University of Wollongong Research Online University of Wollongong Thesis Collection 1954-2016 University of Wollongong Thesis Collections 1984 Port-oriented coal transport infrastructure: an analysis of locational decision-making Sophia Apolonia Everett University of Wollongong Follow this and additional works at: https://ro.uow.edu.au/theses University of Wollongong Copyright Warning You may print or download ONE copy of this document for the purpose of your own research or study. The University does not authorise you to copy, communicate or otherwise make available electronically to any other person any copyright material contained on this site. You are reminded of the following: This work is copyright. Apart from any use permitted under the Copyright Act 1968, no part of this work may be reproduced by any process, nor may any other exclusive right be exercised, without the permission of the author. 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For further information contact the UOW Library: [email protected] PORT-ORIENTED COAL TRANSPORT INFRASTRUCTURE: AN ANALYSIS OF LOCATIONAL DECISION-MAKING A thesis submitted in partial fulfilment of the requirements for the award of the degree of MASTER OF ARTS (HONOURS) from THE UNIVERSITY OF WOLLONGONG by SOPHIA APOLONIA MARIA EVERETT, BACHELOR OF ARTS UNIVERSITY Of I WOLLONGONG I ( LIBRARY _| DEPARTMENT OF GEOGRAPHY 1984 ACKNOWLEDGMENTS Many people have given me assistance in the preparation of this thesis and their kindness has been greatly appreciated. I should like to thank Ken Sullivan for his advice and Laurie Kelly for assisting me with election statis­ tics; Mr. and Mrs. Jack Kimber for the time they made avail­ able in frank discussion; the staff of the Reference Section of the City of Wollongong library where considerable time was spent reading newspaper files; Professor Murray Wilson and the staff of the Geography Department of the University of Wollongong for their assistance and advice. I should like to thank Dr. Philip Laird with whom I have spent numerous hours discussing a variety of problems and who made available to me his files and records. In particular, I thank my supervisor, Dr. Ross Robinson, for his enthusiasm and interest in the study and whose unending patience, assistance and encourage­ ment enabled completion of this thesis. Sophia Everett ABSTRACT The study examines the mechanism of policy formulation and locational decision-making as it relates to the provision of transport infrastructure and specifically port-oriented coal transport infrastructure in southern New South. Wales. The analysis reveals that traditional geographic theori and positivist decision-making models are simplistic and do not accurately account for location decision-making. Rather it was found that location decisions, as well as implementation are, in fact, a product of complex political processes. The study demonstrates that even when coordinated and integrated planning does occur for the provision of transport infrastructure, the implementation stage of the decision-making process is disjointed and uncoordinated and reflects the incremental nature of the implementation stage of the process. Incrementalism reflects the inability or reluctance of Government to act or to provide resources sufficient for the completion of the policy plan. It reflects, also, the role of powerful vested interest groups on decision-makers. The study revealed that pressure may be exerted by influential lobby and interest groups, including trade unions, and that their participation may prove sufficiently powerful to force modifi­ cation of policy plans or cause abandonment of a project altogether. 1 CONTENTS Page CHAPTER 1: INTRODUCTION 1 A. LOCATION DECISION-MAKING: SOME BACKGROUND C O M M E N T S 2 Decision-Making: an Emerging Focus in Geography 2 Decision-Making and Transport Studies 13 B. THE RESEARCH PROBLEM AND SOME WORKING ’ HYPOTHESES 17 C. THE STRUCTURE OF THIS STUDY 21 References and Notes 23 CHAPTER 2: DECISIONAL ANALYSIS AND THE LOCATION OF TRANSPORT INFRASTRUCTURE: A CONCEPTUAL FRAME 27 The Decision-Making Process: Some Fundamental Considerations 27 Models of Decision-Making in the Geographical Literature 32 A Framework for the Analysis of Transport Infrastructure Locational Decisions 38 References and Notes 48 CHAPTER 3: COAL TRANSPORT INFRASTRUCTURE: THE CONTEXT OF DEVELOPMENT . 50 The Clutha Proposal for an Offshore Loader at Coalcliff 53 An Offshore Loader at Port Kembla? 62 The Proposal for a Botany Bay Loader 65 The Decisions to Develop a New Coal Loader at Port Kembla 75 11 Page References and Notes 91 CHAPTER 4: DISJOINTED INCREMENTALISM: GOVERNMENT ACTION AND INACTION IN INFRASTRUCTURAL ' DECISION-MAKING 98 New Rail Links - Maldon/Douglas Park to Port Kembla or Duplication of the Moss Vale to Unanderra Line? 99 Alternate Proposals - New Roads, Conveyors or Pipelines? 108 The Maldon-Dombarton - Port Kembla Line Again 115 The Status quo 120 References and Notes 125 CHAPTER 5: 'THE PLAY OF POWER': TRADE UNION PRESSURES AND INFRASTRUCTURAL CHANGE 129 The Bellambi Coal Bin Proposal and Inter-Union Conflict 131 The Port Kembla Coal Loader - Political Alliances and 'Sweetheart' Deals 139 References and Notes 146 CHAPTER 6: 'THE PLAY OF POWER': INTEREST GROUPS AND INFRASTRUCTURAL CHANGE 149 The South Coast Organisation Opposing Pollution (SCOOP) 150 The Wollongong Inner City Safeguards Association (WICSA) 152 The Camden Committee Promoting Road Transport 158 The Community Transport Concern Association (CTC) 161 Voter Reaction and Interest Group Spin-offs: a Note 166 References and Notes 168 Ill Page CHAPTER 7: SUMMARY AND CONCLUSION 171 References and Notes 179 BIBLIOGRAPHY 181 IV LIST OF TABLES Table Page 3.1 Coal Production in NSW 1963-1982 51 3.2 Coal Exports from NSW 1963-1982 52 3.3 Coal Loading Facilities in NSW and Queensland 1974 55 3.4 Proposed New Mines in Southern NSW 1974 64 3.5 Transport Modes and Destinations of Coal from Burragorang Valley and Southern Mines 1976-1977 79 3.6 Projected Export Production for Mines Exporting through Port Kembla 1985-1990 81 4.1 Coal Movement by Mode from Collieries to Port Kembla 1977-1978 121 V LIST OF FIGURES Figure Page 2.1 Power relationships among elements in the coal transport infrastructure decision­ making process. 40 2.2 The doal transport infrastructure decision­ making process. 44 3;1 Proposed development of Port Botany. 68 3.2 Coal mines in the South Coast and Burragorang Valley, NSW. 77 3.3 Coal mines in the Western District, NSW. 78 3.4 Proposed location of the Bellambi coal bin. 87 4.1 Coal-related transport infrastructure in southern NSW: existing and proposed new rail links, 1977. 101 4.2 Coal-related transport infrastructure in southern NSW: proposed rail links, 1978-79. 103 4.3 Coal-related transport infrastructure in southern NSW road and conveyor proposals, 1978-1982. 110 4.4 Coal-related transport infrastructure in southern NSW: the Maldon-Dombarton - Port Kembla rail/road proposals, 1982-83. 117 4*5 Coal-related transport infrastructure in southern NSW: existing, 1984. 124 VI Figure Page 5.1 Elements in the 'power play' relating to the proposed establishment of the Bellambi coal bin. 133 5.2 Layout of the port of Port Kembla. 141 6.1 Coal truck routes through Wollongong. 154 7.1 The coal transport infrastructure decision­ making process: a normative model. 175 CHAPTER Is INTRODUCTION This study focusses on the mechanism of locational decision-making and its spatial implications and falls within the general methodological framework of decisional analysis. More particularly, it is concerned with an analysis of those locational decisions which are associated with the provision of transport infrastructure and specifically with port-oriented export coal transport infrastructure. The study argues, with Grant(l), Logan(2), Muir and Paddison(3) and others, that the location of facilities, public institutions and utilities, for example and, in this case, of transport infrastructure, may not - indeed, certainly does not - reflect simply the interplay of economic variables but rather is the direct outcome of political processes, "....of political power or clout in the form of an influential citizenry, lobby, politician or organi­ sation ...."( 4 ) . It argues further, that to properly and ade­ quately understand and explain these processes, it is necessary to seek a conceptual framework which is somewhat more appro­ priate than that of the simplistic positivist decision-making model. The study develops such a framework and uses it to examine the complex processes which have resulted in the pro­ vision of coal-related