Ms Peggy Danaee Committee Secretary JOINT STANDING

Ms Peggy Danaee Committee Secretary JOINT STANDING COMMITTEE ON THE NATIONAL CAPITAL AND EXTERNAL TERRITORIES PO Box 6021, Parliament House, Canberra ACT 2600 Email: [email protected]

Dear Ms Danaee,

INQUIRY INTO COMMONWEALTH AND PARLIAMENTARY APPROVALS FOR THE PROPOSED STAGE 2 OF THE AUSTRALIAN CAPITAL TERRITORY LIGHT RAIL PROJECT

Thank you for the opportunity to provide a submission to the above inquiry. The submission is attached.

The ACT Property sector is the second biggest industry in Canberra – behind the public and health services – employing 1 in 7 Canberrans – driving economic growth and renewal across our city. Our sector is critical to the diversity of the economy and contribute 57.5% of all government revenue which funds our schools, hospitals, municipal, community and government services. Our contribution to renewing our city at a time of transformation and growth is immense.

Many of our members work on a daily basis with members and officials within the government to drive development and renewal across the city – from townhouses to mixed use developments, multi-residential sites and commercial and retail projects – to whole estates and suburbs and precincts from the local shops to the high-rise developments in our town centres.

Our members include developers, financers, architects, property law specialists, retirement living operators, town planners, heritage consultants, universities, government agencies at both the Federal and Territory level and local utilities.

Our advocacy priorities include: • Encouraging urban renewal that is vital to the future of Canberra’s economic and social wellbeing. • Planning and Sustainable Development polices which are outcomes focused. • Transport Orientated Development that delivers density and liveability in the major transport corridors and in our town centres. • Housing choice for all Canberrans including retirement living and affordable housing. • Taxes and charges which are fair, administered efficiently and encourage development where it is needed. • Long term infrastructure planning which will help transform our city. It is based on these key advocacy priorities that we make this submission.

Summary a) The National Triangle, Parliamentary Zone is a critical part of the long-term City wide Light Rail Network and the transport network. Light Rail if well integrated into the Main Avenue framework will enhance the national significance of the Parliamentary Zone b) The published ACT Light Rail Network Master Plan (2015) is soundly based and proposes a direct, intertown City to Woden route and routes to Canberra International Airport integrated into the Main Avenue framework of the Parliamentary Zone via Capital Circle. c) The current ACT Government Preferred Option and the diversion through the Barton employment precinct is inconsistent with the ACT Light Rail Network Master Plan. This diversion would have a significant negative impact on the City to Woden route. d) Departures from the City-wide network should only be considered where there are benefits to the whole network. e) The multi-modal transport capacity of Commonwealth Avenue should be maintained and enhanced.

Key messages

1. The proposal to create light rail network as part of the National Triangle and through the Parliamentary Zone is within an area of national significance. It promises to enhance this significance and help showcase Australia’s National Capital as an exemplar 21st century sustainable city. 2. The Property Council supports long term infrastructure planning that integrates land use and transport. 3. Light Rail is critical infrastructure for Canberra’s future. 4. Canberra is laid out on the framework of the Griffin Plan which was designed for light rail. 5. Canberra’s ‘Y plan’ metropolitan structure is robust and sustainable - predicated on: a. a north south light rail transit spine with priority for pedestrians and b. peripheral parkways for cars 6. The National Triangle (including City, Russell and the Parliamentary Zone) is the centre of the public transport network, providing connections to the rest of the Canberra network. Connecting light rail to this important zone south of the lake also opens up future corridors in Canberra’s south. 7. We should now plan the light rail corridor as a high quality multi-modal corridor with enhanced people movement and reduced congestion. 8. Adelaide Avenue is a nationally significant Main Avenue and approach route to Parliament House that the Commonwealth via the National Capital Authority has planning responsibility. As one of Griffin’s main avenues it should be transformed into tree lined multi-modal boulevard to unlock land opportunities for transit oriented urban renewal adjacent new transit stops in Deakin and Yarralumla as well as other locations on the Woden to City corridor such as Curtin and Yarra Glenn. 9. The National Triangle should be an integral part of this multi-modal corridor

10. Current strategic planning settings - The National Capital Plan and the ACT Government’s Light Rail Network Master Plan - propose a direct route in a separate reserve (right of way) between Woden Town Centre and the City centre. 11. The ACT Light Rail Network Master Plan is soundly based and uses Griffin’s framework of main avenues as they were intended. 12. Providing a frequent and accessible service to Barton is important but it should be done in a way that doesn’t negatively impact on the overall performance of the network. 13. Either State Circle or Capital Circle should play an important interchange role between the City to Woden route and Woden, Parliament House and Barton to Russell and the Canberra International Airport. A light rail connection from State Circle /Capital Circle to Kings Avenue should be considered as part of a longer-term link to the Airport via Russell. 14. Consideration of individual stages should be considered within the context of the longer-term network as set out in the ACT Light Rail Network Master Plan. 15. There are other options that deliver an attractive service to the Barton employment precinct while maintaining the integrity of the ACT Light Rail Network Plan

Once again thank you for the opportunity to respond, and please contact me if you have any questions.

Background

The Joint Standing Committee on the National Capital and External Territories has commenced a new inquiry into Commonwealth and Parliamentary approvals for the proposed Stage 2 of the Australian Capital Territory light rail project.

The terms of reference are to inquire into and report on the development of stage two of the Australian Capital Territory light rail project, with regard to:

1. the relevant parliamentary approval processes for works within the Parliamentary zone; 2. the roles of the National Capital Authority and the Australian Government, and the associated approval processes; 3. possible impacts on the Parliamentary zone and Parliamentary precincts, including any impacts on the heritage values and national importance of the Parliamentary zone and our national capital; and 4. the identification of matters that may be of concern prior to formal parliamentary or Australian Government consideration of the project; and any other relevant matter the Committee wishes to examine.

Recommended approach

The National Triangle (including City, Russell and the Parliamentary Zone) is the centre of the public transport network, providing connections to the rest of the Canberra network. Connecting light rail to this important zone south of the lake also opens up future corridors in Canberra’s south.

2. The Property Council supports long term infrastructure planning that integrates land use and transport Public transport and sustainable transport options like light rail, are integral to the realisation of more liveable, productive and sustainable cities. Transport plans when integrated with strategic land use plans are a powerful pathway for sustainable city transformation and the delivery of vibrant, connected, inclusive, resilient and healthy urban places for people. The ACT and Commonwealth Governments are ideally placed to leverage government land and investment in public transport and the public domain to deliver design led and people focused urban renewal along with reduce greenhouse gas emissions and a more compact city with reduced car dependency and enhanced active travel options.

The ACT Government should be commended for preparing a long term and City wide Light Rail Network Master Plan. This Light Rail Network Plan provides a comprehensive network plan that integrates with current planning and land use strategies.

3. Light Rail is critical infrastructure for Canberra’s future

Canberra’s population is projected to increase from 415,000 to over 500,000 within the next ten years.

With the highest car dependency of any Australian capital city, this population growth will result in significantly more cars and more congestion. Through traffic currently dominates the main avenues and approach routes to the National Triangle and Parliament House. Further growth in the volume of cars threatens to overwhelm the Parliamentary Triangle.

The introduction of light rail is a game changer for Canberra. It reflects a shift in the world where public investment is moving from highways and sprawl to transit and cities, and the role of design is shifting from building bigger roads to making streets that support quality places.

The world’s best and most liveable cities all have excellent integrated public transport networks, designed and planned in tandem with land use to create walkable, people-friendly communities with a range of transport options.

Growing Canberra around a light rail spine that is integrated into high density pedestrian friendly precincts will deliver a National Capital that is more compact, sustainable and well connected, maintaining the world class standard of living experienced by Canberrans.

Streets are public spaces for people as well as corridors for movement. Instead of measuring performance by their ability to move traffic an approach based on local context, the needs of multiple users, and larger social, economic, and environmental goals represents a new human and landscape centred approach to how cities are planned.

4. Canberra is laid out on the framework of the Griffin Plan which was designed for light rail Canberra is built on the framework of the Griffin Plan. The principle features of the Plan that characterise the city today include:

• the design of the Central National Area centred on the National Triangle; • the Land and Water Axes; • Lake Burley Griffin; • the inner hills which enclose Central Canberra with a backdrop of bushland; • the main avenues, which provide the lines of communication, multi- modal transport corridors and vistas to surrounding landscape and key

city landmarks; and the formal approach routes to the Central National Area.

The Griffin Plan proposed a model light rail city – with highly integrated land use and transport and Transit Oriented Development (TOD) throughout Central Canberra. The network of main avenues is direct and efficient providing lines for rapid transit. The highest densities of retail, employment and residential development lined the main avenue transit network to support the transit system and visa versa. The layout of main avenues responds to efficient patronage catchments and to ensuring that over 90% of the city was within a 5 minute walk of light rail.

5. Canberra’s ‘Y plan’ metropolitan structure is robust and sustainable - predicated on: • a north south light rail transit spine with priority for pedestrians and • a peripheral parkways for cars

Canberra’s structure of town centres arranged in linear form connected by a public transport spine and framed by peripheral parkways is a robust structure for accommodating growth and for consolidating growth along the spine. In line with international best practice the introduction of light rail should coincide with creating a more pedestrian orientated and civic transit spine. Light rail complements higher density and pedestrian oriented environments while providing for considerable increases in capacity for moving people. In tandem

with the role out of light rail, higher speed vehicular through traffic should be directed to the peripheral parkway network.

The north south transit spine travels along Adelaide Avenue and then through the National Triangle on Commonwealth Avenue connecting to Northbourne Avenue in the City centre. In this way the National Triangle is an integral part of this civic spine.

6. The National Triangle (including City, Russell and the Parliamentary Zone) is the centre of the public transport network, providing connections to the rest of the Canberra network. Connecting light rail to this important zone south of the lake also opens up future corridors in Canberra’s south.

The central Canberra area, including the Parliamentary Triangle and surrounding areas, is a significant generator of demand for public transport. The Woden, Gungahlin, Belconnen, Airport and Fyshwick corridors all converge on the Parliamentary Triangle. Connecting this inner area with light rail will provide a more integrated Inner Canberra and encourage movements across the lake for social, economic and tourism purposes.

Parliament House, Commonwealth offices in the Parliamentary Zone and at Barton and national cultural attractions such as National Gallery of Australia, National Portrait Gallery, National Library and Questacon and Old Parliament House are all significant generators of demand. Employment in the Parliamentary Zone is projected to increase by around 50% between now and 2041, and residential population in the Triangle (in the City centre and Constitution Avenue) will likely dramatically increase. This will result in greater intensification of transport demand.

7. We should now plan the light rail corridor as a high quality multi-modal corridor with enhanced people movement and reduced congestion The introduction of light rail provides the opportunity to transform the corridor into a high quality multi-modal corridor with improved active travel choices, better amenity and balanced growth of jobs and housing. In the short term light rail will provide approximately a two and half fold increase in the capacity for moving people – supplanting the need for increased vehicular capacity along the corridor. This lays the foundation for the sustainable transformation of the corridor as Canberra grows over the coming decades.

As a multi-modal boulevard Commonwealth Avenue and Adelaide Avenue should:

• Serve more people; • Move more people; • Be accessible to more people; • Support more local business; and • Be more environmentally sustainable.

8. Adelaide Avenue is a nationally significant Main Avenue and approach route to Parliament House that the Commonwealth via the National Capital Authority has planning responsibility. As one of Griffin’s main avenues it should be transformed into tree lined multi-modal boulevard to unlock land opportunities for transit oriented urban renewal adjacent new transit stops in Deakin and Yarralumla as well as other locations on the Woden to City corridor such as Curtin and Yarra Glenn.

Adelaide Avenue is a treeless motorway. It has multiple wide lanes for traffic and separate bus lanes, which dominate and divide the corridor. There is no provision for pedestrians and a lack of protection for bicycles. Buildings back onto the motorway and it presents as a hostile and unsafe environment that contributes to heat island effect. Adelaide Avenue can be transformed from a vehicular dominated space into a great urban space - a public space for people as well as corridor for movement and a safe, attractive and economically vibrant place.

9. The National Triangle should be an integral part of this multi-modal corridor

The National Triangle formed by Commonwealth, Kings and Constitution Avenues is the heart of the National Capital. These broad 60 metre wide Griffin avenues were sized to accommodate a right of way (ROW) for light rail mostly within their central medians.

The National Triangle connects the City Centre, Defence HQ at Russell, Barton Office Precinct and Parliament House. This is the centre of employment and economic activity in the national capital holding 60% of all ACT jobs. The national cultural institutions attract more than 5 million visitors annually. There are substantial vacant sites suitable for national cultural attractions, offices and mixed use development within and adjacent the National Triangle that will bolster patronage of light rail and the attractiveness of the Triangle as a destination.

The national cultural attractions are fundamental to Canberra’s identity as the showplace of the nation and to its economic livelihood. Yet access to the city’s cultural offerings continues to be hampered by the dispersed nature of their locations, poor legibility and connections, and a lack of transport and activity support.

A high quality and efficient light rail network could provide enhanced connection between our national cultural attractions if the route was carefully planned to link these attractions.

In addition to supporting Canberra’s growing tourism and education sectors, a well connected National Triangle will capitalise on the potential for agglomeration benefits of Inner Canberra. There is significant infrastructure demand potential in residential areas including Barton, Campbell and Reid and economic potential within the City, Russell and Parliamentary Zone.

10. Current strategic planning settings - The National Capital Plan and the ACT Government’s Light Rail Network Master Plan - propose a direct route in a separate reserve (right of way) between Woden Town Centre and the City centre The National Capital Plan (NCP) identifies an Inter-town public transport corridor (IPT corridor) for rapid transit that links Canberra’s town centres to the City Centre. The NCP requires that the route as much as possible is segregated into a separate right of way (ROW) so that it has priority over other road users. The Woden to City IPT corridor runs via Adelaide Avenue, Capital Circle and Commonwealth Avenue to the City Centre. This route coincides with the most direct line of travel and aligns with main avenue framework of Central Canberra.

In line with this the ACT Government’s Light Rail Network Master Plan proposes a Woden to City route that is consistent with the IPT corridor shown in the NCP. This is to ensure that light rail will attract high patronage levels because travel times compete favourably with other modes of travel such as cars and buses.

City to Woden – Transport Canberra’s Light rail network National Triangle – light rail network ACT Government’s light rail network master plan for City to Woden and the National Triangle (released in 2015)

11. The ACT Light Rail Network Master Plan is soundly based and uses Griffin’s framework of main avenues as they were intended.

The City to Woden light rail route should not depart from the longer-term ACT Light Rail Network Plan without strong justification and a review of the network.

The ACT Light Rail Network Plan for the National Triangle proposes light rail routes that utilise the broad reserves of Commonwealth, Kings and Constitution Avenues which also provide direct and efficient routes to the City centre and

Russell from the Parliamentary Zone. These avenues connect to the broader network which logically extend outwards to Canberra’s town centres and other major destinations such as the Canberra International Airport, Fyshwick and potentially Queanbeyan. The route follows Capital Circuit which then connects to Adelaide Avenue.

To provide appropriate priority for light rail the tracks should be located within the central median (which may need to be widened so that new median trees can be planted). This may require removal of existing trees within medians and where this occurs they should be replaced with advanced trees, similar to recent median planting undertaken as part of the Constitution Avenue upgrade.

12. Providing a frequent and accessible service to Barton is important but it should be done in a way that doesn’t negatively impact on the overall performance of the network.

The ACT Government have released their preferred light rail route between the City and Woden to travel through Barton to capitalise on employment hubs and proximity to cultural institutions. The preferred route runs along King Georges Terrace in front of Old Parliament House, diverting into Kings Avenue and then along Windsor Walk in Barton (the Barton diversion).

Diverting away from the IPT corridor and the Light Rail Master Plan to service employment at Barton, removes the routes effectiveness as a rapid intertown public transport system. For residents of Woden this will be a slower service than the current express bus service currently operating or driving a car. As a result, it is likely that express buses will continue to operate along Adelaide Avenue which will undermine the viability of light rail.

A diversion from the most direct and legible route at Barton will penalise many kilometres of route to and beyond Woden Town Centre. Woden Town Centre is in urgent need of investment and renewal. This should be a prioritised with public transport that is competitive with the private car both in travel time and frequency.

It is essential that passengers from Woden can expect to board, interchange and alight with ease and speed. A diversion from the primary spine would likely reduce both the incentive and the real-world ability to interchange as future stages of light rail come on-line – e.g. Woden to Russell/Airport or to Kingston/Fyshwick/Queanbeyan or to Belconnen. These interchanges will most readily occur at Capital Circle and at London Circuit in the City Centre. The current ACT Government preferred Barton diversion option Barton removes a potentially significant interchange that will penalise the system overall.

It highlights a lack of alignment between strategic planning and infrastructure planning.

13. Capital Circle or State Circle should play an important interchange role between the City to Woden route and Woden, Parliament House and Barton to Russell and the

Canberra International Airport. A light rail connection from Capital Circle/State Circle to Kings Avenue could be constructed as part of the link to the Airport via Russell. Taking this approach would be consistent with the role of Adelaide Avenue, Capital Circle and Commonwealth Avenue/Kings Avenue being multi-modal transit spines.

14. Consideration of individual stages should be considered within the context of the longer-term network as set out in the ACT Light Rail Network Master Plan. It is important that departures are justified and that the longer-term network is reviewed in light of any departures. Short term imperatives should not corrupt the integrity, efficiency and coverage of the whole network and routes should not be distorted to achieve coverage that would have otherwise been delivered with the construction of later stages.

15. There are other options that deliver an attractive service to the Barton employment precinct while maintaining the integrity of the ACT Light Rail Network Plan

It is disappointing that a full range of options (and their advantages and disadvantages) were not exhibited for public comment prior to the selection of the current ACT Government ‘Preferred option’. The Property Council has identified a possible range of alternative options at Attachment A and has identified high level advantages and disadvantages.

This high-level evaluation reveals that there may be substantial additional benefits that warrant further investigation.

Conclusion a) The National Triangle, Parliamentary Zone is a critical part of the long-term City wide Light Rail Network and the transport network. Light Rail if well integrated into the Main Avenue framework will enhance the national significance of the Parliamentary Zone b) The published ACT Light Rail Network Master Plan (2015) is soundly based and proposes a direct, intertown City to Woden route and routes to Canberra International Airport integrated into the Main Avenue framework of the Parliamentary Zone via Capital Circle. c) The current ACT Government Preferred Option and the diversion through the Barton employment precinct is inconsistent with the ACT Light Rail Network Master Plan. This diversion would have a significant negative impact on the City to Woden route. d) Departures from the City-wide network should only be considered where there are benefits to the whole network. e) The multi-modal transport capacity of Commonwealth Avenue should be maintained and enhanced.

ATTACHMENT A

PRELIMINARY COMPARISON OF POSSIBLE ALTERNATIVE ROUTES

Option 1: Current ACT Government preferred route- Barton diversion

The route diverts from the ACT Light Rail Network Plan via The Parliamentary Zone (King George Terrace) and the Barton Employment precinct (Windsor Walk).

Pros:

• Capitalises on the employment hub at Barton; • Capitalises on the its proximity to cultural facilities including Old Parliament House, National Gallery of Australia, National Portrait Gallery, Questacon, National Library and commonwealth offices; • Runs along Windsor Walk creating an attractive light rail and pedestrianised station area;

Cons:

• Diversion adds significant distance (over 1.12km) and time to the journey from Woden to the City; • Route unlikely to compete favourably with express buses running between Woden and City; • Route unlikely to compete favourably with cars; • Removal of potential interchange on Capital Circuit • There is no stop serving Parliament House

Option 2: Direct route via Capital Circle spine

A direct route located on the eastern side of Capital Circle with a stop serving both Parliament House and the Barton office precinct – this route is 1.12Km shorter than Option 1: the current preferred Barton diversion route.

Pros:

• 1.12 Km reduction in distance between Woden to City compared to Option 1: the current preferred Barton diversion route • Likely to compete favourably with express buses and cars running between Woden and City • Light rail stop on Capital Circle serves both Parliament House and Barton Office precinct • Light rail stop occurs on existing bridge providing pedestrian friendly underpass to Barton • Potential for future interchange on Capital Circuit • Reduced walking distance to Parliament House from light rail stop • Reduced number of 90 degree turns on light rail route

Cons

• Light rail is not optimised to serve Barton Office Precinct • Light rail stop on Capital Circle is not integrated into the public domain of Barton Office precinct • Increased walking distance to Barton Office precinct from the Capital Circle light rail stop • cost of grade separation between Capital Circle and Barton Office precinct and Parliament House.

Option 3: Direct route via Capital Circle spine + branch Canberra Avenue line to Manuka

In addition to Option 2 a line running from Capital Circle along Canberra Avenue with stops serving the Barton Office precinct and Manuka Oval – this route is 0.20Km shorter than Option 1.

Pros:

• Main Woden to City route has the same advantages as Option 2 above • New line to Manuka is an important strategic link that forms an integral part of a future City-wide light rail network • Dramatic increase in the pedestrian catchment and potential patronage increases viability of light rail • light rail stops on Canberra Avenue serves Manuka Oval and Manuka Group centre reducing the demand for major event parking • Provides a light rail stop on Canberra Avenue in addition to Capital Circle that serves Barton Office precinct as well as Canberra Avenue corridor • Reinforces the City’s main avenue light rail framework - Canberra Avenue 60 metre width and median provides for a separate Right of Way (ROW) for LRT • Priority and efficiency for light rail due to ROW

Cons:

• Potential lower frequency of service on the Canberra Avenue link to Manuka via Barton along Canberra Avenue compared to the main Woden to City route.

Option 4: Capital Circle spine + branch line to Kingston Railway Station via Brisbane Avenue Barton

A new line to Kingston Foreshore and Kingston Railway Station along Wentworth Avenue via Brisbane Avenue and Macquarie Street Barton connecting to King George Terrace – this route is 1.88 Km longer than the “preferred” Barton diversion.

Pros

• Main Woden to City route has the same advantages as Option 2 above • New light rail route is an important strategic link that forms an integral part of a future City-wide light rail network • Dramatic increase in the pedestrian catchment and potential patronage increases viability of light rail • Serves Kingston and Kingston Foreshore with light rail stops on Wentworth Avenue • Connects Kingston Railway Station (Canberra gateway for proposed higher speed rail arrivals from Sydney/Canberra corridor) • Serves Barton Office precinct along Brisbane Avenue and National Circuit • Serves major cultural facilities in the National Triangle including OPH, NGA, NPG, NLA, Questacon and Government offices • Provides a light rail stop on Brisbane Avenue in addition to Capital Circle that serves Barton Office precinct • Reinforces the City’s main avenue light rail framework – Brisbane Avenue and Wentworth Avenue 60 metre width and median provides for a separate Right of Way (ROW) for light rail • Priority and efficiency for light rail due to ROW

Cons:

• Potential reduction in frequency of service on the branch line link to Kingston via Barton along Wentworth Avenue compared to the main Woden to City route.

Longer term network

Options 2, 3 and 4 form part of a Citywide Light Rail Network