the tunnel is constructed, the surface land will become available for redevelopment. Under the previous legislation, it would have been first necessary to offer this land back to the original owners to buy at market value. This was a key roadblock to integration. Even though this offer was rarely taken up (because the transport infrastructure had often enhanced the value of the land and in any case most property owners had already moved on with their lives), it imposed time delays on potential developments which meant construction of the station was unlikely to be undertaken concurrently with any redevelopment. As the future development above the tunnel would not have been considered at the time the tunnel was designed and built, the use of the land could have been severely restricted. The legislative changes mean state government can plan the tunnel, and allow for future development above the tunnel, at the same time. This gives greater certainty for the community about the use of the land, and greater certainty to the development industry about what can be achieved at key sites close to public transport stations.

Figure 4: Proposed Stones Corner busway station

Figure 5: Potential Transport Associated Development over cut and cover tunnel

In relation to future land uses there are a number of factors that should be mentioned. Firstly, working in partnership with the land use planning agencies influenced the station location which then allowed further exploration of land use changes. Future land use planning may show that some locations exhibit attributes which could be more intensely developed than permitted under the current planning scheme, and that a location has the potential to be an excellent mixed use development that supports the new busway station. It could contain a mix of affordable housing and other residential development, ensuring this land, with its excellent access to public transport, is used efficiently and in a manner which supports the nearby public transport infrastructure.

Secondly, by considering the surplus land in its entirety, the State is able to ensure that land is not prejudiced from having some form of more intensive development potential. For example land intended for multi-unit dwellings may only be permitted with a minimum size area or access to a certain street in the road hierarchy. If the State has the ability to bundle or package this land for sale to the market as one development parcel, the ultimate form of development for a larger site can be considered during construction of the infrastructure. In delivering the busway, the State may realign or redesign various components of a busway tunnel to ensure development above the tunnel can be achieved. If the previous legislative arrangements remained, the costs to the State to alter construction techniques to ensure development could occur would unlikely to be supported as there would be little opportunity of development occurring under such a fragmented land ownership pattern. In all likelihood due to the fragmentation, the land would possibly only support detached dwellings. There would be no incentive for the State to incur an additional cost to the project to include extra load bearing into a tunnel structure, as this would be extra cost for the project that may not be acted upon by a private developer.

Two recent examples of how future land use has influenced construction of the Eastern Busway are at and Buranda.

At Woolloongabba, initially surplus land was considered for use as a small and somewhat isolated pocket park. However, considering the attributes of the site in relation to its proximity to infrastructure, the CBD and potential views, this surplus land was reconsidered to determine a more appropriate use. The surplus land initially contained a number of detached dwellings which were removed for construction of the busway tunnel. However once the tunnel works are completed, the opportunity exists for uses to occur above the tunnel site. Working with other stakeholders, it was recognized that by amalgamating or bundling the remnant parcels of land, the site may be suitable for residential development. As a result, construction techniques employed for delivery of the tunnel have to ensure that suitable load bearing engineering structures are in place to support development of housing in the form of multi-unit dwellings above. Although this involves some additional costs to the construction of the project, the sale of this ‘developable parcel’ ensures optimal use of land. If this end use was not considered upfront, the State would not have ensured through the construction process that this engineering requirement was built into the construction method and disposal of this land to achieve a return on investment would have been lost.

At Buranda, a developer had acquired a large land holding (1.5 hectares) proposed for a mixed use development that would be impacted by the Eastern Busway alignment. Working together with the community and the developer, a solution was found which protected the busway yet still achieved optimal land use outcomes. This involved building the busway in tunnel through the basement of the development rather than on the surface. Timing became a critical issue and the project team continues to work closely with the developer to ensure the redevelopment of the site and the busway can occur simultaneously. Neither the proposed mixed use development nor the busway wanted to delay the other project from occurring, so a close working relationship between the developer, state and local government has developed. This collaborative approach has also resulted in improved opportunities for the proposed mixed use development to integrate with the existing nearby public transport ie Buranda railway station and busway station.

Conclusion Changes to the Transport Planning and Coordination Act 1994 and partnering with land use agencies makes land use and transport integration more than just an ideal. The opportunity now exists for the State agencies responsible for delivering public transport infrastructure to work with local councils and the development industry to achieve concrete integrated transport solutions on the ground.

By understanding future land use opportunities and overcoming land tenure issues that have long been an obstacle to integration, we can move ahead with greater confidence in our ability to promise an integrated land use and transport solution – and actually deliver.

Attachment 1: TPCA Extract