The O-Bahn City Access Project – Project Impact Report 4 State Strategic Policy Context

The SASP articulates ’s aspirations and contains 100 specific targets grouped under the six pillars of Our Community, Our Prosperity, Our Environment, Our Health, Our Education and Our Ideas.

Specifically, ‘Target 63’ is significant in forming the strategic rationale for the O-Bahn City Access Project through its focus on . Table 2 below outlines the contribution of the project to Target 63 as well as additional SASP targets relevant to the project.

Table 2: O-Bahn City Access Project contribution to South Australia’s Strategic Plan Objectives

Objective SASP target Project Contribution Our prosperity Target 39 – Competitive Business Climate: Reduce operating costs for transport (i.e. maintain ’s rating as the least reduced travel delay at intersections) costly place to set up and do business in Provide efficient and reliable movement and Australia and continue to improve our access to key industry and business hubs position internationally. along within Adelaide, specifically the CBD.

Target 56 – Strategic infrastructure: Contribute to investment in important Ensure the provision of key economic and infrastructure for South Australia. social infrastructure accommodates population growth. Our community Target 22 – Road safety: by 2020, reduce Reduce vehicle crashes through grade road fatalities and serious injuries by at separation of traffic streams and improved least 30%. transport network to minimise the risk of differing user conflicts. Our Target 59 – Greenhouse gas emissions Lower congestion levels along the Inner environment reduction: achieve the Kyoto target by Ring Route can reduce total greenhouse limiting the state’s greenhouse gas gas emissions attributed to the north–south emissions to 108% of 1990 level during transportation of people and goods. 2008–2012, as a first step towards reducing emissions by 60% (to 40% of 1990 levels) by 2050. Target 63 – Use of public transport: Improved routes for public transport, increase the use of public transport to provide improved safer access, minimise 10% of metropolitan weekday passenger travel time and contribute to improved travel vehicle km travelled by 2018. time reliability.

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4.2 30-Year Plan for Greater Adelaide

An extension of the O-Bahn corridor is identified in the 30 Year Plan for Greater Adelaide as one of the key public transport investments for this major transit corridor.

Figure 8: 30-Year Plan for Greater Adelaide: Major transit corridors and structure planning priorities, including the O-Bahn corridor.

The O-Bahn City Access Project will contribute to encourage broader mixed use development in the City through its contribution to connecting the north-eastern region of metro Adelaide to the CBD. Key transport improvements such as the O-Bahn City Access Project and CityLINK, in combination with the recent Capital City Development Plan Amendment (DPA) are intended to unlock development potential of the CBD for mixed use, including significant residential uplift.

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The rezoning through the Capital City DPA has encouraged a growing residential market offering in the City, while other initiatives as part of the Vibrant City agenda will improve the attractiveness of a City based lifestyle for prospective residents. The update to the 30-Year Plan will build upon these initiatives and re-emphasise the importance of the City to meeting our population and dwelling targets.

Future planned residential development along the mass transit corridors, particularly at major interchanges, will be supported by an improved performance of the O-Bahn corridor. The planned development of a higher density mixed use hub around Modbury Interchange will be facilitated by improved O-Bahn public transport services as people choose to locate in the North East Region close to the O-Bahn corridor encouraging a more compact, transit-focused City.

4.3 ITLUP

The ITLUP guides private, federal, state and local government investment in the transport system for the next 30 years, with a focus on integrating land-use, strategic infrastructure and transport investment planning. It focuses on connecting people between places of residence, work and recreation, and connecting business to markets to support economic growth.

Of particular note, the ITLUP identifies the need to “Improve O-Bahn access to the Adelaide City Centre” as one of the short term priorities (i.e. within the next 5 years).

The Plan identifies a comprehensive suite of solutions to address the current and future transport challenges facing the state, with particular focus on:

• Growing the role of public transport in servicing our City and urban and regional centres; • Providing efficient connections to export/import gateways; • Prioritising transport infrastructure and services to encourage mixed use development in central and inner Adelaide; • Supporting vibrant communities by encouraging active travel modes in Greater Adelaide and regional centres; • Fine-tuning, maintaining and making better use of existing assets; and • Developing and maintaining a planning system that ensures integrated transport and land use. The Plan aims to support and assist an emerging trend that more people now want to live in or near the City by continuing with strategic investments into public transport that will create a lively, creative, dynamic and safe district that appeals to residents and businesses. To do this, the transport system needs to not only support medium density, vibrant communities and business growth across inner- Adelaide but to actively encourage and drive these developments.

An expanded network of trams in the inner areas and the CBD, combined with a redesigned bus network, and greater investment into our cycling and walking routes, integrated with land development, will greatly increase choice of travel.

The Plan provides a strong vision to improve public transport into and within the City in line with corridor growth. It also proposes to address the problems associated with Adelaide’s Inner Ring Route around the outer-edge of the Park Lands and supports more cycling, buses and trams into the City.

The Plan recognises that the bus network is the core of the public transport system carrying approximately 80% of passengers in Adelaide. Buses, through their inherent flexibility, have a unique role in the future that other public transport modes cannot meet.

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The Plan proposes a future public transport network that builds upon the previous and proposed investment in rail, tram and the O-Bahn bus infrastructure and services, to create an integrated network that is more stable, easy to use for all times of the day and with a focus on transit connections to major activity centres, employment and residential growth areas. The long term stability of a public transport network of high quality, high capacity and more frequently connected services is likely to influence urban development and create more sustainable transport patterns in a growing and more compact urban area.

Key improvements to the public transport system within the ITLUP include:

• Improved O-Bahn access into the CBD; • Continued improvements to the train network, including electrification; • Bringing a network of trams, called AdeLINK, back to the CBD and inner Adelaide to the northwest, east, west, north, south and a loop in the CBD; and • A redesigned and modernised bus network. The ITLUP also highlights the need to improve the efficiency and safety of the Inner Ring Route, including intersection and mid-block upgrades. This will provide an alternative, efficient connection for traffic travelling around the central City, thereby removing traffic from the CBD, improved pedestrian amenity and connectivity, opportunities for improved cycling facilities, and improved travel times and reliability for public transport.

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Figure 9: ITLUP Public Transport corridors*

*including O-Bahn extension works on Hackney Road linking to the East End (refer to the ITLUP http://www.transportplan.sa.gov.au/ for map and project details)

Future investigations are required to determine the preferred route for the EastLINK - WestLINK and CityLINK tram routes through the CBD. This will consider a range of aspects, including interaction with bus services. The O-Bahn City Access Project is being planned to not preclude any tramline options.

The contribution of the O-Bahn City Access Project to the ITLUP goals and objectives are listed in the table below.

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Table 3: Project contribution to the ITLUP Goals and Objectives

ITLUP Goals ITLUP Objectives Project Contribution 1.Healthy, safe, Liveability The Project would: affordable and Connected, vibrant, safe and attractive Deliver more efficient and reliable connected communities places throughout South Australia. public transport linkages into the A land use and transport system in City from the north-eastern Greater Adelaide that delivers suburbs. connectivity, safety and choice of travel for people at a level that maintains Adelaide as one of the world’s most liveable cities while increasing densities in central Adelaide to support the knowledge and services economy. Public transport, walking and cycling become a desired choice of travel for residents, reducing reliance on the car. 2.A strong, diverse and Prosperity The Project would: growing economy A transport network which connects Increase capacity on the Inner people and businesses to jobs, markets Ring Route, improving traffic flow and services in a safe, reliable and timely on these roads and allowing for manner. better use and public transport An efficient and effective freight transport priority. system that adds to the competitiveness Improve intersection performance of South Australia. for vehicles entering from the eastern suburbs into the City. Reduce vehicle conflicts by grade separation of bus/traffic streams, fewer intersections movements and improved intersection operation to minimise the risk of differing users. 3.Thriving, natural and Sustainability The Project would: built environment Significant reduction in transport Allow greater efficiency in bus emissions, including greenhouse gases movement and reduce ‘idle’ time and other harmful emissions. at intersections which is likely to reduce greenhouse gas emissions compared to the existing situation.

4.4 Adelaide City Council; Smart Move Strategy

One of the key features of the Integrated Movement Strategy (released by the Adelaide City Council) is the focus on linking walking, cycling and public transport routes across the Park Lands while reducing the reliance on car travel.

The Strategy summarises the importance of achieving a balanced transport network and states ‘if we only plan for cars, all we will get is a City with cars. If more people used public transport, changed to bikes and carpooled, there would be less traffic on the roads and that makes your driving experience better. It’s a logical transition…’ This is a transition that will require measured and professional implementation, and not unconsidered reaction to individual projects or policies. Car parking supply and pricing, bus services

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and bike lanes, traffic controls and speed limits can be better managed and targeted to achieve the objectives outlined.

The Smart Move strategy aims to significantly increase the tram and bus share of total trips to the City for all trip purposes as shown below. Another key consideration is the intended day and night time use of the City tram corridors including the urban design context within which the tram network will sit.

Figure 10: 2038 Mode split objectives of the Smart Move Strategy

The O-Bahn City Access Project supports the SmartMove strategy by providing a faster, more reliable travel experience for O-Bahn bus services, thereby encouraging more drivers to use bus transport to access the City.

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4.5 Adelaide City Council Development Plan

Adelaide City Council’s Development Plan identifies areas within the City that are well suited for an increased residential population in the form of high density, medium density and mixed use precincts. The assessment of routes needs to take into account the economic and development potential within the context of the Council’s/State’s objectives for growth at the precinct level. This also includes employment, tourist and education generators of activity.

4.6 Travel demand growth

A key objective of the O-Bahn City Access Project is to allow for longer term transport improvements. To achieve this the growth of the City and the related travel demand growth requires consideration. This section provides the development, population growth and transport demand context for the project.

4.6.1 Overview

While Adelaide’s City population grew quickly over the past decade, this has been modest in absolute terms (7,500 residents) when compared to the employment and student growth rate. A growing City employment base from just over 90,000 a decade ago to approximately 120,000 today and student numbers growing from 51,000 to 88,000 (74%) have been responsible for the majority of growth in car traffic and on the public transport system.

Much of Adelaide’s white collar and service industry employment is supported by growing inner and middle ring suburbs (about 12,000 more people per annum in suburbs located between Mawson lakes in the north and Darlington in the south) who make the relatively short trip in either a bus, tram, train, bike, car or walk (60% of students and nearly half of all City users come from the inner suburbs). Indeed this is reflected in the number of pedestrians on City streets who inevitably delay left and right turning traffic.

Pedestrians increased by a significant 250% on North Terrace, 50% on Rundle Street and 30% on King William Street between 2001 to 2011. Workers, students and shoppers who are boarding or alighting public transport have partly contributed to this additional pedestrian traffic. The Riverbank development has no doubt further increased pedestrian movements. Rundle Mall has up to 50,000 people on some days.

With only a set amount of road space both within the City and on routes leading into the City, many at the limit of their capacity, peak hour congestion has been steadily increasing. While private car trips and therefore car dependence has been increasing over the past decade the share of public transport trips has been increasing at a much faster rate in absolute terms (refer to Section 6.2). Some of that increase can be attributed to cultural change supported by improved train and bus services and improved priority for bus transport such as the bus lanes in Grenfell Street. The O-Bahn City Access Project supports and encourages further transition to public transport by improving the service through reduced travel time and improved reliability of O-Bahn bus services.

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4.6.2 Population Growth

The O-Bahn user catchment area spans parts of the northern and eastern regions of metropolitan Adelaide, as defined in the 30-Year Plan for Greater Adelaide (DPLG 2010). Although these areas are broad and do not align specifically with the catchment area boundary, their anticipated growth and the regional capacity have been considered.

• Northern Adelaide LGAs - Playford, Salisbury, Tea Tree Gully and part of Port Adelaide Enfield; • Eastern Adelaide LGAs – Adelaide, Burnside, Campbelltown, Norwood Payneham and St Peters, Prospect, Unley, and Walkerville. The projected growth for these regions is summarised in this section. This is to acknowledge the project’s potential to assist with the management of this growth, ensure its long-term viability and that sufficient transport connections are planned for residents moving forward. The implications of growth in these regions are accounted for in the context of the transport network and its sufficient capacity to provide for the growth projections across Greater Adelaide.

4.6.3 30 Year Plan for Greater Adelaide

Broad targets for growth across greater Adelaide are defined in the 30-Year Plan for Greater Adelaide. The northern and eastern regions, which cover the project area, have specific population targets as shown in Table 4 and Table 5.

It is important to acknowledge Northern Adelaide’s identified role as a key growth centre, with the region projected to accommodate a significant proportion of Greater Adelaide's future growth in terms of new dwellings, people and employment opportunities.

Table 4: Growth targets for Adelaide’s northern region from the 30 Year Plan. Net additional dwellings Net additional population Net additional jobs Within transit corridors Infill 20,500 46,300 - Fringe growth 5,500 14,300 - Outside transit corridors Infill 6,000 14,400 - Fringe Growth 30,800 81,300 - Townships 4,800 12,700 - Total 67,600 169,000 79,000

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Table 5: Growth targets for Adelaide’s eastern region (excl. CBD) from the 30 Year Plan. Net additional dwellings Net additional population Net additional jobs Within transit corridors Infill 7,900 14,600 - Fringe growth N/A N/A - Outside transit corridors Infill 10,500 23,100 - Fringe Growth N/A N/A - Townships N/A N/A - Total 18,400 37,700 6,500

The Housing and Employment Land Supply Program (HELSP) sets out a timeline for achieving and maintaining the 30 Year Plan target of a 15-year supply of development-ready zoned land (both residential and employment land). The HELSP report is aligned geographically with the regions of the 30 Year Plan. It should be noted that while the 30 Year Plan offers projected growth for the eastern Adelaide region exclusive of the Adelaide central business district, HELSP does not, thus combining figures.

Table 6: HELSP estimated dwelling targets for the northern and eastern Adelaide regions. Short term Medium term (6- Long term (11- Total (0-15 Dwelling target of Region (0-5 years) 10 years) 15 years) years) 30 Year Plan Northern Adelaide 12,500 12,500 12,500 37,500 67,600 Eastern Adelaide 5,500 5,500 5,500 16,500 33,440 (incl. CBD)

The 30 Year Plan for Greater Adelaide sets a target of increasing the net residential population in the City by 27,300 in the 30 years to 2040 and to achieve a net increase of 15,040 in the number of dwellings.

South Australia's Strategic Plan 2011 includes the following targets relevant to City residential growth:

• Total population: Increase South Australia’s population to 2 million by 2027; • Affordable housing: South Australia leads the nation over the period to 2020 in the proportion of homes sold or built that are affordable by low and moderate income households; and • Share of overseas students: Increase the number of overseas students across all education and training sectors from 13 737 in 2003 to 45 000 by 2014. Council has pursued residential population growth as a long term objective. It is a continuing focus in Council Strategic Plans. For instance, the City of Adelaide Strategic Plan 2012-2016 notes a diverse residential population and sustainable and diverse housing choices as particular components of achieving Outcome 4: Liveable City.

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4.6.4 Future travel demand to the City tied to Government Strategies

Adelaide’s current high infill rate to the north, and west of the City means that the metropolitan area is increasing in density largely due to its urban planning policies to promote corridor growth, City apartment living, urban renewal and redevelopment. As these policies take effect this will go hand in hand with a more viable and expanded tram, train and bus network as outlined in the State Government’s draft Integrated Transport and Land Use Plan.

The State Government’s 30 Year Plan for Greater Adelaide flags the City as the pre-eminent ‘transit oriented development’ to accommodate an additional 50,000 workers and 27,300 residents by 2038. These targets will lead to around a third more people working in the City and a doubling of the number of people living in the City. Density will also bring with it a larger City retail catchment and a commercial investment sector to support a growing City employment hub (750,000 square metres of office space and up to 50% more retail spend in line with worker growth, who are also a big contributor to daily shopping).

Analysis that informed the Smart Move Strategy indicated that the total number of trips could increase by up to 205,000 trips per day by 2038 leading to about 684,000 trips per day (all modes) made into, out of, and within the City.

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5 Strategic Rationale and Outcomes for the Project

Some of the strategic drivers and outcomes that will be achieved through the O-Bahn City Access Project are discussed below:

5.1.1 Creating a more compact, connected City

The 30 Year Plan for Greater Adelaide established a goal of accommodating projected population growth by achieving a 70/30 ratio of infill housing to greenfield development. The focus for future development is infill development, higher density in Adelaide’s City centre and inner suburbs and medium density development along corridors and at key centres, with the key focus on the major dedicated mass transit corridors (train, tram and O-Bahn) and major interchanges. This urban form seeks to make best use of existing infrastructure and complement initiatives to revitalise the mass transit network.

The 30 Year Plan for Greater Adelaide, along with subsequent planning reforms, has been a catalyst for change. More people now want to live in or near Adelaide’s City centre. In addition, a shift from a manufacturing to more knowledge intensive economy is driving employment growth in Adelaide’s City centre and inner suburbs. Density will also bring with it a larger City retail catchment and a commercial investment sector to support a growing City employment hub.

While initiatives are underway to accommodate growing demand for housing and jobs in the inner parts of the City, there will continue to be an imbalance between where people live - primarily Adelaide’s middle and outer suburbs – and the location of jobs – with growth strongest in the inner urban and middle suburbs. There will be an ongoing travel demand for people living in the north eastern suburbs (e.g. Golden Grove) to travel to/from the CBD to access employment and other opportunities. The O-Bahn corridor will continue to provide a vital role in providing effective public transport services to the north eastern suburbs.

5.1.2 Improved Performance of Public Transport

Improved public transport performance and improved travel times are what commuters demand from public transport schemes. If the O-Bahn service degrades over time with slower timetables and poor punctuality against those timetables, commuters will find car travel more convenient with the consequence that public transport use on the busiest bus corridor will decline and car use within the area will increase, especially in the CBD.

Transport users not only value travel time savings but also improvements in the reliability of journey times. Currently there is a significant variability in journey times and O-Bahn public transport users may have to allow more time for the journey in order to reduce the possibility of arriving late or too early at their destination. If the travel time variability for a route is reduced, then transport users benefit by being able to reduce this extra time allowance. Unreliability makes journeys frustrating and causes some stress to commuter. Research shows that most travellers experience and remember something much different than a simple average of commuting travel time. Users have a negative perception of unexpected delays which leads to a loss of faith in the O-Bahn system. Improving the reliability of the O-Bahn bus service will change user’s perceptions and attitudes and make the service a more attractive mode than travelling by car.

Customer journey time delay measures the difference between the customers expected and actual travel time from the start to the finish of the bus trip. Only the time spent travelling on the bus is considered, which in this case represents the travel time reliability of the bus journey.

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The O-Bahn City Access Project will improve the average speed of buses across the day from Gilberton to the CBD so that there is a reduction in average arrival time of up to 4 minutes for O-Bahn bus services in the peak periods.

The Project will also improve the reliability of those travel times by reducing the variability in average bus arrival time by up to 3 minutes in the peak periods. This improved travel time and reliability will allow timetables for the O-Bahn to be optimised allowing for up to a 7 minute average daily saving during the peak periods on the O-Bahn. For those people living in the North East suburbs who commute to and from work in the CBD, the benefit is exponentially greater during peak times when traffic is at its heaviest.

The user benefits are derived in accordance with the Australian Transport Council’s National Guidelines for Transport System Management in Australia (2006).

Transport users not only value travel time savings but also improvements in the reliability of journey times. Currently there is a significant variability in journey times and O-Bahn public transport users may have to allow more time for the journey in order to reduce the possibility of arriving late or too early at their destination. The reduction in the variability of bus arrival times by up to 3 minutes will allow O-Bahn users to benefit by being able to reduce this extra time allowance.

Timetable time points in this analysis are derived from the following theoretical basis:

• the average observed travel time; plus • a time allowance for observed deviations from the average travel time (providing for 95% of late running buses arriving within the additional time allowance (reliability buffer); plus • a standard factor of safety or the time buses wait at stops to meet scheduled departure times (‘FS’). The adopted methodology to derive user benefits (i.e. reduced passenger journey times, improved passenger reliability and reduced bus operating costs) from bus priority measures is to first define the timetable travel time between ‘time points’ which consist of average bus vehicle speeds plus a time allowance for buses arriving later than the average time (reliability buffer) plus a factor of safety. This is shown graphically in Figure 11.

Figure 11: Components That Make up Timetable Travel Time ‘Time Points’

Improving the speed and reliability of O-Bahn Services improves the overall accessibility between the North East Region and the Adelaide City Centre which will encourage people to participate in social and economic activities. This can facilitate businesses growth in the Adelaide City centre due to improved access to skilled labour from the north-east region.

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5.1.3 System Integration

Improving the performance of the O-Bahn services will enable O-Bahn services to better integrate with future network and services plans associated with improved walking links, super stops, increases the frequency of bus services to, from and within the CBD, more park and rides, facilitating pedestrian precincts within the CBD and providing a return on investment in the expanded park and ride facilities and upgraded interchanges at Paradise, Klemzig and Modbury.

Grenfell Street and Currie Street provide a highly effective and centralised public transport corridor within the CBD, being within walking distance for a high proportion of activity (business, shopping, recreational, etc) areas to the north and south of the corridor.

Irrespective of the O-Bahn City Access Project, consideration will need to be given to enhancing access to the corridor (and other bus and tram corridors) for existing and future proposed developments within the CBD.

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5.1.4 Growing Ridership on the O-Bahn network

Traffic congestion is reducing travel speeds and increasing the variability of bus services on the on-road segment of the O-Bahn corridor adjacent to the CBD (i.e. Hackney Road – Dequetteville Terrace – Rundle Road).

Analysis of actual travel times derived from the Automatic Vehicle Location Data reveal that there is a high variability in the travel time of bus vehicles between Klemzig and the CBD (Shown in Table 7).

Table 7: GPS Based Travel Time Survey, Indicating Significant Variability in Travel Time O-Bahn Section Distance Average Travel Minimum Travel Maximum Travel Time Time - AM /PM Time - AM (PM) Tea Tree Plaza-Klemzig 8.5 km 9 min NA NA

Klemzig – Hackney 4.8km 5.2 min – AM 3.4 min – AM 9.5 min – AM (location of the 5.2 min - PM 3.5 min - PM 16.2 min - PM proposed Hackney Road bus lanes)

Hackney – Grenfell St 1.45 km 5.6 min – AM 2.1 min – AM 10.3 min – AM (Location of the 8.1 min - PM 4.4 min - PM 20.4 min - PM proposed tunnel)

The surveys show that travel time variability on the O-Bahn is very poor at the City end. For example while it takes an average 9 minutes to travel 8.5km between Tea Tree Plaza and the the Klemzig to Hackney leg (about 5 km further) can take up to 16 minutes in the PM peak, while the last 1.45 km from Hackney to Grenfell Street can take up to 20 minutes in the PM Peak. In other words the last two legs in the PM peak can take up to 36 minutes because of congestion at the City end.

It can take almost twice as long to travel the last 1.45 km from Hackney Road to Grenfell Street as the initial 12 km of the O-Bahn trip on the guided busway from Tea Tree Plaza to Park Terrace.

In lieu of interventions to address the causes of delays/variations in travel times, the only means of improving the performance of bus services against timetables is to allow bus schedulers to progressively increase travel times printed on timetables to counter increasing variations in actual travel times.

While this approach increases the probability that a bus will depart from stops on time, it does not actually improve the quality of service for bus customers. This approach increases total bus journey time, lowers average bus operating speed, increases bus operating costs for the South Australian Government, and reduces the attractiveness of public transport services. It can also result in buses that arrive early having to wait at bus stops to meet scheduled departure times or travel slower. This is confirmed through the Metrocard Automatic Vehicle Location Data.

Improvement to travel times will help to achieve the public transport target within South Australia Strategic Plan by making the service more attractive.

Investigations have shown that a complimentary suit of improvements are needed to achieve this growth, including:

• Improve the speed and reliability of buses from the end of the O-Bahn into the City;

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• Improve walking links in the City of Adelaide; • Increase bus frequencies; • Develop City ‘Super Stops’; • Improve the O-Bahn interchanges; • More Park and Rides; and • Facilitate Transit Oriented Development adjacent O-Bahn interchanges.

Figure 12 shows that the intervention that has the highest impact on achieving growth in public transport ridership is reducing travel time and improving reliability of the O-Bahn Network. The O-Bahn City Access Project is therefore a central element of a broader strategy to improve performance of the O-Bahn to meet the public transport target within South Australia’s Strategic Plan.

Project Do Nothing

2500

Reducing travel time and improving 1500 reliability provides the greatest contribution to achieve this target

500 Net Passenger Boardings * Day Passenger per Net Travel Time & CBD Walking Bus Frequency CBD Super Stops O-Bahn Park 'n' Ride Transit Oriented Reliability Interchanges Developments -500 Increase in Net Passenger Boardings per Day per Day Boardings Passenger Net in Increase

* Source – Development Division – O-Bahn elasticity based patronage change model -1500

Figure 12: Figure showing the daily passenger boarding increase to achieve the public transport target and modelled before and after project results

5.1.5 The Inner Ring Route functionality

Hackney Road and Dequetteville Terrace form part of Adelaide’s Inner Ring Route. These roads cater for multiple functions, including a high frequency public transport route, major cycling route, major traffic route, and freight route as defined in A Functional Hierarchy for South Australia’s Land Transport Network.

A high performing Inner Ring Route will assist in diverting the approximately 20-30% of peak hour traffic that travels through the City (The City of Adelaide SmartMove Transport and Movement Strategy).

The O-Bahn City Access project will remove O-Bahn buses from the signalised intersections on the Inner Ring Route at Hackney Road and Dequetteville Terrace.

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5.2 Previous Projects and Studies

5.2.1 Planning Study – 1980’s

Prior to the construction of the existing O -Bahn, a planning study was undertaken to assess extending the O-Bahn track from Gilberton to the City. This study reviewed a number of alternate routes including alignments from the existing track to King William Street, Frome Road, Rundle Road and Grenfell Street. The Ori ginal 1980s planning study recommended an alignment adjacent to Hackney Road with a tunnel portal aligning to Grenfell Street.

5.2.2 Priority bus Lanes Concept - 2009

A planning study and project was commenced in 2009 to improve bus travel time reliability. Thi s proposal included the provision of bus priority lanes along Hackney road and new bus “super stops” and bus lanes on Grenfell Street. During the early stages of the project Federal Funding of the project was withdrawn in a response to the Queensland Flood s and subsequent the project was cancelled. The bus lanes proposed as part of the 2009 Concept on Grenfell Street and Currie Street were subsequently completed.

5.2.3 Bus Priority in the City - 2012

As a city reaches its limits of capacity, policy makers have t raditionally either widened roads or found more efficient ways of moving the same amount of people (mass transit systems). For example, one bus can replace up to 30-40 cars while one articulated bus such as the Scania bus used for O -Bahn services has a capacity of up to 65 seated patrons and 42 standing patrons replacing up to 90 cars assuming an average of 1.2 passengers per car (see Figure 13).

Figure 13: Cars, buses, and passengers

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In 2012 Bus lanes were implemented on Currie / Grenfell Street to move people more efficiently. Before bus lanes were introduced, transport planners observed that the corridor catered for up to 85 percent of its traffic in cars, which effectively only moved 25%of the people who drove along it daily. However 12% of traffic that was buses moved up to 75% of the people. Therefore, road space was not being efficiently allocated “to maximise the movement of people” who needed to get to their place of work, study or to connect with other services. Without bus lanes, and given growing traffic demand, congestion along this corridor was inevitable.

Vehicle Movement

85% cars 1% commercial 12% bus 2% bikes

People Movement

24% cars 0.1% commercial 76% bus 0.1% bikes

Figure 14: Analysis of cars and buses and how many people they moved on Currie / Grenfell Street near King William Street prior to the introduction of bus lanes.

The resultant bus priority corridor facilitated public transport accessibility and movement for a significant catchment of the north-eastern suburbs. This nevertheless continued to be impacted upon by the network operation of the Inner Ring Route and the subsequent accessibility and movements into the City. Although the O-Bahn City Access Project significantly improves the accessibility and efficiency of the O- Bahn, all other traffic modes within the project area (i.e. the proposed O-Bahn extension between Hackney Road and Grenfell Street) require consideration also to ensure efficient and safe movement of people.

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5.3 Design Development for the current O-Bahn City Access Project

Following the original announcement of the O-Bahn City Access Project, a “First Principles” analysis of the options to improve bus priority was undertaken reviewing a number of different alignments, prior to selecting the preferred alignment.

5.3.1 The ‘Do Minimum’ option

To meet changing passenger demand, the ‘Do Minimum’ option considers upgrading the current services based on requirements following the closure of the Royal Adelaide Hospital (RAH), without any amendments to the road reserve or Park Lands. Approximately 270 O-Bahn buses currently use East Terrace to access Grenfell Street, east of Frome Street, and 370 buses use Frome Street to access Grenfell Street in both directions.

The ‘Do Minimum’ option takes buses currently accessing Grenfell Street via East Terrace (via Botanic Road / North Terrace) or Frome Street and diverts them via Rundle Road and East Terrace to Grenfell Street. Under the ‘Do Minimum’ Option bus movements and traffic congestion would be likely to increase on Grenfell Street, with approximately 640 buses re-routed via Rundle Street and East Terrace. This would compromise the efficiency of traffic along Rundle Road and East Terrace impacting on businesses and the local community along East Terrace.

5.3.2 Rundle Road Tunnel Option - 2014

The O-Bahn City Access Project was initially announced in February 2014 as a bus tunnel with a portal on Hackney Road and Rundle Road. Further design development was completed in early 2014 for the Rundle Road tunnel option and featured a tunnel commencing in Hackney Road just north of the Botanic Road / North Terrace / Dequetteville Terrace intersection. After passing below that intersection, the tunnel continued to run below Dequetteville Terrace and then incorporated a sharp curve to the west, returning to grade at around the midpoint of Rundle Road (refer to Figure 15).

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Figure 15: Previous Rundle Road Tunnel option, announced in February 2014

Investigations have concluded that the Rundle Road Tunnel option poses significant construction and operational risks. While this option would have provided some travel time benefits, in comparison to the current proposed concept it was unlikely to achieve significant travel time or reliability improvements. This option would have required the removal of all the Rundle Road parking without the opportunity for gains/improvements on East Terrace to offset these losses.

5.3.3 Realigned Rundle Road Option - 2015

This scheme was announced in February 2015 and underwent consultation with community and key stakeholders up to Easter 2015. This option featured a bus only tunnel from Hackney Road to portals on the eastern side of Grenfell Street and realignment of Rundle Road to meet the intersection of Grenfell Street and East Terrace. This option proposed elimination of the on-street parking on Rundle Road and altered access to Rundle Street, Adelaide due to the realignment. The proposal included major redesign of East Terrace, reinstating some of the lost car parking and improvements to pedestrian and cycling amenity.

Following consultation and in collaboration with Council and other key stakeholders, this option was redeveloped by the project team.

5.3.4 Current Project Concept Design

The development of the current concept alignment (refer Figure 2 to 6, Section 3.5) has reviewed historical concept proposals, the outcomes of community consultation, and a robust internal review of various alternatives prior to selection as the preferred alignment.

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The current concept design for the O-Bahn City Access Project would provide the following elements:

• Reduce the amenity impacts on Rymill Park due to providing an extended tunnel and removal of the realigned Rundle Road corridor within the Park Lands;

• Provide a high level of travel time reliability, which is critical to keep bus customers and grow a new customer base;

• Improve the Inner Ring Route operations;

• Increase parking in the East End precinct by over 50 on-street parks compared to the existing conditions; and

• Minimise construction and traffic congestion impacts to motorists.

5.3.5 Comparison of final two 2015 schemes resulting from the consultation As a result of consultation two final schemes were developed and compared:

1. Realigned Rundle Road: Adjustments and improvements to the announced scheme to include additional design features. 2. Rundle Road Retained: Following some collaborative work with Adelaide City Council, a scheme was developed which retained the existing Rundle Road link, and incorporated a number of refinements to the design, including a longer tunnel; modifications to the Rundle Road layout in include improved pedestrian and cyclist facilities; modifications to the layout of East Terrace to achieve a net increase in on-street parking capacity within the East End precinct. Each of the above schemes incorporated improvements to the busway, tunnel access portals and Hackney Road.

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Project Objectives Realign Rundle Road Retain Rundle Road O-Bahn Services / Developing better and integrated Public O-Bahn travel time and reliability VVV VVV City Ring Route Improve City Ring Route VVV VVV Park Lands - Respecting the Adelaide Park Lands and Making better places / Redefine Rundle Park as a great public space for the city / Ensuring People are the Focus Rymill Park Benefits / Impacts UUUUUUUUU UUU Rundle Park Benefits / Impacts VVVVVVVVV VVV Return of Park Land Area VVV VVV Park Land use in events VVV VVV Tree Removal UUU UUU Parkland Trails and connections VVV VVV Park Lands Character and Heritage °°°°°° East End & East Terrace - Create a vibrant public realm for East Terrace / Ensuring economic viability for the East End / Ensuring People are the Focus Traffic Calming of East Terrace VVV VVV Traffic Impacts / Access to the East End °°°°°° Parking Impacts to East End UUU VVV Amenity on East Terrace VVV °°° Future Transport Initiatives - Allow for Longer Term Transport improvements / Developing better and integrated Public Transport in Adelaide Flexibility for future tram / bus / vehicular initiatives VVVVVVVVV The O-Bahn City Access Project Future improvements to Grenfell - Currie Bus VVV VVV operations

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SECTION B Transport Demand, Traffic Access and Parking

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6 Traffic: Existing Conditions

The following section of this report details the existing traffic conditions of the local and arterial networks associated with the O-Bahn City Access Project. Chapter 9 (Traffic: Future Conditions) provides the details on impact on traffic movements resulting from the project.

6.1 Catchment Demand: O-Bahn User Catchment and Patronage

Adelaide’s north-eastern suburbs and the City centre form the primary catchments for O-Bahn services to the CBD. This catchment presents a unique blend of land uses, people, businesses and industries.

A level of consideration must therefore be given to the social and commercial impacts of the O-Bahn City Access Project including health and wellbeing, capacity of individuals to engage in economic development, the cohesion of local communities and the impact on community services.

The O-Bahn user catchment has been illustrated in Figure 16 which comprises either all, or part of the following local government areas (LGAs):

• Campbelltown City Council; • City of Norwood Payneham and St Peters; • City of Tea Tree Gully; • The Corporation of the Town of Walkerville; • City of Port Adelaide Enfield (eastern only): Gilles Plains-Holden Hill, Greenacres-Hampstead Gardens, Klemzig-Windsor Gardens-Dernancourt, Northfield-Northgate, Oakden-Hillcrest, and Valley View-Walkley Heights; • City of Salisbury (south-eastern only): Gulfview Heights, Ingle Farm, Para Hills, and Para Vista-Valley View-Walkley Heights.

The primary catchment of the O-Bahn system includes the three interchanges of the Klemzig, Paradise and Tea Tree Plaza. Klemzig provides a number of connecting services to the Northern suburbs as well as other City bound services, with Tea Tree Plaza representing the highest proportion of all interchange boardings.

In addition to physical location, the following additional criteria also assisted in defining the user catchment:

• The O-Bahn’s role as a primary public transit corridor within a local context; • Catchments of each of the O-Bahn interchanges (Modbury, Paradise and Klemzig); • Accounting for their ‘Park’n’Ride’ facilities expanding their catchment reach; • O-Bahn bus routes to and from the busway, excluding those that are more likely to commute to the CBD by train; • Proximity and extent of surrounding residential areas; • The geometry of road layout and how they connect to O-Bahn interchanges.

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A more detailed review of the transport demand drivers and community and demographic profile of the O- Bahn catchment are included in the appendices of this document.

The transport generators of the CBD are also assessed in detail in the appendices.

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Figure 16: Map of the O-Bahn user catchment area for the purposes of this profile

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6.2 Daily and annual patronage

The O-Bahn corridor is the most highly patronised public transport corridor in South Australia.

O-Bahn patronage for all services and all zones has been recorded over the past four years showing significant growth from 8.213 million in 2010/2011 to 9.274 million in 2013/2014.

Results from the ticketing system show that there is an average of approximately 32,500 - 35,000 boardings per weekday.

Patronage demand fluctuates across the year due to seasonal and other factors which affects the reasons for passengers to choose public transport or not.

6.3 Existing Traffic

Traffic volumes on key roads within the project area and of the existing O-Bahn bus route are:

• Hackney Road: 44,600 vehicles per day (vpd) and 5% commercial vehicle percentage (cv%); • North Terrace (west of East Terrace): 29,700 vpd and 5cv%; • Botanic Road: 33,700 vpd and 7.5cv%; • Rundle Road: 14,500 vpd and 5.5cv%; • East Terrace (north of existing Rundle Road): 16,800 vpd and 7cv%; • East Terrace (south of existing Rundle Road): 20,500 vpd and 5.5cv%; • Grenfell St: 14,700 vpd and 8.5cv%; • Frome Rd (south of North Terrace): 14,100 vpd and 5cv%. A detailed summary of existing traffic conditions is provided. Existing road and intersection features, turning movement volumes and crash statistics are summarised for the following locations: • Inner Ring Route – Hackney Road section between Bundeys Road and Botanic Road / North Terrace; • Inner Ring Route – Dequetteville Terrace section between Botanic Road / North Terrace and Rundle Road/Rundle Street (east); • East End Precinct – covering Frome Road, Grenfell Street, Dequetteville Terrace and North Terrace.

6.4 Inner Ring Route – Hackney Road section between Bundeys Road and Botanic Road / North Terrace

Hackney Road forms part of the Inner Ring Route. The function of the Inner Ring Route is to cater for the safe efficient movement of all types of road users throughout all hours of the day. To achieve this, roads forming part of the Inner Ring Route typically require minimal direct side road or property access (potentially using service roads), have minimal disruption to traffic flow (including impacts from stationary buses), and have reduced or eliminated on-street parking. KNet#: 9641541 Page 56 of 275 The O-Bahn City Access Project – Project Impact Report 6 Traffic: Existing Conditions

The 1.2 km section of Hackney Road between Bundeys Road and Botanic Road / North Terrace has a total of nine side streets on the eastern side, and two side streets plus an access to the National Wine Centre on the western side. Please refer to Figure 17 for details on existing access controls along Hackney Road.

There are significant existing safety issues associated with the existing access arrangements for these side roads along this section of Hackney Road from the adjacent local road network of Hackney and College Park.

Accident statistics over the last decade indicate there is a significant safety issue associated with existing access arrangements to/from Hackney Road from the adjacent local road network. In particular, of the 107 accidents recorded over the last decade, greater than 60% of these involved vehicles attempting a right-turn manoeuvre.

Irrespective of the O-Bahn City Access Project, there is a need to address this existing safety issue. Accordingly, DPTI have endeavoured to develop a practical solution to this problem (refer Section 8), whilst balancing the requirement to maintain reasonable access for the local residents of Hackney and College Park, with the need to address the significant existing safety concerns associated with these movements.

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7-9 AM

4-6 PM MON-FRI

Figure 17: Current access conditions on Hackney Road including all turns

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Right Turns into/out of side streets are permitted at the following locations:

• Richmond Street • Cambridge Street • Botanic Drive (No right turn in) • Wyandra Lane • Plane Tree Drive (No right turn out) • Botanic Street, National Wine Centre – main access • Westbury Street

Sheltered right turn lanes on Hackney Road are provided at five out of seven locations listed above with the exception being Westbury Street which has right turn restrictions during morning (7-9am) and afternoon (4-6pm) peak hours and Botanic Drive where no right turn in is permitted. Other side streets on the eastern side are either connected by a service road or function as left-in-left-out access points.

6.4.1 Bundeys Road – Hackney Road intersection The O-Bahn’s guided rail path starts/ends approximately 175metres north of Bundeys Road. Buses travelling toward the City have to mix with other traffic at Bundeys Road / Hackney Road intersection from there on buses travel along with general traffic all the way to City. Similarly buses travelling toward O- Bahn have to travel along with other general traffic between the City and Bundeys Road before entering the guided rail path after Bundeys Road intersection.

Under existing conditions the Hackney Road intersection with Bundeys Road / Park Terrace is a four way signalised intersection. This intersection plays an important role in functioning of the eastern part of Inner Ring Route it is the southern end of O-Bahn. Beyond this point, other than the bus interchanges, there are no intersections that O-Bahn buses have to encounter before reaching Tea Tree Plaza – the northern end of O-Bahn.

The subject intersection operates at near capacity during morning and afternoon peak hours as extensive queues along Hackney Road are observed.

The following turning volumes were observed during morning and afternoon peak hour (June-2011) at Hackney Road/Bundeys Road intersection:

• 9 northbound vehicles turn right into Park Terrace during morning peak hour; • 18 northbound vehicles turn right into Park Terrace during afternoon peak hour; and • 186 vehicles observed to turn right into Park Terrace during 11hour survey. Existing traffic counts indicates that demand for right turns into Park Terrace is particularly low during peak hours.

A total of 29 crashes were reported at Bundeys Road/ Hackney Road intersection which included 2 casualties. It can be seen from the crash summary that approximately half of the total accidents (14 crashes) at this location are relating to right turn movements into / out of Bundeys Road and Park Terrace.

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Crash Data • 10 Rear Ends AM 7 • 2 Right Angle Crashes 72 PM 6 • 7 Right Turns (1 Casualties) Hackney Road and Park Terrace Park Terrace • 5 Right Turns (1 Casualties) AM 298 Hackney Road and Bundeys Road 861 PM 34 • 4 Hits with Fixed Objects • 1 Side Swipes

AM 28 477 PM 110

AM 6 AM 3 85 PM 9 AM 244 102 PM 10 4,277 PM 516 AM 16 85 PM 8 AM 15 216 PM 27

AM 452 AM 9 3,004 PM 259 186 PM 18

Figure 18: Hackney Road Bundeys Road Intersection - Turning Counts

6.4.2 Bridge

The Hackney Bridge was first known as the "Second Company Bridge" as the South Australia Company built it. It was built so that wheat farmers from the northern side could access the South Australian Company's flour mill which stood where the Hackney Hotel was later built.

The current eastern bridge is the third at the same site; in 1845 "Prescott's Crossing" was built as a timber beam bridge, 1860 saw it replaced with a four span, trussed timber bridge and in December 1885 it was replaced with a 126-foot (38 m) long, 34-foot (10 m) wide truss arch bridge.

The two current structures include a steel truss arch bridge built in 1926 and a three span cantilevered structure with a drop in span commissioned in 1965. The eastern bridge is listed on State Heritage register.

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6.4.3 Hackney Road – Richmond Street Junction

Hackney Road junction with Richmond Street is an unsignalised T-junction. A channelised right turn lane is provided for northbound traffic on Hackney Road to turn right into Richmond Street.

Right turn out of Richmond Street is permitted under the existing conditions.

The following turning volumes were observed during morning peak hour at Richmond Street junction:

• 127 southbound vehicles turn left into Richmond Street; • 22 northbound vehicles turn right into Richmond Street; • 107 vehicles turn right out of Richmond Street; and • 89 vehicles turn left from Richmond Street to Hackney Road. As per the turning counts at this location, a total of 107 vehicles (roughly 7 vehicles every 4 minutes) were observed to turn right out of Richmond Street during morning peak hour. Similarly a total of 89 vehicles (roughly 3 vehicles every 2 minutes) were observed to turn right out of Richmond Street during afternoon peak hour.

Crash Data • 10 Rear Ends (3 Casualties) • 14 Right Angles (3 Casualties) • 3 Right Turns (2 Casualties) • 3 Side Swipes • 1 Roll Over (1 Casualty) AM 127 1,401 PM 231

AM 107 963 PM 89

AM 45 464 PM 45

AM 22 399 PM 62

Figure 19: Hackney Road Richmond Street Junction - Turning Counts and Crash Data

Existing traffic counts indicate 30/70 directional split for left and right turns out of Richmond Street (30% turning left and 70% turning right) during morning peak, 34/66 split during afternoon peak and 33/67 split for the survey duration (12 hours).

Under existing conditions queues along North Terrace (east of Hackney Road) have been observed to extend beyond College Street. Such long queues with a single right turn lane from North Terrace to Hackney Road are considered to encourage rat-running from Payneham Road to Hackney Road. Motorists along Payneham Road can use St. Peters Street (and other minor streets) to arrive at Richmond Street before turning right on Hackney Road.

It is important to note that Hackney Road forms part of the strategically important Inner Ring Route of Adelaide. The Inner Ring Route is intended to provide reliable cross-city travel without the need to pass through the central City, providing for both business travel and the movement of freight.

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The draft document ‘ A Functional Hierarchy for South Australia’s Land Transport Network’ defines Hackney Road as a High Frequency Public Transport Corridor, Major Cycling Route, Major Traffic Route and Freight Route. To achieve these roles, Hackney Road needs to provide safe and efficient movement of vehicles, buses and bicycles at all times of the day. It must have priority of movement and have minimal impact from turning traffic.

6.4.4 Richmond Street Origin-Destination Survey

An Origin Destination (O-D) survey conducted in 2009 indicated approximately 25% traffic using Richmond Street was local. The majority of the 75% non-local traffic using Richmond Street during both morning (532 vehicles) and afternoon peak hour (812 vehicles) can be attributed to rat-run traffic between Hackney Road and Payneham Road.

O-D survey included observing vehicle registration (number) plate and identifying suburb where individual vehicles have been registered. Vehicles with registration plates associated with the following suburbs considered as “Local” traffic:

• College Park; • Hackney; • Stepney; and • St Peters. Observed non-local vehicles were split into three catchments based on their location for vehicle registration:

• South of Payneham Road / Montacute Road (east of Hackney) – e.g. Kensington, Kent Town, Magill, Newton etc. • North of Payneham Road / Montacute Road (east of Hackney) – e.g. Walkerville, Paradise, Klemzig etc. • Other suburbs – Adelaide, Broadview, Burnside, Henley Beach etc. Non-local vehicles from the above three catchments were assumed to use Payneham Road/Richmond Street as a cut-through route and were considered as ‘rat-run’ movement.

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Richmond Street- Eastbound Traffic

70% 65%

60% 51% 49% 50%

40%

30% 22% 23% 18% 20% 16% 16% 11% 11% 12% 10% 6%

0% AM 12Hour PM

Local Catchment Suburbs Suburbs South of Payneham/Montecute Suburbs North of Payneham/Montecute Other Suburbs

Figure 20: Richmond Street Junction – Easbound Traffic Splits

Richmond Street - Westbound Traffic

70%

60% 57% 49% 51% 50%

40%

30% 25% 26% 26% 19% 20% 15% 10% 10% 7% 8% 6%

0% AM 12Hour PM

Local Catchment Suburbs Suburbs South of Payneham/Montecute Suburbs North of Payneham/Montecute Other Suburbs

Figure 21: Richmond Street Junction – Westbound Traffic Splits

Traffic originating from suburbs located north and north-east of Payneham Road/Montacute Road were considered to most likely turn left out of Richmond Street (likely route – North East Road / Stephen Terrace/ Richmond Street/ Hackney Road) .

Similarly, traffic originating from suburbs located south of Payneham Road /Montacute Road was considered to most likely turn right out of Richmond Street (likely route – Payneham Road / St Peters Street or other internal roads/ Richmond Street/ Hackney Road).

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6.4.5 Hackney Road – Eastern Service Road

The existing service road along eastern side of Hackney Road is split into three sections as described below.

1. The northern section starts south of Richmond Street, serves Hackney Hotel, Bertram Street and Oxford Street before terminating south of Oxford Street; 2. Central section starts south of Oxford Street, serves Cambridge St and private driveway before terminating north of Vailima Circuit; and 3. The southern section starts at Vailima Circuit, serves Vailima Circuit, private driveways, Wyandra Lane before terminating north of Athelney Avenue.

6.4.6 Hackney Road – Botanic Drive / Cambridge Street intersection

Botanic Drive is a one-way (west to east) local road providing access to Adelaide Zoo and on-street parking along majority of its length. Right turns out of Botanic Drive are permitted under the existing conditions.

Cambridge Street is a two-way local access road providing access to St. Peters College (via Hatswell Street) and residences along its length.

CrashCrash DataData •• 33 Rear Rear Ends Ends •• 1010 Right Right Angles Angles (4 (4 Casualties) Casualties) •• 13 Right Right Turn Turns (2 Casualties) •• 11 Roll Roll Over Over (1 Casualty) AM 6 • 3 Side Swipes 35 PM 1

AM 3 10 PM 3

AM 13 299 PM 36 AM 20 69 PM 25 AM 3 171 PM 13

AM 20 69 PM 25

Figure 22: Hackney Road Botanic Drive/Cambridge Street intersection - Turning Counts and Crash Data

A total of 15 crashes were reported at Hackney Road / Cambridge Street intersection which included 5 casualties. It can be seen from the crash summary 11 crashes at this location are relating to right turn movements into / out of Cambridge Street.

The extremely low number of right turning vehicles (3 vehicles during morning and afternoon peak hours) indicates there is very low demand for right turns out of Cambridge Street.

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