Report of the Queensland Ombudsman The Pacific Motorway Report An investigation into the actions of the Department of Main Roads in relation to noise and safety issues concerning the Pacific Motorway. March 2007 Report of the Queensland Ombudsman The Pacific Motorway Report An investigation into the actions of the Department of Main Roads in relation to noise and safety issues concerning the Pacific Motorway March 2007 © Queensland Ombudsman, 2007 Apart from any fair dealing for purposes related to the functions of the Ombudsman or the purpose of private study, research, criticism or review, as permitted under the Copyright Act, no part of this document may be reproduced by any process without permission. Inquiries should be made to the publishers, Queensland Ombudsman. ISBN 978-0-9758442-9-8 Queensland Ombudsman Level 25, 288 Edward Street Brisbane Qld 4000 GPO Box 3314 Brisbane Qld 4001 Tel: (07) 3005 7000 Fax: (07) 3005 7067 Email: [email protected] Web: www.ombudsman.qld.gov.au 6 March 2007 The Honourable John English MP Acting Speaker of the Legislative Assembly Parliament House George Street BRISBANE QLD 4000 Dear Mr English In accordance with s.52 of the Ombudsman Act 2001, I hereby furnish to you my report, The Pacific Motorway Report: An investigation into the actions of the Department of Main Roads in relation to noise and safety issues concerning the Pacific Motorway. Yours faithfully David Bevan Queensland Ombudsman Enc Foreword Every year my Office receives thousands of complaints from Queenslanders about Queensland public sector agencies. Some complaints go beyond the circumstances of individual complainants and may best be described as ‘systemic’ complaints because the actions of the agency may affect many people. This is a report of such a case. Following a Queensland Government public announcement on 15 April 1996, the Department of Main Roads upgraded the Pacific Highway between the Logan Motorway and Nerang to motorway standard. The new motorway was opened to traffic in October 2000. This report presents the findings of an investigation into complaints lodged with my Office by two executive members of a community group known as the Residents Against Increased Noise (RAIN). RAIN claims to represent many people living adjacent to the Pacific Motorway. The complaints concern the administrative actions of the Department of Main Roads in upgrading the Pacific Motorway, particularly its decision to construct some sections of the pavement with concrete rather than asphalt. The decision to use concrete has caused RAIN members to be concerned about the effects of noise on their everyday lives and to express safety concerns for the motoring public in terms of the potential for aquaplaning on the concrete surface and poor visibility in wet weather conditions. Because the issues dealt with in the report are of significant public interest, I have decided to present the report to the Speaker for tabling in the Legislative Assembly as provided for in s.52 of the Ombudsman Act 2001. I take this opportunity to thank the executive members of RAIN who complained to my Office, and the RAIN membership, for their patience and cooperation during the conduct of this investigation. Likewise, I extend my appreciation to the Department of Main Roads, which has cooperated fully with my Office’s investigation. Finally, I would like to thank (now former) Deputy Ombudsman Rodney Metcalfe, Assistant Ombudsman Craig Allen and Investigating Officer Ed Perry for their dedication and professionalism in conducting the investigation and preparing this report. David Bevan Queensland Ombudsman v Table of contents Table of Contents Abbreviations and Dictionary ...............................................................................................x Executive Summary ............................................................................................................xiii Investigative context...........................................................................................................xiii The circumstances ............................................................................................................ xiv Role of Ombudsman .......................................................................................................... xv De-identification.................................................................................................................. xv The investigation ................................................................................................................ xv Public report ...................................................................................................................... xvi Outcome of investigation................................................................................................... xvi Maladministration .............................................................................................................xviii Opinions ............................................................................................................................ xix Recommendations ............................................................................................................ xxi Chapter 1: Background.....................................................................................................1 1.1 Introduction...............................................................................................................1 1.2 Events leading to construction of concrete pavement on motorway.........................1 1.3 Allegations made to Ombudsman ............................................................................2 1.4 Issues for investigation .............................................................................................4 1.5 Jurisdiction................................................................................................................4 1.6 DMR response to investigation of complaints...........................................................5 1.7 Procedural fairness...................................................................................................5 Chapter 2: Regulatory framework and DMR’s noise standards....................................7 2.1 Transport Infrastructure Act 1994.............................................................................7 2.2 State Development and Public Works Organisation Act 1971..................................8 2.3 Environmental Protection (Noise) Policy 1997 .........................................................9 2.4 DMR Noise Guidelines ...........................................................................................12 2.4.1 Interim Noise Guidelines.................................................................................12 2.4.2 Noise Code .....................................................................................................13 2.5 Comparison of interstate road noise standards......................................................15 2.6 Appropriateness of noise levels in EP Noise Policy and DMR Noise Code ...........16 2.6.1 EP Noise Policy ..............................................................................................16 2.6.2 DMR Noise Code............................................................................................17 Chapter 3: IMP public consultation process.................................................................22 3.1 Community consultation program...........................................................................22 3.2 Information dissemination.......................................................................................23 3.3 Analysis of the public consultation process for IMP................................................24 vii The Pacific Motorway Report Chapter 4: 1996 baseline noise levels and supplementary noise modelling.............26 4.1 Technical Paper No. 6 Noise Monitoring ................................................................26 4.2 Technical Paper No. 13 Noise Assessment ...........................................................26 4.3 1997-98 supplementary noise modelling project ....................................................28 Chapter 5: DMR decision-making for PCC pavement ..................................................29 5.1 Overview.................................................................................................................29 5.2 The Wallace Review Team Report.........................................................................30 5.3 Briefing note to Director-General............................................................................31 5.4 Decision-making authority of Board of Review.......................................................31 5.5 Consideration by Board of Review .........................................................................32 5.6 DMR decision to use PCC......................................................................................32 5.6.1 Decisions on location for pavement types ......................................................32 5.6.2 Record keeping and reasons for decisions.....................................................35 5.6.3 Reasons subsequently provided by DMR for pavement selection..................37 5.7 Constructed PCC pavement characteristics...........................................................37 Chapter 6: Post-construction noise monitoring...........................................................39 6.1