North-South Bypass Tunnel Traffic and Transport

Transcription

1 Technical Paper Brisbane City Council January 2005

2 Prepared for Brisbane City Council Prepared by Maunsell Australia Pty Ltd 12 Cribb Street PO Box 1823 Milton QLD 4064 Australia ABN Tel Fax brisbane@maunsell.com January Maunsell Australia Pty Ltd 2005 The information contained in this document produced by Maunsell Australia Pty Ltd is solely for the use of the Client identified on the cover sheet for the purpose for which it has been prepared and Maunsell Australia Pty Ltd undertakes no duty to or accepts any responsibility to any third party who may rely upon this document. All rights reserved. No section or element of this document may be removed from this document, reproduced, electronically stored or transmitted in any form without the written permission of Maunsell Australia Pty Ltd.

3 Quality Information Document Ref j:\mmpl\ \administration\reports\traffic & transport\rev g\technical paper - traffic & transport, rev g v2.doc Date January 2005 Prepared by Reviewed by Allan Reid Denis Johnston, Bob Taylor, Tracey Pershouse Revision History Revision Revision Date Details Name/Position Authorised Signature A 21/01/2005 Technical Paper Leo Hammett Director - Planning and Advisory

4 Table of Contents Executive Summary i 1.0 Introduction Approach and Methodology Approach Areas of Interest Data Collection Modelling and Forecasting Validation and Sensitivity Analysis Existing Transport System Travel Demand Population Employment Land Use Transport Network Transport Modes Public Transport Responsibility and Planning Road Network Road Hierarchy and Function North Side Roads South Side Roads River Crossings Road Traffic Movement Patterns Daily Traffic Volumes Peak Hourly Traffic Flows Traffic Composition by Vehicle Type Through Traffic Freight Vehicle Usage Bus Services Existing Services Bus Running Times into Brisbane CBD Major Bus Infrastructure Cycle Facilities Pedestrian Facilities Existing Road Network Performance Introduction Level of Service Definitions Intersection Performance Local Access 51 January 2005

5 4.4 Bus Services Pedestrians and Cyclists Road Safety Introduction Intersections Mid-Block Analysis The Project Introduction Tunnel Design and Operation Design Standards and Criteria Tunnel Configuration Services Surface Road Works Northern Connections Southern Connections Shafston Avenue Connection Traffic Forecasting Process Quantifying Effects Modelling Framework Brisbane Metropolitan Area Modelling Demographic and Land Use Inputs Trip Generation Trip Distribution Mode Choice Daily Flow Profiles Vehicle Occupancy City-Wide Road Network Improvements Traffic Assignment Toll Choice Traffic Volumes and Travel Times Social, Economic and Environmental Impacts Local Area of Study Modelling Detailed Intersection Analysis Alternative Future Scenarios for Strategic Modelling Proposed Roadworks TransApex Tunnels Gateway Upgrade Project (GUP) Future Patterns Without the Tunnel Introduction Brisbane Metropolitan Area 78 January 2005

6 7.2.1 Traffic Volumes Network Performance Local Area of Study Traffic Volume Level of Service Bus Network Performance Introduction Impact on Bus Operations Public Transport Initiatives Need Introduction Population, Employment and Land Use Future Travel Demands Road Network Cross River Strategies Tunnel Solution Development Construction Effects Proposed Construction Plan Construction Site Traffic Generation Truck Routes and Construction Site Access Truck Routes Traffic and Access During Construction Traffic Diversions Traffic Effects Haul Routes Deliveries Local Area Effects Effects on Bus Operations Effects on Pedestrians and Cyclists Operational Effects Introduction Effect on Brisbane Metropolitan Area Demand for the Tunnel Traffic Volume Effect on Brisbane Metropolitan Area Toll Implications Local Area of Study Network Performance Traffic Volume Effect Level of Service Analysis Journey Time Local Access Effects 134 January 2005

7 Northey Street Precinct Lutwyche Road Precinct East of Lutwyche Road Campbell Street O Connell Street Precinct Herston Fortitude Valley Kangaroo Point Main Street and River Terrace Ipswich Road (Stanley Street to Balaclava Street) Ipswich Road (Balaclava Street to South of O Keefe Street) Park Road Precinct Reis Street Precinct Princess Alexandra Hospital Staff Facilities Emergency Services Bus Travel Effects Bus Network Bus Infrastructure Pedestrians and Cyclists Road Safety Effects Transport Economic Analysis Introduction Analysis Framework Costs Environmental Benefits Public Transport Benefits Economic Analysis Results Sensitivity Tests Results Based on Project Specific Discount Rate Induced Traffic Effects Conclusions The Transport Task Investigations and Analysis Support for the Project References 184 Appendix A Extract from Terms of Reference a Appendix B Crash Record Analysis b Appendix C Proposal Figures c Appendix D Aggregated Regions d Appendix E Proposed Road Projects e Appendix F Technical Terms f Appendix G Acronyms and Abbreviations g January 2005

8 List of Figures Figure 1.1 Brisbane Metropolitan Area 12 Figure 1.2 Locality 13 Figure 2.1 Areas of Interest 17 Figure Trip Generation Patterns 20 Figure 3.2 Existing Road Hierarchy 21 Figure 3.3 Public Transport Corridors 23 Figure 3.4 Existing Road Network 31 Figure 3.5 Temporal Distribution of Traffic Flow Story Bridge 35 Figure 3.6 Temporal Distribution of Traffic Flow Story Bridge Light Vehicles 37 Figure 3.7 Temporal Distribution of Traffic Flow Story Bridge - Heavy Vehicles 37 Figure 3.8 Bus Corridors into Brisbane CBD 40 Figure 3.9 AM Two-Hour Peak Bus Volumes 41 Figure 3.10 PM Two-Hour Peak Bus Volumes 42 Figure 3.11 Timetabled Bus Running Times into Brisbane CBD 43 Figure 3.12 Existing Bicycle Network 47 Figure 4.1 Valley Island Bus Stop in Ann Street 54 Figure 4.2 Congested Bus Stop in Ann Street 54 Figure 4.3 Footpaths on Ipswich Road Looking North 55 Figure 4.4 Pedestrian Underpass on Bradfield Highway 55 Figure 4.5 Pedestrians and Cyclists on the Story Bridge 56 Figure 4.6 Pedestrian and Bicycle Network Northern Section 57 Figure 4.7 Pedestrian and Bicycle Network Southern Section 58 Figure 6.1 Brisbane Strategic Transport Model Structure 70 Figure Average Weekday Traffic Volume (Without Tunnel) 80 Figure Average Weekday Traffic Volume (Without Tunnel) 81 Figure Average Weekday Traffic Volume (Without Tunnel) 82 Figure Average Weekday Traffic Volume (Without Tunnel) 83 Figure AM Level of Service 85 Figure AM Level of Service 86 Figure AM Level of Service 87 Figure PM Level of Service 88 Figure PM Level of Service 89 Figure PM Level of Service 90 Figure Catchment 125 Figure 10.2 Origin and Destinations of Demand for the Proposed Tunnel (Desire Line) 126 Figure 10.3 Effects of Proposed $3.30 Toll on Tunnel Traffic Compared to No Toll for Figure 10.4 Timing Points 133 Figure 10.5 Buses Travelling in Middle Lane Across the Story Bridge 141 Figure 10.6 Bus Stop Locations 143 January 2005

9 Figure 10.7 Photographs of Bus Stops Impacted by the Ipswich Road Portal 144 Figure 10.8 Photographs of Bus Stops Impacted by the Shafston Avenue Portal 145 Figure 10.9 Affected Bus Stops in the Lutwyche Road Corridor 148 Figure Affected Bus Stops in the Shafston Avenue Area 150 Figure Affected Bus Stops in the Ipswich Road Corridor 152 Figure Existing and Planned Bicycle Network 154 Figure Effect of Capacity Increase on Demand 174 List of Tables Table 3.1 Mode of Travel for Commuter Journeys to Inner City Precinct 22 Table 3.2 Observed Daily Two-Way Traffic Volumes (2003) 34 Table 3.3 Observed Peak Hourly Traffic Flows (2003) 35 Table 3.4 Vehicle Composition Story Bridge 36 Table 3.5 Percentage of Traffic Travelling Through Inner City Precinct 38 Table 3.6 Bus Operators into Brisbane CBD 39 Table 3.7 Major Bus Service Corridors into Brisbane CBD 39 Table 4.1 Intersection Level of Service Criteria 50 Table 4.2 Intersection Level of Service (2003 AM and PM Peaks) 50 Table 4.3 Bicycle Usage Counts on Bikeways in the NSBT Study Area 55 Table 6.1 Estimated Resident Populations from 2001 to 2021 by Sector 71 Table 6.2 Estimated Employment from 2001 to 2021 by Sector 72 Table 7.1 Brisbane River Crossings Modelled Average Weekday Traffic 84 Table 7.2 AM and PM Peak Two Hour Period Traffic Volumes 91 Table 7.3 Level of Service (Intersections) Without Tunnel 92 Table 9.1 Construction Workforce 102 Table 9.2 Estimated Average Truck Generation for Excavated Material 103 Table 10.1 Volumes Crossing Brisbane River in 2016 Comparison With and Without the Project 123 Table 10.2 Volumes on Surface Streets in 2016 Comparison With and Without the Project 124 Table Traffic Volume Effect 128 Table Level of Service (Intersection) 129 Table 10.5 Key Intersection Performance 131 Table 10.6 Journey Times With and Without the Tunnel 2011 & Table 10.7 Bus Stops Requiring Relocation 142 Table 10.8 Bus Routes Affected by Bus Stop Relocations with the Project 146 Table 10.9 Estimated Projected Crashes 157 Table Construction Cash Flow Profile 161 Table Estimated Operation and Maintenance Costs 162 Table VHT and VKT per Annual Average Weekday in Modelled Years ( 000) 164 Table Value of Urban Travel Time Savings (Updated to June 2004 prices) 165 Table Estimated Vehicle Operating Costs for Stop/Start Conditions (Updated to June 2004 prices)166 January 2005

10 Table Estimated Vehicle Operating Costs for Freeway Conditions (Updated to June 2004 prices) 167 Table Estimate Accidents for Base Case and Tunnel Options 167 Table Additional Accident Savings due to VKT Reduction 168 Table Transport related Environmental Externality Costs in Urban Areas 169 Table Transport Cost Benefit Analysis Results 170 Table Sensitivity Test Results 171 Table Economic Analysis Results Based on Discount Rate of 7.0% 173 Table 10.22: Travel Attributes for Private Vehicle and Bus Trips 176 Table Induced Traffic Modelling Results 179 January 2005

11 Executive Summary The Project This report presents an assessment of the effects of the proposed Project on general traffic, public transport, cyclists and pedestrians. The Project comprises construction of a 5.2km long road, between the Inner City Bypass and Lutwyche Road at Bowen Hills, Ipswich Road and the South-East Freeway at Woolloongabba, and with an intermediate link to Shafston Avenue to service the eastern suburbs. Most of the road would be in tunnel and would provide an additional crossing of the Brisbane River close to the alignment of the Story Bridge. Tunnel portals are proposed at: Bowen Hills / Windsor - at a location between O Connell Terrace and Campbell Street, linking to the Inner City Bypass and Lutwyche Road; Kangaroo Point at a location in Shafston Avenue, allowing access from the eastern suburbs; and Woolloongabba in the vicinity of Balaclava Street, allowing access from the South-East Freeway and Ipswich Road. Once operational, the Project would enable that component of traffic without an origin or destination in Brisbane s Central Business District, Fortitude Valley, Kangaroo Point or Woollongabba, to bypass a number of inner-city roads with benefits for both users of the tunnel and users of the surface road network. The Project is expected to intercept traffic from the major radial corridors to the city to free up road space for bus, pedestrian and cyclist use. The Proponent The has been proposed by Brisbane City Council, who view it as an important component in the provision of a regionally significant road and freight network, that aims to promote economic and social wellbeing for the people of Brisbane and South-East Queensland. The Project grew out of a comprehensive examination of Council s Strategic Transport Opportunities Brisbane initiative, to address road network deficiencies. An outcome of this process was the identification of this Project as being of high priority. Both the Queensland Government and Brisbane City Council have been working beyond the provisions of Transport 2007 and the Transport Plan , to consider options for improving cross-river traffic. January 2005 Page i

12 The Purpose of this Technical Paper This technical paper examines relevant traffic and transport conditions and effects and addresses issues raised in the Terms of Reference for an Environmental Impact Statement issued by the Queensland Department of State Development and Innovation in accordance with Part 4 of the Queensland State Development and Public Works Organisation Act The paper provides the traffic and transport input into the Environmental Impact Statement. The Approach Taken Preparing this technical paper required describing existing traffic conditions and forecasting future transport capacity and demands. Determining the effects of the Project required establishing the differences between forecast traffic and transport conditions, with and without the proposed tunnel. Modelling and Forecasting Detailed modelling was undertaken to forecast the potential traffic and transport effects of the Project. Modelling has been used: To describe existing traffic flows and road conditions, filling in the gaps between traffic counts and other recorded information (observed data) to generate estimates of existing conditions (modelled data); and As a forecasting tool predicting traffic conditions at defined future points in time. Assumptions were made as to trip demands (generated by future population and employment levels and distribution) and the capacity of traffic and transport infrastructure expected for the modelled dates (2011, 2016 and 2021). Inputs into the modelling included: Resident population forecasts, derived from population projections developed by the Planning Information and Forecasting Unit of the State government; Employment forecasts, provided by Brisbane City Council; and Planned road projects, proposed by Brisbane City Council and the Queensland Department of Main Roads. The modelled road network included the Gateway Upgrade Project (the proposed duplication of the Gateway Bridge and the upgrade of the Gateway Arterial Road north and south of the river) but not the tunnels and roadworks associated with the TransApex Project, as this project is still at a pre-feasibility stage. Detailed impacts of the TransApex tunnels will need to be assessed as part of any subsequent study for the TransApex projects. January 2005 Page ii

13 Future base conditions were modelled on the basis of these assumptions at two levels; at a strategic city-wide level covering the Brisbane Metropolitan Area, an area that extends beyond Brisbane City Council boundaries to include some urban parts of the surrounding local government areas and, at a more detailed local level, covering the Local Area of Study, that extends from Wilston to Woolloongabba and includes the major roads in the vicinity of the proposed tunnel. At the city-wide level, the Brisbane Strategic Transport Model (previously developed for Brisbane City Council and Queensland Department of Main Roads) was enhanced for this study to provide information on the pattern and level of travel demand across the Brisbane Metropolitan Area. At a more detailed level, the effects of the Project on a defined Local Area of Study were examined in detail using aasidra software. At both the city-wide and local level, future traffic and transport conditions were forecast for the key years of 2011 (the Project is proposed to be completed in 2010), 2016 and 2021 (strategic level only) and for the scenarios with and without the proposed tunnel. Existing Road Network Performance Existing traffic movement patterns and characteristics were determined from a range of sources of observed and modelled data for Brisbane Metropolitan Area and the Local Area of Study. From this it was found that: Most of the higher order roads within the Local Area of Study were operating at congested conditions in peak periods; Five of the thirteen intersections, examined in detail through the Local Area of Study, are operating at a level close to the limit of unstable flow with significant congestion on critical intersections, including Ipswich Road and Vulture Street and Lutwyche Road and Newmarket Road; Buses have adequate capacity to meet current demand; however as buses mix with general traffic on the road network, they experience the same delays and congestion as other traffic; and The bikeway network falls short of being comprehensive as there is little connectivity through Fortitude Valley and south of the Brisbane River. Importantly for this Project, it was found that the proportion of through trips (i.e. traffic without an inner-city origin or destination) was approximately 40% of all cross-river traffic. This is a significant amount of traffic that is using inner-city roads to travel through the area that, if an alternative route could be found, would provide significant relief to inner-city roads. Future Patterns without the Project The changes in traffic flow patterns across the Brisbane Metropolitan Area, expected over time, include a general increase in traffic across the network but most notably on the Gateway Bridge (as a result of the proposed upgrade and future population and employment growth in that corridor). Daily traffic volumes on January 2005 Page iii

14 Brisbane River crossings are expected to rise by 1.6% per annum between 2003 and This growth rate would increase the strain on an already congested network and result in: Reduced accessibility, especially during peak periods; Increased use of alternative, less direct routes resulting in increased vehicle kilometres and hours travelled on the road network; and Adverse environmental effects. Within the Local Area of Study, an overall increase in daily traffic volumes, in the order of 4%, was forecast for the years 2011 to 2016 inclusive. However, traffic growth is not expected to be constant across the network. Some locations, such as Stanley Street (west of Ipswich Road), cannot increase due to the limited potential of this road section to accommodate additional traffic volumes. The modelling indicated that journey times on the main north-south cross-city routes would deteriorate over time. In the AM peak period, the time taken for a cross-city trip from Woollongabba to Bowen Hills would increase from 16 minutes in 2003 to 32 minutes in Average travel speed for the same journey would decrease from 28km/h to 16km/h over the same forecast period. A feature of a congested network is the lack of certainty at being able to undertake a trip within a known period of time. From the modelling that was undertaken, dramatic increases were forecast for journey time variability for a number of sections of the road network, particularly sections from Ipswich Road across the Story Bridge to Ann Street. This would mean increased congestion, serious queuing and time delays. This would occur more often across the network, particularly at major intersections. From this analysis it was concluded that without intervention into the current road network, traffic volumes, journey times and journey time variability would increase and average traffic speeds would decrease as a result of the significant levels of congestion forecast for the Local Area of Study. Need This report supports the need for the Project, from a traffic and transport viewpoint, on the basis of: Expected increases in travel demand as a result of population and employment increases and land use characteristics; and The existing road network and its structure and performance, both now and in the future. In terms of population, employment and land use, Brisbane is part of Australia s fastest growing metropolitan region. Brisbane City s population has been growing at an average rate of 1.4% per annum ( ) while the metropolitan area population is growing by 1.7% per annum for the same time period. As a result, Brisbane City s population is expected to increase to 1,050,000 by 2016, while the Brisbane Metropolitan Area is expected to increase to more than 2,000,000 people in the same time period. January 2005 Page iv

15 While much of this residential growth is occurring in the outer suburbs and in adjoining local government areas, Brisbane City is expected to remain the major employment centre in South East Queensland. The number of jobs in the region is forecast to increase by 365,000 over the period from 2001 to While strong job growth is expected to occur at the Airport and at the Australia Trade Coast, the Central Business District is expected to remain the largest single employment location. As reported in the Transport Plan for Brisbane , there are clear trends in Brisbane towards higher car ownership, more trips, longer trips, lower public transport share and increased car dependency, although plans and policy statements are geared to increasing public transport mode share. While Brisbane City s population is growing by 1.4% per year, traffic volumes on Council roads are increasing by 1.8% per year and by 2.3% per year on State roads. From our investigations of the existing road network, there is clear evidence that a number of the major intersections are operating at levels close to the limit of unstable flow and regularly experience congestion. A steady increase is forecast in the levels of congestion across the major intersections within the road network. These events will become more widespread over time to the point where by 2016, most major intersections throughout the Local Area of Study would experience significant congestion during peak periods. A critical deficiency in the road network is the current cross-river capacity of the inner-city bridges. This, combined with the proximity of the study corridor to the Central Business District and inner-city areas (representing the major employment node within Brisbane and therefore a major traffic generator), results in conflict between the functions of the inner-city roads servicing car and truck flows, as well as competing modes of transport. The Project has been identified as a key component of major infrastructure that could be delivered to address deficiencies in the orbital road network. The key attraction of this component of the inner orbital network is that it both increases cross-river capacity and it removes components of traffic, that do not have an inner-city origin or destination, from the Central Business District and Fortitude Valley areas. Construction Effects During construction there would be a range of traffic and transport effects as a result of: Construction traffic; Physical changes to the road and public transport infrastructure; and Disruption to traffic-flow through lane closures to allow construction to occur. Construction traffic would include: A construction workforce averaging about 200 persons on-site for a construction period of 47 months; January 2005 Page v

16 A possible 44 trucks per hour from the northern portal and nine trucks per hour from each of the central and southern portals operating between 7am and 6pm Monday to Friday and until 1pm on Saturday hauling spoil to one or more suitable sites; the Australia Trade Coast Central site, the Gateway Upgrade site and possibly the Port of Brisbane have been considered; Deliveries to all construction work sites; and Service vehicles and site visitors to the construction sites. As well as the physical changes to the road and public transport infrastructure, there would be a range of temporary construction works with the potential to reduce road capacity during the construction phase. These construction effects would include: Disruption to traffic-flow through lane closures to allow construction to occur; Staging of works to ensure that acceptable traffic flows are maintained and to minimise disruptions to businesses and residences; Construction of temporary diversions to allow construction works to proceed; Relocation and realignment of lanes, services, footpaths and medians; and Programming of out-of-hours (nights and weekends) to minimise disruptions as required. A broad management strategy has been developed to minimise adverse construction effects. This strategy includes: Limiting working hours for aboveground activities (as required); Selecting work sites that allow direct access to major roads; A proposal to bus the main workforce at the commencement of each shift; Managing the staging of works to retain traffic lanes in each direction to minimise the potential for traffic diversions to less suitable routes; and Hauling excavated material along established roads within the major road network. Operational Effects Once operational, the tunnel would provide that component of traffic without an origin or destination in the inner-city, the opportunity to bypass a number of inner-city roads. This has obvious benefits for users of the tunnel including a reduction in journey time and journey time variability. There are also benefits for users of the surface road network above the tunnel. These include: A reduction in traffic volumes on the north-south surface roads including the Story Bridge; Potential journey time savings for the east-west trips through the inner-city area (i.e. removal of traffic travelling north-south on the surface roads has the effect of increasing capacity through intersections for other trips e.g. between the Central Business District and Fortitude Valley); and Opportunities for other modes using the surface road network (including bus passengers and cyclists). January 2005 Page vi

17 Changes in travel patterns as a result of the tunnel would mean that approaches to the tunnel portals (Lutwyche Road, Shafston Avenue, Ipswich Road and South-East Freeway) would experience increased traffic, while the main alternative routes to the tunnel (Bowen Bridge Road / Brunswick Street / Gipps Street, Story Bridge and Main Street / Ipswich Road) would experience a reduction in traffic. The Project would also require changes to local traffic arrangements through road closures and access restrictions. Local access effects have been identified for the following locations: Northern Area: - Northey Street precinct (including Victoria Street); - Lutwyche Road north of Enoggera Creek to Newmarket Road; - Precinct east of Lutwyche Road; and - Campbell Street O Connell Terrace precinct. Herston Fortitude Valley: - North-South surface streets along the Project corridor. Kangaroo Point: - Area north of Shafston Avenue. Southern Area: - River Terrace and Main Street; - Ipswich Road (Stanley Street Balaclava Street); - Ipswich Road (Balaclava Street O Keefe Street); - Park Road precinct; - Reis Street precinct; and - Princess Alexandra Hospital staff facilities. In terms of public transport, the effects of the Project would be limited to buses that utilise roads mostly within the Local Area of Study. During the construction phase, changes would be made to the travel arrangements and bus infrastructure to accommodate the Project. These would include: Possible amendments to routes; The relocation of bus stops to accommodate proposed traffic arrangements; and Changes to bus journey times as a result of the new traffic conditions. The effects of the Project on cyclists and pedestrians would include both temporary diversions to accommodate construction activities as well as permanent changes. Permanent arrangements would include: Changed cycle and pedestrian arrangements at the intersection of Lutwyche Road and Horace Street; Closure of Campbell Street to all through traffic (including cyclists and pedestrians); In Shafston Avenue, a single pedestrian crossing would be provided at O Connell Street, replacing existing crossings; Urban design elements and tunnel structures would deter pedestrians from crossing Shafston Avenue at other locations; January 2005 Page vii

18 The cycleway bridge that is currently located adjacent to the South-East Freeway would be removed and replaced to allow for the widening of Ipswich Road; The widening of Ipswich Road would also result in the loss of pedestrian access on the western side near the railway bridge; substitute access would need to be provided an underpass or a wider replacement bridge are being considered; and The existing pedestrian crossing at Albert Street would be relocated. Transport Economic Analysis Based on the traffic modelling outputs, the Project is economically worthwhile, having a net present value of $638 million from quantifiable direct transport benefits (discounted present values, using the discount rate of 6%, and future costs and benefits discounted back to 2004). The analysis result is relatively sensitive to the estimated travel time savings but even if these were considerably lower the project would still be economic, in terms of direct transport benefits. The terms of reference for the Environmental Impact Statement also required the analysis to be conducted with a project-specific discount rate. A rate of 7% was derived for this purpose and results in a net present value of $407 million (with future costs and benefits discounted back to 2004). A number of potential benefits including opportunities for public transport improvements and benefits for cycling and walking as well as broader regional economic benefits and social benefits (liveable city etc) have not been quantified or included, hence the net present value is likely to be greater than currently estimated. Conclusions A critical deficiency in the Brisbane road network is the current cross-river capacity of the inner-city bridges. This, combined with the proximity of the study corridor to the Central Business District and inner-city areas (representing the major employment node within Brisbane and therefore the major traffic generator), results in conflict between the functions of the inner-city roads in servicing cars and trucks, as well as buses and cyclists. A significant finding of this study was that the proportion of through trips (i.e. traffic without an inner-city origin or destination) crossing the Brisbane River, on the inner-city bridges, was approximately 40% of the total traffic. The major traffic effects of the Project include changes in travel patterns as a result of the tunnel. These changes would mean that approaches to the tunnel portals (Lutwyche Road, Shafston Avenue, Ipswich Road and South-East Freeway) would experience increased traffic, while the main alternative routes to the tunnel (Bowen Bridge Road / Brunswick Street / Gipps Street, Story Bridge and Main Street / Ipswich Road) would experience a reduction in traffic. Other effects include impacts on local access, public transport, pedestrians and cyclists, as identified in this report. January 2005 Page viii

19 The analysis demonstrates some adverse effects for some road sections. Notwithstanding this, the Project would represent a component of a total traffic management plan that would permit for appropriate strategies to be developed and deployed, to mitigate adverse and specific traffic impacts. While adverse effects have been identified and assessed, this study demonstrates support for the BCC view that, along with managing travel demand, further investment in the transport system is required to accommodate future traffic conditions and to ensure the continued prosperity of the City. As such, the Project is supported as a key component of the overall strategy to improve the efficiency of Brisbane s road network, consistent with the long-term regional and city-wide transport planning objectives. January 2005 Page ix

20 1.0 Introduction This report presents an assessment of the effects of the proposed Project on general traffic, public transport, cyclists and pedestrians. Maunsell Australia Pty Ltd (Maunsell) was engaged on 19 January 2004 to prepare a technical paper on issues of traffic and transport. This is one of a number of papers undertaken to establish the feasibility and impacts of the Project and provides the traffic and transport input into the Environmental Impact Statement (EIS) for this Project. This technical paper examines relevant traffic and transport conditions and effects, and addresses issues raised in the Terms of Reference for an Environmental Impact Statement issued by the Queensland Department of State Development and Innovation in accordance with Part 4 of the Queensland State Development and Public Works Organisation Act Chapter 4 of those Terms of Reference deals specifically with traffic and transport issues and is reproduced in Appendix A. Detailed studies, including concept design, environmental studies and the business case were undertaken by the SKM Connell Wagner Joint Venture, at the same time as the traffic and transport studies described in this paper. These were dependant on each other and aimed to produce an integrated assessment. The Project comprises a proposal put forward by Brisbane City Council (BCC) to address traffic and transport issues affecting the Brisbane Metropolitan Area (see Figure 1.1). The proposal is to build a road between Bowen Hills and Woolloongabba, most of which would be in tunnel. The location of the Project is shown on Figure 1.2. The tunnel would allow traffic to bypass Fortitude Valley and the Brisbane Central Business District (CBD) and provide an extra river crossing just west of the Story Bridge. The Project is a key component of BCC s commitment to providing a regionally significant road and freight network that aims to promote economic and social wellbeing for the people of Brisbane City and South-East Queensland. The Project was given prominence in Council s Transport Plan for This plan sets out long-term solutions intended to provide the whole community with a reliable, safe and convenient transport system. A key initiative of the Transport Plan is the provision of a high-quality orbital road network, including the proposed tunnel, which intercepts traffic from the City s major radial corridors and frees up existing road space for bus, pedestrian and cycle priority measures to the Central Business District, Fortitude Valley, Kangaroo Point and Woollongabba. At the time of this study, the Project comprises a road that is 5.2km in length, mostly in tunnel. The tunnel would comprise two tubes, each supporting two traffic lanes, signposted to allow travel at 80km/h. Each tunnel tube would be 12m in diameter and would be excavated in rock below the City and the Brisbane River. The Project would result in a road that allows direct vehicular access between the Inner City Bypass (ICB) at the northern end of the Project, and the South-East Freeway at the southern end, and provide an additional crossing of the Brisbane River. January 2005 Page 10

21 Portals would be located to allow connections to the existing road network. These portals are proposed at: Bowen Hills / Windsor - The northern portal is proposed for a location between O Connell Terrace and Campbell Street, linking to the ICB and Lutwyche Road. Traffic flow, transport function, local amenity and environmental factors determined the preferred option at this location; Kangaroo Point - Traffic to and from the eastern suburbs would access the tunnel via the eastern portal to be built in Shafston Avenue; and Woolloongabba - The southern portal would service traffic by means of a portal located within the South-East Freeway road reserve and a second portal located on Ipswich Road in the vicinity of Balaclava Street. Further details on the Project, and the roads and locations referred to above, are provided in Section 5.0. This broad overview of the Project has been included so that this technical paper is complete in itself, but the reader is encouraged to seek more detailed information in other EIS documents. Preparing this technical paper required describing existing conditions, forecasting possible future transport capacity and demands, and using this information to estimate traffic and transport conditions without the tunnel, as well as the effects of the proposed tunnel Project on the receiving environment. January 2005 Page 11

22 Figure 1.1 Brisbane Metropolitan Area Full page map to replace this page January 2005 Page 12

23 Figure 1.2 Locality Full page map to replace this page. January 2005 Page 13

24 2.1 Approach 2.0 Approach and Methodology A consistent and clearly defined framework was established to examine the traffic and transport effects of the proposed Project. This comprised the following tasks: Traffic and transport areas to be affected by the Project were defined (including the proposed tunnel and road construction corridor, the inner-city areas and the Brisbane Metropolitan Area); Relevant data was identified (including existing, observed and surveyed data), and the relevance and accuracy of that data determined with regards to the description and analysis of existing conditions and Project effects; The modelling and forecasting approaches were established (either undertaken as part of this assessment or adopting previous studies considered reliable and relevant), including the processes of model validation and subsequent sensitivity testing of the modelled results to test their robustness; Using the collected information and the validated and tested models, existing and forecast conditions were documented for the transport network with and without the proposed Project; and An assessment was made of the differences between the derived forecast conditions with and without the proposed Project. These differences provided the measure of the effects of the proposed Project on general traffic, public transport, cyclists and pedestrians. These matters are discussed below. 2.2 Areas of Interest A study corridor was defined for the Project and has been used consistently in the other Environmental Impact Study (EIS) documents. While this term has been used generically in this report, it does not cover all the areas of interest in addressing traffic and transport issues. As a result, a hierarchy of areas of interest has been established. The following terms have been used in this report and, unless otherwise stated, are shown on Figure 2.1: Central Business District extending from Eagle Terrace (near the William Jolly Bridge) to Kemp Place (near the Story Bridge) including all land to the south and east of Ann and Turbot Streets, making it the largest employment node in the City comprising the major retail, commercial, finance and government sectors; January 2005 Page 14

25 Inner City Precinct - including the CBD, Fortitude Valley, Spring Hill and Bowen Hills, and containing areas not served by the proposed tunnel. That is to say, trips to and from sites within the defined Inner City Precinct are unlikely to use the tunnel, as these sites are located above the tunnel. The Inner City Precinct extends from the Inner City Bypass (ICB) to Shafston Avenue and Ipswich Road and includes the CBD, Fortitude Valley, New Farm, Teneriffe and parts of Kangaroo Point. Trips between locations outside the Inner City Precinct, and without an origin or destination within the Inner City Precinct, are termed through trips for the purpose of this technical paper. Trips with either an origin or destination, or trips wholly within the Inner City Precinct are termed local trips ; Local Area of Study a larger area than the study corridor adopted in the other EIS documents, extending from Wilston in the north and Woolloongabba in the south and including the major roads and bridges in the vicinity of the proposed tunnel; and The Brisbane Metropolitan Area Brisbane and surrounding areas (being equivalent to the Brisbane Statistical Division) extending to Caboolture (north), Beenleigh (south), Ipswich (west) and Redland Shire (east) as shown on Figure 1.1. While the CBD and Brisbane Metropolitan Area were derived from other sources, the Local Area of Study and Inner City Precinct are terms that describe geographic areas derived specifically for this study. The Local Area of Study and Inner City Precinct, as defined, represent a more natural traffic footprint, and enables existing conditions about the tunnel alignment, the future base traffic conditions and the potential affects of the proposal to be more satisfactorily described. 2.3 Data Collection In order to define the existing traffic and transport conditions, develop the strategic and local models and support other analysis, a significant amount of observed traffic and transport data was collected. These data are described in subsequent sections and include: Road network inventory data - lane arrangements, turn bans, intersection operations and signal timing details; Bus service inventory data routes, frequencies; Cycle and pedestrian facilities inventory; Traffic counts; Journey time data - cars and buses; Bus patronage counts; Road accident data; Usage data for pedestrians and cyclists; and Detailed behavioural data on driver route choice including the effect of tolls on route choice using stated and revealed preference survey techniques. January 2005 Page 15

26 A range of component traffic and transport studies has been undertaken including an examination of travel demand across the Brisbane Metropolitan Area and detailed local traffic assessments. These assessments considered the users of the transport network, including car drivers and passengers, commercial vehicles, bus travellers, pedestrians and cyclists. 2.4 Modelling and Forecasting Models were used for a number of purposes in this technical paper. They were used to describe existing traffic flows and road conditions, filling in the gaps between traffic counts and other recorded information (observed data) to generate estimates of existing conditions (modelled data). The performance of such models was verified by comparing modelled results with observed traffic flows and traffic conditions. Models were also used as a forecasting tool predicting traffic conditions at defined future points in time. Assumptions were made as to trip demands (generated for population levels and employment distribution) and the capacity of traffic and transport infrastructure expected for the modelled dates. Once future base conditions have been forecast, the transport network is assessed both with and without the proposed Project. The modelled differences between these two scenarios comprise the forecast assessment of the effect of the Proposal. Predicting traffic and transport demands was undertaken using a strategic model to address the level of travel demand and the travel pattern for the Brisbane Metropolitan Area, an area that extends beyond Council boundaries to include some urban parts of the surrounding local government areas. Detailed local traffic modelling was undertaken for the defined Local Area of Study (see Section 2.2). This was developed from the strategic forecasts, using the intersection analysis tool aasidra. A detailed description of the traffic forecasting process is given in Section Validation and Sensitivity Analysis As described above, transport models have been developed to provide estimates and forecasts of existing and future transport conditions and to assess the transport related effects of the proposed development. Information available from the models include link traffic volumes, turning movements at intersections, travel times for cars and buses, as well as information about the origins and destinations of trips using the transport network. Model validation was carried out by comparing the model s estimate of traffic conditions with observed base year data. This comparison was undertaken on a range of different types of observed traffic data including traffic volumes and travel speeds. Further details of model validation are contained in the Strategic Model Validation Reports (Maunsell 2004). January 2005 Page 16

27 Figure 2.1 Areas of Interest Full page map to replace this page January 2005 Page 17

28 3.0 Existing Transport System 3.1 Travel Demand In this section the focus is on existing demand for travel within Brisbane. Travel demand is linked to the pattern of population, employment and other traffic generating land-uses. The geographic area used to determine travel demand for this study is the Brisbane Statistical Division (Brisbane SD). The Brisbane SD extends beyond the local government boundaries of Brisbane City and incorporates the neighbouring local government areas shown on Figure 1.1. This area is also referred to in this report as the Brisbane Metropolitan Area Population At June 2001, the Brisbane SD contained an estimated 1.7 million people, an increase of around 133,000 people since June 1996 (Australian Bureau of Statistics Census 2001 and 1996). Between 1996 and 2001, the Brisbane SD grew at an average rate of 1.7% per annum. In the previous 5 year period ( ), and also recently between 2001 and 2003, population growth in the Brisbane SD was 2.5% per annum. Population growth within the Brisbane SD is not evenly distributed. In recent years, peripheral local government areas of Beaudesert Shire, Pine Rivers and Redland Shire show the highest growth rates, whilst inner-city densification trends are evident in suburbs such as Kangaroo Point, New Farm and the inner-city. Population growth in the middle-ring suburbs of Brisbane has remained comparatively stable since Visitor numbers to Brisbane are also increasing. In 2000, over 11 million passengers passed through the Brisbane Airport, representing a growth rate of over 10% per year over the preceding decade (Brisbane Airport Corporation 2001) Employment While much of the residential growth has been occurring in the metropolitan areas outer suburbs, Brisbane City remains the major employment centre for South-East Queensland. Jobs in the Inner City Precinct account for 20% of all jobs in the Brisbane Metropolitan Area. Over 130,000 commuters travel from other parts of South- East Queensland into Brisbane City each day for work Land Use The significance of the Brisbane Central Business District (CBD), located immediately west of the study corridor and on the north side of the Brisbane River, has been noted. Other locations on the periphery of the CBD, in particular Fortitude Valley (containing retail, business, entertainment venues and an increasing residential population), also contain land uses that impact on travel demand. January 2005 Page 18

29 In the Local Area of Study there are also a number of individual land uses that generate a significant number of trips, as shown by the shading in Figure 3.1. These land uses include: The Royal Brisbane & Women s Hospital (RB&WH), Mater Misericordiae Women s and Children s Hospital and Princess Alexandra Hospital (PA Hospital); and South Bank. The RNA Exhibition Grounds and the Gabba Football and Cricket Ground are also significant generators of traffic, albeit seasonal or event-related, rather than regular weekday traffic generators. 3.2 Transport Network Transport Modes The transport network in the Brisbane Metropolitan Area comprises the following transport modes: Road network; Bus services; Rail network; Ferry services; Cycle facilities; and Pedestrian facilities. The existing road hierarchy for Brisbane is shown in Figure 3.2. This figure shows the radial road system formed by a number of major roads and the location of the CBD at the hub of this road network. From this figure, some indication is given of the connectivity, between Lutwyche Road (north) and Ipswich Road (south), as provided by the Story Bridge and the Bradfield Highway. A detailed description of the existing road network is provided in Section 3.3. The transport modes that are directly affected by the proposed tunnel are those that rely directly on the road network. Other transport modes (in particular railway and ferry services) are unlikely to experience any direct effect and, at most, will experience only a marginal indirect effect from the proposed Project. The effects on the rail network and ferry service are discussed below in the context of the public transport network. Bus services, cycling and pedestrian facilities are described in greater detail in Sections 3.7, 3.8 and 3.9. From Australian Bureau of Statistics (ABS) Journey to Work data, collected as part of the Census, the proportion of commuter trips by transport mode was determined. This information is provided in Table 3.1. Almost half the commuter journeys to the Inner City Precinct are made by public transport (46%); 50% are by private vehicle and the remaining 4% are cyclists or pedestrian trips. January 2005 Page 19

30 Figure Trip Generation Patterns Full page map to replace this page. January 2005 Page 20

31 Figure 3.2 Existing Road Hierarchy Full page map to replace this page. January 2005 Page 21

32 Table 3.1 Mode of Travel for Commuter Journeys to Inner City Precinct From Train Bus Ferry Car/Motor Bike Walk Cycle Total Inner City Precinct 2% 15% 4% 39% 37% 3% 100% Brisbane Metropolitan Area (excluding the Inner City Precinct) 27% 19% 1% 50% 1% 2% 100% Outside Brisbane Metropolitan Area 38% 8% 0% 54% 0% 0% 100% All Areas 27% 18% 1% 50% 3% 1% 100% Source: ABS Journey to Work data, 2001 Census Public Transport Public Transport Modes All major public transport options available within Brisbane are located within, or close to, the Local Area of Study. These options are: Bus services; The suburban rail network; and The CityCat, inner-city and cross-river ferries. The locations of these public transport services are shown diagrammatically in Figure 3.3. Bus Network As the bus network relies almost exclusively on the road network, and given the location of bus corridors with regard to the Local Area of Study, a detailed description of the existing bus services is provided in Section 3.7. Rail Network Brisbane and the surrounding cities are serviced by a suburban rail network; the CityTrain Rail Network. This network comprises: Ipswich Line (western suburbs); Ferny Grove, Caboolture, Nambour (Sunshine Coast), Doomben and Airport Lines (north of the city); and Beenleigh, Gold Coast (Robina) and Cleveland Lines (all south of the City). All trains within these lines service a number of central city stations; Roma Street, Central, Brunswick Street (Fortitude Valley) and Bowen Hills. January 2005 Page 22

33 The existing network provides the option of rail for those suburbs located along the suburban rail line. It must be assumed that the existence of suburban rail has the effect of reducing the number of private vehicles and buses that would otherwise be utilising roads into the CBD and Inner City Precinct. Figure 3.3 Public Transport Corridors Full page map to replace this page. January 2005 Page 23

34 Deficiencies in the system include the gaps in the network, such as the area around Capalaba and between the Cleveland and Beenleigh Lines and between the Beenleigh and Ipswich Lines. Areas on the south side of the river around the Story Bridge are also outside a normal catchment area for suburban rail. There are no trains on the Story Bridge and no plans for trains in this area. Some of these identified gaps in the rail network have been taken up by bus services; such as the South-East Busway (SEB) and the Inner Northern Busway (INB). Several sections of rail network, (north of the City between Central Railway Station and Bowen Hills, and south of the city through Buranda Railway Station), and several suburban railway stations (Bowen Hills, Brunswick Street and Buranda), are located within the Local Area of Study. Neither the rail networks, nor suburban stations, are expected to be affected by the proposed tunnel Project. Ferry Services BCC operates transport services on the Brisbane River with CityCat, inner-city and cross-river ferries. Each ferry type has separate water based functions. The CityCat provides a service between destinations located along the river, operating between the University of Queensland and Hamilton, with intermediate terminals located at Toowong, South Bank, CBD, Kangaroo Point, New Farm, Newstead and Bulimba; and The inner-city and cross-river ferries operate between terminals located on either side of the river or along shorter lengths of the river. Terminals are located at Teneriffe and Bulimba, Kangaroo Point and New Farm, Kangaroo Point and the CBD, and South Bank and the CBD. The routes taken by these ferries are shown diagrammatically in Figure 3.3. The ferry services tend to stand on their own and generally provide a localised service for residents within walking distance of the ferry terminal. The exceptions to this are the CityCats (that have high tourist demand) and several ferries that interact with buses in some specific locations (such as Newstead where there are good bus connections providing ready access for Bulimba residents). Ferry services are limited within the Brisbane River (for commuting purposes) because of the meandering nature of the river, making it more difficult to provide a shorter and quicker trip than, for example, in Sydney where cross-bay trips provide a shorter alternative than the equivalent road or rail-based trip. In terms of the study corridor, the cross-river and inner-city ferries provide access between both Kangaroo Point terminals and the Eagle Street terminal; thereby providing an attractive form of transport for some innercity residents and reasonably quick and direct access to the CBD. The proposed Project will have no direct and no measurable indirect effect on existing ferry services. As a result, there is no further discussion of the ferry services in this report. January 2005 Page 24

35 3.2.3 Responsibility and Planning Responsibility for the planning, construction and operation of the transport network within the Brisbane Metropolitan Area is spread across a number of agencies. BCC constructs, upgrades and maintains most of the city s roads, including all of the roads in the Local Area of Study with the exception of the South-East Freeway, which is under the control of the Department of Main Roads (DMR). Responsibility and planning for public transport is also shared. BCC provides most bus and all ferry services, as well as footpaths and cycle paths. Other bus services are provided by private operators servicing significant residential areas around the periphery of the Brisbane Metropolitan Area. The suburban rail service is operated by Queensland Rail and provides transportation between stations along suburban lines that extend across the Brisbane Metropolitan Area and beyond. Integration between modes of public transport is the responsibility of TransLink, an entity within Queensland Transport responsible for designing, planning and coordinating the public transport system in South-East Queensland. 3.3 Road Network Road Hierarchy and Function The existing functional road hierarchy for Brisbane is shown in Figure 3.2. BCC has adopted a five-tier road hierarchy (Transport Plan ) as follows: Motorways serving inter and intra-regional connections for high volumes of people and goods, directing long distance traffic away from heavily developed areas; Arterial routes providing connections for the movement of people and goods between major activity centres and residential areas of the city; Suburban routes supplementing arterial routes but also having a distributor function; District accesses providing a link between local roads and regional roads, and Neighbourhood and local accesses providing access to individual properties, carrying low volumes. Three basic functions are recognised for the roads within the Local Area of Study. These functions are: Catering for medium to long distance travel to and from locations outside the Local Area of Study and Inner City Precinct (external to external), e.g. trips from Mount Gravatt to Chermside; Providing access to and from locations outside the Local Area of Study and Inner City Precinct to locations within this area (external to internal), e.g. trips from Mount Gravatt to the CBD; and Local trips where the origins and destinations are within the Local Area of Study (internal to internal), e.g. trips from Woolloongabba to Kangaroo Point. The existing road network within, and close to, the Local Area of Study is shown in Figure 3.4. The major roads in this network are described below, with reference to the road hierarchy and road functions. January 2005 Page 25

36 3.3.2 North Side Roads Lutwyche Road Lutwyche Road is the main arterial route leading from the study corridor to the northern suburbs and the Bruce Highway, and also includes links to the Inner City Bypass (ICB). The road consists of six lanes undivided, including an inbound T3 Lane. The combined intersections of Horace Street, Northey Street and Lutwyche Road are severely congested in peak periods and many other times of the day, so these intersections will require special treatment to achieve a satisfactory level of service for all road users, but to especially avoid delays to emergency vehicles accessing the RB&WH. Clearway and No Standing Anytime restrictions apply for these sections of Lutwyche Road. Inner City Bypass The ICB is a four and six-lane divided arterial route, which carries traffic around and to the north and west of the CBD, providing a direct link between the Riverside Expressway/Coronation Drive and Kingsford Smith Drive. Intermediate interchanges are provided along the ICB, including one each to Lutwyche Road (via Horace Street) and Sandgate Road (via Abbotsford Road). The ICB interchange at Lutwyche Road has westerly oriented ramps only, providing a more direct link to the Riverside Expressway and the South-East Freeway. Newmarket Road/Northey Street Newmarket Road is a four-lane undivided suburban route providing a direct east-west link between Lutwyche Road and Enoggera Road, and the north-western suburbs. Northey Street is a district access, in recognition of the role it takes in providing an alternative route to Newmarket Road (mainly used to bypass the congested intersection of Newmarket Road and Lutwyche Road). It serves the Downey Park Hockey and Netball Sporting facilities and experiences heavy traffic on weekends. Newmarket Road and Northey Street have parking mid block (away from intersections). On-street parking in Northey Street is particularly prevalent when sporting activities occur at Downey Park, as the off-street parking is insufficient, and it subsequently spills over onto the street. O Connell Terrace/Campbell Street These two streets operate as a one-way pair of roads (couplet) to form a suburban route between Bowen Bridge Road and Brookes Street / Mayne Road, with connections to St Paul s Terrace / Abbotsford Road and Montpelier Road. Of major importance is the use of O Connell Terrace (westbound) to access the RB&WH. The couplet allows for simple signal phasing and co-ordination of signals along Lutwyche Road (major right turns to and from Lutwyche Road occur at different intersections). January 2005 Page 26

37 Gregory Terrace Gregory Terrace forms a suburban route linking the western suburbs at College Road and the Normanby fiveways with Bowen Bridge Road and Brookes Street. Its function has been reduced following the completion of the ICB, so that its main function is to distribute trips to and from the city centre and Fortitude Valley. The road is a two-lane undivided road, plus two lanes used for metered parking for most of its length, with traffic signals at key intersections (the main ones being College Road / Wickham Terrace, Bowen Bridge Road / Brunswick Street and Brookes Street). The route comprises a range of land uses including the Brisbane Grammar School and RNA Exhibition Grounds. St Paul s Terrace St Paul s Terrace, together with Leichhardt Street and Wickham Terrace, form an urban arterial route providing access from the city centre to the northern suburbs via Abbotsford Road and Sandgate Road. It serves as a northern distributor road into the city centre and Fortitude Valley. An interchange with the ICB has westerly oriented ramps to serve the western suburbs. The road is a four-lane undivided road with limited off-peak parking (clearway conditions apply at peak times). Traffic signals are provided at key intersections, including Upper Edward Street, St Paul s Terrace / Brunswick Street, and Campbell Street / Markwell Street / Abbotsford Road. Wickham Street Ann Street and Breakfast Creek Road Wickham Street (up to four lanes eastbound) and Ann Street (up to four lanes westbound) form a couplet, which together with Breakfast Creek Road (a six-lane divided road) form an arterial route linking Kingsford Smith Drive with Fortitude Valley and the city centre. The route also forms a key link to the Story Bridge. Also, Wickham Street and Ann Street are important bus corridors for the northern suburbs and New Farm area entering and leaving the city centre. Peak period clearway conditions apply for most of the corridor. McLachlan Street McLachlan Street is a one-way (northbound) road with an off-ramp from the Story Bridge. The road forms a secondary couplet with Ann Street through Fortitude Valley between the Story Bridge and James Street. The section between the Story Bridge and Brunswick Street is used by inbound buses that cross the Story Bridge to enter Ann Street at Brunswick Street. North of Brunswick Street, parking restrictions allow the road to operate as four lanes during morning and evening peak times. Elsewhere, McLachlan Street is a two-lane road, the capacity of which is reduced by vehicles accessing commercial properties with narrow frontages. January 2005 Page 27

38 3.3.3 South Side Roads South-East Freeway The South-East Freeway forms the northern part of the Pacific Motorway (M1) and is the major divided highway carrying traffic between Brisbane and the Gold Coast. The South-East Freeway interchanges with the Gateway Motorway to form an outer eastern bypass of Brisbane, which allows long distance trips and non-cbd trips to avoid the CBD and inner-city traffic. Interchanges allow traffic from outer and middle Brisbane suburbs to use the Motorway to travel into Brisbane, with many of these trips having destinations to the north of the CBD. These trips currently join the surface road network at Stanley Street to access the Story Bridge, or continue across the Captain Cook Bridge to the ICB at Hale Street. The lack of a direct link between the South-East Freeway and the Story Bridge corridor adds to the congestion in South Brisbane and on the Captain Cook Bridge. Ipswich Road Ipswich Road carries traffic between the City and the Ipswich Motorway to the south-west and Beaudesert Road to the south. It is the natural north-south connection to the Story Bridge for the southern suburbs. The section inbound from O Keefe Street is undivided and comprises four to six lanes. The signalised intersection of O Keefe Street (south of the South-East Freeway) provides an important eastern route joining with Old Cleveland Road and Logan Road at Stones Corner. Ipswich Road continues (as Main Street and Bradfield Highway) to the Story Bridge with major intersections at Stanley Street, Vulture Street, Riverside Terrace and a grade separated interchange at Shafston Avenue. Access to abutting development on Bradfield Highway on the southern approach to Story Bridge is controlled to left turn entry and exit only, as this section of the road experiences significant traffic volumes and weaving manoeuvres. Clearway restrictions apply for the length of Ipswich Road with No Standing Anytime restrictions for most other times during the week. There is a high demand for on-street parking on Ipswich Road, Woolloongabba, between Stanley Street and Balaclava Road because frontage land uses (car yards and warehouse retail) have insufficient on-site parking. For this reason one hour on-street parking is permitted outside peak periods (7am to 9am and 4pm to 7pm) on some sections, and nine metered bays are provided inbound of Hawthorn Street (9am to 5:50pm). January 2005 Page 28

39 Shafston Avenue Shafston Avenue and Wynnum Road form an arterial route to the eastern suburbs, and provide the most direct route to the CBD and northern suburbs. Shafston Avenue is a six-lane road. The Gateway Arterial to the east provides an alternative river crossing, but is less direct for many trips. Shafston Avenue also carries trips from the south-eastern suburbs with access to Shafston Avenue via the Wellington Road / Latrobe Lisburn Streets couplet. Shafston Avenue also provides the only access to some areas of development located on the north and south side of the road. Clearway restrictions apply along Shafston Avenue with No Standing Anytime restrictions for most other times during the week. Wellington Road Latrobe Street Couplet Wellington Road (northbound) and Latrobe Street (southbound) form a couplet which provides a direct link to the Vulture Street / Stanley Street couplet, and Logan Road, serving the east and south-eastern suburbs of Brisbane. Wellington Road is a four-lane roadway, whilst the southbound route of Latrobe Street generally operates as two lanes. Stanley Street Vulture Street Couplet Stanley Street (westbound) and Vulture Street (eastbound) form a couplet, which provides a direct link to the South-East Freeway and Ipswich Road, serving the east and south-eastern suburbs of Brisbane. East of Main Street, both Stanley and Vulture Streets are predominately two-lane roadways. Between the South-East Freeway and Ipswich Road, Stanley Street operates as a five-lane roadway and Vulture Street as a four-lane roadway. The couplet provides the main access to the Brisbane Cricket Ground, with Stanley Street for the eastern suburbs and Vulture Street for the city centre and western suburbs. Significant congestion occurs during major events, such as AFL and international cricket matches. Sections of road between Main Street and Wellington Road are closed after AFL games to allow crowds to disperse. Logan Road Logan Road acts in a similar way to Ipswich Road in that it carries traffic to and from the south. Logan Road provides access to the South-East Freeway via Stanley Street, and to the Story Bridge via Wellington Street and Shafston Street. It also provides an important link from the CBD to the eastern suburbs via O Keefe Street and Old Cleveland Road. The section inbound from O Keefe Street is four lanes and divided for most of the length, and provides important links to Wellington Road and Ipswich Road (via Balaclava Street). January 2005 Page 29

40 O Keefe Street O Keefe Street is a divided four-lane road with parking on each side, which forms part of a suburban route linking eastern and southern suburbs to Ipswich Road. It also forms an important easterly link to the PA Hospital. The roundabout at the eastern end (Logan Road and Old Cleveland Road) is conducive to right turning traffic, so that inbound traffic is able to readily turn into Logan Road, which helps to reduce the demand along O Keefe Street. The predominant land use is residential. Balaclava Street Balaclava Street is a four-lane undivided road, which passes through a service industry and warehouse area. The road forms part of a suburban route linking Ipswich Road and Logan Road / Wellington Road with signalised intersections at each end. The route provides a popular alternative to the Wellington Road Latrobe Terrace couplet and O Keefe Street amongst other trips. January 2005 Page 30

41 Figure 3.4 Existing Road Network Full page map to replace this page. January 2005 Page 31

42 3.4 River Crossings It is important to recognise the significance of the location and physical impediment that the Brisbane River has had on the development of an integrated and co-ordinated transportation system. In recent years, there has been increasing community and government debate about traffic congestion and the need for additional river crossings in Brisbane. The Brisbane River, as a physical barrier, has had a significant influence on travel patterns either by impacting on convenience of destination or choice of mode with, for example, non-cbd trips across the Brisbane River less easily served by public transport. Many significant land uses are located on either bank of the river for historical reasons. Brisbane s CBD, the major employment node in the region and single largest trip generator, is positioned adjacent to the north-side of the river and is a significant commercial and retail centre, while the focus of recreational and cultural activity is on the southern side at South Bank. In the late 1800 s, when Brisbane s population was less than 200,000, Brisbane had only a single two-lane bridge crossing, the Victoria Bridge, although several ferry services also operated at strategic locations along the river (including a crossing at the present location of the Story Bridge). Now, with a metropolitan population of over 1.7 million, there are seven road crossings of the Brisbane River within Brisbane City, providing 32 general traffic lanes and two dedicated bus lanes. Current major bridge crossings in Brisbane City are described (from west to east) as follows. Centenary Bridge (Fig Tree Pocket / Jindalee) consisting of two two-lane bridges, built in 1964 (upstream bridge) and 1986 (downstream bridge). The bridge caters for vehicles, pedestrians and cyclists and provides an important regional link between Brisbane (western suburbs) and Ipswich. Trips from outside the Brisbane Metropolitan Area account for about 14% of bridge use with a smaller proportion associated with travel to the CBD. Walter Taylor Bridge (Indooroopilly / Chelmer) opened in 1936, forms part of the Oxley Road Coonan Street arterial route connecting Brisbane s middle south-western suburbs to Indooroopilly Shopping district, the CBD and Toowong Business District as well as providing access to the University of Queensland. Use of the bridge for longer-distance traffic is very low. William Jolly Bridge (CBD / South Brisbane) a four-lane facility and an important link between the CBD and South Brisbane, also provides an alternative route between the southern suburbs and northern destinations providing a route that bypasses the city. The bridge was opened in 1932 as Brisbane s second bridge over the Brisbane River. Most traffic using this bridge is associated with travel to and from West End and South Brisbane. Victoria Bridge (CBD / South Brisbane) - has been replaced several times since its original opening in The present bridge was commissioned in 1969 and now includes two general traffic lanes and two dedicated bus lanes. Captain Cook Bridge (CBD / Kangaroo Point) forming part of the South-East Freeway, which is the regional route connecting Brisbane with destinations to the south. A significant proportion January 2005 Page 32

43 of the trips are non-cbd movements. The bridge was opened in It provides no pedestrian or cyclist facilities. Story Bridge (CBD / Kangaroo Point) the six-lane Story Bridge forms part of the major northsouth arterial route, and provides a radial route into the CBD with over half of its traffic use radial in nature. It joins Ipswich Road, the South-East Freeway and the eastern radials to Lutwyche Road and Abbotsford Road. Like the Captain Cook Bridge, a significant proportion of the trips on the Story Bridge are non-cbd movements. The Story Bridge opened in 1940 and operated as a toll road for seven years. Pedestrian and cyclist facilities are incorporated into the bridge. Gateway Bridge (Eagle Farm / Murarrie) the six-lane Gateway Bridge forms part of the Gateway Motorway, the primary north-south route in Brisbane and part of the National Highway system. It services critical regional infrastructure such as the Brisbane Airport and Port of Brisbane. A high proportion of commercial vehicles use the bridge. A significant proportion of the bridge s use is related to long distance travel patterns. No pedestrian or cyclist facilities are incorporated. There are two rail crossings of the Brisbane River within Brisbane City: Merivale Bridge (City / South Brisbane) opened in 1978, the bridge overcame the historic division between the north and south passenger rail systems by providing a rail link between Central and South Brisbane Railway Stations. The system serves passengers from the Cleveland, Beenleigh and Gold Coast lines as well as XPT services to New South Wales and other regional passenger and freight traffic; and Albert Bridge (Indooroopilly / Chelmer) first built in the 1870s, was destroyed in the 1893 flood and replaced in The bridge carries only suburban line movements because of load restrictions. The Indooroopilly main line bridge, which is located adjacent to the Albert Bridge, is used by both suburban services and freight services (to the North Coast Line) and provides an alternative to the Merivale Bridge in peak periods for narrow gauge freight services. There are two purpose-built bicycle and pedestrian bridges. These are: Goodwill Bridge (CBD / South Brisbane) opened in 2001, the 450 m long footbridge provides pedestrian and cyclist access only, relieving some of the pedestrian and bicycle congestion and conflict on the Victoria Bridge; and Jack Pesch Bicycle and Pedestrian Bridge (Indooroopilly / Chelmer) was built in 1998 to provide cyclists and pedestrians with a safe alternative path, and links the University of Queensland and the Indooroopilly Shopping district with suburbs south of the river. Minor vehicular crossings in Brisbane City are: At Moggill via a vehicular ferry; and At Mount Crosby where there are two weir type crossings. January 2005 Page 33

44 3.5 Road Traffic Movement Patterns Daily Traffic Volumes Daily traffic volumes were determined for the major roads in the network as described in Section 3.3. These volumes are shown on Table 3.2 and were compiled from various recognised sources, including DMR and Brisbane City Council (BCC) (DMR Census 2003 and BCC 2003). Data collected in 2003 has been used wherever possible. Daily two-way traffic volumes on the major north side roads in the study corridor vary from 6,000 to 55,000, as shown on Table 3.2. The total daily volume is a function of both the hierarchy of the road, the number of lanes and the road s design capacity. Traffic flow is not constant but varies from day to day and throughout each day. Figure 3.5 shows the hourly traffic distribution for the Story Bridge. The figure shows the AM and PM peak periods. This information is used to establish the pattern of vehicular travel that takes place throughout the day, and to identify peak traffic periods. Table 3.2 Observed Daily Two-Way Traffic Volumes (2003) Road Location Hierarchy Volume North Side Roads Inner City Bypass East of Victoria Park Road Arterial 55,000 Lutwyche Road At Herston Road Arterial 50,000 Ann Street East of James Street Arterial 26,000 McLachlan Street West of Brunswick Street Arterial 26,000 Wickham Street West of Gipps Street Arterial 21,000 St Paul s Terrace 1 East of Brunswick Street Arterial 18,500 Newmarket Road Between Victoria Street and Lutwyche Road Suburban 18,000 Gregory Terrace 1 West of Brunswick Street Suburban 9,400 Campbell Street Between Bowen Bridge Road and Wren Street Suburban 8,000 O'Connell Terrace Between Bowen Bridge Road and Wren Street Suburban 6,000 Northey Street Between Victoria Street and Lutwyche Road District 15, observed count Source: DMR Census 2003 and BCC 2003 January 2005 Page 34

45 Figure 3.5 Temporal Distribution of Traffic Flow Story Bridge Vehicles per Hour 3000 Northbound Southbound Time Source: Australian Traffic Survey (2004) Peak Hourly Traffic Flows In considering the operation of road traffic network during its most congested (busiest) time, data has been extracted at sites on the periphery or within the Local Area of Study cordon. The Local Area of Study is shown on Figure 2.1. This represents the area that is expected to experience the majority of changes in traffic flow due to the introduction of the proposed tunnel. The cordon comprises all key routes that cross the boundaries of the Local Area of Study. These cordon volumes are reported in Table 3.3, which show vehicles inbound (towards the Story Bridge) and outbound (away from the Story Bridge). Table 3.3 Observed Peak Hourly Traffic Flows (2003) Road Location Inbound Outbound Kingsford Smith Breakfast Creek Stanley Street Norman Creek Cornwall Road Princess Alexandra Hospital Ipswich Brisbane Street Annerley Mater Hospital Lutwyche Le Geyt Street Commercial Doggett Street Lytton Mowbray Park January 2005 Page 35

46 Road Location Inbound Outbound South-East Captain Cook Bridge Vulture Grey Street Old Cleveland Stones Corner Abbotsford Thompson Street Newmarket Green Terrace Northey Allom Street Herston Royal Brisbane & Women s Hospital Gregory Warry Street Cornwall Road Hanlon Park N/A 900 Ann Creek Street N/A 900 Source: Various traffic surveys - BCC, DMR, ABACUS and Australian Traffic Surveys (ATS) Traffic Composition by Vehicle Type Another component in determining the character and effects of a road is the composition of traffic or vehicle mix (cars, trucks, buses, etc.) using the existing road network. A survey was undertaken by ATS to obtain the typical vehicle profile for the Story Bridge. The twenty-four hour results are shown in Table 3.4 and on Figure 3.6 and Figure 3.7. The vehicle type is based on the Austroads Classification (1994) as follows: Small vehicle (sedan, four-wheel drive, light van, etc); Medium vehicle (2 to 4 axle rigid truck or bus); and Articulated vehicle (articulated vehicle or rigid vehicle and trailer). Table 3.4 Vehicle Composition Story Bridge Vehicle Type AM Peak Off Peak PM Peak Small Vehicles 94.5% 94.5% 97.0% Medium Vehicles 4.5% 5.0% 2.5% Articulated Vehicles 1.0% 0.5% 0.5% Source: ATS (2004) Story Bridge Count January 2005 Page 36

47 Figure 3.6 Temporal Distribution of Traffic Flow Story Bridge Light Vehicles Vehicles per Hour 3000 Inbound Outbound Time Source: ATS (2004) Figure 3.7 Temporal Distribution of Traffic Flow Story Bridge - Heavy Vehicles Medium Vehicles Inbound Articulated Vehicles Inbound Medium Vehicles Outbound Articulated Vehicles Outbound Vehicles per hour Source: ATS (2004) Time January 2005 Page

48 3.5.4 Through Traffic Information from the Brisbane Strategic Transport Model (BSTM), developed for the BCC and DMR, was used to show existing travel patterns, including cross-river patterns, and the volumes of traffic entering the city centre. The modelled proportion of through trips (i.e. traffic without an Inner City Precinct origin or destination) on each approach to the Inner City Precinct are summarised in Table 3.5. Table 3.5 Percentage of Traffic Travelling Through Inner City Precinct Location % Through Traffic Story Bridge 29% Captain Cook Bridge 36% Victoria Bridge 5% William Jolly Bridge 76% Coronation Drive 54% Milton Road 49% Caxton Street 57% Musgrave Road 55% Kelvin Grove Road 21% Bowen Bridge Road 34% Abbotsford Road 34% Breakfast Creek Road 31% Source: NSBT Strategic Model 2001 Forecast Table 3.5 shows that approximately 40% of traffic using the Story Bridge, William Jolly Bridge and Captain Cook Bridge are through trips without an origin or destination in the Inner City Precinct. This is a significant amount of traffic that is using inner-city roads to travel through the area, which, if this traffic could be rerouted to an alternative route, would have significant impacts on inner-city roads. 3.6 Freight Vehicle Usage Story Bridge classification traffic counts discussed earlier in Section indicate that 5.5% of traffic comprise medium to articulated vehicles. These include two to four axle rigid truck or bus and articulated vehicles. The actual counts and modelled results indicate freight related vehicles will not be a major component of total flows on the Story Bridge. Additionally, the Story Bridge is not an approved B-Double route (heavy articulated trucks with two trailers). B-Doubles are restricted to using approved roads and are prohibited from using the Bradfield Highway and the Story Bridge. January 2005 Page 38

49 3.7 Bus Services Existing Services The bus operators with regular fixed route bus services into the CBD are listed in Table 3.6. Table 3.6 Bus Operators into Brisbane CBD Operator Bus Routes Weekday Bus Services No. % No. % Brisbane Transport % 6,734 93% Clarks Logan City 14 8% 240 3% Connex 9 4% 153 2% Mt Gravatt Bus Service 4 2% 20 1% Hornibrook Bus Lines 1 1% 30 1% Total % 7, % Brisbane Transport operates 85% of bus services to the CBD, which equates to 93% of weekday services. The remaining bus operators have a small proportion of routine services into the CBD. Table 3.7 gives a summary of the major bus service corridors and the number of services for the two-hour AM and PM peak periods and all weekday bus services into the CBD, which is then shown graphically in Figure 3.8. Table 3.7 Major Bus Service Corridors into Brisbane CBD All Routes AM Peak PM Peak All Weekday No. % of All % of Cordon Routes Routes No. % No. % No. % Victoria Bridge 81 33% 44% % % 3,539 58% Captain Cook Bridge 39 16% 21% % % 513 8% Story Bridge 8 3% 4% 38 3% 33 3% 164 3% North Eastern 3 1% 2% 19 2% 17 2% 103 2% Bowen Bridge Road 14 6% 7% % % % North Western 14 5% 7% 80 7% 82 8% 468 7% Western 27 11% 15% % % % Total % 100% 1, % 1, % 6, % Source: Bus routes and number of services from timetables, as of 23 February 2004 (after the opening of the Inner North Busway) January 2005 Page 39

50 Figure 3.8 Bus Corridors into Brisbane CBD Number of Trips over 2-hour peak period Victoria Bridge - South Victoria Bridge - North Victoria Bridge - West Captain Cook Bridge Story Bridge North Eastern Bowen Bridge Road North Western Western CBD Corridor AM Peak One-way Bus Trips PM Peak One-way Bus Trips The bus volumes into the CBD in each direction are shown in Figure 3.9 for the two hour AM peak period (7am to 9am) and in Figure 3.10 for the two hour PM peak period (4pm to 6pm). Table 3.7 and Figure 3.8 show the use of the Story Bridge, by buses, is low when compared to other river crossings and corridors into the CBD. Victoria Bridge is the busiest inner-city bridge crossing for buses. Peak period bus congestion at the Cultural Centre Busway Station affects the capacity of the busway. This has been improved with the construction of bypass lanes around the platforms at the busway station. Only six bus routes that operate to the CBD use Wynnum Road and Shafston Avenue, which is less than 3% of the total 185 bus routes that cross into the CBD. A total of 92 weekday trips use the Wynnum Road / Shafston Avenue corridor. For the Main Street corridor that connects Ipswich Road with Fortitude Valley, only 72 bus services operate in both directions on weekdays. The bus corridors likely to be affected by the proposed Project are: Ipswich Road between Buranda and Fortitude Valley, via Main Street and Story Bridge; Wynnum Road between Hawthorne and Fortitude Valley, via Shafston Avenue and Story Bridge; The Fortitude Valley corridor between Newstead and CBD; Bus lanes in Ann Street and Wickham Street; Northside routes through Fortitude Valley; and Terminus locations in Fortitude Valley. January 2005 Page 40

51 Figure 3.9 AM Two-Hour Peak Bus Volumes Full page map to replace this page January 2005 Page 41

52 Figure 3.10 PM Two-Hour Peak Bus Volumes Full page map to replace this page. January 2005 Page 42

53 3.7.2 Bus Running Times into Brisbane CBD In Figure 3.11, the minimum and maximum timetabled bus running times are shown for the major bus route corridors into the CBD. The maximum running time is the scheduled longest travel time between two timing points, typically in the busiest traffic period in the peak period. The minimum time is the shortest scheduled running time between the same two timing points, typically during the off-peak in the midday or evening time periods. The corridors that have the greatest difference between the peak and off-peak running times indicates where bus priority measures are likely to be the most effective because the peak period tends to show significant delays in the running times. These corridors are: Wynnum Road between Hawthorne and Fortitude Valley with a difference of 14 minutes; Sandgate Road between Albion and Fortitude Valley with a difference of 13 minutes; Wynnum Road between Hawthorne and City Hall with a difference of 11 minutes; and Ipswich Road between the PA Hospital and Fortitude Valley with a difference of 11 minutes. Figure 3.11 Timetabled Bus Running Times into Brisbane CBD Travel Time (minutes) Hawthorne - North Quay via Wynnum Rd (Route_222) Hawthorne - City Hall via Wynnum Rd (Route_231) Hawthorne - Valley via Wynnum Rd (Route_232) Newstead - Valley (Route_300) Albion - Valley via Sandgate Rd (Routes_306_&_322) PA Hospital - Valley via Story Bridge (Routes_475_&_476) Maximum Minimum January 2005 Page 43

54 3.7.3 Major Bus Infrastructure The two major bus infrastructure projects that have been implemented in the CBD are the SEB and INB. The SEB, which opened in April 2001, provides a dedicated, high quality, bus only roadway from the southern suburbs into Brisbane. Buses from the eastern suburbs enter via the Woolloongabba Busway Station, the Mater Hospital, South Bank and the Victoria Bridge into the CBD. The INB, which opened in February 2004, is an alternative direct route into the CBD for the northern suburbs bus routes. It has been built between the RB&WH on Lutwyche Road and Roma Street, with bus lanes in Roma Street leading into the western end of the CBD and the Queen Street Bus Station. The express services that formerly were delayed in Lutwyche Road and Brunswick Street can now enter the CBD without delay via Roma Street. Bus routes to the CBD terminate at: Queen Street bus station for most of the busway services; Adelaide Street transit mall between Edward and George Streets; Warner Street in Fortitude Valley; North Quay for some of the northern all-stops bus routes; Wickham Terrace for some of the of the southern all-stops bus routes; and Other streets, such as Charlotte Street. 3.8 Cycle Facilities The bicycle network established by BCC plays an important role in Brisbane s transport system. It not only provides a viable alternative to the private motor vehicle, particularly for short trips under ten kilometres, but also enables residents and visitors to take advantage of our sub-tropical climate and healthy, outdoor lifestyle for recreation. Brisbane s existing bikeway network is now about 530km in length. Figure 3.12 shows the current Brisbane Cycle Network in the Local Area of Study and surrounding areas. A number of on-road cycle lanes and off-road shared pedestrian/cycle facilities have been provided within the Local Area of Study. From north to south these are: On-road and off-road shared pedestrian / cycleway facilities between Newmarket and Albion (mostly along Enoggera Creek); Off-road shared facilities on either side of the ICB between Horace Street, Bowen Hills and Kelvin Grove Road, Kelvin Grove; Further off-road cycleways and shared facilities from the ICB network through Victoria Park, adjacent to the rail link and to Gregory Terrace; January 2005 Page 44

55 Ivory Street and Bowen Terrace, Fortitude Valley (off-road), through New Farm (on-road including Moray Street) connecting to Newstead (via Kent Street and Commercial Road) and to Brunswick Street (all on-road); The Riverwalk facility, which is a shared pedestrian cyclist facility between Ivory Street, beneath the northern end of the Story Bridge and the New Farm cliffs over the Brisbane River, to Merthyr Road at New Farm; A shared pedestrian / cycleway facility on both sides of the Story Bridge linking to the Fortitude Valley / New Farm facilities and continuing along the Bradfield Highway, Shafston Avenue and Thorn Street to Mowbray Park at East Brisbane; Kangaroo Point cliffs to South Bank off-road shared facility; South-East Freeway off-road facility from a connection with the Kangaroo Point cliffs to South Bank facility to Cornwall Street, Greenslopes; and Park Road on-road facility that connects to the University ferry at Dutton Park and the bikeway network that extends along the Brisbane River at Fairfield and Yeronga. Also of interest, but outside the Local Area of Study, are: The Bicentennial Bikeway along the north side of the Brisbane River, that extends from the Edward Street entrance to the City Botanic Gardens, through the Gardens, beneath the elevated Riverside Expressway to Coronation Drive and the University of Queensland at St Lucia; and The Goodwill Bridge that provides a connection for pedestrians between the City Botanic Gardens and South Bank (at the Queensland Maritime Museum). 3.9 Pedestrian Facilities An extensive pedestrian network has also been established throughout Brisbane City. This network comprises footpaths, mostly on both sides of the carriageway in the inner-city areas, and a network of off-road paths and shared facilities. Like the bikeway network, the pedestrian network facilitates both commuter and recreation activities. The major off-road shared facilities were described in Section 3.8. Of interest to this study are: On-road / off-road shared facility on either side of the ICB between Horace Street, Bowen Hills and Kelvin Grove Road, Kelvin Grove; A shared facility on both sides of the Story Bridge linking to the Fortitude Valley / New Farm facilities and continuing along the Bradfield Highway, Shafston Avenue and Thorn Street to Mowbray Park at East Brisbane; South-East Freeway off-road facility from a connection with the Kangaroo Point cliffs and South Bank to Cornwall Street, Greenslopes; The Goodwill Bridge that provides a connection for pedestrians between the City Botanic Gardens; and The Riverwalk facility, a shared pedestrian / cyclist facility between Ivory Street, Fortitude Valley and Merthyr Road at New Farm. January 2005 Page 45

56 There are also a number of overpasses and underpasses within the Local Area of Study provided specifically for pedestrians. These are located at: Kemp Place, Fortitude Valley, allowing pedestrian access under the northern approach roads to the Story Bridge; Thornton Street to Ferry Street, Kangaroo Point, allowing pedestrian access under the southern approaches to the Story Bridge (Main Street and Bradfield Highway); The Kangaroo Point Campus of South Bank Institute of TAFE, providing pedestrian access over Main Street; and A number of shared pedestrian bikeway bridges on the western side of the South-East Freeway providing access over the on and off-ramps to the Freeway. Further pedestrian facilities include: The provision of signalised intersections (and generally four-way pedestrian crossings) at all major intersections and with other streets as required throughout the Local Area of Study; and Signalised pedestrian crossings at Kemp Place (outside All Hallows College), in Shafston Avenue (opposite the University of New Shafston) and in Stanley Street (outside the Brisbane Cricket Ground). January 2005 Page 46

57 Figure 3.12 Existing Bicycle Network Full page map to replace this page. January 2005 Page 47

58 4.0 Existing Road Network Performance 4.1 Introduction As shown by Figure 3.2, the major road network is generally radial in layout. On the north side of the river, the major influence on this layout was the need to provide access to and from the early settlement and the emerging Central Business District (CBD), and was reinforced through the continued role of the CBD as the primary employment and business node in the city. On the south side of the river, the layout of the road network was the result of the establishment of river crossings (initially ferry services replaced by purpose built bridges) at key locations about the CBD. The influence of the Story Bridge is particularly evident for the road layout on the southern side of the river, where roads (such as Wynnum Road, Shafston Avenue and Old Cleveland Road) serving the Eastern Suburbs, converge with roads (such as Ipswich Road and Logan Road) serving the southern suburbs and beyond. Lutwyche Road is the predominant arterial route on the north side of the river, with the Inner City Bypass (ICB) and associated roads now providing an east-west link to other northern arterials such as Kelvin Grove Road, Sandgate Road and the Gateway Arterial. In this section, the performance of the existing network is assessed in terms of: Intersection operation; Local access; Bus services; Pedestrians and cyclists; and Road safety. 4.2 Level of Service Definitions One of the key measures of network performance is the Level of Service (LOS) at intersections. The LOS of the roads within the Local Area of Study has been determined for existing conditions for the year The analysis in this instance has used the Austroads Guide to Traffic Engineering Practice Roadway Capacity (1998) which, for urban arterial roads with interrupted flow, use travel speed as the determining criteria. Therefore as travel speeds decrease from their optimum free-flow condition, the LOS to road users deteriorates. The criteria as laid out in the Austroads Guide breaks the analysis down to levels A to F. These bands have been used for the purposes of this Project and the following list details the operational characteristic of each band. January 2005 Page 48

59 Level of Service A Generally free flow conditions with operating speeds usually about 90% of the free flow travel speed for the particular class of arterial. Vehicles are unhindered in manoeuvring in the traffic stream and stopped-delay at intersections is minimal. Level of Service B Relatively unimpeded operation with average travel speeds about 70% of the free-flow speed for the particular class. Manoeuvring in the traffic stream is only slightly restricted and stopped delays are low. Level of Service C Stable operating conditions with manoeuvring becoming more restricted, longer queues and/or adverse signal coordination may contribute to lower average travel speeds of about 50% of the free-flow speed for that class. Level of Service D Conditions border on a range in which small increases in flow can significantly increase intersection delay and reduce travel speed. Travel speeds are about 40% of the free-flow speed. Level of Service E Conditions are characterised by significant intersection and travel speeds about 33% of free-flow speeds or lower. Contributing factors may be adverse signal progression, closely spaced signals and extensive queuing at critical intersections. Level of Service F Traffic flow at this level is very low speed for the road class, about 25% of the free-flow speed or lower. Signalised intersections will be severely congested with extensive queuing and delay Intersection Performance The performance of the urban road network is largely influenced by the operating conditions of intersections and side streets, which are generally more constrained from a capacity viewpoint than mid-block sections of roadway. This analysis takes into consideration vehicle interaction, roadway capacity and intersection control, including coordination of traffic signals. January 2005 Page 49

60 In order to assess the operation of the key intersections, the measure of effectiveness used has been LOS criteria adopted from the Highway Capacity Manual 2000 (United States). Key criteria are listed on Table 4.1. The key criteria for the determination of an intersection LOS is intersection delay, and relates to the average delay for all vehicles using the intersection over a given time period. It should be noted that this is an overall intersection value and that individual movements (turns) may vary, both increasing and decreasing about the average. The traffic volumes used in the analysis represent average conditions over the two hour peak period. During the peak period, delays may be higher than average values. Table 4.1 Intersection Level of Service Criteria Level of Service Average Intersection Delay (seconds) A 0-10 B C D E F 80 + Source: Highway Capacity Manual 2000 The LOS analysis during the AM peak period and PM peak period (2003) for the critical intersections is shown on Table 4.2. Table 4.2 Intersection Level of Service (2003 AM and PM Peaks) Intersection Level of Service AM Average Intersection Delay Level of Service PM Average Intersection Delay O Keefe Street & Ipswich Road D C Ipswich Road & Balaclava Street C B Ipswich Road & Stanley Street C B Ipswich Road & Vulture Street C E Shafston Avenue & Latrobe Street A B Shafston Avenue & Wellington Road D F Main Street & River Terrace C B Kemp Place & Ann Street C F Gipps Street & Wickham Street C C January 2005 Page 50

61 Intersection Level of Service AM Average Intersection Delay Level of Service PM Average Intersection Delay Bowen Bridge Road & Herston Road C C Lutwyche Road & Horace Street 1 B D Lutwyche Road & Newmarket Road 1 F C Bowen Bridge & O Connell Roads A B Note: 1 Analysed as separate intersections The LOS analysis shows that the majority of these intersections operate within the B to D range. Four intersections operate at LOS E or below. These include the major corridor intersections of Ipswich Road and Vulture Street, and Lutwyche Road and Newmarket Road, particularly when analysed (in combination with Horace Street and Northey Street intersections). An LOS of E is characterised by being close to the limit of unstable flow with significant congestion on critical approaches, and with vehicles typically required to wait through more than one cycle at traffic signals. The 21 signalised intersections along the Ipswich Road Lutwyche Road corridor between O Keefe Street and Northey Street are coordinated within Council s BLISS traffic control system. The system operates different traffic signal plans for different periods of the day (AM and PM peak, inter-peak and light traffic time late at night). A shoulder plan also operates each side of the peak periods. In peak periods, the signals are coordinated to decrease traffic stoppages for peak direction flow, which is usually CBD oriented. This means that signal progression does not occur for full-length trips along the roads within the Local Area of Study because: The CBD is located midway along the corridor, so that trips to or from the mid-point are favoured by the signals in the AM and PM peak respectively; Heavily used routes (such as Vulture/Stanley Streets and Ann/Wickham Streets) cross the corridor to and from the CBD, making it difficult to coordinate the peak demands; and Some intersections are saturated, so queues do not clear each traffic signal cycle and compound delays occur, negating the opportunity for unhindered progression of traffic platoons. As a result, trips travelling the full length of these roads encounter a number of intersections with insufficient capacity to maintain adequate LOS performance. 4.3 Local Access Within the study corridor, the highly trafficked arterial roads such as Lutwyche Road, Ipswich Road and Shafston Avenue present limits to local access. Turning traffic and vehicles accessing properties interfere with through traffic and limit capacity. To control these movements and limit interference with through traffic January 2005 Page 51

62 capacity, right turning movements are limited to intersections with traffic signal control and where storage capacity can be provided. Property accesses are also limited to left in and left out manoeuvres. Typical limitations are: Lutwyche Road Newmarket Road to Enoggera Creek - Signalised intersections at Newmarket Road, Federation Street and Northey Street provide for right turn movements. Most other intersections along the route are restricted to left turn in and out movements. Some right turns are permitted, but are difficult because of the high traffic flows along Lutwyche Road. Minor intersections, such as Bryton Street, Taylor Street and Nicholas Street are restricted to left in and out turns only; Shafston Avenue Wellington Street to Bradfield Highway - Right turns are provided via signalised intersections at Thorn Street (entry) and Castlebar Street (exit). Other intersections are restricted to left turn in and out movements, with Connor Street restricted to left turn out; and Ipswich Road Balaclava Street to O Keefe Street - Right turns are provided at a signalised intersection at Albert Street. Right turns can be made at other intersections such as Qualtrough Street and Morrisey Street but there is no special provision, such as storage lanes, for turning traffic. Other intersecting streets such as Broadway Street are restricted to left turn in and out only. Access restrictions also limit access to properties on either side of these roads. Previous internal Brisbane City Council (BCC) traffic studies have identified local residential streets being used, or with the potential to be used, as traffic shortcuts by non-local traffic. This has lead to traffic calming measures being implemented in Windsor, Woolloongabba and Kangaroo Point. The road hierarchy of the associated road network to the main corridor is readily apparent from the nature of the road width, abutting land use and traffic management (geometry, traffic control etc). Even so, there is a history of traffic inappropriately using some streets to bypass congested areas on the main road network. On the northside, traffic calming has been installed in Victoria Street, which runs parallel and adjacent to Lutwyche Road between Newmarket Road and Northey Street. This calming has been installed to control traffic speed for vehicles that utilise Northey Street (rather than Newmarket Road) to access to Lutwyche Road, and also the significant volume of traffic that utilises Victoria Street to access Lutwyche Road properties. Several roads on the south side are sensitive to the infiltration of non-local traffic. Connor Street, Kangaroo Point, is one such street, as it provides the only access to Shafston Avenue from a residential area on the south side of Shafston Avenue. The connection to Shafston Avenue was made one-way (out) as part of a local traffic management scheme in about 1990 to reduce the incidence of rat running through the residential streets between Shafston Avenue and Main Street. Access to the residential area immediately east is only available from Shafston Avenue (via Rosina and Salstone Streets), so this access is sensitive to any change in traffic performance along Shafston Avenue. January 2005 Page 52

63 Park Road and Albert Street, Woolloongabba, form a popular traffic route between Annerley Road and Ipswich Road. This route is designated a suburban route on Council s Road Hierarchy Plan in recognition of the function of the route, as it provides the only east-west intermediate route mid-way between Stanley Street and Cornwall Street, to the north and south respectively. Park Road also provides access to the Park Road railway station. The traffic flows (about 4200 vehicles each day) along the route are considered appropriate for the roads function. However, there would be concern if this route were to attract more traffic, because the area is predominantly residential and declining amenity is an issue for residents. Most properties along the main north-south road corridor have direct vehicle access. Access and egress are difficult because of the high traffic flows, and movements are by left turn entry and exit for safety and convenience. Centre lane markings on multi-lane roads also restrict direct entry to properties by right turn movements. The Royal Brisbane & Women s Hospital (RB&WH) and Princess Alexandra Hospital (PA Hospital) are located on the approaches to the northern and southern ends of the tunnel corridor respectively. Ambulance access is provided as follows: RB&WH - The main entrance is from Butterfield Street, with a second entrance off Bowen Bridge Road opposite O Connell Terrace (used from certain directions); both intersections along Bowen Bridge Road are signalised; and PA Hospital - The main entrance is from Ipswich Road; traffic signals are provided to enable safe and regulated movement. The traffic signals do not include any special provision to provide ambulances with priority at the signals, relying instead on the provision under the Traffic Act for ambulances to proceed, contrary to signals in emergency situations. The Queensland Fire and Rescue Service Fire Station is located at Kemp Place (corner of Ivory Street). Egress from the station is directly to Kemp Place and the Story Bridge for southern destinations, and via Ivory Street and Brunswick Street for other destinations. A traffic signal call button is located at the station which allows dispatchers to select a traffic signal pattern designed to give fire units priority at various signalised intersections for certain routes through the Valley (such as Brunswick Street, Ann Street and Gipps Street). This facility reduces the congestion and delays for fire units en route to an emergency. 4.4 Bus Services Buses, as well as other public transport modes, are focused on CBD trips, and have adequate capacity to meet current demand. Buses mix with general traffic on the road network and consequently experience delays and congestion similar to other traffic. As a result, bus journey times are increasing as the road system becomes more congested. January 2005 Page 53

64 The critical deficiency in the road network is the cross-river capacity of the inner-city bridges. This problem has been exacerbated by the capacity of the Victoria Bridge being reduced for general traffic to accommodate the bus lanes for the South-East Busway (SEB). Currently, only eight of the 185 bus routes that cross into the CBD use the Story Bridge. This is about 3% of the total bus services. The opportunity to achieve effective improvements for public transport in the study corridor needs to be investigated in more detail. Many of the delays to buses operating to the CBD occur in Fortitude Valley, in either Ann or Wickham Streets. Examples of problems with the bus stop infrastructure in Fortitude Valley are shown on Figure 4.1 and Figure 4.2. The section of Ann Street east of Brunswick Street can be very congested. Figure 4.1 Valley Island Bus Stop in Ann Street Figure 4.2 Congested Bus Stop in Ann Street Existing bus routes use only partial sections of the Ipswich Road / Story Bridge / Lutwyche Road route as all bus services terminate in the CBD. Even then the corridor only has a minor public transport role as other routes, such as the SEB and Inner Northern Busway (INB), provide more direct connection to the CBD. Sections of bus lane and transit lane are provided in some inner-city locations to improve bus journeys. 4.5 Pedestrians and Cyclists The existing on and off-road pedestrian and cycle facilities can be seen with reference to the existing road network (Figure 3.4) and the existing bicycle network (Figure 3.12). Bicycle trip surveys were undertaken in 2001 and 2002 to determine the level of usage of existing infrastructure. The results of those surveys (that related to locations in the vicinity of the Project) are shown on Table 4.3. January 2005 Page 54

65 Table 4.3 Bicycle Usage Counts on Bikeways in the NSBT Study Area Date Average Weekday Seven day Average Peak Day South-East Freeway, adjacent to Lower River Terrace July ,081 (Sun) Story Bridge Western Pathway July (Thurs) Story Bridge Eastern Pathway July (Thurs) South-East Freeway North of Vulture Street Feb (Tues) Location Source: BCC 2002 While it is evident from Figure 3.12 that a substantial bicycle network is in place, the network falls short of being comprehensive. For example, there is little connectivity between the Story Bridge and the RB&WH through Fortitude Valley. Pedestrian facilities in the Ipswich Road corridor are shown in Figure 4.3 and Figure 4.4. The footpath along Ipswich Road south of Stanley Street is wide and adequate for the number of pedestrians. During major events at the Brisbane Cricket Ground, pedestrian access is a problem near Stanley Street and Ipswich Road, with a high volume of pedestrians using the footpaths. Further south, pedestrian access between the PA Hospital and Buranda Railway Station is in need of improved connection. Figure 4.3 Footpaths on Ipswich Road Looking North Figure 4.4 Pedestrian Underpass on Bradfield Highway Pedestrian movements on the western side of the Story Bridge are shown in Figure 4.5. The path is wide enough for pedestrians and cyclists to use at the same time. January 2005 Page 55

66 Figure 4.5 Pedestrians and Cyclists on the Story Bridge The pedestrian access along Lutwyche Road corridor north of the RB&WH is along the footpaths. To reduce the community severance of Lutwyche Road, pedestrian crossing facilities are incorporated into traffic signals at all intersections. In Fortitude Valley, the busiest pedestrian movements occur in Ann Street, Wickham Street and in the Brunswick Street Mall. The major pedestrian / cyclist attractions and desire links have been identified and the results are shown in Figure 4.6 and Figure 4.7. Additional comments in relation to existing performance are as follows: There is preference for commuter and experienced cyclists to use on-road cycle facilities for shortest travel time and convenience; Cyclists and pedestrians prefer convenient and safe routes at interchanges (with ramps) and atgrade intersections (e.g. Lutwyche Road, Horace Street and Northey Streets). The current arrangement at Lutwyche Road and Horace Street does not meet these criteria. Establishing facilities to allow suitable pedestrian and cycle movement from RB&WH through Fortitude Valley to Woolloongabba (via Story Bridge) has been identified by the BCC Active Transport Group as a matter of high importance; and Current on and off-road facilities along Main Street, Story Bridge, Brunswick Street, Bowen Bridge Road and Lutwyche Road are not to satisfactory standards (e.g. widths of paths and surface condition). January 2005 Page 56

67 Figure 4.6 Pedestrian and Bicycle Network Northern Section Full page map to replace this page January 2005 Page 57

68 Figure 4.7 Pedestrian and Bicycle Network Southern Section Full page map to replace this page January 2005 Page 58

69 4.6 Road Safety Introduction The six-year crash history (1998 to 2003) recorded along the Ipswich Road Lutwyche Road route between O Keefe Street and Newmarket Road is shown in Table B1 in Appendix B. The crash history includes reported vehicle collisions and other traffic incidents on the road network which result in death, injury or property damage. The key statistics are: 746 (68%) crashes occurred at intersections; 908 (83%) crashes involved two or more vehicles; and 846 (77%) crashes occurred in the length that would be bypassed by the Project. It should be noted that the ICB was opened on 21 July 2002, partway through the period, so crash statistics in proximity to the ICB may be affected by construction activity and resultant road network changes. The great majority of crashes occurred at intersections, with rear end and right-angle crashes being the predominant type. The number of accidents involving pedestrians is relatively small, which can be attributed to the dominance of vehicles along the route, so pedestrians are discouraged from crossing the corridor. Even so, two pedestrian crashes (one fatal) occurred on the section of Bowen Bridge Road between O Connell Terrace and Herston Road (adjacent to the RB&WH). Crash statistics for Shafston Avenue (Main Street to Wellington Road) for the same period are also shown in Table B1 in Appendix B: Sixty-three (82%) of crashes occurred at intersections, which is not unexpected as Shafston Avenue is a divided roadway; Twenty-two (29%) of the crashes occurred at the merge point with Main Street, with the predominant type being rear-end, which would be expected as this intersection involves mainly merge and weaving movements; and Only one pedestrian incident was recorded, which occurred mid-block. Signalised crossings are provided at Thorn Street and Castlebar Street, and reduce the need for pedestrians to risk crossing in uncontrolled situations. The road safety performance of a road can be measured by comparing crash rates and exposure measures. A number of methods can be used to derive an accident rate (for example crashes per 100 million vehicle kilometres travelled, crashes per kilometre of road length or number of vehicles entering an intersection as described in Austroads Guide to Traffic Engineering Practice, Part 4 Road Crashes). For this study the crash rates have been analysed for intersections and mid-block sections within the Local Area of Study. January 2005 Page 59

70 4.6.2 Intersections The accident exposure measure is based on intersection crash rates. The crash rate at each intersection is calculated by dividing the average number of crashes per year by the exposure. The exposure measure for each intersection was calculated using the square root of the product of cross flows, as outlined in Austroads Guide to Traffic Engineering Part 4: Road Crashes, Section The modelled peak hour traffic volumes were converted to 24-hour counts (for use in the exposure calculation) by using a peak hour to daily factor. The crash rate is expressed as the number of crashes per 100 million vehicles. The accident exposure measured ranged from 1.5 (Gipps Street / Little Street) to 90.3 (Gipps Street / Barry Parade) crashes per 100 million vehicles, as detailed in Table B2 in Appendix B Mid-Block Mid-block crash rates were calculated by dividing the number of crashes per year by the yearly volume of traffic through the section, times the length of the section. This figure was then divided by 100 million to obtain the number of crashes per 100 million vehicle kilometres travelled. The vehicle exposure measures for various locations (intersection and mid-block) along the corridor are shown in Table B2 in Appendix B Analysis Intersections with the worst crash rates are: Barry Parade / Gipps Street (90.3 crashes per 100 million vehicles); Main Street / Shafston Avenue (54.1 crashes per 100 million vehicles); Main Street / Princess Street (42.7 crashes per 100 million vehicles); and Ipswich Road / Qualtrough Street (40.3 crashes per 100 million vehicles). For the northern Lutwyche Road corridor (Horace Street to Newmarket Road) the higher crash rates occur at Northey Street and Bryden Street have crash rates of 28.6 and 29.5 crashes for 100 million vehicles respectively. The southern Ipswich Road corridor (Hawthorn Street to O Keefe Street) has a lower crash rate range of 1.7 to 14.5 (except for Qualtrough Street, which evidences a crash rate of 40.3). The mid block sections having the worst crash rate occur at: Kemp Place (Kemp Place-Ivory Street) (211.5 crashes per 100 million VKT); Bowen Bridge Road (O Connell Terrace to Herston Road) (200.0 crashes per 100 million VKT); Ipswich Road (Logan Road-Hawthorne Street) (147.2 crashes per 100 million VKT); and Brunswick Street (Gregory Terrace to Water Street) (109.5 crashes per 100 million VKT). January 2005 Page 60

71 The crashes were mainly rear end type, which can be attributed to the congestion and queues from nearby intersections. There are many variables that contribute to vehicle crashes occurring, so it is difficult to directly compare the relative safety performance of a route with other routes. However, the crash rates for the Ann Street, Wickham Street and Breakfast Creek Road corridor east of Brunswick Street have been analysed to provide a safety comparison between the two road corridors. The results are shown in Table B4 in Appendix B. The highest intersection crash rate along the route is Wickham Street/Constance Street (134.2 crashes per 100 million vehicles per year). Two other intersections had crash rates greater than 40 crashes per 100 million vehicles per year. On the basis of this comparison it can be concluded that the crash rate for intersections along the Project corridor are generally typical of major city arterial routes. In contrast, the highest mid block crash rate for the comparison corridor was crashes per 100 million vehicles per year in Wickham Street (Constance Street to Alder Street), which indicates that the number of mid-block accidents occurring along the Project corridor is high. This can be attributed to the higher level of congestion along the Project route, and the different road configurations (one-way streets and divided roadway in Breakfast Creek Road). The results are shown in Table B5 in Appendix B. January 2005 Page 61

72 5.0 The Project 5.1 Introduction This Project description has been taken from the Environmental Impact Study (EIS) report as prepared by the SKM Connell Wagner Joint Venture (2004) and summarises those elements relevant to traffic and transport. The proposed is a road tunnel, approximately 5.2km long, linking the Inner City Bypass (ICB) and Lutwyche Road in the north, to Ipswich Road and the South-East Freeway in the south. There would also be links to and from Shafston Avenue to allow traffic from the eastern suburbs to gain access to the tunnel. The tunnel would be constructed in rock below the city, including under the Brisbane River. The major features of the tunnel are described below. 5.2 Tunnel Design and Operation Design Standards and Criteria The main tunnels are designed for a speed of 80km/h. This was selected as it is consistent with the rest of the Brisbane urban road network, including the tunnel approaches, and is a speed which is commonly adopted for urban tunnels elsewhere in Australia and overseas. Desirable maximum vehicle grades of 5% up and 7% down were adopted for the concept design. Due to surface constraints, it was necessary to exceed these values in certain areas of the ramps. A minimum grade of 0.5% was adopted in the tunnel to ensure longitudinal drainage Tunnel Configuration The design provides for two parallel tunnels, the western tunnel dedicated to northbound traffic, and the other to the southbound traffic. The tunnels are aligned next to each other, with a clear separation of approximately 10m. Each tunnel would have two 3.5m wide running lanes, with a 1.5m wide shoulder on the left side, and 0.5m shoulder on the right. These shoulder widths have been determined based on ventilation requirements. Dedicated breakdown bays are not being provided, as there is sufficient room to pass a broken-down vehicle safely, at an appropriate speed, with the configuration proposed. A vertical clearance of 4.9m is allowed, above which would be 1.3m for ducts, lighting and signage. For northbound traffic, three points of entry to the tunnel are provided, with one point of exit. Access to the tunnel would be gained from the South-East Freeway, Ipswich Road and Shafston Avenue, with all traffic leaving the tunnel at Bowen Hills. Tunnel traffic northbound would be able to gain access to the ICB eastbound (but not westbound), and to Horace Street and Lutwyche Road (both north and southbound). For southbound traffic, one point of entry is provided at Bowen Hills for traffic from the ICB westbound and from Horace Street/Lutwyche Road. The three points of exit are at Shafston Avenue, Ipswich Road and the South- East Freeway. January 2005 Page 62

73 The majority of the tunnel would be constructed as a driven tunnel using a tunnel boring machine, road headers and drill and blast technique. Cut and cover tunnels would be required at all the portals except at the northern end, where good rock is present to the surface and the traffic would enter the bored tunnel, directly after passing through a deep cutting. A short section of cut and cover structure would be required, at the northern end to take the traffic leaving the tunnel beneath the ICB Services Tunnel Control Centre A Tunnel Control Centre is proposed for a location close to the northern portal. Within this building would be the support workshops, incident control room, traffic control room and office space. All data collected by the intunnel monitoring systems would be processed and all the services would be controlled from this location. It is also from here that the water tankers would obtain water for the tunnel wash-down operations and the pressure booster for use by the fire brigade would be installed. The site would provide parking and marshalling areas for maintenance and emergency vehicles. Lighting Roadway lighting would be provided in the tunnel. The intensity of the lighting near the portals would be set automatically, based on the ambient light conditions on the surface. Other lighting elements include: Directional signage, guiding pedestrians towards the cross passages in the event of an incident; and Exit signage and emergency lighting in cross passages and egress tunnels. Traffic Management and Control System The traffic management system would enable the operators to monitor, control and respond to the traffic conditions within the tunnel and on the approaches. This would comprise: A Closed Circuit Television (CCTV) system providing real time visual information to the tunnel operators, with cameras installed at the portals, in the cross passages and every 150m in the tunnels; Loop detectors installed in the pavement at 150m intervals to detect incidents in the tunnel, checking the height of all vehicles approaching the tunnel using optical beams located on all approaches, and at the start of the trough structures; Lane usage signals displaying whether the tunnel is open, whether the driver should prepare for closure, or whether the tunnel is closed; and Adjustable speed limit signs. January 2005 Page 63

74 Communications Systems A number of communication systems would be installed in the tunnel. These are: Radio rebroadcast breakthrough or a Public Address system; Two way radio repeater systems for use by emergency services; and Three landline telephone systems with communication points located every 120m, midway between cross passages, and containing three telephones namely a Motorist Help Telephone, an Operation and Maintenance Telephone and a Fire Coordination Telephone. Emergency Procedures Pressurised cross passages would be provided at 120m intervals linking the main running tunnels. These provide access to a place of safety in the event of an incident. In the portal areas beyond the final cross passage location, an egress tunnel would be provided to gain access to the surface. At Shafston Avenue, this egress tunnel extends the full length of each ramp, as it would not be possible to connect the two ramps with cross passages due to the differing vertical alignments. Electronic Tolling System The tolling system would be electronic and no booths for cash payment would be used. Payment of the toll is likely to be by E-Toll where motor vehicles using the tunnel would be expected to have transponders fitted. Transponders are detected by transmitters and receivers on overhead gantries inside the tunnel. Vehicles would be detected at high speed and at any lateral position across the carriageway. Classifiers on gantries would identify the size of vehicle and apply the appropriate toll amount. 5.3 Surface Road Works Northern Connections The proposed works at the northern end are shown on Dwg No. SK-884 in Appendix C. A large proportion of the works beyond the northern portal are new works. Traffic emerging from the tunnel would already be separated into three lanes. The left lane would separate shortly after leaving the tunnel, with the ramp passing under the ICB, curving to the right and passing over the southern end of the Horace Street Bridge. This then merges into the ICB eastbound. The bridge over the railway line would be widened to provide for this. There would be no access westbound onto the ICB from the tunnel. The remaining two lanes emerging from the tunnel proceed at-grade, over the existing Horace Street Bridge over Enoggera Creek, and then to Lutwyche Road at an upgraded intersection opposite Northey Street. January 2005 Page 64

75 Traffic from Lutwyche Road could enter the bypass system at the same intersection, crossing the Horace Street Bridge and proceeding into the tunnel under O Connell Terrace. Access to the ICB westbound would be altered from the current arrangement, as the existing at-grade system would conflict with the tunnel traffic. A new separate single-lane flyover would take this traffic over Enoggera Creek on a new bridge to the east of Horace Street over the ICB. It would then curve to the right and down to match in with the ICB corridor prior to the RNA tunnel. A new ramp would be constructed to take traffic from the east along the ICB, left and down into the tunnel. Two ICB bridges would be widened to accommodate this. Alterations to Lutwyche Road would include: The pavement would be widened along the eastern side of Lutwyche Road between Horace Street and Newmarket Road. This would provide a new fourth lane in each direction including median separation. Federation Street intersection would be upgraded to allow all movements from Lutwyche Road in and out of Federation Street; The Lutwyche Road / Northey Street intersection would be re-configured to allow for two rightturn lanes from Northey Street, through-movements for Lutwyche Road and the additional three right-turn lanes for the tunnel northbound onto Lutwyche Road; The pavement and the existing Bowen Bridge would be widened along the western side of Lutwyche Road between Butterfield Street and Northey Street. This would allow for a right turn lane for outbound city traffic into the tunnel and ICB; and A new exit ramp and taper along the eastern side of Lutwyche Road for connection to the tunnel southbound and ICB westbound would be constructed. Significant alteration to the local traffic network around the Campbell Street and O Connell Terrace area would be required. Campbell Street would be closed between the level crossing with the railway and Wren Street. The Tunnel Control Centre precinct would be sited to the west of the railway lines. Emergency access to the southbound main tunnel would be available through a short access way from this area. Emergency access to the northbound tunnel would be gained from the western side of Campbell Street Southern Connections The layout of the southern connections is shown on Dwg No. SK-917 and SK-918 in Appendix C. The connection with the South-East Freeway would be made between the Ipswich Road flyover bridges and the Hawthorne Street underpass. The new tunnel portals would be located in the existing wide median area. January 2005 Page 65

76 On Ipswich Road, a third inbound lane would be created by extending an existing lane from the south, dedicated to the traffic entering the tunnel. The tunnel structure would begin shortly beyond the Queensland Rail bridges and enter the portal before Burke Street. The traffic exiting the tunnel would emerge onto Ipswich Road to the south of the Balaclava Street intersection, and travel along a new dedicated lane, matching into the existing three lane wide outbound carriageway. Significant bridgeworks would be required to two of the four existing bridges over Ipswich Road and the alignment of the South-East Freeway inbound would be altered slightly to the south over Ipswich Road. The cycleway bridge, which is currently adjacent to the South-East Freeway, would have to be moved approximately six metres to the south to allow for this. The on-ramp portal on Ipswich Road would emerge midway between the bridges carrying the South-East Freeway over Ipswich Road and the intersection of Ipswich Road with O Keefe Street. Currently, three lanes exist at the O Keefe Street intersection, inbound, which merges into two beneath the high level bridge carrying the freight rail line. This merge would be removed, retaining this third lane as the tunnel on-ramp. Two lanes would then continue along Ipswich Road. It is possible that a fourth inbound lane may be required to improve access into the tunnel. The off-ramp would emerge in the median area of Ipswich Road to the south of Balaclava Street intersection. A new service road would be constructed and right-turn movements from all legs of the Balaclava Street intersection would be provided. An underpass would be provided through the railway embankment to allow for pedestrian movement along the western side of Ipswich Road. Albert Street would be closed to traffic at Ipswich Road. Burke Street would be widened to link Park Road and Dibley Road with Ipswich Road. Access to the areas, to the west and east of Ipswich Road, would be provided with a new signalised intersection at this location. This would provide access to Ipswich Road for Burke Street, Albert Street, Dibley Street and Park Road residents. The existing pedestrian crossing at Albert Street would be located at this intersection. On the east side, Agnes Street could be extended to connect Harrogate and Morrisey Streets, as right turn access would no longer be possible from either of these onto Ipswich Road Shafston Avenue Connection The works proposed at Shafston Avenue are shown on Dwg No. SK-874 in Appendix C. A single portal structure would be located in the median of Shafston Avenue, housing both on-ramps and offramps. January 2005 Page 66

77 At the Wellington Road intersection, Shafston Avenue currently has three inbound lanes. These would remain, as the intersection is not being altered as part of this Project. One of these lanes, the median lane, would be dedicated to the tunnel entry, separating from the main surface flow just before Rawlins Street. This lane then becomes the Shafston Avenue on-ramp to the tunnel. Shafston Avenue as it moves from southbound on Main Street to the east would be reduced to two lanes before the O Connell Street / Shafston Avenue intersection. It would be regraded to create a satisfactory sight distance for the traffic on the approach to this new signalised intersection at O Connell Street. The tunnel off-ramp (two lanes) would emerge in Shafston Avenue east of Rawlins Street. The off-ramp lanes would match in with the two lanes in Shafston Avenue, resulting in four lanes currently provided at the Wellington Road intersection. The right turn into Thorn Street for westbound Shafston Avenue traffic would be closed, with access and egress to the Dockside area provided by a signalised intersection at O Connell Street. The intersections at Shafston Avenue and Castlebar Street, and Shafston Avenue and Thorn Street would allow left in left out movements only. A single pedestrian crossing would be provided across Shafston Avenue at O Connell Street at the signals. Pedestrians would cross over the eastbound and westbound traffic lanes at the road surface and via the landbridge over the tunnel. Design elements and tunnel structures would deter pedestrians from crossing Shafston Avenue at other locations. Salstone and Rosina Streets would retain access to Shafston Avenue, as this is their only access point. Rawlins and O Connor Streets would be closed at Shafston Avenue. January 2005 Page 67

78 6.0 Traffic Forecasting Process 6.1 Quantifying Effects Traffic forecasting for the Project was undertaken as a means of quantifying the effects of the proposed tunnel on the transport network in terms of: Changes in travel demand; Changes in travel volumes, speeds and delays in the road network; and The impact of road tolls on traffic patterns. Traffic forecasts were generated for the years 2011, 2016 and 2021 (strategic level only), both with and without the tunnel. The forecasts take into account forecasts of future land use changes (for example, population, workforce and employment) and trip generation, trip distribution and mode choice characteristics ascertained from detailed surveys of travel behaviour in Brisbane. 6.2 Modelling Framework The basis of the traffic forecasting for the Brisbane Metropolitan Area is the Brisbane Strategic Transport Model (BSTM) developed by Sinclair Knight Mertz and Ove Arup and Partners in 2000 for the Brisbane City Council (BCC) and Queensland Department of Main Roads (DMR). The strategic model was used to provide estimates of future year traffic on the strategic road network, including the motorway and arterial road network. It was also used to provide estimates of metropolitan area network performance, including statistics such as total vehicle-kilometres and vehicle-hours on the Brisbane Metropolitan road network. Strategic travel patterns within the local study area were extracted from the strategic model, and used as a base for more detailed, local modelling. 6.3 Brisbane Metropolitan Area Modelling The BSTM was developed in 2000 and validated. Further model development work was undertaken for this Project. This work included: Review and updating of the base network to reflect 2001 and 2003 road networks, or road conditions immediately before and just after completion of the Inner City Bypass (ICB); Inclusion of 2001 demographic data obtained from 2001 Australian Bureau of Statistics (ABS) Census, and updating of employment data; Validation of current year forecasts of 2001 and 2003 using observed traffic volumes and journey time surveys; Updating of demographic and employment data inputs to forecasts for 2011, 2016 and 2021; and Development of a model to estimate toll road route choice. January 2005 Page 68

79 The strategic model development process is shown in Figure 6.1. As can be seen from this figure, the model structure and development process comprises many steps as described below Demographic and Land Use Inputs Population A revision of the strategic model demographic inputs was conducted, and updated data from recent studies was incorporated. The source of this information was the Planning Information and Forecasting Unit (PIFU), a section of the Department of Local Government, Planning, Sport and Recreation that prepares land use forecasts for the whole of Queensland, including the Brisbane Statistical Division (Brisbane SD). A detailed model was established by PIFU, which allocates growth in population and employment to local governments according to a predetermined likelihood of land being developed or redeveloped. Outputs from the model are validated to 2001 ABS Census data. Forecasts from 2006 to 2026 at five year increments include: Estimated resident population; and Estimated age structure. A number of different, alternative future population projections are available. For the purposes of assessing the environmental impacts of the Project, Queensland Government medium population projections were adopted. Population forecasts for the years 2011, 2016 and 2021 were used for traffic forecasting and analysis. In addition, population forecast for 2003 were interpolated from the 2001 estimates and the 2006 forecasts. January 2005 Page 69

80 Figure 6.1 Brisbane Strategic Transport Model Structure January 2005 Page 70

81 Table 6.1 summarises the population forecasts used in this technical paper. The summary shows the forecasts based on the twelve-sector system (shown in Appendix D) that covers the Brisbane SD. Table 6.1 Estimated Resident Populations from 2001 to 2021 by Sector Population Sector Year Annual Growth Rate ( ) ( ) ( ) Inner Brisbane 23,344 34,114 35,991 38, % 1.1% 1.5% North 214, , , , % 0.5% 0.5% South East 212, , , , % 0.8% 0.6% South 260, , , , % 0.6% 0.6% South West 172, , , , % 0.4% 0.4% West 160, , , , % 1.5% 1.8% Redcliffe/Caboolture 201, , , , % 1.4% 1.3% Ipswich/Logan 298, , , , % 1.6% 1.3% North West Pine Rivers 120, , , , % 2.1% 2.0% Airport + ATC Sectors 7,689 10,343 10,362 10, % 0.0% 0.3% Total 1,671,687 1,987,484 2,100,444 2,213, % 1.1% 1.1% Source: Queensland Department of Local Government, Planning, Sport and Recreation The projections indicate that the resident population of the Brisbane SD is set to increase by over 500,000 or 33% above current levels between 2001 and 2021, to result in a population forecast of 2.2 million people. The sectors with the highest forecast growth are Caboolture, Pine Rivers, Ipswich and Logan / Beaudesert West, where land is still available for development. Growth in the middle suburbs (North, South-East and South sectors) is expected to be lower than average over the same period of time. Inner Brisbane is also expected to grow at a higher rate than the overall region, reflecting inner-city densification trends. Employment Table 6.2 summarises employment forecasts used in this analysis. The summary shows the forecasts used in population sector twelve shown in Appendix D that covers the Brisbane SD. January 2005 Page 71

82 Table 6.2 Estimated Employment from 2001 to 2021 by Sector Population Sector Year Annual Growth Rate ( ) ( ) ( ) Inner Brisbane 141, , , , % 1.8% 1.4% North 80,331 92,571 96, , % 0.9% 0.7% South East 71,850 81,987 85,386 88, % 0.8% 0.6% South 121, , , , % 1.2% 0.9% South West 65,806 72,140 74,324 76, % 0.6% 0.7% West 33,119 42,743 48,941 55, % 2.7% 2.4% Redcliffe/Caboolture 50,238 71,478 82,339 93, % 2.9% 2.5% Ipswich/Logan 83, , , , % 2.9% 2.2% North West - Pine Rivers 29,296 42,867 48,466 54, % 2.5% 2.2% Airport 7,846 16,295 20,520 24, % 4.7% 3.8% ATC North 10,674 22,296 28,104 34, % 4.7% 4.2% ATC South 12,610 23,789 29,380 35, % 4.3% 3.7% Total 708, , ,282 1,073, % 1.9% 1.6% The number of jobs in the region is forecast to increase by an additional 365,000 over the period 2001 to Strong job growth at the Brisbane Airport and Australia Trade Coast is expected. The outer metropolitan areas also grow strongly. However in 2021, the largest employment centre remains inner Brisbane, which in 2001 accounted for 20% of total jobs in the region. It is forecast that this percentage would decline, but only to 18% by Special Generators In additional to residential and employment land-use patterns, other traffic generating land-uses are considered in the model. These special generators include hospitals, education campuses and retail centres, Brisbane Airport and South Bank. Growth estimates were separately calculated for each special generator and added to the strategic model travel demand. External Trips Crossings of the outer strategic model boundary area have been represented within the strategic model as travel to and from a series of cordon zones. The cordon zones are shown in Appendix D. The cordon control totals were originally based on 1996 traffic counts. Growth in traffic entering and exiting the study area at the external cordon locations was based on growth rates derived from an analysis of the ABS Census data and population forecasts generated by PIFU. The volume of traffic generated at each external zone was estimated using observed highway traffic volumes at each external zone. This volume was increased, in line with demographic trends external to the strategic model area. January 2005 Page 72

83 6.3.2 Trip Generation The objective of the trip generation step is to relate the amount of trip making to and from travel zones, to measures of the type and intensity of land use within each zone. A trip is defined as travel between two places of activity. A trip generation relationship was estimated and links the number of trips attracted to, or produced by, a zone to the land use characteristics of the zone. Relationships were developed for a number of different trip purposes. These relationships were used to predict the future number of trips. Daily productions and attractions by trip purpose were estimated. The trip generation relationships included all trips, including walk and cycle trips, public transport and vehicle trips. Walk and cycle trips were then separated from the production and attraction trip ends to provide separate estimates of motorised trips (car and public transport) and non-motorised trips (walk and cycle) Trip Distribution The trip distribution step links the zonal trip productions and zonal trip attractions estimated from trip generation models. The aim of trip distribution is to distribute the trips produced in each zone across all attraction zones. Essentially this corresponds to the traveller choosing a destination for their trip. The gravity model is the most common form of trip distribution model and is used in the strategic model to estimate the distribution of trips internal to the strategic model boundary. This model estimates the number of trips between two traffic zones to be directly proportional to the number of productions in the production zone and attractions in the attraction zone, and to be inversely proportional to the cost of travel (in terms of time, distance, and any parking charges and tolls) between the zones. The gravity model adopted is similar to that developed for the Cross-River Strategy Study undertaken by SKM in 2003 for Queensland Transport, DMR and BCC. Daily travel costs between each zone were produced for each trip purpose using costs from each modelled time period (i.e. AM peak period, off peak period and PM peak period) and weighted in accordance with the proportion of travel for each trip purpose occurring in each time period. For trips external to the model area, the distribution was based on observed patterns Mode Choice In the mode choice phase of the model, the aim is to predict how many people travelling between a particular origin and destination, would use each of the available motorised modes (i.e. public transport or car; it should be noted that walk and bicycle trips were considered in the trip generation sub-model described at Section 6.3.2). Mode choice was modelled in the strategic model by applying factors to represent the proportion of trips by private vehicle or public transport between sectors, defined to represent mode choice. For the purposes of this study, it was assumed that current levels of public transport use would be maintained. In this scenario, the January 2005 Page 73

84 proportion of all cross-river trips by private vehicles is 71%, while 29% are public transport trips. Around twothirds of cross-river public transport trips are made to the Inner City Precinct. If trips to the Inner City Precinct are excluded, 15% of cross-river trips are made using public transport Daily Flow Profiles Daily production-attraction trips are generated from time period origin-destination trip tables, by applying trip purpose-specific time period factors to account for the relative trip making in the AM peak period (7am to 9am), PM peak period (4pm to 6pm) and the off-peak period (the remaining hours or 12 noon to 7am, 9am to 4pm, 6pm to 12 midnight). The time period factors used were based on the 1992 South East Queensland household travel survey Vehicle Occupancy Private vehicle trips are finally converted from person trips to vehicle trips by applying a vehicle occupancy factor for each trip purpose. These vehicle occupancies were based on those derived from the 1992 South- East Queensland household travel survey City-Wide Road Network Improvements In order to forecast conditions with and without the tunnel, assumptions needed to be made as to the traffic and transport network at future critical dates. Lists of the locations of future road projects were derived from DMR and BCC anticipated Capital Works Programs. These lists are found in Appendix E Traffic Assignment In the traffic assignment phase, the aim is to determine the route/s chosen between each travel zone in the strategic model network. Traffic assignment for the Project was conducted using an equilibrium assignment technique based on the generalised cost parameters derived for the BSTM model. The strategic model does not model intersection operations in detail, for example, delays due to queues blocking back through junctions are not modelled. The model takes account of link capacity and congestion in route choice, however it does not limit the assigned traffic volume to a road link s capacity and volumes in excess of capacity may be reported. The strategic model assigned volumes therefore represent the total traffic demand during the model time period for each link Toll Choice A sub-model of the assignment step is the toll choice model that aims to split vehicle demand into those using a tolled facility and those using the free alternatives. January 2005 Page 74

85 The forecasts of toll traffic demand for the Project were based on an analysis of the effect of tolling on route choice in the corridor, recognising the payment of the toll as a purchase of a range of road travel benefits, including reduced travel time, improved journey time variability, and a high quality driving environment. The approach adopted for this study, and in several recent studies of tolled road demand, was an approach that deals with toll payments as a consumer choice. The toll choice model assumes that individuals will choose a route by considering the inherent utility they will derive from travelling via each alternative route, and that the probability of selecting any one route depends on an assessment of the relative utilities of each route. For this Project, surveys of individuals in the catchment corridor were undertaken to identify the attributes important to route choice and their relative weights. Both Stated Preference Surveys (to obtain information on likely future choices) and Revealed Preference Surveys (to obtain information about current travel choices using the tolled Gateway Bridge) were undertaken. The preference surveys allowed for the development of toll choice models for a number of different market segments. In application of the model, separate choice models for peak and off-peak travel, were used and these included the following attributes: Travel time (tolled/un-tolled routes) travel time via the tolled route and the un-tolled route specified in minutes; Travel delay time (tolled/un-tolled routes) delay measured by identifying the difference between free-flow time and actual time for each route is used as a proxy for travel time variability, as travel time variability is expected to increase as congestion increases; and Monetary Cost of Tolls tolls defined in 2002 dollars for the tunnel and the Gateway Bridge. In order to confirm the suitability of the model, the results were validated against observed flows on the Gateway Bridge for 2001 peak and off-peak periods Traffic Volumes and Travel Times The main strategic model outputs included predicted traffic volumes and travel time on each link in the strategic model network. To obtain further detail on the performance of the local road network, results for the strategic model network were extracted and used as the basis for detailed local modelling Social, Economic and Environmental Impacts Strategic model outputs included estimates of traffic volumes and travel times on road links. Global network performance statistics like total number of vehicle hours and vehicle kilometres were also produced. This data was used to assess environmental impacts like noise and air quality impacts. This data also provided inputs to calculate the economic performance of the scheme. January 2005 Page 75

86 6.4 Local Area of Study Modelling Detailed Intersection Analysis Intersection analysis was undertaken using the aasidra analysis package. aasidra is designed specifically to look at the operation of intersections. In essence, aasidra takes traffic volumes along with the appropriate intersection control information (signal times, phases and plans) and assesses the resultant queue, delay and operational capacity threshold of the intersection. The aasidra models were used to examine the three intersections that make up the critical approaches to the tunnel system. These intersections are: Lutwyche Road and Northey Street; Wellington Road and Shafston Avenue; and Ipswich Road and O Keefe Street. The performance of other intersections in the Local Area of Study was also assessed, using aasidra. This analysis allows the effects of the tunnel at these intersections, for the two peak periods and forecast years, to be compared. 6.5 Alternative Future Scenarios for Strategic Modelling Proposed Roadworks The major projects relevant to the Project at the time of writing were the Gateway Upgrade Project and the TransApex tunnels. Other upgrade projects included in the strategic Modelling are stated in Section TransApex Tunnels This Project is a key element of TransApex, a $4 billion proposal intended to enhance Brisbane City s road network. TransApex involves the construction of tolled road tunnels, three of which cross the river, to form an inner orbital road network and provide connections to the city s main arterial roads. The other potential components of TransApex are: The Airport Link a 5km, six lane tunnel linking the at the ICB with the East-West Arterial, Hendra and Gympie Road at Kedron; The East/West Distributor a 5.8km, four-lane tunnel (including a river crossing) linking Logan Road and Old Cleveland Road at Stones Corner, the South-East Freeway and Ipswich Road at Woolloongabba, and the Western Freeway at Toowong; The Northern Link a 3.6km, four-lane tunnel connecting the Western Freeway with the Hale Street ICB route; this tunnel would also serve as a link between the East/West Distributor and the NSBT, completing Brisbane s first inner ring road system; and January 2005 Page 76

87 The Hale Street/South Brisbane Connection a four-lane tunnel or bridge linking Hale Street with Merivale and Cordelia Streets at South Brisbane. This link represents a pre-emptive move against an expected growth in traffic in the area caused by the West End Urban Renewal Program. The impacts of these facilities have not been incorporated within the detailed modelling undertaken for this Project. At the time of writing, TransApex planning was at a pre-feasibility stage. Detailed impacts of these schemes would need to be assessed as part of any subsequent feasibility study Gateway Upgrade Project (GUP) The other major road infrastructure project actively being progressed at the time of writing was the proposed duplication of the Gateway Bridge and the upgrade of the Gateway Arterial Road on each side of the Brisbane River. The main objective of the Gateway Upgrade Project (GUP) is to alleviate the pressures on the road network system within the Gateway Corridor, hence providing improved access to the Port of Brisbane and Brisbane Airport, and reducing congestion on alternative roads throughout Brisbane s road network. The proposed upgrade includes: A two lane widening to six lanes of the existing Gateway Motorway between Mt Gravatt- Capalaba Road and Wynnum Road; A four lane widening to eight lanes of the existing Gateway Motorway between Wynnum Road and Lytton Road; A new six-lane bridge downstream of the existing bridge; A new four-lane motorway through the old and new Brisbane Airport site across Airport Drive, Airtrain and Kedron Brook Floodway, to reconnect with the existing Gateway Motorway south of Nudgee Road; and A new interchange for additional access to Brisbane Airport. The GUP improvements are included in the strategic road networks used for this study. January 2005 Page 77

88 7.0 Future Patterns Without the Tunnel 7.1 Introduction This chapter discusses the traffic demands and traffic conditions forecast, on the basis that the proposed is not built. 7.2 Brisbane Metropolitan Area Traffic Volumes Average weekday daily traffic volumes have been forecast for roads in the Brisbane Metropolitan Area for the years 2011, 2016 and 2021 for a road network that does not include the proposed tunnel. Estimated average weekday daily traffic volumes for 2001 have also been included to allow comparison. These volumes are shown in Figure 7.1 to Figure 7.4. Further information on forecast traffic volumes is contained on Table 7.1, which provides average weekday daily traffic volumes on each of the bridges across the Brisbane River. Again, estimates for 2001 have been provided for comparative purposes. From Figure 7.1 to Figure 7.4, it is evident that there is a general increase in traffic across the network (most notably on the Gateway Bridge) over time. Future traffic growth is effected by network capacity. Growth may be low or even negative in very constrained parts of the network. As shown on Table 7.1, the Gateway Bridge flows increase at 3.7% per year ( ) largely due to the inclusion of the duplication upgrade in The increase on the Story Bridge is largely due to a shift in traffic from the Riverside Expressway due to congestion. Traffic volumes on Brisbane River crossings are expected to rise in line with population growth increasing by 1.6% per annum between 2001 and This growth rate will increase the strain on an already congested network and result in: Reduced accessibility, especially during peak periods; Increased use of alternative, less direct routes resulting in increased vehicle and kilometres travelled on the road network; and Adverse environmental effects Network Performance The Level of Service (LOS) for the road network without the tunnel has been examined for roads in the Brisbane Metropolitan Area for the years 2011, 2016 and 2021 for both the AM and PM peak periods. Figure 7.5 to Figure 7.10 detail the LOS for major inner-city roads. It should be noted that the results displayed are averaged over a two-hour time period, and hence the LOS is expected to be worse at peak periods within the two hours. January 2005 Page 78

89 These results are extracted from the strategic model. As described in Section 6.3.8, detailed intersection operations have not been modelled and the resulting LOS outcomes do not include an assessment of detailed intersection performance. These figures do, however, show that there is a general decrease in the LOS across the years, reflecting the increase in traffic volumes and decrease in travel speeds. Most importantly, during the AM peak period, all major roads within the Local Area of Study and the inner-city river crossings are operating at inadequate LOS levels and progressively deteriorating, indicating an increasing capacity deficiency. Similarly, the PM peak period experiences inadequate LOS levels along major roads within the Local Area of Study and inner-city river crossings from January 2005 Page 79

90 Figure Average Weekday Traffic Volume (Without Tunnel) Full page map to replace this page January 2005 Page 80

91 Figure Average Weekday Traffic Volume (Without Tunnel) Full page map to replace this page January 2005 Page 81

92 Figure Average Weekday Traffic Volume (Without Tunnel) Full page map to replace this page January 2005 Page 82

93 Figure Average Weekday Traffic Volume (Without Tunnel) Full page map to replace this page. January 2005 Page 83

94 Table 7.1 Brisbane River Crossings Modelled Average Weekday Traffic Year Inbound Outbound Combined Gateway Bridge 39,000 58,900 67,600 74,700 38,900 57,000 67,100 75,200 77, , , ,900 Story Bridge 55,000 49,500 49,800 53,800 48,600 51,500 51,900 55, , , , ,500 Captain Cook Bridge 71,300 75,300 80,700 83,900 69,600 83,800 85,100 88, , , , ,200 Victoria Bridge 5,500 5,400 7,300 7,600 5,500 8,200 9,100 9,300 11,000 13,600 16,400 16,900 William Jolly Bridge 21,200 22,300 20,000 20,500 19,600 19,000 19,200 20,000 40,800 41,300 39,200 40,500 Total 192, , , , , , , , , , , ,000 January 2005 Page 84

95 Figure AM Level of Service Full page map to replace this page January 2005 Page 85

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101 7.3 Local Area of Study For the major roads within the Local Area of Study, the AM and PM peak period traffic performances have been forecast without the proposed tunnel for the years 2011 and Estimated peak period traffic conditions for 2003 have also been provided to allow comparison. To estimate the performance of intersections within the Local Area of Study, aasidra intersection models were constructed. Turning movements at each intersection, as derived from the strategic model, are inputs to these models. The strategic model does not contain a detailed representation of intersection operations, and some minor roads are not modelled explicitly in the strategic model, hence some adjustments to the strategic model volumes were required to create turning volume estimates that more accurately represented the observed turning movement pattern at each intersection approach. The modelled relativity between each forecast year and modelled scenario were retained during these adjustments. The traffic volumes from the strategic model represent the demand for travel during the peak two hour period. As described in Section 6.3.8, upstream intersection constraints may mean that the strategic model volumes cannot actually arrive at the downstream intersection in the modelled time period Traffic Volume The estimated traffic volumes for the AM and PM peak two hour period are shown on Table 7.2. Table 7.2 AM and PM Peak Two Hour Period Traffic Volumes Road Section AM (Inbound) PM (Outbound) Ipswich Road south of O'Keefe Street 4,300 5,900 5,700 3,700 5,600 5,400 Ipswich Road south of Balaclava Street 3,700 4,800 5,000 4,600 5,200 4,900 Ipswich Road south of Stanley Street 3,900 4,500 4,900 4,100 4,500 4,500 Ipswich Road south of Vulture Street 4,000 4,700 4,700 4,800 4,700 4,400 Main Street south of River Terrace 3,900 4,100 4,100 3,000 2,600 2,600 Gipps Street east of Wickham Street 3,300 3,000 3,500 3,700 3,600 3,600 Bowen Bridge Road between Campbell & O'Connell Sts 5,200 5,200 5,200 5,600 6,100 6,100 Lutwyche Road north of Newmarket Road 4,800 6,100 6,200 3,300 4,100 4,200 Shafston Avenue west of Wellington Road 5,400 5,700 6,100 5,300 4,900 5,000 Newmarket Road west of Lutwyche Road 2,700 3,300 3,800 1,400 2,400 2,700 Wellington Road south of Shafston Avenue 3,500 4,600 4, Latrobe Street south of Shafston Avenue ,500 5,200 5,200 Vulture Street west of Ipswich Road 6,500 7,000 7,200 Stanley Street west of Ipswich Road 6,500 7,400 7,600 January 2005 Page 91

102 Traffic growth is not expected to be constant across the network and may well be low, or even negative, in locations that are already overly congested, due to the limited potential of the road system to accommodate additional traffic volumes. Between 2003 and 2011, traffic volumes in the peak period are forecast to increase by around 2 to 3% per annum. Between 2011 and 2016, this rate of increase slows to around 1% per annum. One consequence of a congested network is peak-spreading, where the AM and PM peak periods get longer to accommodate the extra demand. This latter effect is not modelled; hence reported volumes do not take peak spreading into account Level of Service Table 7.3 shows the key intersections within the Local Area of Study and their forecast LOS without the construction of the proposed tunnel. Two of these intersections are Ipswich Road / Stanley Street and Ipswich Road / Vulture Street. These two intersections cater for peak directional traffic from two axes (one north-south and the other east-west). Congestion at these locations has a ripple effect onto the surrounding road network causing the surrounding intersections to become congested. The intersection LOS data is averaged over the peak two hour period. It should be noted that this is an overall intersection value and that individual turns may vary, both increasing and decreasing about this average. The traffic volumes used in the analysis represent average conditions over the two hour period. During the peak period, delays may be higher than average values. Table 7.3 Level of Service (Intersections) Without Tunnel Intersection AM PM O Keefe Street & Ipswich Road D E D C F F Ipswich Road & Balaclava Street C C F B E D Ipswich Road & Stanley Street C E D B C C Ipswich Road & Vulture Street C C C E F F Shafston Avenue & Latrobe Street A A A B E E Shafston Avenue & Wellington Road D D D F F F Main Street & River Terrace C D D B C C Kemp Place & Ann Street C E F F F F Gipps Street & Wickham Street C C C C D D Bowen Bridge Road & Herston Road C C C C D D Lutwyche Road & Horace Street B B C D E F Lutwyche Road & Newmarket Road F F F C C E Bowen Bridge Road & O Connell Terrace A A A B B B January 2005 Page 92

103 7.4 Bus Network Performance Introduction As reported in Section 4.4, buses have adequate capacity to meet current demand. Given that buses are roadbased, the results of the traffic and transport forecasting for the Local Area of Study also apply to future bus services. This means that without intervention, traffic volumes will increase, average traffic speeds will decrease, journey times will increase, as will variability of journey times. In forecasting future network performance, consideration also needs to be given to changing travel demands and any proposed initiatives to retain or increase modal share on public transport generally, and on buses in particular. While public transport has experienced steady growth in recent years, like many cities in the world, the share of travel by public transport has continued to decline. In recent years, new initiatives such as the SEB have gone partway to reversing this trend. For modelling purposes, current modal share, as reported in Section 3.2.1, has been retained. While the current declining public transport share is recognised, it has been assumed that future initiatives would result in a more widespread acceptance of public transport Impact on Bus Operations Without the tunnel, bus operations are likely to be negatively impacted with the higher volumes of peak traffic and the worsening levels of service. These conditions, as discussed in Section 7.3.2, will result in slower and more unreliable travel times for buses through the study area. The bus network would not be changed, with most of the eastern corridor and Wynnum Road bus routes continuing into the CBD via South Bank and the Victoria Bridge. The four peak express bus routes that use the Story Bridge from the Balmoral and Wynnum Road corridors would be the most seriously affected. Delays on these express services would discourage patronage in the peak period and therefore make it more difficult to achieve a higher mode share for public transport Public Transport Initiatives As well as the assumed improvements to the city-wide road network, referred to in Section 6.3.7, it is assumed that improvements would also be made to the city-wide public transport services and infrastructure. TransLink was established in 2003 with the objective of delivering an integrated public transport network for South-East Queensland. TransLink is part of Queensland Transport and works in partnership with BCC, Brisbane Transport, QR Citytrain and private bus operators. TransLink has a vision to make it easy to travel in South-East Queensland and to significantly grow patronage on buses, trains and ferries. January 2005 Page 93

104 Through consultation with its business partners, TransLink will centrally plan all major routes, service levels and connections to better coordinate services at key locations. This will increase travel choices and ensure buses, trains and ferries work together to offer convenient access to more destinations. TransLink has the following strategic priorities: To make public transport services connect for an integrated network; To ensure public transport services are fast, frequent and reliable for more attractive public transport system; To upgrade the system to the TransLink service standards in areas where services are below the standard; and To make it easy, comfortable and safe. TransLink will introduce initiatives such as: Better coordinated services and timetables; More cross-town services - TransLink will improve cross-town links, such as introducing bus services to the University of Queensland via the new Green Bridge; Restructuring services to improve efficiency to improve service efficiency and reliability; and A network of high-frequency bus routes with fast, frequent and reliable services, supported by bus priority measures to support patronage growth and reduce overcrowding. January 2005 Page 94

105 8.0 Need 8.1 Introduction Brisbane City Council (BCC) recognises that, along with managing travel demand, further investment in the transport system is required to ensure the continued prosperity of Brisbane. A key part of the investment strategy is to continue to work towards a safer and more efficient road network. The proposed is seen by BCC as a key component of the overall strategy to improve the efficiency of Brisbane s road network, consistent with long-term regional and city wide transport planning objectives. The primary objective of the North-South Bypass Project is to ease congestion in the inner-city, including the Central Business District (CBD) and Fortitude Valley area, by providing a high quality alternative for cross-city trips. The objective is set in the context of BCC s ongoing commitment to building a better, liveable city. This objective is consistent with the transport infrastructure principles, strategies and actions contained in the recently released Draft South-East Queensland Regional Plan (Office of Urban management 2004). In this plan, the need for cross-city transport links is identified and current investigations recognised. This section reviews this primary objective and the ability of the North-South Bypass Project to address the primary objective, drawing on the outcomes of preceding chapters and is based on: Expected increases in travel demand as a result of population, employment and land use characteristics; The capacity and performance of the road network, both now and in the future; and A range of traffic and transport initiatives being considered by BCC to address increased travel demands. 8.2 Population, Employment and Land Use In terms of population, employment and land use, the need for the Project is demonstrated in part by the fact that Brisbane is central to Australia s fastest growing metropolitan region. The population forecasts used for the traffic and transport modelling are outlined in Section The source of this information was the Planning Information and Forecasting Unit of the Queensland Government who periodically review, and release, a range of growth forecasts for local governments within the State including Brisbane City. Governments and industry use these forecasts to plan for future facilities, infrastructure and services. In recent years, the population in Brisbane s Statistical Division (Brisbane SD) has grown at an average rate of 1.7% per annum. The medium growth forecast has been adopted for this study. Under this scenario, Brisbane City is expected to increase to 1,050,000 by 2016, while the Brisbane SD is expected to increase to more than two million people over the same time period. January 2005 Page 95

106 As detailed in Section 6.3.1, residential growth is not spread evenly across the metropolitan area. New development is occurring mostly at the fringes of the urban area but also in the inner areas through gentrification of inner suburbs and through residential infill development and redevelopment. As a result, the growth in household trips will be highest in the outer suburbs of Brisbane and in the adjoining, urban parts of the surrounding local governments. Residential growth in the middle suburbs is expected to be lower over the same period of time. Employment related trips are also expected to increase in the Brisbane SD. Brisbane City is expected to remain the major employment centre for South East Queensland with a forecast 365,000 new jobs to be created within the Brisbane SD between 2001 and Most of these new jobs are forecast for locations on the fringe of the Brisbane SD such as Ipswich / Logan, the southern sector of Brisbane and Redcliffe / Caboolture and at a number of specific locations (such as the airport and the old airport site) where major new business developments are proposed. While there will be a trend towards a more decentralised job distribution, the number of jobs in the Inner City Precinct will continue to rise and the Inner City Precinct will remain the largest single employment sector in South-East Queensland. 8.3 Future Travel Demands As discussed in Section 8.2, forecast increases in population and employment within the Brisbane SD are expected across all sectors of the city. However, above average rates of growth are expected around the periphery of the metropolitan area (Ipswich / Logan, the southern sector of Brisbane and Redcliffe / Caboolture) and at special locations (such as the Airport and the Australia Trade Coast Central (ATC)). BCC and the Queensland Government have introduced a range of traffic and transport initiatives to address travel demand. Recent Council initiatives include: Construction and delivery of major projects such as the Inner City Bypass (ICB), Waterworks Road Transit Lane, the Inner Northern Busway (INB), planning for the Green Bridge Link and the delivery of the Coronation Drive Buslane Project; Improvements to public transport services such as service expansion and purchase of new gas buses; and The introduction of policies and systems aimed at kerbing travel demand and improving urban amenity. A major recent state development within the metropolitan area is the South-East Busway (SEB) running from Queen Street Bus Station to Eight Mile Plains. January 2005 Page 96

107 Many of these initiatives by Council and the State government constitute improvements to public transport and have had some level of success in increasing public transport patronage. However, while the number of public transport trips continues to increase, like many cities in the world, the share of travel by public transport continues to decline. In Brisbane, public transport mode share has declined from 11% in 1976 to 8% in 1992, and 6.9% in This decline in public transport share of travel can be partly explained by the pattern of residential and employment growth as discussed at Section 8.2. Brisbane s dispersed population, with above average growth occurring on the urban periphery, and the increasingly decentralised character of employment, mean that there will be an increasing number of trips that cannot be readily accommodated by the existing public transport infrastructure and services. However, as reported in the Transport Plan for Brisbane , there are other clear trends in Brisbane that add to the challenge for public transport providers. These trends include higher car ownership, more and longer trips and increased car dependency. While Brisbane City s population has grown by 1.4% per year, traffic volumes on Council roads have increased by 1.8% per year and by 2.3% per year on State roads. What is evident from our assessment of the existing and forecast travel demands is that addressing future demand will require initiatives that not only improve the attraction of public transport as the preferred mode of travel but also accommodate the increasing use of the road network. This applies particularly to the middle suburb to middle suburb trips referred to in this report. Given the dispersed character of the population of the metropolitan area and the radial character of the road and rail networks (both focussing on the Brisbane CBD), it is perhaps these trips that provide the greatest challenge for public transport providers. The expected level of through trips and the benefits of a road tunnel providing an additional crossing of the Brisbane River, and a means of addressing future demand, were identified in Transport 2007 (Queensland Transport 2001). This plan recognised that any future tunnel or ring-road proposed beyond 2007 would need to provide an effective alternative for traffic that travels unnecessarily through the CBD, thereby reducing congestion on radial roads, trip time and emissions. Proposed ring-roads, tunnels or bypasses would be inconsistent with the Integrated Regional Transport Plan for South East Queensland (Queensland Government 1997) if they mainly catered for peak period car travel, created longer trips and urban sprawl, impacted on residential areas or created congestion in new locations. As stated in Section 3.5.4, a significant percentage of the traffic that uses the Story Bridge is through traffic; that is, traffic that has neither an origin or destination within the Inner City Precinct. If this component of traffic could be removed from the inner-city roads (by rerouting to alternative routes) there is the opportunity to address a range of road network issues associated with the inner-city road network. January 2005 Page 97

108 8.4 Road Network Brisbane s existing road network was based on a pattern of intercity links to other towns and regional centres. The major roads that grew from these early transport links now form a series of radial corridors focused on the CBD and serving a mix of through and local destinations. The result is a network of major roads that are operating at much less than the optimal flow conditions, critical intersections within the network operating at a level close to the limit of unstable flow, and for users of the network reduced average travel speeds and increased journey times. It was noted that not only private vehicles but also commercial vehicles and public transport buses feel the effects of a traffic network operating at less than optimal conditions. When the future base conditions are modelled, deficiencies in the system become much more apparent. Peak period traffic volumes are forecast to increase between 2 to 3% per annum to 2011, on roads in the Local Area of Study. Annual traffic flow increases slow to between 0 to 1% per annum after A reciprocal increase in cross-city journey times occurs during the peak periods. It is therefore anticipated that levels of congestion will increase and become more widespread. Most major intersections throughout the local area of study will experience significant congestions during peak periods. Another characteristic of a congested network is the high variability in transit time. Drivers and especially public transport users value knowing that their trip will take a certain amount of time around a known variation, this is referred to as travel time variability and this variability is related to network congestion. As traffic volumes increase and the road network becomes more congested, stability reduces and flow breakdown occurs resulting in serious queuing and time delays at increasing intervals during the peak period. The intermittent flow breakdown means that travel time variability increases with an impact on uncertainty as to how long a trip will take. As the city grows and the demand for road traffic capacity increases, transport infrastructure issues become increasingly critical. These issues include conflicts caused by the radial character of the road network and the resulting conflicts that occur at major intersections and points of convergence. Recent major road infrastructure projects, such as the Gateway Motorway, ICB and Logan Motorway, have been designed to address deficiencies in the road network. These roads provide links in the inner and outer orbital road networks, as outlined in the Brisbane Transport Plan The Project has been proposed to complete the inner orbital and provide a bypass of the Brisbane CBD between Woolloongabba and Bowen Hills. An important characteristic of the proposed road is that it not only frees up existing north-south corridor roads (by diverting through north-south traffic from existing roads), but also frees up a number of east-west corridor roads (such as the Wickham Street / Ann Street couplet and Breakfast Creek Road) that provide direct access through Fortitude Valley to the Brisbane CBD from the north eastern suburbs, which include the major developments proposed at the airport and old airport sites. January 2005 Page 98

109 8.5 Cross River Strategies As discussed in Section 3.4, the Brisbane River is a significant physical impediment to the development of an integrated and comprehensive traffic network. Determining the optimal number and locations of river crossing has been a recurring issue for planners and administrators in the city. Recent and current cross-river issues include provisions in the Integrated Regional Transport Plan, Transport 2007, Transport Plan for Brisbane , Council s Riverwalk Strategy, the Goodwill Bridge, the proposed Green Bridge and the proposed Gateway Upgrade Project (GUP) (described at Section 6.5.3). There is evidence to suggest that there is currently far less carrying capacity for cross-river road traffic per head of population compared to that which existed ten years ago. This can be seen from Table 8.1 and Figure 8.1 that show the relationship between road traffic lanes crossing the Brisbane River and the population of Brisbane. Table 8.1 Traffic Lanes and Total Daily Cross River Trips Year Traffic Lanes Total Daily Cross-River Trips , , ,000 Figure 8.1 Traffic Lanes and Brisbane Population Source: SKM (2003) Cross River Strategy: Draft Technical Paper January 2005 Page 99

110 This figure illustrates the point that in 1970 there were just 18 traffic lanes across the Brisbane River. By 1986, after the Gateway Bridge was built, there were 34. However, 15 years later the number of lanes decreased when two general traffic lanes on the Victoria Bridge were converted to bus lanes. An important characteristic of the Project is that it substantially increases cross-river capacity and introduces the potential to free up road capacity on the Story Bridge. 8.6 Tunnel Solution Development Council recognises that along with managing travel demand, further investment in the transport network is required to ensure the continued prosperity of Brisbane. A key part of the investment strategy is to continue to work towards a safer and more efficient road network. In 2001, Council commenced investigations into the Strategic Transport Opportunities for Brisbane (STOB) to identify major infrastructure that could be delivered and financed by the private sector and to address deficiencies in the orbital road network. An outcome of the STOB process was the identification of the. Further analysis of the Project was undertaken as part of the development of Council s Transport Plan (2002). This work confirmed the Project s high priority and the Project is now integral to the Transport Plan. Project pre-feasibility studies were undertaken and two expert taskforces established to further consider the engineering and financial feasibility of the Project. Both the Queensland Government and Council have been working beyond the provisions of Transport 2007 and the Brisbane Transport Plan to consider the range of options available for increasing crossriver capacity. After initial investigations a tunnel option was chosen because it provided not only increased cross-river capacity but would also complete the inner orbital by providing a bypass of the Brisbane CBD between Woolloongabba and Bowen Hills through parts of the city with the highest land use densities. For these parts of the city, an at-grade or above ground road system was considered undesirable (given the potential impacts on the character of the Brisbane CBD and Fortitude Valley) and potentially unacceptable to the local and wider Brisbane community. Discussions with the Queensland Government were undertaken and agreement to proceed to detailed feasibility studies and Environmental Impact Assessment stage was achieved. The proposed Project is a key component of the major infrastructure that could be delivered and financed by the private sector to address deficiencies in the orbital road network. The key attraction of this component of the inner orbital network is that it removes unnecessary through traffic from the CBD and Fortitude Valley areas. The Project would relieve CBD peak hour congestion for north-south travel by intercepting traffic from the major radial corridors of the city, freeing up road space for bus, pedestrian and cyclist priority traffic on the Story Bridge and through Fortitude Valley. January 2005 Page 100

111 9.0 Construction Effects 9.1 Proposed Construction Plan Should it be determined that the should proceed, a number of conditions would need to be satisfied, and approvals sought and obtained. Works on roads are subject to a range of approvals. These approvals vary, depending on the agency responsible and the nature of the works. For the, approval of Brisbane City Council (BCC) will be required for roads under council control, while roads such as the Pacific Motorway will require the approval of the Department of Main Roads (DMR). Agencies, in approving roadworks, exercise their responsibility in ensuring the road network maintains acceptable levels of performance and an acceptable environment is maintained for all road users. Approval of Queensland Police is required for all works on roads. Their approval is to ensure works maintain traffic safety and are typically conditional on prior approval of the responsible road agency. To facilitate these approvals, the construction contractor would require appropriate planning and analysis of traffic outcomes. This planning would need to involve quantification of performance outcomes including intersection and lane capacity analysis for peak and off-peak traffic demands. The planning would include the needs of all road users including key stakeholders such as Brisbane Transport and Emergency Services. Impacts that are considered to have an unacceptable outcome would not be permitted. Any approvals given are likely to typically include monitoring and consultation requirements that ensure expected outcomes are achieved and maintained. Typical management strategies to minimise adverse construction effects includes: Limiting working hours for above ground activities; Selecting work sites that allow direct access to the major road network; Stipulating that the workforce be transported by bus from designated parking areas; and Traffic management plans for the staging of works to retain adequate lanes of traffic in each direction to minimise the potential traffic diversions. Construction for the project is currently organised around three work sites. The main site is proposed at the northern portal where the majority of the spoil from the main tunnel would be removed. The two other sites at the central and southern portals would be restricted to tunnel portal associated roadworks. Working hours would be typically restricted to 7am to 6pm Monday to Friday, and 7am to 1pm on Saturdays. Some works are likely to require completion outside of these periods where approval agencies consider impacts are unacceptable. Underground operations would continue on a 24 hour basis, but surface activities are likely to be confined to the above hours. During construction, there would be a range of traffic and transport effects as a result of: Construction traffic; Physical changes to the road and public transport infrastructure; and Disruption to traffic flow through lane closures to allow construction to occur. January 2005 Page 101

112 9.2 Construction Site Traffic Generation Construction traffic would include: Workforce transportation; Haulage of excavated material; Deliveries (materials, machinery, etc); Servicing and repairs to construction equipment; and Site visitors. The construction workforce would average about 200 persons on-site through a construction period of 47 months as summarised in Table 9.1. Table 9.1 Construction Workforce Location Tunnel/Portal Surface Northern Area Central Area Southern Area Project management (various) 20 The main workforce impact would likely occur in the northern area because of the proposal to bus workers, or similar, to other sites. The major traffic flows would occur during shift changes, but the evening shift would involve a smaller workforce only in tunnelling operations. This workforce is expected to generate a parking demand for about 180 cars, allowing for shift changeovers. Options investigated for the removal of spoil were: Road, using various routes to disposal sites; Rail, using the Pinkenba line; and River, using barges. The choice of mode is influenced by the sites for material disposal. A number of potential sites have been identified. These are: Australia Trade Coast Central at the Queensland Brisbane Airport site (at least 1.5 million m 3 ); Gateway Motorway Upgrade Project, Eagle Farm (up to 300,000m 3 ); and Whyte Island or Clunies Flat at Brisbane Port (up to 800,000m 3 ). At this stage, road is considered to be the most likely form of transportation because it offers the greatest flexibility for both work and disposal sites. Rail or barge would involve double handling, although the option of rail has not been ruled out. January 2005 Page 102

113 The number of trips required to haul spoil from the tunnel have been estimated. Trucks are expected to be B- doubles, under permit, or dog and trailer type with a 15m 3 capacity. It has been assumed that the bulk of material would be removed from the northern work site, and comprises disposal material from Tunnel Boring Machines (TBM). The two other sites would only handle material removed by the Roadheader options. It is assumed that trucks would only effectively operate for ten hours per day, losing efficiency in the peak periods. Table 9.2 shows the estimated truck movements for all three work sites. Table 9.2 Estimated Average Truck Generation for Excavated Material Location Estimated Volume Of Spoil (m 3 ) Tunnelling Type Duration of Operations (Months) Rate of Spoil Removal Per Day Number of Truck Loads Per Day Hours of Spoil Removal Hourly Loaded Truck Movements North 1,662,500 Roadheader TBM ,200-1,350 6, Central 385,300 Roadheader 21 1,200-1, South 646,700 Roadheader 30 1,200-1, Truck Routes and Construction Site Access Truck Routes Spoil haulage has the potential to have significant impacts and requires appropriate approvals. The efficient trucking of spoil material would require detailed analysis of available routes and the impact these operations have on other road users and the community. Limitations would be imposed to ensure impacts are contained within acceptable limits. The potential impacts vary depending on the routes chosen and conditions that exist on these routes. Each of the three main work sites are located on major roads, which would provide direct access to major routes for transporting spoil to designated sites. A transport management plan would be required and would need to address the potential effects on general traffic operations and amenity issues (noise, air and disruption) along the routes. Key principles for transporting materials from the sites would include: Restrict haulage operations to outside peak periods, to avoid increasing congestion on inner roads already experiencing congestion problems; Restrict truck movements (times or use of alternative routes) to avoid interference with major events, such as sporting events at the Brisbane Cricket Ground and RNA Exhibition Ground; Investigate capacity of intersections on proposed routes to ensure the potential impact on intersection operations is acceptable; Use routes already used by trucks to reduce the perceived impact of extra trucks; Provide direct access to general traffic routes and minimise truck traffic in local streets; January 2005 Page 103

114 Preferably avoid routes through residential communities (operate during daylight hours only, if no alternative routes are available); and Avoid routes through busy business areas or restrict operating hours to outside normal business period (work after hours). Traffic impacts would vary depending on the time of day and the chosen route. Truck haulage mixed with peak hour traffic would have unacceptable impacts on general traffic as well as be inefficient for haulage trucks. Truck operations during night time on routes that are fronted by residential communities would have unacceptable impacts. However, if frontage land use is industrial, after hours trips may be acceptable. Relevant conditions of approval would include: Truck operations do not adversely impact on peak traffic flow; and Residential amenity is not adversely impacted; operations should not be allowed between 10pm and 6am. Potential haulage routes between the three construction sites and the potential disposal sites (previously referred to in Section 9.2) have been identified and are described below. Northern Site The main haulage routes may be along the Inner City Bypass (ICB), Kingsford Smith Drive and Nudgee Road to the main spoil site at ATC Central and the old Brisbane Airport, although alternative routes are possible if a new crossing of the Pinkenba rail line can be provided. Southern Site The haulage route from the southern portal area may be from the proposed work site in Gibbon Street to Hawthorne Street and Ipswich Road, and then: Pass onto the South-East Freeway via Stanley Street and travel north and east on the ICB to the old airport site via Kingsford Smith Drive, Nudgee Road and Lamington Road; or alternatively Pass onto Wellington Road via Balaclava Road or Vulture Street, thence to the Brisbane Port area via Lytton Road or the old airport site via the Gateway Bridge, Nudgee Road and Lamington Road (or utilise a route to access the Pinkenba rail line as for the Northern site). Trucks removing spoil from the cut and cover south and west of the freeway would access directly onto Ipswich Road near Burke Street. January 2005 Page 104

115 Shafston Avenue Access to the site would be from Shafston Avenue and spoil would be removed from the site and transported to the old airport site via Shafston Avenue. It is assumed that trucks would turn left and outgoing trucks would proceed via Main Street, Vulture Street, Wellington Road, Lytton Road / Wynnum Road and the Gateway Bridge, Nudgee Road and Lamington Road, or the port sites via Lytton Road / Wynnum Road. Incoming trucks would be able to enter directly from Shafston Avenue. An alternative route would be to use the Story Bridge and Breakfast Creek Road, but this is not favoured because of the effect (traffic and amenity) on the Fortitude Valley precinct, which is severely congested already, although the route may be appropriate, during certain hours, when haul direction is opposite to peak flow for general traffic Traffic and Access During Construction Potential access arrangements during construction are described below. Northern Area At the northern portal, access to the ICB for disposal of material to the old airport site would be from the permanent on and off-ramps once constructed; Campbell Street and Horace Street would also provide access points into the main tunnel worksite; Access to the Project offices would be from O Connell Terrace; and Access to the new roadworks associated with the northern connections would be via Horace Street, Lutwyche Road, Earle Street and the Queensland Rail Depot access road. Southern Area Access to the southern portal chamber would be from Hawthorne Street or Stanley Street. Access to the works on the South-East Freeway fill embankment would be between the two existing bridges that cross Ipswich Road. Access to the portal and cut and cover works would be from Ipswich Road. Shafston Avenue Access to Shafston Avenue tunnel work site would be from Shafston Avenue. January 2005 Page 105

116 9.4 Traffic Diversions There would be a range of temporary construction works with the potential to reduce road capacity during the construction phase. These works include: Staging of works to ensure that acceptable traffic flows are maintained, and to minimise disruptions to businesses and residences; Construction of temporary traffic lane diversions to allow construction works to proceed; and Relocation and realignment of lanes, services, footpaths and medians. A Traffic Management Plan should be produced, covering arrangements around each construction site and outlining a strategy to minimise the impacts on existing traffic, including public transport, cyclists and pedestrians. The Plan would include, but not be limited to, the following: Model prevailing traffic conditions, especially nearby arterial roads and surrounding roads, prior to work commencing, and predicting the effect of potential traffic redistribution as a result of proposed temporary traffic arrangements; Measures to manage traffic flows resulting from the changed traffic conditions, including traffic signage, variable message signs (VMS), closed circuit television (CCTV) and changes to the BCC s BLISS traffic control system; Regular monitoring of actual traffic flows, against modelled flows, and reviewing the traffic management plan, as appropriate, to address problem sections of road; Retain at least two lanes in each direction, to minimise disruption to existing roads nearby; Promote alternative routes identified as having sufficient spare capacity to accommodate the extra traffic; and Maintain access to adjoining properties at all times, wherever practicable. There would be traffic diversions at all three locations of the tunnel connection roads as described below: Northern Area The works to Lutwyche Road would be staged to ensure the current number of lanes is available during the construction period. Closure of one lane at a time may be necessary at quiet periods (e.g. night time) for certain works. The new intersection on Lutwyche road and the existing Horace Street would be constructed while maintaining traffic flow from Lutwyche Road to the ICB in both directions. Minor diversion of traffic would be required for bridge widening works over Enoggera Creek. January 2005 Page 106

117 Realignment of southbound lanes westward on Lutwyche Road would be required to perform earthworks, services diversion, footpath and roadway for new southbound lanes. Access to Federation Street, Dobbs Street and Bryden Street would be maintained. During this traffic arrangement, it would also be possible to construct the new northbound entrance to Lutwyche Road and the southbound exit from Lutwyche Road, while maintaining the existing intersection between Lutwyche Road and Horace Street. It is assumed that Earle Street access to Horace Street would be permanently closed at this time; and Once these works are complete, traffic would be moved back to the final alignment on the southbound lanes and the upgrade of the existing Lutwyche Road and Horace Street intersection would be constructed. Southern Area In the Southern area the traffic diversions on Ipswich Road would require: Diverting both inbound and outbound traffic to the east side of Ipswich Road to allow the commencement of work on the southern end of the on ramps; and Diverting inbound and outbound around an island worksite to construct the off-ramp in Ipswich Road at Balaclava Street. Two lanes of traffic both ways along Ipswich Road have been allowed at all times during the construction sequencing, except for several overnight possessions when inbound traffic would be reduced to one lane, for certain works. Construction of the South-East Freeway ramps for the Project would involve: Relocation of a pedestrian footbridge on the west side of Ipswich Road prior to widening the bridge over Ipswich Road; Widening of the existing embankment to commence with the construction of a central barrier on the freeway, between Ipswich Road and Cornwall Streets, once the outside has been widened; Diverting the existing inbound lanes on to these new areas and new lanes constructed either side of the new central barrier; Realigning the inbound lanes on the north side of Ipswich Road to accommodate the new on ramp for the tunnel. Traffic would then be diverted on to this new area as the permanent alignment. This would enable the on-ramp trough and cut and cover to be built in the central reservation without significant disruption to the in bound traffic flow; and Construction of the majority of the South-East Freeway off-ramp to the central reservation. A series of three diversions of the outbound lanes and closure of a lane during nights for certain periods would be required to construct a cut and cover tunnel under the outbound lanes of the South-East Freeway and the SEB. January 2005 Page 107

118 Ramps on the South-East Freeway to the Project would be constructed in stages. Weekend possessions involving diversions of the South-East Freeway and the SEB would be required. Bus traffic on the SEB would need to be diverted along Ipswich Road between Woolloongabba and Buranda busway stations during these weekend possessions. Traffic on the freeway would be restricted to two lanes outbound (at restricted speed) during this work. Shafston Avenue In the Shafston Avenue area, construction of the Shafston Avenue on and off-ramps would involve: Construction of a temporary diversion in the median area between Thorn Street and O Connell Street; Diversion of Shafston Avenue inbound traffic to the median in two lanes while the new inbound carriageway and footpath for Shafston are constructed; Inbound traffic would be returned to final location as two lanes. An overnight possession of the median inbound lane (i.e. one land inbound only) may occur for the construction of the southern abutment of the off-ramp cut and cover structure; Diversion of outbound traffic over to the temporary median carriageway in two lanes while the northern off-ramp structure is constructed; and Diversion of outbound traffic to the final (existing) position. The right turn into Thorn Street may remain open during construction. The regrading of Shafston Avenue outbound before O Connell Street may be performed at any time. This would involve a temporary traffic detour along Main Street, Vulture Street and Wellington Street. However, the regrading and construction of the new intersection at O Connell Street would need to be completed prior to removing the signals at the Castlebar Street intersection. 9.5 Traffic Effects The potential traffic effects of the various work areas are analysed below: Haul Routes Northern Area This work site has the major advantage that the proposed haul route avoids the need for trucks to mix with general traffic on other nearby major traffic routes, such as Lutwyche Road. Construction effects from this area include the following: The ICB, east of Lutwyche Road, has adequate capacity to accommodate the average 44 trucks/hour travelling to and from the spoil disposal site at the Australia Trade Coast Central (ATC) and Gateway Motorway sites; January 2005 Page 108

119 Kingsford Smith Drive operates at near capacity for most of the day and already carries a high number of large heavy vehicles, which comprise about 5% (1,700) of the 35,000 daily traffic. The haul trucks would increase the heavy vehicle component by about 50% (880 trucks, twoway). The intersections are the main capacity constraint along the route, especially at the Nudgee Road / Remora Road intersection with delays as long as five minutes and queues of 1000 metres being experienced in the peak periods. The impact of haul trucks could be reduced by focusing haulage operations to outside peak periods, as discussed in Section 9.1; The extra traffic would compound congestion along the road, so that some regular users such as taxis may divert to alternative routes to avoid the problems. This would need to be carefully monitored and traffic management measures implemented as required; Congestion at the Nudgee Road intersection would increase with the addition of the Portside Wharf Development and Brisbane Cruise Terminal development due to start in 2005, which would exacerbate the existing intersection congestion; It is assumed that trips to the spoil site would turn left into Nudgee Road. This movement turns with several signal phases so the extra trucks should not create unacceptable delays. The return trips turning right from Nudgee Road would increase delays and queuing, as this is one of the more critical movements with no spare capacity (about four trucks would turn during a signal cycle); The intersections in Nudgee Road at Lamington Avenue and Lancaster Road operate as a coordinated signal system, linked to the crossing of the Pinkenba railway line (so that vehicles should not become trapped on the crossing). The train service to Doomben Station operates half hourly in the AM and PM peaks, and hourly off-peak, so interruptions due to rail would be minor for most of the time. Trucks would turn at Lamington Avenue, which is located less than one truck length clear of the crossing. The capacity analysis of this intersection has not been undertaken, but observations indicate that the volume of trucks should be manageable, more so in the off-peak period. The signal linking to the railway crossing boom gate would ensure that trucks would be given a green phase to clear the crossing when a train is approaching; The local effects of the haul routes would generally be confined to the section along Kingsford Smith Drive, Nudgee Road and Lamington Avenue. The first two routes already carry significant volumes of large and heavy vehicles so the community is used to some delay in gaining property access and crossing the road); and As truck volumes increase along the route, localised drivers familiar with the area would divert to other, and less suitable routes, for through trips (such as Lancaster and Crosby Roads and other side roads). Local traffic management schemes have been implemented to help ameliorate previous complaints of inappropriate traffic using local streets. However, the situation would need to be carefully monitored and further traffic measures taken to curb potential conflicts as required. January 2005 Page 109

120 The impact of trucks along Nudgee Road and Lamington Avenue would be avoided if an alternative route between Kingsford Smith Drive and the ATC, and Gateway Motorway Upgrade sites across the Pinkenba railway line, could be provided, such as using Sugar Mill Road, or by constructing a new access road across the Pinkenba railway line to create a direct link. Also, it may be possible to share a construction access route used for the Gateway Upgrade Project (GUP). Southern Area The number of trucks generated from the southern work site would be relatively small (eight to nine vehicles per hour each way). The traffic flows on the routes have capacity to readily absorb the expected increase in trucks during the construction phase. Two possible haul routes have been identified: Lytton Road and Gateway Motorway; and South-East Freeway and ICB. The route choice would depend partly on the disposal site, with either route being acceptable for haulage to the ATC disposal site, but the route via Lytton Road is more suitable for vehicles coming from sites south of the Brisbane River. Trucks would join Ipswich Road, from the on-ramp and off-ramp portals or from Hawthorne Street for the main portal site, depending on the site being worked. The two routes are discussed further below. South-East Freeway and Inner City Bypass Trucks from the main southern work site in Gibbon Street could turn left directly onto Stanley Street. Trucks from the two portals would be able to remain in the left-hand lane along Ipswich Road in order to turn left at Stanley Street, making access easier compared to the alternative haul routes for the area. Trucks would turn at Stanley Street under signal control, and this would assist trucks to move easily to the right hand side of Stanley Street to enter the on-ramp to the South- East Freeway, so no operational issues are expected. The Stanley Street two-lane on-ramp is on a rising grade and involves a merge prior to the freeway proper. This could create delays caused by loaded slow moving trucks, both merging along the on-ramp and entering the freeway. Upon entering the freeway, trucks would need to weave quickly to the second outer lane to avoid the Margaret Street off-ramp trap lane. Then trucks would have to continue to weave to the inner lane to turn right over the overpass at Hale Street and proceed to the ICB. January 2005 Page 110

121 Trucks would experience severe operational problems using the freeway route because of high volumes on the freeway during both peak periods, making it difficult to weave and because of long delays (traffic on the freeway is often at a standstill at peak times). If returning via the ICB and South-East Freeway, a possible alternative route would be via the freeway to Cornwall Street-Juliette Street and Ipswich Road. The mix of large heavy vehicles on the inner-city section of the freeway in the peak period especially, is both an operational and safety concern. Therefore this route would not be favoured. Lytton Road and Gateway Trucks would access Wellington Road via Vulture Street or Balaclava Street, and thence via Lytton Road to the Gateway Motorway. This route is similar to the route for the Shafston Avenue Area, except for the section of the route close to the entry to Wellington Road. If trucks were to access Wellington Road via Vulture Street, then: The distance along Ipswich Road to Vulture Street is considered sufficient for trucks to weave across to the centre lane to turn into Vulture Street. Trucks from the main site would be able to move across the lanes with assistance from the traffic signals at Hawthorne Street (proposed as part of a current BCC program); Delays would be expected at the Vulture Street/Main Street intersection because of the volume of opposing traffic from the north to turn through and flow along Vulture Street; The right turn phase at the signals would assist trucks turning into Vulture Street; and Traffic delays and queues would be experienced along Ipswich Road, on the approach to Stanley Street, especially in the AM peak. Therefore morning peak times should be avoided. If trucks were to access Wellington Road via Balaclava Street, then the following effects would be anticipated: Trucks would be able to cross Ipswich Road or turn right from Ipswich Road into Balaclava Street with the assistance of the existing signalised intersection (which includes a right turn phase from the south). After negotiating Balaclava Street, trucks would then have direct entry to Wellington Road via the traffic signals at the Logan Road intersection. Trucks would pass the East Brisbane State Primary School (between Stanley Street and Vulture Street). Both of these intersections have traffic signals so the trucks would not impact on school children s accessibility. Also, trucks should be on the right hand (east) side of Wellington Road at that stage which would help to minimise their potential impact on the school. January 2005 Page 111

122 Lytton Road and Wynnum Road operate at low levels of service due to the limited mid-block capacity and road alignment (vertical and horizontal) along the route, such as at Galloways Hill. The trucks would travel through neighbourhood shopping centres at East Brisbane and Morningside. Traffic signals are provided at key intersections and shopping centres, so local access and cross traffic movement, including pedestrians, would be retained. Wynnum Road east of Junction Road is a divided road with signalised intersections; therefore no operational issues are expected. Entry and exit ramps at the Gateway Motorway are signalised and no operational problems are expected at this interchange or along the Gateway Motorway. It is desirable that haul trucks to the ATC site exit the Gateway Motorway at the East-West Arterial interchange and then travel south along Nudgee Road, then turn left into Lamington Avenue. This route would avoid the busy intersection at Kingsford Smith Drive and the need to cross the Pinkenba railway line. On the return trip, trucks should turn left into Nudgee Road and travel south to Kingsford Smith Drive and then join the Gateway Motorway via Links Avenue and proceed to Shafston Avenue. This route would avoid the need for haul trucks to undertake right turns at Nudgee Road/ East- West Arterial, and the roundabout interchange at Airport Drive. The local effects of the trucks would mainly occur through the shopping centres at East Brisbane and Morningside. The relatively small increase in truck numbers is not expected to add significantly to the problems of parking and access already being experienced as a result of other trucks travelling to the Brisbane Port and industries in the area. The traffic impact of haul vehicles would be reduced by staggering the excavation works at the Central and Southern portal areas. Haul trips to the Whyte Island and Clunies Flat disposal sites would continue along the Gateway Motorway and Port of Brisbane Motorway. Access to the local disposal site would then be by existing roads already heavily trafficked by large trucks so the extra trucks from this Project would not be considered detrimental. Haul trips to the ATC disposal site would continue across the Gateway Bridge and out to the East-West Arterial and Nudgee Road, or an alternative link across the Pinkenba rail line at Kingsford Smith Drive (refer discussion for Northern Area). The route via Balaclava Street is the preferred route for hauling spoil from the southern area. If returning via Lytton Road, then a possible route would be Latrobe Street, Lisburn Street, Logan Road and O Keefe Street. This route avoids having to pass through the Central work site in Shafston Avenue. The roundabout at the Logan Road/Old Cleveland Road /O Keefe Street Intersection would readily accommodate the right turn into O Keefe Street. January 2005 Page 112

123 Shafston Avenue The number of trucks generated from this work site would be relatively small (eight to nine vehicles per hour each way). This volume is manageable, as the trucks would generally follow established heavy vehicle routes. The trucks would enter Shafston Avenue and mix with general inbound traffic. The slow moving trucks entering and leaving the worksite would create delays and queuing (especially in the AM peak). This would be compounded by the disruption to inbound traffic by the construction works and staging. Therefore morning peak time restrictions on access and egress would need to be imposed. The disruption to traffic may prompt some general traffic to divert to other routes to bypass the work site. For example, more traffic from the south-east is expected to divert to the Stanley/Vulture Streets couplet and Main Street, rather than use Shafston Avenue during construction. Traffic flows along Main Street, Vulture Street and Wellington Road are not expected to create any operational issues, as all key intersections are controlled or have slip turn lanes, and all turns would be left turns. Trucks would then proceed along Wellington Road to Lytton Road, similar to the route for the Southern Area Deliveries Materials would be delivered directly to the three work sites, or directly to the tunnel portal or roadworks area depending on the nature of work and material. However, the bulk of the materials would be delivered to the northern area, as it will service all TBM tunnel work. The source of materials and equipment would vary, so too would the delivery routes. However, deliveries will be confined to major roads in the network, so that similar issues to those described in Section would apply. A number of possible effects resulting from deliveries to the Project are described below. Northern Area Campbell Street and Horace Street would provide access into the northern worksite, via signalised intersections at Lutwyche Road. Right turns into Horace Street are not allowed so routes should be planned, where possible, to be by left turn entry off Lutwyche Road. The right turn signalised facility at Campbell Street is currently in high demand for most of the day, but demand would drop as Campbell Street would be severed by the tunnel works. This drop in general traffic is expected to offset the delivery traffic to the Project. Even so, routes allowing left turns into the site would be preferable. Deliveries should be restricted to outside peak periods. January 2005 Page 113

124 Southern Area All deliveries would occur from Ipswich Road or Stanley Street for Gibbon Street. Deliveries should be restricted to outside the AM peak period. Shafston Avenue Deliveries would occur from Shafston Avenue only by left turn entry and exit, similar to the haul route. Deliveries should be restricted to outside the AM peak period Local Area Effects Temporary traffic arrangements are proposed for the construction phase. These arrangements are designed to minimise the affect on local areas and include: Locating worksites on major roads to avoid the need for constructions traffic to intrude into local streets; Maintaining traffic lane numbers past the work area to minimise diversions to other roads; and Having the main worksite at the north where the bulk of work activities can be controlled within a large worksite, with limited activity in the other two work sites, located in the residential areas. The approach outlined above would help to contain the effects of the construction in the local area. Even so, it is inevitable that affects would occur. These effects are identified below. Parking Parking demand of the construction force is expected to be high because public transport services may not be convenient for shift times; so it would be important to provide adequate on-site parking. Parking restrictions exist on the local streets in the northern area because of the high parking demand from businesses and the Royal Brisbane & Women s Hospital (RB&WH). BCC is responsible for enforcing on-street parking restrictions and, as it would also be the principal for the Project, would have a vested interest in minimising complaints about workers parking in the streets surrounding the site. It is currently proposed that a shuttle bus take workers to the central and southern work sites, so parking should not be a problem in the local streets around these sites. Even so, Council may need to impose temporary parking restrictions in streets near the site (such as Pearson and Baines Streets in the Kangaroo Point precinct, and streets west of the South-East Freeway near Hawthorne Street for the southern area) to discourage visitors and workers parking in the streets. A nominal supply of off-street parking for staff and visitors at the sites would further assist to relieve parking effects. January 2005 Page 114

125 Pedestrians Pedestrian movements along the main roads and past the worksites would be affected by traffic diversions. Movement along the east side of Lutwyche Road would be disrupted by the roadworks. However, with the removal of frontage property there would be little demand to use this side of the road, until the area is redeveloped more so, when the new link to the Project is constructed. Pedestrians would be able to move along the western side of Lutwyche Road with signalised crossings at Newmarket Road, Federation Street and Butterfield Street (and Northey Street until the new intersection is constructed). The west side of Ipswich Road at the southern worksite would be disrupted with the tunnel entry works, so nonessential pedestrian movement would need to occur along the east side of Ipswich Road or Dibley Street. Movement across Ipswich Road would be less convenient and more difficult until the traffic signals removed at Albert Street are replaced with new signals at Reis Street. Movement along Shafston Avenue would be disrupted by the tunnel works. Temporary diversions would include provision for pedestrian movement along Shafston Avenue, and the removal of traffic signals at Castlebar Street and Thorn Street would be staged after new signals are installed at O Connell Street to maintain movement across Shafston Avenue. The internal street system north and south of Shafston Avenue would provide a convenient alternative route to Shafston Avenue. Construction traffic entering and leaving the three construction sites would create a potential safety hazard for pedestrians, particularly when trucks are entering a site (as the exit conditions would be easier to control). The site constraints at the central and southern sites would exacerbate the access problem. One or more traffic controllers (people or audible and flashing alarms) may be required to control pedestrians so that trucks are able to enter and leave the sites relatively unimpeded, and the safety of pedestrians is assured. Traffic Operations Local traffic impacts would be minimal because of the proposed temporary traffic arrangements. However disruptions are expected to occur due to risk of traffic incidents and drivers being distracted by the tunnel works, thereby reducing mid-block capacity. Appropriate road geometry and screening of works would help address these problems. Traffic would also be delayed by trucks entering and leaving worksites. Therefore peak period restrictions on truck movements should be considered, as discussed in Section January 2005 Page 115

126 Construction warning signage (fixed and Variable Message Systems (VMS)), barriers and speed restrictions would help create a lower speed environment and assist with the traffic management through the construction zone. CCTV traffic surveillance cameras in the area would be used to monitor traffic conditions and respond to problems in an appropriate manner. Local Traffic Intrusions Traffic is unlikely to divert into local streets in any significant numbers because there generally are alternative established major routes, which are more likely to be used if delays or safety issues are encountered near the worksites. Also, much of the local street system is contained in pockets making them unattractive for use by through traffic. Other streets, such as Victoria Street, Windsor, and Rawlins and Connor Streets, Kangaroo Point, and Merton Road, Woollongabba, have local area traffic treatments to discourage their use as a result of previous traffic problems. Trucks Queuing The work area would have sufficient space for several trucks to queue on-site while waiting to be loaded. Therefore trucks queuing to enter the site are not expected to be a problem during the day when the loading operations are proceeding. A potential queuing problem could occur at the start of the day when several trucks arrive early and queue to wait for their first load. Most trucks would operate from the northern work site (about 44 trucks per hour for spoil disposal). Campbell Street would have capacity for some trucks to queue, so the queuing could be more of an amenity issue (noise and visual) than a traffic problem, providing the queue does not extend to Lutwyche Road. Potential queue, at the start of a shift, will need to be managed (such as by allocating the first round of trips the day before or staggered starts). The southern and central work sites would involve fewer trucks (eight to nine trucks per hour for spoil disposal) so queuing would be less of a problem. Several trucks would be able to queue in Gibbon Street while waiting to commence operations at the southern site. The central site located on Shafston Avenue has no suitable streets nearby for trucks to queue off-site, especially at the gate to the site. This would require strict control of truck arrival times to ensure trucks enter the site immediately on arrival. The lack of queuing capacity at the Shafston Avenue site also reinforces the requirement to avoid haulage operations in the AM peak. January 2005 Page 116

127 Careful scheduling and enforcing of truck arrival times generally, including deliveries, would help to minimise the potential problem of trucks queuing in streets in the work area precincts. Brisbane Cricket Ground The section of Vulture Street beside the Brisbane Cricket Ground (BCG) would form part of the route for carting disposal from the central work area, and possibly the southern area. Haulage operations could potentially occur concurrently with events (cricket and AFL) at the BCG. Vulture Street is closed at the end of AFL games and other major events to assist crowds to disperse from the ground. In the case of the AFL, this occurs late on Friday evenings, or late afternoon, or at night for weekend events. These times are outside the designated haulage hours so it is not expected these events would generally affect haulage operations or sporting fans. Haulage would occur during crowd arrival times, so the relatively small number of trucks would need to mix with general traffic. Trucks would use the left-hand lanes, so they would be clear of the main pedestrian flows congregating outside the ground. Therefore the effect of haulage operations would be minimal. Even so, it would be desirable to restrict delivery and haulage operations outside the busier periods of crowds arriving and leaving the ground. Alternative routes (such as Baines Street) between Main Street and Wellington Road are available, and have the potential to provide a shorter route than Vulture Street from the central work site. These are residential streets and should not be used as haulage routes. Truck drivers would need to be instructed not to use these streets at any time. Trucks from the Ipswich Road site would use the route via Balaclava Street. Emergency Vehicles Construction activities could impinge to various degrees on the emergency access to the two major hospitals in the area. The retention of two lanes in each direction through the worksite would help minimise any potential delays and need to divert ambulances to other routes. The main problem for access would be from congestion and queues developing through the sites due to the general reduction in road capacity (reduced road space and distraction from construction activity). Construction activity could mainly affect the northern approach to the RB&WH, as it is located to the south of the major works area. The presence of construction traffic accessing the work site along Campbell Street is not expected to adversely affect hospital access at Butterfield Street. Construction activities would mainly affect the northern approach to the Princess Alexandra Hospital (PA Hospital), which is located on Ipswich Road south of O Keefe Street. Construction traffic would form a small component of traffic flows in the area, and would not be expected to create a problem. Logan Road and Annerley Road could be used as alternative routes to the hospital (albeit slightly longer) in the unlikely event that Ipswich Road becomes inoperable. January 2005 Page 117

128 In summary, the additional volumes of traffic on the major road system, resulting from the construction activity, would be relatively small when compared with the existing traffic volumes. Even so, proposed arrangements should be subject to a traffic monitoring program, including a road safety audit, for proposed traffic arrangements. 9.6 Effects on Bus Operations Construction of the Project would affect bus movements (through possible changes to route), bus travel times (with changing traffic conditions) and bus stops that are relocated during the construction phase. Details of permanent changes are set out in Section Further potential effects on bus operations during the construction phase are set out below. Lutwyche Road Corridor Road widening and construction activities along Lutwyche Road have the potential to impact on existing bus services and infrastructure during construction. No regular bus routes use the local streets east of Lutwyche Road in Bowen Hills. Fortitude Valley As Fortitude Valley is well clear of any construction activity associated with the tunnel, any effects on operations would be the result of activities on the approach roads to the CBD and Fortitude Valley, rather than in Fortitude Valley itself. Bradfield Highway As Bradfield Avenue is well clear of any construction activity associated with the tunnel, any effects to operations would be the result of delays on the approach roads to the Bradfield Highway. Shafston Avenue and Wynnum Road As discussed in the preceding sections, Shafston Avenue forms part of the central site and comprises the proposed central portal entry and exit from the tunnel during the construction phase. Lane closures during construction and construction traffic would result in changes to existing bus infrastructure and would result in delays to bus operations during the construction phase. January 2005 Page 118

129 Ipswich Road and Main Street The southern portal to the proposed tunnel would affect Ipswich Road and the South-East Freeway. Lane closure during construction and construction traffic (including spoil trucks) would result in temporary changes to existing bus infrastructure and delays to bus operations during the construction phase. 9.7 Effects on Pedestrians and Cyclists As part of construction traffic/road management, the construction contractor will be required to make specific arrangements for pedestrians and cyclists. These arrangements will require evaluation of demand including liaison with key stakeholders, such as RB&WH, and making arrangements for the safe movement of pedestrian and cyclists through the work site. When necessary this will involve consultation and the construction of temporary facilities, signing and traffic controllers. The existing and planned facilities for pedestrians and cyclists that may be affected during the construction phase and the possible mitigation measures to address any such effects are outlined below. Northern Area The existing pedestrian / cycle facilities in the vicinity of Northey Street and Horace Street intersections, and the road network associated with the northern worksite would be affected by the construction associated with the Project. Possible mitigation measures to be considered include: Terminating the existing facility at Rasey Park Footbridge / Downey Street and connecting with the existing on-road cycle facility along Butterfield Street; Ensure appropriate pedestrian access continues to be provided from the parking area off Northey Street across Enoggera Creek to RB&WH; Utilising O Connell Terrace and Bowen Bridge Road signals for a crossing facility; and Assessing the demand for pedestrians and cyclists from Bowen Hills and Brunswick Street Railway Stations travelling along Campbell Street to RB&WH and ascertaining the need to provide alternative arrangements. Southern Area The shared facility along the South-East Freeway would be affected by the proposed tunnelling worksite. Alternative routes to detour cyclists and pedestrians in advance of the worksite and conveniently connecting them back to the existing facility would be important as this is a key facility for pedestrian and cycling movements. Alternative connections for possible consideration during construction could include the following: A possible option is to use the South-East Freeway, O Keefe Street, Ipswich Road, Burke Street, Elliot Street, Park Road and Annerley Road. To improve the safety of on-road cycling in Burke and Elliot Streets, prohibition of parking on one side of the street should be considered. The shared facilities along both sides of Ipswich Road from Main Street to O Keefe Street would January 2005 Page 119

130 be upgraded as a result of on and off-ramp connections to the tunnel. With construction sequencing, the existing facility on one side of Ipswich Road should only be affected during construction and appropriate crossing facility for pedestrians should be available at all times (traffic controller or signal controlled); and If agreed, this would require the use of on-ramp and off-ramps at Stanley and Cornwall Streets and then using the shoulders and some form of physical separation guiding cyclists along the South-East Freeway through the worksite. Shafston Avenue The central area has a number of land uses (such as the University of New Shafston, South bank Institute of TAFE, Kangaroo Point Campus and Mount Olivet Hospital) that generate pedestrian and cycle movements. Construction activities around the Shafston Avenue portal have the potential to effect existing pedestrian and cycling facilities. Possible mitigation measures could include: The existing off-road pedestrian/cycle facility along Bradfield Highway (at the road level through Dockside to Mowbray Park and along lower River Terrace) appears not to be affected by the proposed tunnelling worksite opposite O Connell Street; The pedestrian footbridge on Main Street, north of River Terrace, should be retained as this would be the safest crossing point with the differences in grade evident in this area; The proposed pedestrian improvements and planned on-road cycle facility along Main Street should be implemented in stages to ensure temporary access at all times along the pathway on both sides of Main Street; The planned facility along River Terrace would be implemented without much impact from the Project, however realignment of the River Terrace / Main Street intersection would have some impact which should again be managed through construction sequencing; The facility across the bridge could possibly be affected during implementation of possible Transit / Bus lanes or shared Transit/Bus and Cycle lanes on Story Bridge; The existing off-road facility could be utilised as an alternative route combined with ferry services during the construction phase. The signals at Thorn Street and Shafston Avenue would be maintained till the latter stages of construction and the crossing would be replaced with a new set of signals at O Connell Street and Shafston Avenue intersection; and An education program could be useful for the users of the pedestrian and cycle facilities in this area advising them of bus stop relocations along Shafston Avenue, crossing at Thorn and O Connell (new signals) during construction and maintaining the north pathway. January 2005 Page 120

131 10.0 Operational Effects 10.1 Introduction This chapter discusses the traffic conditions likely to occur in the future with the tunnel. It describes changes to conditions in the surrounding transport network both for the Brisbane Metropolitan Area and for the Local Area of Study. The traffic models described in Section 6.0 were used to forecast traffic conditions with the tunnel to 2011, 2016 and 2021 for the Brisbane Metropolitan Area model and 2011, 2016 for the Local Area of Study model. These results assume that all traffic improvements outlined in Section 6.3.7, as well as the tunnel and its connections to the Inner City Bypass (ICB), Lutwyche Road, Shafston Avenue, Ipswich Road and the South- East Freeway are constructed. The proposed tunnel and its connections are described in detail in Section 5.0. Key elements include: Two parallel tunnels in which the western tunnel is dedicated to northbound traffic and the eastern to southbound traffic with both being approximately 5.2km long; For northbound traffic, three points of entry to the tunnel are provided, with one point of exit. Access to the tunnel would be gained from the South-East Freeway, Ipswich Road and Shafston Avenue, with all traffic leaving the tunnel in Bowen Hills. Tunnel traffic northbound would be able to gain access to the ICB eastbound (but not westbound) and to Horace Street and Lutwyche Road (both north and southbound); For southbound traffic, one point of entry is provided at Bowen Hills for traffic from the ICB westbound and from Horace Street/Lutwyche Road. The three points of exit are at Shafston Avenue, Ipswich Road and the South-East Freeway; and For the South-East Freeway, Ipswich Road and Shafston Avenue connections, the entry portals would only be accessible from the inbound direction The models were modified to reflect the proposed road network changes. In the Brisbane Metropolitan Area model, the following assumptions have been made about the operation of the alternative surface road network to the tunnel: Story Bridge T3 transit lane in each direction; Arterial cross-central Business District (CBD) route from Story Bridge to Abbotsford Road (Gipps Street St Paul s Terrace) - no reduction in number of lanes, decrease in modelled capacity to account for improved provisions for pedestrians, public transport, and north-south CBD movements, for example: - Ipswich Road between the tunnel portal and Vulture Street no reduction in number of lanes, decrease in modelled capacity to account for improved provisions for pedestrians and buses; - Ipswich Road approach to the tunnel portal increase in modelled capacity of 200 vehicles/hour to 1,400 vehicles/lane. An increase in capacity of 200 vehicles/hour could be January 2005 Page 121

132 achieved by assuming, for example, a 15% increase in the duration of the peak period from 7am to 9am to 6:50am to 9:10am; - Main Street between Vulture Street and Story Bridge two lanes in each direction; - Shafston Avenue no change to the approach road capacity; and - Lutwyche Road - increase in modelled capacity on approaches to tunnel to 1,400 vehicles/lane, similarly to the Ipswich Road approach to tunnel portal Effect on Brisbane Metropolitan Area Demand for the Tunnel The tunnel would add a new inner-city river crossing to the road network and change patterns of traffic on the roads approaching the tunnel, on the existing river crossings and in the Local Area of Study. The Brisbane Metropolitan Area model has been used to predict the likely catchment for trips using the tunnel. This catchment is illustrated on Figure 10.1, which shows the location of trip origins or productions forecast to use the tunnel in the AM peak period. As can be seen from this figure, most trips are from locations outside the inner-city and from middle-ring northern and southern suburbs. Figure 10.2 is a desire line diagram of tunnel traffic showing the distribution of trip origins and destinations and the relative importance of each movement. The major demand for the scheme is for cross-river travel between the middle-ring suburbs. This figure illustrates that the predicted demand for the tunnel is consistent with the inner-city ring road function of the tunnel; it does not cater for travel to or from the Inner City Precinct, but rather for traffic bypassing this precinct Traffic Volume Effect on Brisbane Metropolitan Area Changes in cross-river traffic volumes are shown in Table The main impact of the tunnel is to reduce traffic on the Story Bridge, Captain Cook Bridge and the Gateway Bridge, as well as the approach roads to these bridges. The Captain Cook Bridge would experience a small decrease in inbound traffic, extending south to the tunnel portal (situated on the South-East Freeway) and north along Riverside Expressway and the ICB. Changes in traffic volumes at selected locations on the approach roads to the tunnel and along the main alternative route to the tunnel are shown in Table Traffic volumes on the approach roads to the tunnel would increase after its opening. The main alternative routes to the tunnel would experience a decrease in traffic, as traffic switches to the tunnel. The Story Bridge experiences a decrease in traffic in both directions. Main Street/Ipswich Road and Bowen Bridge Road/Brunswick Street/Gipps Street all experience a significant decrease in traffic, after the tunnel portal. Other roads within the portals also experience a reduction in traffic. The removal of through traffic allows traffic to redistribute and take advantage of the reduced congestion. This pattern of traffic changes is consistent with the shift of trips, which can bypass the Inner City Precinct. As previously described in Section 3.5.4, approximately 40% of trips on the inner-city river crossings are through trips, without either an origin or destination in the Inner City Precinct, and these trips are potential tunnel users. January 2005 Page 122

133 The change in traffic patterns due to the tunnel creates opportunities to optimise the road network to suit the new traffic patterns. Without the tunnel, the trips through the CBD and Inner City Precinct would be optimised to balance cross-town movements with trips to the CBD and Inner City Precinct, inner city traffic circulation, public transport priority and pedestrians. The tunnel provides opportunities to change this emphasis. Examples of the types of improvements to surface streets that could be implemented with the tunnel include improved provisions for pedestrian crossings, improved provisions for turning traffic to assist local access as well as bus priority measures. These improvements provide opportunities to benefit all road users. The tunnel approach corridors like Lutwyche Road, Ipswich Road, and the South East Freeway are long term growth corridors that will experience increased demand with and without the tunnel. Daily capacity of these corridors will increase through an expansion of the peak period which is referred as peak spreading. These corridors have also always been recognised as critical network capacity corridors. Typically plans exist for enhancement through development controls and building setbacks, concept planning layouts for increased traffic lanes, or traffic management measures such as turn bans and signal phasing priority measures. On the South East Freeway there are ramp metering controls and plans for additional transit lanes. Initiatives such as TransApex also aim to provide relief to these corridors. The timing, type and desirability for measures to improve the capacity of these will be considered by BCC and DMR in their normal responsibility for managing the road network. Table 10.1 Volumes Crossing Brisbane River in 2016 Comparison With and Without the Project Location Average Weekday Traffic Without Tunnel With Tunnel Difference % Difference Northbound Gateway Bridge 67,600 60,500-7,100-11% - 37, Story Bridge 49,800 31,700-18,100-36% Captain Cook Bridge 80,700 79,200-1,500-2% Victoria Bridge 7,300 7, % William Jolly Bridge 20,000 18,300-1,700-9% Walter Taylor Bridge 15,100 14, % Total 240, ,500 9,000 4% Southbound Gateway Bridge 67,100 60,700-6,400-10% - 36, Story Bridge 51,900 30,700-21,200-41% Captain Cook Bridge 85,100 87,600 2,500 3% Victoria Bridge 9,100 8, % William Jolly Bridge 19,200 18, % Walter Taylor Bridge 15,000 14, % Total 247, ,100 9,700 4% January 2005 Page 123

134 Table 10.2 Volumes on Surface Streets in 2016 Comparison With and Without the Project Average Weekday Traffic Road Location Without With Difference % Difference Tunnel Tunnel Lutwyche Road North of Newmarket Street 79,600 89,900 10,300 13% Lutwyche Road South of Northey/Horace Street 94,800 59,800-35,000-37% Gipps Street North of Wickham Terrace 39,500 20,900-18,600-47% Ann Street West of Brunswick Street 26,900 21,100-5,800-22% River Terrace West of Main Street 24,000 8,100-15,900-66% Shafston Avenue West of Wellington Road 47,900 60,400 12,500 26% Wellington Road South of Shafston Avenue 23,100 30,500 7,400 32% Ipswich Road South of Stanley Street 41,600 18,100-23,500-56% Ipswich Road South of O Keefe Street 50,600 63,100 12,500 25% O Keefe Street East of Ipswich Road 15,900 20,900 5,000 31% South East Freeway South of Tunnel 144, ,500 11,000 8% South East Freeway North of Tunnel 144, ,100 9,400-7% January 2005 Page 124

135 Figure Catchment Full page map to replace this page January 2005 Page 125

136 Figure 10.2 Origin and Destinations of Demand for the Proposed Tunnel (Desire Line) Full page map to replace this page. January 2005 Page 126

137 10.3 Toll Implications The implementation of a toll on the tunnel discourages its use by potential users who do not perceive that the travel time savings and other benefits provided by the tunnel would equal or exceed the cost of the toll. The extent of toll avoidance is directly related to the cost and attractiveness of alternate routes. Figure 10.3 illustrates the effects of a $3.30 toll compared to a no-toll scenario. This toll amount is in 2002 dollars and includes the Goods and Services Tax (GST). Future year tolls were indexed with the expected Consumer Price Index increase for the forecast year. Figure 10.3 Effects of Proposed $3.30 Toll on Tunnel Traffic Compared to No Toll for , , , ,000 Two-way capacity at 95,000 vehicles per day 90,000 80,000 AWDT 70,000 60,000 50,000 One-way capacity at 47,500 vehicles per day No Toll $3.30 Toll 40,000 30,000 20,000 10,000 - Northbound Southbound Two-way Direction The effect of the no toll scenario is not only to increase the traffic volumes using the tunnel and approach roads, but to decrease the average travel speeds within the tunnel when compared to the $3.30 toll scenario Local Area of Study Network Performance The performance of the Local Area of Study network is described in detail in subsequent sections covering levels of service, traffic volumes and journey times. The network performance results are influenced by the changed traffic distribution with and without the tunnel in the road network, the associated improvements to the surface roads with the tunnel, and the effect of converting one of three inbound lanes on the Story Bridge to a January 2005 Page 127

138 T3 transit lane. As discussed in Section , changed traffic patterns with the tunnel create opportunities to reconfigure and optimise surface street operations to benefit all road users. Further work of the Project will develop these opportunities in more detail Traffic Volume Effect Traffic volume changes for the forecast year of 2016 have been produced in Table 10.3 below. The year 2016 represents the ultimate robust forecast year for the Local Area of Study. These figures therefore show the maximum impact of the tunnel on the existing road network. This table itemises the impacts on the local road network in terms of traffic volumes for the AM peak period (inbound direction) and PM peak period (outbound direction). The traffic volumes are extracted from the strategic model. As described in Section 7.3, strategic model volumes represent average two hour volumes and do not take account of detailed intersection operations. The results provide comparative indication of the performance of key intersections with and without the tunnel. Table Traffic Volume Effect AM (Inbound) PM (Outbound) Road Section (Location) Peak Direction Flow Volume Without Tunnel Vehicles per 2 Hours Volume With Tunnel Vehicles per 2 Hours Volume Without Tunnel Vehicles per 2 Hours Volume With Tunnel Vehicles per 2 Hours Ipswich Road south of O'Keefe Street 5,700 7,500 5,400 6,700 Ipswich Road south of Balaclava Street 5,000 3,200 4,900 2,900 Ipswich Road south of Stanley Street 4,900 2,600 4,500 1,900 Ipswich Road south of Vulture Street 4,700 2,500 4,400 2,200 Main Street south of River Terrace 4,100 1,700 2,600 1,100 Gipps Street east of Wickham Street 3,500 2,000 3,600 1,600 Bowen Bridge Road between Campbell and 5,200 5,100 6,100 6,400 O Connell Streets Lutwyche Road north of Newmarket Road 6,200 6,100 4,200 5,200 Shafston Avenue west of Wellington Road 6,100 7,300 5,000 5,800 Newmarket Street west of Lutwyche Road 3,800 5,100 2,700 3,500 Wellington Road south of Shafston Avenue 4,400 5, Latrobe Street south of Shafston Avenue - - 5,200 5,500 Vulture Street west of Ipswich Road - - 7,200 8,200 Stanley Street west of Ipswich Road 7,600 8, January 2005 Page 128

139 The table shows traffic volume reductions for Ipswich Road north of the portal, Main Street and Gipps Street. This volume reduction has a beneficial effect on traffic flow for the intersections at the northern end of the Story Bridge and provides the opportunity to assist the major east-west movements in Wickham and Ann Streets. Reduced north-south flows through Gipps Street would allow for greater green time being given to the eastwest flow. Other locations where this adjustment of signal time allocation may be appropriate include locations on Vulture and Stanley Streets, as they bisect Ipswich Road, and the intersections on Brunswick Street at St Paul s Terrace, Gregory Terrace and Herston Road. It is not within the scope or range of this paper to detail the exact operational details of the signalised intersections within the tunnel corridor Level of Service Analysis The LOS has been calculated for key intersections within the Local Area of Study model in 2016 with the tunnel. The results presented in Table 10.4 compare LOS operation for existing year and future year 2016 with and without the tunnel. Table Level of Service (Intersection) AM PM 2003 LOS 2016 LOS 2016 Intersection Location Existing Without With Tunnel Tunnel 2003 LOS 2016 LOS 2016 Existing Without With Tunnel Tunnel O'Keefe Street & Ipswich Road D D F C F D Ipswich Road & Balaclava Street C F C B D C Ipswich Road & Stanley Street C D D B C B Ipswich Road & Vulture Street C C C E F C Shafston Avenue & Latrobe Street A A B B E F Shafston Avenue & Wellington Road D D F F F F Main Street & River Terrace C D B B C B Kemp Place & Ann Street C F C F F C Gipps Street & Wickham Street C C C C D C Bowen Bridge Road & Herston Road C C C C D D Lutwyche Road & Horace Street B C C D F F Lutwyche Road & Newmarket Road F F F C E F Bowen Bridge Road and O Connell Terrace A A B B B B The table shows traffic volumes increasing on the approaches to the tunnel portals on Ipswich Road, Shafston Avenue and Lutwyche Road. Downstream of the portals, traffic volumes reduce along Main Street and Gipps Street, for example. January 2005 Page 129

140 The performance of intersections on the approaches to the tunnel deteriorates with the tunnel, as traffic volumes increase. Intersection performance improves on surface streets where traffic volumes reduce with the tunnel. Table 10.5 shows the results of the intersection analysis completed using aasidra for the three portal locations. These detailed results are presented for 2003, 2011 and 2016, with and without the tunnel. It should be noted that the nearest intersections downstream of the portals (with the tunnel) for outbound trips are: 660m to Lutwyche Road / Northey Street intersection (northern); 440m to Shaftston Avenue / Wellington Road (central); and 800m to Ipswich Road / O Keefe Street (southern). LOS and Degree of Saturation (DOS) have been used as the measures of overall effectiveness for the intersection, while also producing queue and DOS results for the tunnel leg of the intersection. The length of queue is the critical measure for the tunnel leg to ensure that vehicles do not queue back to the portal and into the tunnel. These measures can be defined as: Degree of saturation: the ratio of the flow to the capacity of the movement; Delay: the value stated in the table is the control delay. This includes the geometric delay and the deceleration and acceleration delays for the major stop experienced by the vehicle; and Queue: the maximum queue length relative to the stop line below which 95% of all queue lengths fall. January 2005 Page 130

141 Table 10.5 Key Intersection Performance AM PM Base Without With Without With Base Without With Without With Tunnel Tunnel Tunnel Tunnel Tunnel Tunnel Tunnel Tunnel Lutwyche Road / Queue Northey Street Degree of Saturation * (base/without tunnel Degree of Saturation Horace Street) LOS B B C D C F F F F F Shafston Avenue / Wellington Road Ipswich Road / O Keefe Street Queue Degree of Saturation * Degree of Saturation LOS D D F D F F F F F F Queue Degree of Saturation * Degree of Saturation LOS E F F E F C F F F E Notes: Queue = Queue from the tunnel approach Degree of Saturation* = DOS from the tunnel approach Degree of Saturation = DOS for the intersection January 2005 Page 131

142 This detailed analysis shows that whilst the intersections at the tunnel portals are required to accommodate increased traffic demands with the tunnel, the queue back to the tunnel portal can be accommodated. The performance of the intersections is poor in 2003 as well as future years without the tunnel. The volumes used in this analysis are demand volumes from the strategic traffic model and as explained in Section 6.3.8, may exceed the capacity of the road link. Upstream constraints on the approach corridors of Lutwyche Road, Ipswich Road and Lytton Road will limit the traffic volumes and whilst growth in excess of capacity is modelled, in reality, mechanisms like for example peak spreading will occur. This will result in forecast peak volumes being accommodated by an increase in the duration of the peak period. Regardless of whether the tunnel is constructed, a satisfactory level of service could only be achieved at these locations with further intersection upgrading which may include provision of additional lanes or turn bans, for example to achieve greater traffic capacity. The change in traffic patterns due to the tunnel creates opportunities to optimise the road network to suit the new traffic patterns. Without the tunnel, the trips through the CBD and Inner City Precinct would be optimised to balance cross-town movements with trips to the CBD and Inner City Precinct, inner city traffic circulation, public transport priority and pedestrians. The tunnel provides opportunities to change this emphasis. Examples of the types of improvements to surface streets that could be implemented with the tunnel include improved provisions for pedestrian crossings, improved provisions for turning traffic to assist local access as well as bus priority measures. These improvements provide opportunities to benefit all road users Journey Time Table 10.6 further demonstrates the travel benefits to road users under the provision of the proposed tunnel. The figure shows the travel time savings to traffic using the tunnel are around 10 to 15 minutes in the peak period. Travel times for traffic using the surface street system are similar with the tunnel in place, to the without tunnel case. The timing points referred to in Table 10.6 are shown in Figure Table 10.6 Journey Times With and Without the Tunnel 2011 & 2016 Without Tunnel With Tunnel In Tunnel With Tunnel On Surface (min) (km/h) (min) (km/h) (min) (km/h) 2011 Southbound (T1 T8) Northbound (T8 T1) 2016 Southbound (T1 T8) Northbound (T8 T1) Newmarket Road to Cornwall Street Cornwall Street to Newmarket Road Newmarket Road to Cornwall Street Cornwall Street to Newmarket Road January 2005 Page 132

143 Figure 10.4 Timing Points Full page map to replace this page. January 2005 Page 133

144 A feature of a congested network and route journey times is related to the certainty of undertaking a trip within a given known time envelope. Drivers and public transport users strongly value knowing that their trip will take a certain amount of time, with only minor variations. This is referred to as travel time variability. As traffic volumes increase and the road network becomes more congested, stability reduces and flow breakdown occurs, resulting in serious queuing and time delays at increasing intervals during the peak period. The intermittent flow breakdown means that travel time variability increases, with an impact on uncertainty as to how long a network trip will take. Therefore the inverse of this, and the ideal for both public transport usage and general network operation, is to have a stable road network that produces limited journey time variability Local Access Effects The main traffic impacts would generally be confined to the tunnel portal areas and immediate approaches, but impacts would extend for the entire route due to changes in traffic flows as a result of the tunnel. The key impacts are expected to occur in the following areas: Northern Area - Northey Street precinct (including Victoria Street) - Lutwyche Road north of Enoggera Creek to Newmarket Road - Precinct east of Lutwyche Road - Campbell Street O Connell Terrace precinct Herston Fortitude Valley - North-South surface streets along tunnel corridor Kangaroo Point - Area north of Shafston Avenue Southern Area - River Terrace and Main Street - Ipswich Road (Stanley Street Redfern Street) - Ipswich Road (Redfern Street O Keefe Street) - Park Road precinct - Reis Street precinct - Princess Alexandra Hospital (PA Hospital) staff facilities Northey Street Precinct The changes introduced by the Project will mean that traffic flows along Northey Street and Green Terrace will not be able to access the NSBT or ICB via that route. Other non-nsbt/icb traffic that attempts to use the route by bypassing the intersection at Lutwyche Road and Newmarket Road would be managed by controlling the traffic signal settings at the Newmarket Road/Green Terrace and Lutwyche Road/Northey Street intersections. The road function would not change and it is not expected that additional traffic management measures would be required. January 2005 Page 134

145 Victoria Street serves as an access road for properties fronting Lutwyche Road because of the difficult access from Lutwyche Road (between Newmarket Road and Northey Street), due to the high volumes of traffic. Thresholds and speed control devices (humps) have been installed along Victoria Street to help control speeds to 40km/h. The extra traffic expected as a result of this project would impact on residential properties along Victoria Street, so the expected volume of the new traffic resulting from any redevelopment of the area to the east would need to be controlled in order to reduce the impact on access to other properties. The potential effect of this project could be additional traffic intruding into the side streets (Walker, Taylor, Nicholas and Cullen Streets) to bypass perceived busier intersections. Treating the thresholds of these streets at their intersections with Victoria Street, and Swann Terrace at Northey Street and Newmarket Road, would help to reduce this problem Lutwyche Road Access to properties fronting Lutwyche Road between Newmarket Road and Enoggera Creek are already restricted by high traffic flows and the situation is not expected to be significantly worsened by the Project. The additional traffic lanes to be provided should accommodate the additional traffic. Many of the existing properties have established access from the streets behind Lutwyche Road such as Victoria Street and Earle Street. This aspect of development should be encouraged. Dedicated deceleration lanes could be provided as a special condition of development for certain land uses (such as fast food outlets) dependent on having direct access to/from Lutwyche Road. Even then, it would be preferable to restrict access to left turn entry only and have all egress occur via other streets. One particular site where access changes would be significant is the Boral Concrete Plant in Horace Street. The plant currently obtains access via Campbell Street and Horace Street with left turn entry/exit to the site. Sites adjacent to the concrete plant are similarly affected, but are expected to be redeveloped in the near future, possibly involving consolidation or shared access with the concrete plant. The access from Lutwyche Road, which previously occurred via Campbell Street, would be improved by providing a right turn lane in Horace Street, thereby providing a more direct entry point from Lutwyche Road. However, exiting vehicles would only be allowed to turn left at Lutwyche Road (towards the CBD) so northbound trips will become less direct, and permitted only at the eastern boundary of the site Precinct East of Lutwyche Road The impact on access to this area would be minimal. The all-movement signalised intersection at Federation Street and Lutwyche Road would be retained, as is the left turn entry and egress to Bryden Street. A new local road connection between Bryden Street and Gallway Street would improve access to this pocket, as right turn entry/exit is not possible at present, due to traffic volumes and safety concerns. This connection is not directly related to the Project. January 2005 Page 135

146 The existing left turn slip lane from Horace Street to Earle Street will be removed. This entry point to the southern end of Earle Street is convenient for the service industry in Earle Street, but entry from Federation Street provides a convenient alternative access, so the loss will have low impact Campbell Street O Connell Street Precinct Campbell Street would be severed by the Project and traffic will need to be redirected to O Connell Terrace. A new connection linking Campbell Street to O Connell Terrace is proposed west of the tunnel portal. These new arrangements will result in changes to the existing traffic patterns. Intersections such as Brooke Street / O Connell Terrace and Hamilton Place / Campbell Street are likely to require some reconfiguration to accommodate the change. The impacts for properties such as the Mews Apartments, Courier-Mail complex and local businesses would be minor because the remaining local road network, with links to Lutwyche Road and Mayne Road, would be retained. The main exception would be the impact on the access to the Queensland Rail Mayne Rail Complex. The access is currently located under the ICB, on the link road between Campbell Street and Horace Street. The entrance allows all turning movements and provides direct and convenient access. The alternative access road proposed with direct entry from O Connell Terrace via a new link road would be less convenient for ICB and northern trips, but other trips would be readily accommodated, so that overall, the impact would be minor. The removal of direct access from Campbell Street to the ICB westbound will have an impact on local access. Traffic will need to redirect to Bowen Bridge Road and Lutwyche Road, or Abbotsford Road / Thompson Road interchange Herston Fortitude Valley Traffic flows along the surface roads between the tunnel portals would be less, thereby reducing congestion on key roads such as Bowen Bridge Road, Brunswick Street and Gipps Street. This would make access to frontage development and crossroads easier, although the remaining volumes would still be significant so benefits would be limited. Benefits are more likely to flow from urban renewal opportunities being planned for the area Kangaroo Point The main impact on local access would occur on the north side of Shafston Avenue as a result of the existing traffic signals at Castlebar Street (right turn exit) and Thorn Street (right turn entry) intersections being replaced with a single signalised all-movements intersection at O Connell Street. The existing link road between Thorn Street and Castlebar Street would be made two-way to allow access to the traffic signals at O Connell Street. January 2005 Page 136

147 This change would require residents to rearrange their route for accessing the area, but the impact would be minimal. The main group to be disadvantaged would be students and staff attending the University of New England (Shafston Campus) located in Castlebar Street, as the signalised intersection and pedestrian crossing of Shafston Avenue would be a further 250 metres from the campus, a similar distance to the signals at the Wellington Road / Shafston Avenue intersection. Access for the area on the southern side of Shafston Avenue would not be affected, apart from changes to the location for pedestrians to cross Shafston Avenue. Increased traffic flow would make the existing direct access to properties fronting Shafston Avenue even more difficult, but property owners are accustomed to the inconvenience of entering into busy streams of traffic. Any redevelopment of frontage properties that increases traffic will require careful consideration Main Street and River Terrace Local access would be improved because of the reduced traffic flows along these roads, as a result of the Project and associated works designed to divert through traffic from River Terrace and downgrade its function within the road system. No specific project-related measures are planned for River Terrace at Vulture Street and Main Street, designed to divert traffic, as these measures would need to be the output of a local traffic management plan. As well, the Project creates opportunities to revise the traffic signed timings at intersections along Main Street to improve local access for vehicles and pedestrians. Furthermore, the reduction in traffic may allow kerbside parking and easier access to and from frontage properties Ipswich Road (Stanley Street to Balaclava Street) The reduced traffic flows along this section of road would allow local access improvements to be introduced. This could take the form of: Increasing the amount of kerbside parking for businesses; and Allocating greater green time for side roads at signalised intersections for both vehicles and pedestrians. It is noted that new traffic signals are planned to be installed at Hawthorne Street as an unrelated project. The proposed upgrade of the Balaclava Street / Ipswich Road intersection with a new connection to Wilton Street will simplify traffic movement in the area and improve general access Ipswich Road (Balaclava Street to South of O Keefe Street) This section of road would be impacted by the entry and exit ramps to the tunnel, which would create a barrier to crossing Ipswich Road and accessing frontage properties. The traffic signals at Albert Street would be relocated to Burke Street and Reis Street. This intersection would provide access to the areas to the east and west as discussed in the following sections. January 2005 Page 137

148 Properties on the west side of Ipswich Road would be affected by the tunnel works, and following their redevelopment, access would need to be from Dibley Street. The reduced road width for southbound traffic past the tunnel entry ramp would make it more difficult for vehicles to access frontage properties on the east side. Some frontage properties gain access from a side road and this should be the strategy if and when other properties redevelop. Similar situations arise adjacent to the exit ramp south of Balaclava Street. In this configuration, right hand turns into and out of the side streets will be prohibited. This is likely to increase traffic in Qualtrough Street and Broadway Street as northbound traffic would seek to utilise Logan Road as an alternative route. The traffic increase is not expected to be large, however traffic from significant generators such as the Norman Hotel could be significant. If further development in the area were to occur, traffic could increase further. A possible new link parallel to Ipswich Road joining Qualtrough Street and Broadway Street to Balaclava Street would limit any traffic increase and significantly improve access in this area. This opinion should be considered in future planning of the area if redevelopment is expected to increase traffic generation Park Road Precinct Local access to Park Road would be less direct by relocating the signals to Burke Street. Use of the road as a connector between Annerley Road and Ipswich Road is unlikely to change. The layout of the tunnel exit ramp and signalisation of the Ipswich Road / Burke Street intersection would allow for southbound users of the tunnel to turn right into Burke Street. This is likely to increase traffic in Park Road, which may require local traffic control measures if additional traffic is high or speed is excessive. Traffic movements in the opposite direction from Park Road to the tunnel northbound are not possible Reis Street Precinct This area does not currently have traffic signal access to Ipswich Road. Access for right turns into and from the area would therefore be improved with the proposed signals at Reis Street. A new road linking Reis Street and Harrogate Street and possibly Morrisey Street has been suggested, as a way to improve access. Other intersections along Ipswich Road would remain open and operate on a left turn in and out basis. This would have the benefit of retaining existing access arrangements. Pedestrian access would be similar to existing, except that the signalised crossing would be moved slightly north, and bus stops relocated to suit the new signals. January 2005 Page 138

149 Princess Alexandra Hospital Staff Facilities Access to the PA Hospital facilities complex (including a staff car park) opposite O Keefe Street would not be affected. The tunnel ramps are located inbound of O Keefe Street. The exit ramp is located a sufficient distance from the intersection to enable tunnel and general traffic to merge prior to O Keefe Street and turn right into the facility at the signals. Also, the location of the tunnel ramps would enable the Project to be used for movement between the PA Hospital and RB&WH Emergency Services Access arrangements to the RB&WH and PA Hospital, and Kemp Place Fire Station would not be affected by the Project. In fact, the reduced flows past the RB&WH and fire station would marginally improve access, while access to the PA Hospital would be marginally worse. The Project would be available for trips between RB&WH and PA Hospital, which would be a significant benefit in emergency situations. The Queensland Ambulance Service station in Dibley Street, Woolloongabba, is to relocate prior to the expected date of construction. Once relocated, the service would not be affected by the Project Bus Travel Effects Bus Network The Project would create impacts on bus movements through possible changes to routes, bus travel times with changing traffic conditions, and bus stops that are relocated during the construction stages and after the tunnel is opened. Lutwyche Road Corridor With the Project, traffic volumes on Lutwyche Road would increase by about 5,000 vehicles per day from traffic going to and from the Project portal in the Campbell Street area. This would have a small effect on the level of traffic congestion on Lutwyche Road and the local streets. However, the impact on bus travel times is expected to be limited because the existing T3 transit lanes on Lutwyche Road north of the RB&WH already provide priority for buses. No regular bus routes use the local streets east of Lutwyche Road in Bowen Hills. However, at a Public Transport Opportunities Workshop held in March 2004 to address issues associated with the Project, consideration was given to a proposed shuttle bus to travel between Bowen Hills railway station and the RB&WH precinct. This shuttle bus, if introduced, would use local streets such as O Connell Terrace. A bus queue jump lane and bus priority signal is proposed in the southbound direction on Lutwyche Road approaching Federation Street, so that buses can avoid weaving with Lutwyche Road traffic going to the Project northern portal near Horace Street. January 2005 Page 139

150 In the long term, the Northern Busway is planned to connect the northern suburbs to the CBD. This is likely to be a dedicated busway corridor following a similar alignment to Lutwyche Road. The Project entry and exit points at Northey Street and Lutwyche Road would not restrict the development of the Northern Busway. Fortitude Valley After the Project is implemented, bus operations through Fortitude Valley would continue to be delayed due to the significant local traffic activity from New Farm and Teneriffe, through movements between the CBD and Breakfast Creek Road and Abbottsford Road, and north-south movements via Gipps Street and Barry Parade. Most bus movements in Fortitude Valley are from terminating buses from the south and CBD that are using streets, such as Warner Street and Ballow Street as layover areas. The busier through movements in Fortitude Valley are the all-stops bus routes from Lutwyche Road to the CBD, and the New Farm bus routes. Only three bus routes operate east-west through Fortitude Valley using Wickham Street and Ann Street, east of Ballow Street. Currently no bus routes operate north south between Lutwyche Road and the Story Bridge. The implications of providing the proposed intermodal transit centre in Fortitude Valley, above the railway line, west of Brunswick Street, would be independent of the Project although the resulting reduction in traffic in Gipps Street and Barry Parade would improve the situation for buses accessing the proposed transit centre. Bradfield Highway With the Project, traffic volumes on the Story Bridge and Bradfield Highway north of Shafston Avenue would decrease to be accommodated by two lanes in each direction. This allows for T3 transit lanes to be implemented in the kerb lanes across the Story Bridge. However, since some bus routes that use the Story Bridge would need to exit from the right lane to use McLachlan Street to access Brunswick Street in Fortitude Valley, and the Valley Island bus stop, buses should not be required to use the T3 lanes in the northbound direction. Currently, buses travelling northbound across the Story Bridge can use any lane, but they typically use the middle of the three lanes as shown in Figure By using the middle lanes, bus drivers maintain the best flexibility to change lanes to exit at the north end of the bridge via Ivory Street, the Ann Street / Gipps Street intersections or Fortitude Valley via McLachlan Street. January 2005 Page 140

151 Figure 10.5 Buses Travelling in Middle Lane Across the Story Bridge The main benefit for buses with the T3 lanes are improved reliability and the higher profile for public transport services across the Story Bridge. The T3 lanes are part of a policy initiative to promote public transport services. The benefits from travel time savings are likely to be small due to the short section of roadway with the T3 lanes, the problems with access into them at each of the Bradfield Highway corridor and the relatively small number of buses using the facility in the peak hour (less than 30 buses or about one bus every two minutes). Shafston Avenue and Wynnum Road With the Project, additional traffic is expected on the road network east of the tunnel portal on Shafston Avenue. This would likely increase the level of traffic congestion in this corridor. This could have a negative effect on bus travel times. Widening these roads for transit lanes is constrained by the Canning Bridge and the existing urban development. Bus priority measures along this corridor would improve bus travel times and service reliability for the Wynnum Road services, but they would be significant projects with costs that would not be part of this Project. These measurements would have to be justified on their own merit. Ipswich Road and Main Street The Project would reduce traffic volumes on Main Street and Ipswich Road south of Shafston Avenue. This could reduce the level of traffic congestion during the peak hours and improve bus travel time reliability and reduce delays to buses. Currently there are only four buses in the peak hour along Main Street, therefore specific bus priority measures are not considered necessary. However, with the spare road capacity, future opportunities may exist to increase bus frequency efficiently. January 2005 Page 141

152 Traffic volumes would affect the access to the local streets due to the Project portal locations between Balaclava Street and O Keefe Street. A bus queue jump lane and bus priority signal is desirable in the northbound direction of Ipswich Road south of O Keefe Street. This would allow priority for buses before the southern portal entrance to the Project (allowing buses to move to an inner lane to bypass the tunnel portal and weaving traffic) Bus Infrastructure Bus stops and shelters would be affected by the Project in the vicinity of the Project portals on the surface streets. The locations of the existing bus stops in the Project precinct are shown on the base road network map in Figure Of the 59 bus stops in the Project local area, only eight would be significantly impacted by the Project portals. The impacts of the Project on bus stops during and after construction are discussed for the five bus route corridors in the Project study area. The bus stops that would need to be relocated are listed in Table Table 10.7 Bus Stops Requiring Relocation Stop No. Location Direction Position Potential Effect 11 Ipswich Road at Albert Street, Woolloongabba Inbound Far side Relocation of stop due to the southern portal 12 Ipswich Road at Burke Street, Woolloongabba Inbound Approach Relocation of stop due to the southern portal 11 Ipswich Road at Morrisey Street, Woolloongabba Outbound Approach Relocation of stop due to the southern portal 12 Ipswich Road at Reis Street, Woolloongabba Outbound Far side Relocation of stop due to the southern portal 10 Shafston Avenue at Rosina Street, Kangaroo Point Inbound Far side Relocation of stop due to the portal in Shafston Avenue 9/6 Shafston Avenue at Connor Street, Kangaroo Point Inbound Approach Relocation of stop due to the portal in Shafston Avenue 10 Shafston Avenue at Thorn Street, Kangaroo Point Outbound Far side Relocation of stop to O Connell Street due to the portal in Shafston Avenue 7/9 Shafston Avenue at Castlebar Street, Kangaroo Point Outbound Approach Relocation of stop to O Connell Street due to the portal in Shafston Avenue January 2005 Page 142

153 Figure 10.6 Bus Stop Locations Full page map to replace this page. January 2005 Page 143

154 Photographs of these bus stops showing the amenity for passengers, such as signage, seats and shelters, are shown in Figure 10.7 and Figure Six of the eight stops have bus shelters and could be relocated and used elsewhere. Figure 10.7 Photographs of Bus Stops Impacted by the Ipswich Road Portal Ipswich Road at Albert Street, Woolloongabba Ipswich Road at Burke Street, Woolloongabba Ipswich Road at Morrisey Street, Woolloongabba Ipswich Road at Reis Street, January 2005 Page 144

155 Woolloongabba Source: Brisbane City Council Bus Stop Inventory System Figure 10.8 Photographs of Bus Stops Impacted by the Shafston Avenue Portal Shafston Avenue at Rosina Street, Kangaroo Point Shafston Avenue at Connor Street, Kangaroo Point Shafston Avenue at Thorn Street, Shafston Avenue at Castlebar Street, Kangaroo Point Kangaroo Point Source: Brisbane City Council Bus Stop Inventory System January 2005 Page 145