Cover photo: Lyell Highway. Photo credits: Circular Head Council, Department of Infrastructure, Energy and Resources.
Table of Contents
1. Introduction
4
2. Regional Transport System
8
3. Key Transport System Strategies
12
4. Regional Transport Issues and Opportunities
16
5. Integrated Land Use and Transport Planning
18
6. Principles for Transport Investment
26
7.1 Accessibility
34
7.2 Road Safety
41
7.3 Tourism and Transport
48
7.4 Resource Industries, Industrial Areas and Transport
57
7.5 Marine and Aviation
65
7.6 Linear Infrastructure and Freight
75
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1. Introduction
Integrated Regional Transport Planning
Cradle Coast Integrated Transport Strategy
Regional integrated transport planning aims to identify and address current and future transport-related issues and challenges within a specific region.
The Cradle Coast Integrated Transport Strategy is a joint project between the Department of Infrastructure Energy and Resources (DIER) and the Cradle Coast Authority (CCA), representing the nine local governments of the Cradle Coast Region.
Integrated transport planning involves:
Analysing and addressing issues across the whole of the transport system, rather than focusing on a single element or mode of transport.
Linking land use and transport planning to provide a more diverse range of solutions to issues.
Cooperation and coordination between all tiers of government, particularly the State and local governments. Ensuring issues and strategies are integrated with the needs of the community, industry and transport providers.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
In order to achieve social and economic objectives, the transport system must be considered within the context of the regional economy and population, employment, land use and urban growth.
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The aim of the project is to develop a Strategy that identifies the outcomes to be achieved in addressing key long term issues; and provide a framework for managing and developing the transport system over a twenty-year period. Under the Cradle Coast Partnership Agreement, the Strategy should:
Recognise that the transport system includes all forms of transport including rail, sea, road and air and all users of the transport system.
Identify the Region’s social, economic and environmental objectives and how the transport system can help to achieve these objectives.
Identify strategies that aim to achieve the link between regional objectives and broader, state transport system objectives.
Develop a statement of key transport needs within a whole of state system.
Develop linkages with other regional plans.
Facilitate the integration of transport and land use planning.
Develop principles: - that can inform the investment decisions of DIER, local government and other transport providers; and - to assist the prioritisation of projects.
Cradle Coast Region
Context and Structure
Transport objectives A seamless, cost effective and efficient system for moving people, goods and resources, operating within broader networks that:
Regional social and economic objectives
Job creation
Accessibility, mobility and activity
Safety and liveability Resource use and environmental management
improves interaction and physical connectivity;
enables communities and industries to meet their transport needs;
enhances the Region’s and Tasmania’s economic development, and social & environmental wellbeing.
Wealth generating industries and regional advantages
Economic and productivity improvements
Financial responsibility and coordinated planning
Sub-objectives relating to: the strategic transport system; transport and industry; land use and transport planning; and transport investment principles and priorities.
Project overseen by joint CCA and State Government Working Group.
Consolidation of findings and recommendation in past reports and analysis of gaps.
Analysis of economic and social characteristics and transport system issues and opportunities.
Survey of users and providers to confirm and identify issues and priorities.
Workshops on key themes and meetings with key stakeholders.
Objectives relating to:
Analysis of issues
Cradle Coast Integrated Transport Strategy Regional strategy addressing key, long-term issues and providing a framework for managing and developing the transport system over a 20 year period.
Strategies to address key regional transport issues
Strategies vary from long term directions to short term operational actions.
Actions identified are not currently funded and will be delivered as resources and competing priorities allow.
Themes covered are:
Accessibility
Road safety
Tourism and transport
Resource industries, industrial areas and transport
Linear infrastructure and freight
Marine and aviation
Integrated land use and transport planning
Agreed principles to facilitate regional level integrated land use and transport planning.
Actions that enable these principles to be implemented.
Focus on protection of strategic assets, planning the development of the network, and consideration of the transport implications of land use strategies.
Principles and priorities for transport investment The investment process for major projects should:
Use cost benefit analysis techniques;
Analyse the benefits of non-infrastructure solutions;
Be made publicly available; and
Focus on the best way of achieving whole of transport system outcomes.
AusLink may facilitate regionallevel mechanisms that ensure the planning & development of the transport network targets strategic gaps and maximises long term benefits.
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A Partnership Approach
Strategic and Regional Focus
The Strategy has been developed through cooperation between DIER, the CCA, and nine councils of the Region.
The Strategy aims to have a strategic focus. Rather than attempting to address all transport issues, the Strategy focuses on key issues which have the greatest long term return for the Region. The Strategy does not aim to either duplicate or initiate strategies that are best undertaken at a whole of state level. Neither does it address every significant local transport issue. Rather, the Strategy focuses on key regional characteristics, issues and opportunities.
A Working Group comprised of representatives from Burnie, Devonport, King Island, Waratah/ Wynyard, West Coast and Central Coast Councils, together with the CCA, DIER and Department of Economic Development (DED) has coordinated the development of the draft document. While Kentish, Circular Head and Latrobe Councils have not been directly represented on the Working Group, specific consultation has occurred to ensure these councils have been informed of and had input into the development of the Strategy. A two month public consultation period provided all stakeholders with the opportunity to comment on the draft Strategy.
Strategic Context
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
In taking a whole of government approach, the Strategy has been guided by higher level policies and strategies that include:
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Local government strategic plans: prepared under the Local Government Act 1993.
Tasmania Together: a community owned 20 year vision.
Transport Directions, Task and Outlook 2000: Commonwealth reports showing trends in transport operations and highlighting policy issues.
AusLink White Paper: outlines the arrangements for the Commonwealth’s national land transport plan. Objectives of the Resource Management and Planning System: overriding sustainable development objectives which integrate social, ecological and economic objectives.
Cradle Coast Integrated Transport Strategy
Public Consultation The community and businesses in the Cradle Coast Region have been consulted within the context of a number of studies, which are included as supporting documents to the development of the Strategy. In order to avoid ‘consultation fatigue’, the Working Group decided to focus on specific discussions with targeted transport users, providers, peak body organisations, State Government agencies and local government. This consultation has facilitated a two way flow of information and has been important in identifying issues and opportunities for the regional transport system.
Supporting Information Report This report provides supporting information to the Strategy. It provides:
comprehensive and detailed information on the Region’s transport system; and
a more thorough analysis of key transport issues and strategies.
The Supporting Information Report provides a resource document to aid in the implementation and review of the Strategy.
Commonwealth Transport Directions: Task and Outlook 2000
Long term regional transport system needs
Tasmania Together 20 year community plan
Transport in relation to social and economic objectives
Local government five year strategic plans
Transport as a system rather than discrete parts
RMPS sustainable development objectives
Strategic focus
AusLink
Implementation and Stewardship The Strategy does not attempt to establish a blueprint for the transport system, nor does it prevent organisations from responding to new issues and opportunities as and when they arise. In agreeing to the Strategy, the State Government, CCA and Councils signal their commitment to work collaboratively to further the objectives, principles and strategies outlined within the Strategy. Many of the strategies, actions and priorities outlined in the Strategy are not funded or programmed into organisational work plans. In addition, many strategies require collaboration with industry and government corporations. It is envisaged that the State Government, CCA, and Councils will use their best endeavours to implement the Strategy as resources, opportunities and competing priorities allow. It is important that the Strategy is actively used in the ongoing management and development of the transport system. The following mechanisms will assist in achieving this:
The Working Group will continue to meet on a periodic basis to monitor progress of the Strategy, including developments in other programmes, projects and activities that relate to or impact on the Strategy.
Every 18 months, a joint implementation report will be prepared for consideration by the Minister for Infrastructure and the CCA.
DIER and the CCA shall take joint stewardship of the Strategy and establish periodic and specific forums to pursue strategies advocated within.
DIER, the CCA and Councils will collectively pursue mechanisms to administer the Strategy within AusLink or other Commonwealth or State frameworks as appropriate, and generally pursue integrated regional transport planning.
Three to fours years after initial agreement to the Strategy, DIER and the CCA shall review the Strategy to determine:
if it has been successful in establishing coordinated actions and setting directions that improve transport outcomes;
if the issues addressed and strategies advocated remain relevant;
what the emerging transport issues and opportunities are; and
whether a new, integrated transport plan should be prepared.
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2. Regional Transport System
Regional Characteristics Social The people and communities of the Cradle Coast Region are the greatest resource and the ultimate source of innovation and drive needed to address the issues facing the Region. The social and demographic issues confronting the area have changed significantly over the past 40 years. Between 1954 and 1971, the North West Region recorded the highest population growth of any Tasmanian region, with similarly high growth rates in the Burnie, Devonport and Wynyard areas. A 1970s study on the North West Region acknowledged this rapid growth, but also noted the growing problem of population decline in the 15-25 year age group and increasing urbanisation within the Region at the expense of rural areas. These issues, in addition to population decline at a regional level, continue to constitute some of the major demographic challenges facing the Region.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Figure 1: Age structure, Cradle Coast Region and Tasmania, 2001
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Population change and distribution in the Region reflects major statewide trends, including:
declining populations in inland towns;
a decrease in the proportion of people living in rural/remote localities;
an overall regional population decline; and
significant shifts of people within the Region.
Table 1 shows population change within the Region for the period 1986-2001. Over the past two decades the greatest population declines have occurred in the West Coast, King Island, Burnie (urban) Latrobe (rural) and the Waratah/Wynyard (rural) areas. Over the same period the greatest increases have occurred in the urban areas of Latrobe and in Kentish. Generally, people across the Region are drifting to areas with comparatively fewer community services and with less access to major regional services. Selected socio-economic characteristics of the Region include:
85+
MALES
Figure 1 shows population age structure for the Cradle Coast Region compared to Tasmania. Significantly, there are fewer persons in the 15–29 year age group compared to the state average (18% versus 19.3%).
FEMALES
A high but declining proportion of persons aged 0-14 years.
Areas of comparatively high-income, including in Circular Head and on King Island.
55-59
Comparatively high overall unemployment.
50-54
Low percentages of persons holding a degree or higher qualification.
80-84 75-79 70-74 65-69 60-64
45-49 40-44
Due to the pace of change of the area’s social profile, there has been a tendency to focus on the negative consequences of change without objective assessment of the advantages the Region has to offer.
35-39 30-34 25-29 20-24 15-19 10-14 5-6 0-4 6
4
2
0
0 Percent
2
4
6
The Index Of Economic Wellbeing was developed by the Department of Health and Housing in 1998. The Index is based on twelve variables which in total give a picture of people’s general economic capabilities.
Table 1: Population change Cradle Coast, 1986-2001 Total Population 1986 2001
Mersey-Lyell Burnie-Devonport Lyell
The degree to which hydroindustrialisation promoted development between 1945-1970.
A dispersed population and the relatively high cost of providing infrastructure and services to this settlement form.
Change 86-01 No. %
108 115
102 352
5,763
-5.3
74 800
73 682
1 118
-1.5
9 549
5 515
4 034 -42.2
North Western Rural
23 766
23 155
Burnie-Pt A
18 749
16 167
Burnie-Pt B
2 106
1 978
128
-6.1
Devonport
23 997
23 030
967
-4.0
7 863
7 702
161
-2.0
Central Coast-Pt A
16 525
16 848
323
2.0
Central Coast-Pt B
3 006
3 090
84
2.8
Kentish
4 574
5 407
833
18.2
King Island
1 989
1 687
302 -15.2
Latrobe – Pt A
5 404
7 181
Latrobe – Pt B
768
664
Waratah/Wynyard-Pt A 10 395
10 456
Circular Head
611
-2.6
2 582 -13.8
1 777
32.9
104 -13.5 61
Over the past 25 years, productivity improvements in many primary and secondary industrial sectors have reduced their proportion of employment, whilst service industries have increased in importance. However all elements of primary and secondary industries as well as the tourism sectors are vital to generate the wealth that allows for increased employment in community and information service sectors. The Region has a diversity of wealth-generating industries, including:
agricultural production, particularly dairy, vegetable and crop farms;
agricultural processing;
forestry and forest processing;
mining, particularly on the West Coast and quarries throughout the North-West;
0.6
Waratah/Wynyard-Pt B
3 460
2 627
833 -24.1
specialised manufacturing; and
West Coast
9 549
5 515
4 034 -42.2
tourism.
The Index ranked the Cradle Coast Region:
higher than the south or north-east in terms of overall economic wellbeing; and
as containing five of Tasmania’s top ten local areas in terms of economic wellbeing.
The Cradle Coast Region offers lifestyle opportunities and advantages which make it a desirable place to live and work. The Region’s settlements are based on a series of large towns and small cities which offer good levels of commercial/community services, and affordable housing. The Region also contains a diverse range of accessible sporting and recreational opportunities.
There are currently a wide range of resources and initiatives that will facilitate further development in these industries. These resources and initiatives include the:
North-West wind farms and the manufacturing spin offs associated with the development of this technology.
Natural gas project, which has extended the gas supply to Port Latta.
Development of the Basslink electricity cable, which enables the State to further expand on its wind and hydro energy resources.
Operation of two super-fast twin ferries has significantly increased the capacity, reliability and affordability of passenger/ car travel across Bass Strait.
Completion of the West Coast Wilderness Railway, which will boost tourism on the West Coast.
Smithton Wood Centre project which will create value-adding opportunities for wood production.
Continuing national and international recognition of Tasmania’s high-quality wilderness areas as major tourist attractions.
High quality agricultural land which provides vast potential for high value agricultural production.
Economic In a national context, Tasmania is a small economy, highly dependent on primary and natural resource based industries and government expenditure. Key issues which have historically affected Tasmania’s economy include:
The cost of Bass Strait transport and dependence on coastal shipping.
A relatively high but falling level of state debt.
Low levels of population growth.
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Exploration and discovery of larger deposits and new commercial mining resources in the West Coast (including the new Allegiance mine) and King Island. Good freight links in terms of arterial roads, ports and airports, as well as rail links.
pattern of early European exploration and land grants;
landforms and physical geography of the area;
early reliance on shipping for trade;
resource based industries, through value adding opportunities and cost effective energy sources; and
location of early link roads; and
location of productive natural resources and major industries.
tourism industry by capitalising on the three super-fast ferries, and the potential to increase the number of touring visitors, including to the key Cradle Mountain and West Coast attraction clusters, as well as t he significant emerging cluster of the far North-West Coast.
The key characteristics of the Region’s settlement pattern and transport system include:
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Strategic transport network, Cradle Coast Region
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The pattern of settlement, land use and transport in the Region reflects a wide range of interrelated factors, including:
The Cradle Coast Region has real opportunities to expand and diversify its:
Physical
a dominant linear urban strip stretching from Wynyard to Port Sorell, and centred on the twin cities of Burnie and Devonport;
a large number of small, inland rural settlements with strong connections to the main urban system;
remote settlements on the West Coast and King Island;
dual, major marine and air ports associated with Devonport and Burnie;
a major highway and rail link along the northern coast with inland connector lines;
important sea and air infrastructure on King Island;
minor port facilities at Stanley and Port Latta and minor airports at Smithton and Strahan; and
highways linking the West Coast towns to the main urban strip, and to southern Tasmania.
Transport Characteristics and Advantages Generally, the Region’s strategic transport infrastructure and services have an adequate capacity to handle demand over the next twenty years. The following is an overview of key transport infrastructure and services in the Region.
The Region contains two major trading ports, a specialised industrial port at Port Latta, and three minor trading ports.
The Region contains two major interstate airports, two minor airports and several licensed airstrips.
The settlement strip along the North-West Coast, which contains 75% of the Region’s population, is linked by the Bass Highway, part of the new AusLink National Network.
All areas and industries have access to commercially provided land, sea and air freight services.
The regular public bus services in the two main urban regions have significant spare capacity.
There has been significant investment in, and planning for, the Category 2-3 highways linking Smithton and the West Coast to the National Network, and there is potential for this to continue.
There has been significant investment in the development of tourist roads to the Cradle Mountain area, in and around the West Coast towns and on the far North West Coast.
The Region has good access to sea passenger/ car services to and from the mainland.
There has been strong investment in diversified road freight vehicle types.
Rail freight services have expanded considerably and there is the potential for infrastructure improvements to better align the rail network with the broader transport system and with industry.
Generally, the main transport issue is not the level of supply of transport services and infrastructure but the degree to which governments, industry and communities capitalise upon and maintain the integrity of the existing transport system. Long term strategic and coordinated planning is necessary to realise the comparative advantages of the Region’s strategic transport system, capitalise upon its strengths and develop it where appropriate.
There are areas where the strategic freight and passenger transport system need strengthening. Over the next twenty years the priorities for infrastructure investment are likely to relate to the following issues:
An increased level of road maintenance expenditure, by most road authorities, will be needed in order to maintain service levels.
Whilst the alignment of the State road network is substantially mature, freight, tourist and general road use continues to grow fastest on major arterial roads. Consequently, there is significant scope to improve design standards to meet the targeted measures under the road hierarchy.
There has been significant under investment in the alignment and strength of the main rail line connecting ports and major industrial areas.
The nature of resource industries in the Region and the potential for value added resource processing industries provides considerable opportunities to expand the rail network.
Increased forestry plantation activity requires additional investment in rural arterial roads and, if viable road/rail/log transfer yards.
Whilst surrounded by urban development, both major trading ports have the potential to cater for increased port use in response to industry demands.
Investment in aviation infrastructure will be driven by passenger demand.
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3. Key Transport System Strategies
Regional Objectives Bringing together the objectives from the strategic plans of the nine Councils and Tasmania Together, a set of common directions for the Region have been developed.
of economic activities and transport systems may reduce the use of natural resources as well as helping to develop a nationally and globally competitive economy.
Strategies which minimise unnecessary public expenditure in one area, may see more funds available for higher priority projects with greater social and economic benefits.
Improvements in the land freight network which benefit industry will be designed to also provide safety benefits for the community.
Transport modes which provide greater access for the young, elderly and/or low income people generate quality of life improvements, as well as having potential environmental and health benefits.
Economic Development
Focus on wealth creating industries in all sectors and job creation, which caters for a full range of employment skills.
Capitalise on the Region’s advantages, its people, location and natural and human resources.
Establish a framework and system that fosters innovation and enables business and industry to maximise productivity and invest in development.
Community Development
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
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Ensure all people and communities have the opportunity to access a wide range of community, cultural and commercial services, which enable personal/community development.
Ensure the community has access to quality educational and training facilities.
Foster an egalitarian ethic and inclusive/ supportive communities.
Ecological Development
Manage natural resources in a sustainable way.
Manage/mitigate adverse human impacts on quality of life and natural systems.
Common Ground Whilst social, economic and environmental objectives are often seen as being in direct conflict, this is not necessarily the case. If a holistic approach to development of the Region is adopted, there is clear common ground between many strategies. For example:
Increased employment opportunities via the development of wealth generating industries have broad ranging social and community benefits.
Improvements in productivity and efficiency
As far as practicable, the process of preparing this Strategy has sought ‘common ground’ strategies.
Transport System, Economic, Social and Development The transport system, including all modes and forms of infrastructure has a direct impact on individuals, communities, businesses and the economy. People and Communities For people and communities the transport system affects the:
amount of time spent travelling each day;
amount of interaction with families & friends;
opportunities to participate in the workplace and in social activities;
cost of goods purchased;
quality of the environment enjoyed;
money available for other essential items;
access to education; and
access to key services, including health and child care.
Land use patterns also affect an individual’s mobility and access. For example:
People who live close to their work or school in towns such as Penguin may be able to ride/walk every day.
Decisions as to the location of housing may subject people to noise and air pollution from fixed transport assets.
The movement of goods and resources is a vital economic function which has a significant effect on the economic performance of the Region.
People who live in dense urban areas such as Burnie may have access to public transport, which expands their transport options.
People who live in more remote areas such as Kentish may suffer from isolation if they do not have access to personal transport.
Social Objectives and the Transport System
A decision to locate a major retail outlet outside a town on a major road may improve access for commuters but disadvantage people who are reliant on public transport for mobility.
Job Creation
Settlement patterns, choice of housing location and transport cost and availability, have a major impact on an individual’s personal mobility. While walking and cycling may be cost/time effective for short trips, the cost of living in a suburb which has easy access to CBD services may be prohibitive for many due to higher real estate values. The cost of owning and running two cars may not be difficult for many families but prohibitive for others. Increasingly, communities need to look at the trade-offs between private housing and transport decisions, with a view to providing equitable and cost effective access. Business and Industry For business and industry, the transport system affects the:
cost of importing goods needed for production;
ability to access specific, fixed natural resources;
cost and logistical arrangements needed to export goods; and
supply of workers and services.
Land use patterns also affect the cost and efficiency of the freight system for business and industry in the following way:
Industrial areas developed without access to the rail network may limit opportunities for business and industry to achieve least cost transport options.
Ribbon development along arterial roads or housing close to railway lines may limit the function and efficiency of the freight network.
The ability of ports and transport hubs to operate and expand may be limited when sensitive land uses encroach on these areas.
The greatest social challenges facing the Region are projected overall population decline and disparities between the economic capabilities of people. Consequently, job creation and economic development across all wealth generating industries is a fundamental social objective. It is not transport infrastructure and services themselves that help to create long term jobs, but the degree to which the transport system supports and facilitates development opportunities and productivity improvements in private sector industries. Generally, transport system investments will have their most direct link to job creation where they are targeted in areas and sectors which directly facilitate the realisation of commercial opportunities. Accessibility, Mobility and Activity Accessibility is the primary objective for all forms of passenger transport, from bicycles to buses. Private cars will continue to be the dominant form of passenger transport for the foreseeable future. Widespread car ownership has increased mobility and access for many, but disadvantaged some groups unable to own, access or operate a vehicle. For example, the young, elderly and lower socio-economic groups. Accessibility is also partially dependent on the location of housing in relation to goods and services. Generally, commercial areas which have good public transport and are within walking and cycling distances of dense housing areas will have the greatest level of access. The issues surrounding access, transport and housing location are compounded by the large public costs associated with, and ability of, conventional public bus services to cater for sprawling and disjointed low density settlements.
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Safety and Liveability The objectives of human safety and environmental quality are broad objectives, which cut across all transport and planning issues. Safety objectives are incorporated implicitly or explicitly in a variety of ways, from freight network and traffic management planning to urban consolidation strategies that encourage walking, cycling and increased patronage of public transport. Minimising the adverse impacts the transport system has on environmental quality may involve:
separating transport operations from sensitive activities;
Most transport system improvements are related to enhancing the productivity and efficiency of the existing system for immediate users. These productivity improvements may occur through:
decreased time spent travelling;
decreased cost of operating vehicles;
higher productivity vehicle improvements;
better handling and distribution networks;
altering the type of transport mode used to better cater for customer demands;
minimising the magnitude and severity of impacts; and
new rail links to key locations; and
reducing the amount of resources used.
more scenic and enjoyable journeys for tourists.
Wealth generating industries and regional advantages A range of wealth generating industries in the Region such as:
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Economic and Productivity Improvements
Economic Objectives and the Transport System
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There are direct flow on effects for other areas of the economy from transport strategies that target the needs of wealth-generating industries most affected by the transport system.
forestry;
mining;
resource processing;
tourism;
food production;
paper making;
primary production;
textiles; and
education;
are partially dependent on the transport system to expand, diversify and remain competitive. The transport system should enhance the ability of these industries to:
access natural resources;
transport high volume, low value goods in a cost effective manner;
act as the link between exporters and overseas markets;
enhance visitors’ experience of touring the Region and reinforce tourism development strategies; and
access areas for resource processing which capitalise on infrastructure and geographic advantages.
Many of these productivity improvements are initiated by private business as a direct result of market demand. Government decisions on productivity improvements are often criticised for pursuing social or political objectives or too narrowly focusing on the road network. At times these productivity improvements, whether public or private, can have unintended consequences for other aspects of the system. Financial Responsibility and Strategic Coordinated Planning The community expects the decisions of all spheres of government to:
align with overall fiscal responsibilities to manage and reduce debt; and
to be efficient and effective in the allocation and use of resources.
In recent times there has been a significant repositioning of the role of government in the transport system. Initiatives such as the National Competition Policy have generally increased the influence of commercial principles and market forces. Governments at all levels are now far less involved in the actual operation of the transport system. The impact of decisions affecting the strategic elements of the transport system on industry and the community are long-term. Urban systems, transport networks and the activities of communities and businesses operate across government/ administrative boundaries. Industry and the community increasingly expect all spheres of government to work in a coordinated and consistent manner and take a long term, integrated approach.
The Commonwealth Government’s national land transport plan, AusLink, is a key example of the need for an integrated and coordinated approach to transport planning. AusLink establishes a new long term, intergovernmental framework for the planning and funding of the national transport network, which encompasses all infrastructure types and freight modes. It is likely that the processes established under AusLink will require a more coordinated approach to transport infrastructure planning that is focused on freight corridors and relates to national economic objectives.
that enable the movement of people, goods and resources. The key transport objective of the Strategy, is: A seamless, cost effective and efficient system for moving people, goods and resources, operating within broader networks, that:
improves interaction & physical connectivity;
enables communities and industries to meet their transport needs;
enhances the Region’s and Tasmania’s economic development, and social and environmental wellbeing.
Sub-objectives relate to:
Environmental Objectives and the Transport System
Strategic Transport System
Resource Use and Environmental Management
To enhance and better use transport corridors, nodes and services that provide a core function to people and businesses interacting within the Region, between regions, and with interstate and international destinations.
The environmental impacts associated with transport are both direct, including noise, greenhouse gas emission and air pollution, and indirect, such as habitat fragmentation and encouragement of urban sprawl. These impacts result from a variety of transport-related activities, including actual transport usage, infrastructure construction, such as roads and ports, and disposal of transport waste. At a macro level, the transport sector is a major source of atmospheric pollutants. Sustainable energy use is a major issue given the reliance of the transport sector on finite fossil fuel resources. The type and level of environmental impact varies by transport mode, however, the air and sea sectors generally present a lesser overall environmental risk than land transport modes, the extent and nature of which results in a greater environmental impact.
Transport and Industry A transport system that is responsive to emerging industry trends and growth opportunities, and which enhances the competitiveness of industry, particularly the forestry, mining, tourism and resource processing sectors, within which transport is a critical element. Land Use and Transport Planning To provide for an integrated land use and transport planning system that:
caters for the needs of all transport users in urban, rural and remote localities;
is socially, economically and environmentally sustainable;
actively ‘manages’ settlement patterns and forms to encourage the right activities in the right locations; and
promotes safe and efficient freight movement through the location of industry in areas with appropriate transport services & infrastructure.
Components of sustainable transport may include:
Improved integration between land use and transport planning.
Greater use of public transport, cycling, walking and multiple occupancy vehicle use.
Reduced transport emissions via changes and improvements in technology, design and consumer behaviours and preferences.
Minimisation of direct and indirect environmental impacts.
Principles and Priorities for Transport Investment To undertake transport investment that:
consolidates and improves strategic transport corridors and inter-modal linkages to increase transport efficiency;
reflects stakeholder and community demands, including the needs of transport dependant industries; and
is creative and outcome focused.
Transport Objectives The focus of the Strategy is on improving the transport systems, services and infrastructure
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4. Regional Transport Issues and Opportunities
Roles and Responsibilities Transport can be seen as a single system, delivered in response to industry and community needs by a range of commonwealth, state and local governments, state owned corporations, businesses and individuals.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Over the past two decades there has been considerable reform of commonwealth and state government involvement in the transport system. Within the Cradle Coast Region these reforms include:
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privatisation of railway operations;
privatisation and competitive tendering for State road works;
establishment of port corporations operated as state owned companies;
privatisation/Commonwealth disinvestment of major regional airports;
deregulation of intra-state road freight markets; and
changes to the way passenger transport is regulated.
The transport system which will emerge in the Region over the next twenty years will not be centrally planned. It will evolve largely through the relationships between the businesses and communities that demand transport services and infrastructure, and the businesses, corporations and government agencies which provide them. Governments are not in a position to control the investment, planning and operational decisions made by the wide range of organisations involved in the transport system. In most cases where infrastructure and transport system are provided on a purely commercial basis, market forces determine strategies. In many cases this is the best mechanism to ensure that efficient and cost effective services are provided. The strategies and directions outlined in the Strategy relate to the regional level roles and responsibilities of State and local governments. The Strategy does not aim to alter the roles and responsibilities of State and local governments. By cooperatively planning at a regional level, rather than a state or local level, the Strategy aims to focus on the common ground issues affecting the transport system.
By focusing on coordinated directions, the Strategy aims to provide a long term framework for managing and developing the transport system to support the needs of industry and the community. Many of the strategies and directions outlined in the Strategy are outside the immediate roles of State and local governments, and will rely on cooperative relationships with transport providers and industry.
Identification of Issues and Strategies The Cradle Coast Regional Partnership Agreement requires that the Strategy ‘develop transport strategies that address the key transport needs of the Region’. Consequently, the Strategy focuses on needs rather than wants, and on key issues rather than comprehensively addressing every issue relevant to the Region. Whilst the scope of the Strategy covers the transport system in the broadest sense, the focus of the Strategy is on key transport issues and needs. The issues covered and the strategies advocated in the Strategy were formed through the following process:
Two preliminary research papers were prepared which generated a wide range of issues for discussion. These issues ranged from airport economies of scale to the economics of road maintenance.
Stakeholders across the Region prioritised issues via a survey. This list of high priority issues formed the focus of the Strategy.
A series of workshops as well as individual meetings were held with key stakeholders to help develop and refine strategies to address the key issues.
The draft Cradle Coast Integrated Transport Strategy was released for public comment for a two month period.
From the earliest stages of developing the Strategy it was clear that:
many of the issues raised would vary depending on the perspective of stakeholders involved;
many issues identified would be beyond the scope of the Strategy to specifically address; and
long term opportunities would be identified which currently had little commercial or economic justification.
In response to this, the supporting information to the Strategy aims to:
identify key issues and opportunities; and
articulate divergent perspectives on issues.
Types of Strategies The Strategy advocates a range of mechanisms for addressing transport issues and needs. Generally, the strategies fall into the categories outlined above.
Strategies to address transport issues and needs Cradle Coast Integrated Transport Strategy Strategic directions Objectives set in the long term timeframe of 20 years. Agreed principles Common principles which guide the decision making of parties within existing processes. Operational actions Recommended improvements to current operational activities. Plans and processes Identification of new plans and processes which will improve transport outcomes and management and investment decisions. Infrastructure priorities Identification of long term infrastructure priorities – based on key strategic gaps and emerging and potential needs. Communication and coordination Recommended means of improving working relationships and collaborative actions.
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5. Integrated Land Use and Transport Planning
Land Use and Transport Land use, transport and settlement are three components of the one system, each of which must be planned in an integrated manner if the social, economic and environmental objectives of communities are to be realised. The term ‘integrated land use and transport planning’ is used to describe processes at various levels that aim to coordinate and plan activity and movement together.
While most commercial and residential activity is located within the Region’s urban areas, a significant percentage of primary income is produced in the rural and remote areas. Economic activity within these rural and remote areas is dependent on the efficient operation of the urban transport network.
Map 1: Broad settlement types, Cradle Coast Region
Integrated land use and transport planning may mean different things at different levels. At the level of individual sites, integrated land use and transport issues may, for example, involve ensuring:
commercial activities provide sufficient on-site or local parking to reduce demands for on-street parking.
At the level of towns and cities/local government, integrated land use and transport planning issues should involve:
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
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planning for high traffic-generating industrial activities, and vehicle orientated commercial activities, such as bulk goods stores, to enable them to locate in areas that ensure vehicles do not use local residential streets.
At the regional/State levels, integrated land use and transport planning issues should involve the:
protection of major ports, airports and industrial areas from encroachment by residential or other activities which may compromise their function.
promotion of higher density residential and commercial development in areas which support public transport.
Patterns and Characteristics The pattern of human settlement in the Cradle Coast Region is characterised by:
core urban areas along the coast;
small rural settlements with strong connections to the core areas; and
remote settlements with weak links to the core areas.
Map 1 shows broad settlement types in the Region.
The linear spread of cities and towns between Wynyard and Latrobe, an area dominated by the twin cities of Burnie and Devonport, produces a different set of opportunities and issues to those presented by radial cities. Burnie and Devonport have virtually identical population levels and offer a similar range of services. However, the cities have evolved different roles, with Burnie tending to have a larger share of warehousing and industry, and Devonport a greater share of retail trade and tourism.
The linear and twin cities pattern of development is generally characterised by:
competition between two primary cities each developing specialist roles;
some duplication in service provision and generally high public infrastructure costs;
discrete, separate cities and towns; and
pressure to develop along the main transport routes and ‘fill the gap’ between the two cities.
Over the past fifty years, the urban area of the North West has gradually expanded with growth in Burnie and Devonport, and associated growth in Penguin and Ulverstone. In comparison with the radial city form, linear twin cities have the following features:
Difficulty in establishing the economies of scale needed to support major regional services and institutions.
Public transport systems can be fragmented as the urban area is not treated as a single metropolitan region.
Movement between the two cities to access services and employment.
General Issues and Opportunities At a regional level, land use and transport planning can directly affect the key social and economic objectives of the Strategy (see Chapter 3) as follows: Job Creation: Sound transport planning undertaken as part of the planning and development of major industrial areas, such as is currently occurring at Port Latta, can help to ensure these type of areas are designed and located to cater for the transport needs of users, and are developed in a cost effective manner. Accessibility, Mobility and Activity: The degree of access to social and economic opportunities is partially determined by the location and mix of housing, commercial and community facilities. Generally, residents in the inner areas of Burnie and Devonport have the highest levels of access to these facilities. Safety and Liveability: Land use and transport planning can help to minimise the impacts of noise, dust and other forms of pollution on sensitive uses from transport assets, such as the Bass Highway and the ports at Burnie and Devonport. Land use planning can also minimise traffic conflicts on arterial roads which can help to improve road safety.
Wealth Generating Industries and Regional Advantages: Many of the wealth generating industries in the Region are dependent on the cost-effective and efficient transportation of raw and processed goods. Land use decisions which slow or hinder this transport task make these industries less competitive. Economic and Productivity Improvements: Many major transport corridor improvements are made over a long period. New road and rail corridors may need to be protected via planning schemes well in advance of their development. For example, the Latrobe Planning Scheme provides for the protection of a future Bass Highway alignment. Financial Responsibility and Strategic Coordinated Planning: In the long-term, transport and land use planning can be a strategic means of managing demand for transport and promoting activities in locations that capitalise on existing public investment in transport infrastructure and services. Land use planning decisions which promote unnecessary demand for expanded transport infrastructure and services can place pressure on scarce resources, which limit the potential to invest in more strategic industry or community development opportunities. Resource Use and Environmental Management The RMPS provides a framework to promote the sustainable development of natural and physical resources in Tasmania. Within this framework, environmental considerations are a key determinant of the form, nature and rate of use and development. Sustainable development includes safeguarding the life-supporting capacity of air, water, soil and ecosystems, and avoiding, remedying or mitigating any adverse impacts of human activities on the environment (Schedule 1, Land Use Planning and Approvals Act 1993). Appropriate land use planning can mitigate the negative impacts associated with transport, including noise and air emissions, by locating certain types of use and development in socially and physically appropriate areas. For example, providing adequate separation between major transport corridors or transport-intensive development, and residential areas.
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Strategies The strategies advocated in the Strategy relate to four key regional issues. The need to:
protect key transport infrastructure, which is an essential part of the Region’s economy and means of social interaction;
plan for the long-term development of the Region’s strategic transport system in a coordinated and consistent manner;
consider the economic and social transport implications of major housing, commercial and industrial land use decisions; and
for improved communication and coordination at a regional level.
Most of the strategies relate to ‘agreed principles’ which will be pursued through existing processes.
Figure 1 shows, in a stylised manner, the impact of ribbon development and new junctions/ accesses on traffic safety and efficiency within the Devonport/Latrobe area. Without some form of intervention through the land use planning system, strategic transport assets, and the social and economic services they provide can be compromised. Strategy 5.1: Planning to protect the operating capacity of strategic transport assets. Principle 5.1: Land use strategies and planning schemes shall aim to implement the following principles:
Planning around major trading ports at Devonport, Burnie, Port Latta and Grassy should aim to separate port and adjoining industrial/transport activities from sensitive urban development in order to reduce the impact of traffic, noise, vibration, lighting and air emissions.
Planning around major airports at Latrobe, Wynyard and on King Island should aim to separate airports from sensitive urban development in order to reduce the impacts of noise and maximise operational safety and efficiency.
Categories 1-3 roads located outside townships shall be protected from new accesses which compromise safety and transport efficiency, and new or expanded activities that may be in conflict with 24-hour freight operations.
New development that is sensitive to rail operations shall be either set back from the rail network or modified to the extent that it is unaffected by 24-hour rail freight operations.
Protection of Strategic Infrastructure Issue: land use planning and transport infrastructure
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
The Region contains a number of strategic transport corridors and sites, including:
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trading ports located at Burnie, Devonport, King Island and Port Latta;
major arterial roads such as the Bass Highway;
a main rail line; and
major airports at Wynyard, Devonport and on King Island.
These corridors and sites are essential to ensuring an effective, safe and efficient transport task. These assets are fixed in place for the longterm. In some instances, transport infrastructure can be relocated, however the public costs associated with this are high. The functions performed by the ports and strategic transport corridor can be fundamentally compromised by activities undertaken on adjoining land. For example, a decision to locate:
A feed lot or waste disposal area near an airport, both of which attract birds, could compromise aviation safety.
A traffic generating activity along a high speed section of road will affect safety and the efficiency of movement.
Residential activities near a trading port may lead to pollution complaints which affects port operations.
Figure 1: Evolution of ribbon and road development, Devonport/Latrobe area
Planning for Development of the Transport System Issue: planning for port expansion The ports of Grassy, Port Latta, Burnie and Devonport are key economic assets, playing a vital role in the economy of both the Region and the State. The land and water resources adjacent to ports should be planned to recognise the current need for:
future expansion of port infrastructure; and
the suitability of some transport-related activities being located adjacent to the port.
The need for land use planning to fully consider port expansion and adjacent land use planning is particularly important in the urban areas of Burnie and Devonport. Strategy 5.2: Planning for the long term development of ports. Principle 5.2: Land use strategies and planning schemes will aim to implement the following principle:
Planning schemes today still primarily address site specific land use and building control. Planning for linear transport corridors is generally not well integrated into planning schemes. Transport and distribution along linear corridors, whether by road or rail, is a form of land use that has large-scale impacts, both within and across local government boundaries. Just as planning scheme mechanisms have been developed for planning new industrial or commercial areas, there should be common tools for planning new transport corridors. The proposed introduction of a common template for planning schemes will provide a framework for determining the most suitable mechanisms to facilitate planning for new transport infrastructure.
Strategy 5.3: Common mechanisms for planning development of the transport network. Principle 5.3: Common mechanisms will be developed which facilitate long-term planning for linear transport within the framework of the Simplifying Planning Schemes template.
Planning around major trading ports at Devonport, Burnie and, to a lesser extent Port Latta and Grassy, should aim to protect adjacent land resources. This is necessary to preserve the future potential to locate uses that are associated with, or which depend for significant economic advantage on, proximity to ports and shipping services.
Issue: tools for linear infrastructure planning Land use planning schemes have traditionally dealt with ‘town planning’ issues such as the:
use of individual sites and areas within towns;
standards for building development; and
subdivision of land.
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Issue: funding of transport improvements Consideration of funding options for transport infrastructure improvements generated by land use changes is a fundamental aspect of an integrated approach to land use and transport planning. Throughout the Region, on-site transport infrastructure such as roads and footpaths are normally provided by developers during the subdivision process.
Strategy 5.4: Assessment of, and contributions to, transport infrastructure. Principle 5.4: Mechanisms should be established through the planning system which aim to:
provide for partial funding of transport infrastructure for local or State roads by development contributions through planning schemes and planning assessment processes;
assess the total transport costs at the initial stages of considering major land use changes and amendments to planning schemes which have direct infrastructure implications for local or State roads; and
where practicable, establish Part 5 Agreements under the Land Use Planning and Approvals Act 1993 to clarify the level of developer contributions required.
Some local governments also negotiate or require ‘developer contributions’ for off-site physical infrastructure where there is a clear nexus between:
a major development proposal and the need for specific infrastructure works; and
the users of the development deriving a benefit from the provision of infrastructure.
The use of up-front developer contributions ensure that the:
full marginal costs of a development are reflected in the costs of the land development process; and broader community does not have to bear the full cost of providing infrastructure that benefits a specific area and/or users.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Due to the small scale and sporadic nature of development in the Region and the number of land owners involved, it is often difficult to establish a balance between an individual development application and off-site demand for road infrastructure improvements.
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In some cases where major land use changes or major developments are proposed in locations isolated on a specific section of the road network it is possible to determine the improvements needed to local or State owned arterial roads resulting from increased traffic.
Housing, Services, Industry and the Transport System Issue: transport implications of housing and commercial land use strategies In the long-term, the relative location of housing, employment and commercial activities, in addition to the location of public passenger transport systems, are key factors affecting accessibility. Generally, across the Region most housing has traditionally been located in coastal and smaller rural towns and cities where people have a variety of transport choices to access services. Over the past three decades, the transport patterns between housing, employment and services have changed:
A high proportion of people drive for 15-20 minutes to get to work.
A greater proportion of housing has been located in rural areas outside established towns.
The rise of office based employment in inner city areas has peaked.
Generally, the basic commercial hierarchy in the Region continues to be reinforced through new community/commercial activities being developed in town and city centres. In addition to changes in employment structures and participation, the most significant change of the past three decades has been the number of houses constructed in rural areas.
Whilst some people moving to rural areas do so for lifestyle reasons and can afford the higher transport costs, other people move to fringe areas to access comparatively cheaper housing. In these cases, some households underestimate the real cost of transport and their level of mobility can subsequently be reduced. Generally, the changes in transport which have emerged through low density urban growth have:
increased the demand from commuters for rural road improvements; and
diluted the effectiveness of traditional bus services.
Strategy 5.5: Planning housing and services to promote access and decrease community transport costs. Principle 5.5: Land use strategies and planning schemes will, where practicable, aim to implement the following principles:
Consolidate residential activities in existing towns and urban areas.
Encourage relatively higher density housing in areas closer to commercial and community services.
Where there is demand for rural-residential housing, this should be provided in areas which are close to towns and that will not generate demand for transport infrastructure or service improvements.
Development of residential neighbourhoods with connecting road and pedestrian networks.
Location of retail and high intensity entertainment activities in town and city centres which have public transport access and good cycling and pedestrian linkages.
Discourage the location of retail activities in isolated areas, even when the activity involves bulky goods.
Encourage the concentration of high density employment activities, such as offices, in town and city centres which are highly accessible to the community.
Issue: processing industries and transport infrastructure The Region contains significant forest and mining resources, which offer opportunities for processing and value adding activities. The cost effectiveness of the transport system is an important factor to many resource processing activities in the forestry and mining sectors. These industrial activities require sites which are suitable for a range of factors including energy and water supply, landscape impact and air quality. The transport implications and requirements of major processing industries is one of a number of core factors which should be considered in planning for future, and promoting existing, industrial areas. Strategy 5.6: Planning for major processing industries to capitalise on arterial road and rail infrastructure. Principle 5.6: Land use strategies and planning schemes will, where practicable, aim to implement the following principles:
Existing industrial areas which have good access to both the road and rail network, such as at Hampshire and the former Tioxide site, are protected and promoted for activities which have a significant transport task.
Where there is a demand for new areas catering for major processing industries, the need to connect these areas to the strategic road and rail network will be considered during all planning stages in conjunction with access to other forms of economic infrastructure such as water and energy.
General industrial areas should be planned to cater for, and give preference to, industrial activities that have a legitimate need for land, freight movement and separation from other land uses.
At a regional level, suitable areas should be made available for major processing industries which have an existing or planned access to the rail network and strategic road network.
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Coordination, Consistency and Communication Issue: the need for coordinated and consistent planning actions While most land use planning occurs at a local government level, the strategic transport system and the people and businesses that use the system usually operate at a regional or state level. The people and organisations involved in land use and transport planning recognise that:
analyse regionally significant issues and trends;
develop practical means for considering the regional context within local planning schemes;
investigate the development of a regional planning statement/strategy for use in the preparation of planning schemes; and
analyse what the principles advocated within this Strategy mean for regional transport, service funding and land use planning.
land use planning decisions can have a transport implication outside individual local government areas;
the strategic road and rail networks are part of a statewide transport task that passes through many local government areas and planning schemes;
major transport infrastructure decisions can have a regional impact on traffic and land use; and
Strategy 5.8: Develop consistent approaches to land use and transport planning matters.
major transport sites, such as ports, airports and freight handling hubs are key nodes in a regional/state system.
Principle 5.8: Consistent planning scheme mechanisms will be developed for:
There is also general agreement that there is a need for:
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Principle 5.7: Land use and transport planners will convene periodic forums to:
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Strategy 5.7: Improved coordination and communication on land use and transport planning matters.
improved communication between transport and land use planners within the context of broader industry and community priorities; a consistent approach to regional/state transport matters that is common to local government areas; and a more transparent consideration of the regional implications of major transport and land use decisions.
Under the Land Use Planning and Approvals Act 1993, planning schemes must be consistent and coordinated with planning schemes applying to adjacent areas, and must have regard to the use and development of the region as an entity in environmental, economic and social terms. The processes for enabling planning schemes to take a regional perspective to local issues is one of the most challenging aspects of the planning system in Tasmania. Past attempts at establishing regional authorities to undertake regional level strategic land use planning have been unsuccessful. Developing processes to address regional issues within existing structures has potential but will need a greater level of coordination and collaboration between State and local governments.
protection of strategic port, airport, road and rail assets;
integrating linear transport infrastructure into planning schemes;
model approaches to land use planning surrounding airports; and
planning future, potential transport corridors.
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6. Principles for Transport Investment
Over the next twenty years the central transport issue will be the degree to which governments, industry and communities are able to capitalise upon and maintain the integrity of the existing system rather than the level of supply of transport services and infrastructure.
and local government still have a significant role to play in transport planning and development. It is suitable for governments to implement policies and projects that deliver broader objectives over a longer timeframe, which may not be provided through commercial forces.
There are areas, however, where the strategic freight and passenger transport system needs strengthening.
A key question in transport infrastructure investment is how to ensure public funds are applied to achieve best value for money outcomes through the provision of transport infrastructure. The Tasmanian Government and some local governments have recognised that it is not economically efficient to maintain large construction workforces, and consequently many maintenance and major projects have involved the private sector through conventional tender packaged contracts.
The terms of reference for the Strategy require it to: ‘develop principles that can inform the investment decisions of DIER, Councils and other transport providers.’
General Issues and Opportunities Private and Public Transport Investment The single largest investment in the Region’s transport system is made by the people and businesses which own the cars, trucks, taxis, buses, ships, aircraft, cycles and trains that provide transport services.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Map I shows the location of strategic transport assets in the Region.
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A considerable amount of physical assets and infrastructure are provided to service the transport system through a mixture of private, semi-government and government organisations. These include:
Private roads, driveways, transport depots and garages are provided by individuals and companies.
Public roads, footpaths and cycleways are provided by a combination of DIER, local government, the Parks and Wildlife Service and Forestry Tasmania.
The Crown owns the land on which the rail network is located, and is responsible to oversee the lease.
Trading ports, strategically managed by TasPorts.
Airports, owned by local government/ a private company, TasPorts and DIER.
While changing institutional relationships have altered the extent of government provision of transport infrastructure and services, both State
Due to growing demands on public funds, there is a focus on delivering lower-cost, effective methods of transport infrastructure through the innovative involvement of the private sector.
Map 1: Strategic transport network, Cradle Coast Region.
AusLink In June 2004, the Australian Government released the AusLink White Paper, outlining the final arrangements for development of the AusLink National Land Transport Plan. In relation to funding, the White Paper identifies the major components of AusLink as:
a defined AusLink National Land Transport Network encompassing important road and rail infrastructure links and their intermodal connections; the AusLink Investment Programme, outlining the Australian Government's investment priorities for national land transport infrastructure over the next five years;
new partnership arrangements with the States and Territories, including cost-sharing for some projects;
Roads to Recovery and Strategic Regional funding programmes to assist local and regional transport improvements; and
the continuation of the Black Spot Programme.
AusLink channels funding into three core streams: the AusLink National Land Transport Network; Roads to Recovery (including a onethird strategic component) and the Black Spot Programme. Under the Plan, the Tasmanian Government now shares responsibility for construction and maintenance of the National Network, which has been expanded to include:
National Highway (Midland Highway, Hobart to Launceston; Bass Highway between Launceston and Burnie);
East Tamar Highway, Bell Bay Main Road; and
rail corridors from Hobart to Burnie and Western Junction to Bell Bay.
Funding is for a five-year rolling programme, renewed annually. In its May 2006 budget, the Australian Government increased its initial national funding commitment of $12.7 billion to $15 billion over the first five years - 2004/05 to 2008/09.
Bass Highway – Penguin to Ulverstone duplication Stage 2: $42m
Midland Highway – Bridgewater Bridge Replacement: $57m
Bass-Midland Highways junction upgrading: $1.4m
East Tamar Highway upgrade, $60 million
Lilydale-Scottsdale Road: $7.47m
Maintenance: $5.9m (2006/07)
The Roads to Recovery programme will continue under AusLink, with committed funding of $1.35 billion between 2004/05 and 2008/09. This funding includes:
$1.2 billion to local councils ($300 million a year over four years);
$120 million to AusLink Strategic Regional projects; and
$30 million on road improvements in unincorporated areas (areas with local roads, but no councils to administer them).
The new roads of regional significance programme may be difficult for Tasmanian local governments to access. Eligible roads will likely need to join council areas and facilitate strategic transport linkages. However, under the current mix of road ownership in Tasmania, roads fitting this broad criteria are owned by the Tasmanian Government. This would see a situation where councils are seeking or advocating the expenditure of Roads to Recovery funding on State owned assets. Despite the inclusion of rail within the Network, no new funds have been allocated for the rail network over the first five-year funding phase. The Commonwealth Government has made an offer of $78 million for rail upgrades along the AusLink National Network between the Ports of Burnie, Launceston and Hobart, and will consider a $3.75 million contribution to the intermodal terminal at the Port of Launceston and up to $5 million for a proposed intermodal terminal at Brighton. The offer is conditional on the Tasmanian Government and Pacific National meeting identified undertakings.
Tasmania will receive $441.7 million under the first five year phase, of which $194.3 million is directed to major land transport construction projects (see below) and the remainder to maintenance, local road upgrades, elimination of crash 'black spots', and research and development. This allocation includes:
Bass Highway – Penguin to Ulverstone duplication Stage 1: $28.5m (complete)
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Principles and Strategies The principles and strategies proposed in this chapter directly aim to implement the regional social and economic objectives outlined in chapter 3, which relate to:
Transport Investment Principles Principle 6.1: Land Transport Land transport investment should:
reinforce the safety and efficiency of the existing hierarchy of land transport corridors;
resource use and environmental management;
incrementally develop State roads in accordance with the targeted design standards for different functional categories;
wealth-generating industries and regional advantages;
investigate inter-modal infrastructure needs, particularly road/rail;
target industry development opportunities; and
economic and productivity improvements; and
financial responsibility and strategic coordinated planning.
target weak links, including, specifically under-strength bridges on strategic roads.
job creation;
accessibility, mobility and activity;
safety and liveability;
Principles recognise:
that transport services and the infrastructure it uses is a derived demand which is driven by industry, businesses, communities and passengers; and
the existing role and responsibilities of organisations within the transport system.
The principles aim to establish a preliminary high-level framework for considering transport investment decisions; and transport investment processes.
Principle 6.2: Rail Extensions There is significant scope for rail infrastructure investment projects aimed at expanding the market for rail operators and reducing costs to users. Under existing rail access/ownership arrangements, these projects are best identified by operators and users and provided on a commercial basis. There may be justification to support public contributions to projects where it can be demonstrated that:
there are significant social, economic, transport system or industry development benefits from the project; and
the nature of the initial capital investment and low returns means the infrastructure cannot be provided commercially.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Investment Processes
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Over the next twenty years, the processes used for planning transport infrastructure investment are likely to relate to the following issues:
An increasing need to analyse the transport system as a whole.
Increasing need to focus on outcomes, such as ease of freight movement across multimodal corridors, as opposed to types of infrastructure.
Community concerns about safety, environmental and liveability issues will increasingly affect transport decisions.
Processes will need to be more lateral and creative in terms of how transport system objectives can be met. There will be a greater need to analyse land use, demand management and logistical solutions, rather than focusing on physical infrastructure. Stakeholders and the community will increasingly expect major transport decisions to be based on an objective and transparent assessment.
Principle 6.3: Marine Ports Marine port infrastructure investment should be made commercially, and driven by direct demand, whilst:
building on the comparative advantages of different ports; and
ensuring ports are able to initiate investment projects which achieve long-term, whole of transport system benefits and does not create unnecessary duplication of infrastructure.
Principle 6.4: Airport Infrastructure Airport infrastructure investment decisions should be made commercially and driven by direct demand. There is a need to maintain the frequency and flexibility of existing interstate air links to the Region.
Principle 6.5: Land Transport Maintenance Adequate investment in the maintenance of land transport infrastructure is essential to ensure that the integrity and value of the asset is preserved, and future generations do not inherit a liability.
Principle 6.11: Coordinated Planning under Auslink
Transport Investment Processes
Following the introduction of Auslink and the formulation of national priorities and processes, coordinated regional-level mechanisms will be established to ensure planning and development of the transport network is both strategic and delivers maximum, long term social and economic benefits to Tasmania and its regions.
Principle 6.6: Community, Safety and Environmental Impacts
Long-term Infrastructure Priorities
Investment processes for major projects should use cost benefit analysis and assessment techniques which fully incorporate considerations relating to safety, environmental and community impacts. Principle 6.7: Logistics, Land Use and Demand Management Solutions Transport planning should fully analyse the benefits of non-infrastructure solutions which may be offered through land use planning, logistics arrangements and demand management mechanisms. Principle 6.8: Transparency The project evaluations upon which governments make major transport investment decisions should be made publicly available. Principle 6.9: Focus on Long-term Outcomes and System-wide Benefits Processes shall focus on the best way of achieving outcomes across the whole of transport system.
Transport Planning and Investment under AusLink
Capitalising on and Maintaining Infrastructure Generally, the Region’s airport, port, road and rail infrastructure is adequate for the transport task in the Region. Increased levels of road maintenance expenditure by most road authorities will be needed to maintain service levels.
Emerging Needs and Strategic Gaps The consultation process identified emerging needs and strategic gaps in transport infrastructure. Over the next twenty years, these strategic gaps and needs are likely to relate to those issues outlined in Table 1. Identification of these strategic gaps and needs is aimed at highlighting opportunities to improve the transport infrastructure serving the Region. The gaps and needs identified do not represent an exhaustive, comprehensive or preferential list. In addition, the identification of these gaps and needs does not:
signal any specific commitment to individual projects by Councils, the CCA or the State Government;
diminish the role of small scale local projects in improving transport outcomes; or
impact upon the identification of other and/or future infrastructure issues, priorities and projects for the Region.
Principle 6.10: Establishing Auslink Processes Parties shall participate in the process of reforming national transport planning and investment, ensuring the interests of Tasmanian transport users are fully considered, and the social and economic interests of Tasmania are both protected and furthered.
Identifying regionally significant multi-modal priorities will help to ensure that investment planning maximises benefits to the entire land transport system.
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Table 1: Emerging needs and strategic infrastructure gaps General Issue and Need
Emerging Needs and Strategic Gaps
Key Regional Roads
Improvements to regional freight road connecting the Smithton area to the Burnie/Devonport strip
Whilst the alignment of the State road network is substantially mature, freight, tourist and general road use continues to grow fastest on major arterial roads. Over the past three decades there has been a significant improvement in the Category I National Network through to Burnie. The regionally significant roads linking the main urban industrial area on the North West Coast to the far North West Coast and the West Coast require substantial improvements to meet the current and future transport task. There is significant scope to improve design standards to meet the targeted measures under the State Road Hierarchy particularly on Category 2-3 roads that fulfil a critical regional function.
This section of the Bass Highway provides a critical role in: connecting the communities of the Circular Head area to the services and
opportunities provided in the urban area of Burnie/Devonport; and transporting freight in the horticultural, livestock, dairy, forestry, mining and
fishing industries to state, national and international markets. The Tasmanian Government has demonstrated its commitment to the Bass Highway between Burnie and Smithton by spending more than $26 million on new works since 1998. Suggested improvements include overtaking lanes, curve realignments, road widening and junction improvements. Concerns related to the ’Sisters Hills’ section of the Highway are being addressed under a joint Tasmanian and Australian Government funded project to upgrade this section of the Highway. The project, which has commenced, will focus on six priority projects, covering around 13km of the Highway at 10 different locations, and provide important safety and efficiency benefits. The priority projects were identified by a joint working group comprising the Tasmanian Government, Burnie, Waratah/Wynyard and Circular Head Councils, Cradle Coast Authority, RACT and the local community.
Improvements to regional freight road connecting the West Coast area to the Burnie/Devonport strip This route, which includes Ridgley Main Road, Guilford-Hampshire Main Road, Murchison Highway and Lyell Highway, provides a critical role in: connecting the communities of the West Coast to the services and
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
opportunities provided in the urban area of Burnie/Devonport.
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transporting forestry and mineral products, and providing access to
significant tourism markets. Projects and improvements that bring the road up to a Category 2-3 design standards will improve the safety and efficiency of this critical road for all users.
Ports and industry
Road and port infrastructure associated with scheelite mine at Grassy
The major commodities exported in the Region are well handled through existing port infrastructure. Major new activities such as mines can generate the need for new port infrastructure.
Whilst the Grassy mine contains a world-renowned scheelite deposit, international competition forced its closure in the early 1990s. In 1998, the mining licence was converted to a retention licence, providing for its re-opening if economically viable.
While surrounded by urban development, the major trading ports at Burnie and Devonport have the potential to cater for increased port use.
The existing port at the site was built to cater for previous mining operations. It is likely that any new mining operations would generate a need for new land infrastructure linkages. It may also provide an opportunity to use the overburden from the reopened mine to develop a new port facility for King Island.
Table 1: Emerging needs and strategic infrastructure gaps General Issue and Need
Emerging Needs and Strategic Gaps
Land Transport and Industrial Areas
Road and rail infrastructure associated with major processing industries at Port Latta
The need for new arterial freight rail lines and roads is likely to be linked to major new industrial activities which have a significant freight task.
A major mining industry strategy and land use/infrastructure planning study have identified the area near Port Latta as having a significant comparative advantage for major industrial activities, particularly mineral processing, due to its geographic, land use and infrastructure characteristics. The area is located on the main rail line and is close to the Bass Highway. Any major industrial activities locating in the area would generate a need for road and rail improvements and new infrastructure connections.
The nature of resource industries in the Region and the potential for value adding resource processing industries provides considerable opportunities to expand the rail freight task.
Road and rail infrastructure associated with major processing industry at Dulverton A major strategic planning project being undertaken by the Latrobe, Devonport and Kentish Councils has identified the Dulverton area as suitable for major processing industries due to its geographic characteristics and access to economic infrastructure. Depending on the transport characteristics of any new industrial/processing activity moving to the area, there is likely to be a need for improvements to road and rail and, potentially, new infrastructure connections.
Rail Freight There has been significant under- investment in the main rail line connecting ports and major industrial areas. While the strategic road network has been planned, realigned and extended to provide both freight efficiency and physical connectivity, there have been no new alignment improvements or extensions to the rail line over the past 30 years. The profile of the Region’s industries and its capacity for increased resource-based production and national/international export, mean rail operations should increasingly provide the best and least cost transport option. Increased rail freight may also see demand for improved alignments which avoid coastal towns.
Rail connections between the Smithton area and the main line at Wiltshire The main rail line currently terminates at Wiltshire, around 15km short of the Smithton and around 40km from the heart of the State Forest resources in the far north west. The industrial area in the northern section of Smithton is a critical area for processing and general industry on the far North-West Coast. Forestry Tasmania has established a new merchandising yard at the Circular Head Wood Centre. Providing a rail connection to the industrial area or into the forests to the south of Smithton would provide increased freight options for business, and reduce traffic volumes on the Bass Highway.
Rail loops or duplicate rail line between Cement Australia at Railton and Devonport Port The rail line between Cement Australia and the Port of Devonport carries the largest tonnage of the main rail line. With increasing rail freight between the North-West Coast and the rest of the State the single line leads to congestion and delays in handling the rail freight task. A series of rail loops or double rail line along this section would increase the capacity of the rail freight network and enhance its ability to compete with road transport.
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Table 1: Emerging needs and strategic infrastructure gaps General Issue and Need
Emerging Needs and Strategic Gaps
Forestry Harvesting
Improvements to local road network catering for increased plantation forestry and the transport of timber to Hampshire
Increased forestry plantation activity requires increased investment in strategic rural arterial roads and road/rail log transfer yards. A northern Tasmanian pulp mill will require the transportation of higher volumes of forest resources by road and/or rail.
The area of land south of Burnie through to Waratah contains a high level of plantation forest. The Hampshire wood mill, located in the centre of this area, is a major destination for forest products. Most timber will be transported out of these plantations using private roads to access State highways. There may be a need to improve local roads east and west of the Hampshire mill, to cater for the transport task.
Transport network impacts of a northern Tasmanian pulp mill A private proponent is investigating the establishment of a pulp mill at Bell Bay. Meeting the resource inputs required to support this proposed pulp mill will create additional transport movements across the Region. Resources will be moved across the north of the State to the pulp mill site by either road or rail. There is a need to strategically manage the transportation of logs across the entire northern area into the longer term as plantation activity increases volumes.
Tourism Clusters Three clusters of critical tourism product mass provide the core framework for tourism industry development in the Region. The clusters are: North-West Coast; Cradle Mountain; and the
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
West Coast.
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These clusters incorporate important local hubs and have direct and important links to neighbouring towns, businesses and activities. Road infrastructure and design improvements that strengthen inter- and intralinkages for all road users within these clusters and hubs, can enhance transport efficiency and provide economic, environmental and community benefits.
Improvements between Arthur River and Smithton to create a long term loop route for tourists, and improved freight access The Tasmanian Tourism Development Framework identifies the far North-West Coast as an emerging tourism cluster. Associated with the future development of the major attractions and services that characterise a cluster, is the identification, development and promotion of local touring routes, linked to the major State routes. The long term development of an improved circular route linking Smithton and Arthur River represents one possibility. The route could form part of the long-term development of tourism and tourism products in the area.
Integrated transport hub, Cradle Mountain The Cradle Valley Tourism Development Plan 2002 identifies a number of infrastructure-related issues for the area, including poor road alignment and surface; overflowing carparks and traffic congestion. The Plan provides for an integrated transport hub, centred on Cradle Mountain Village, that includes centralised carparking with transport and visitor service options into the World Heritage Area. Trial of a visitor shuttle bus service has been ongoing since late 2003.
Improvements to parking, traffic circulation, road network and touring experience in and around Strahan A 2001 report, based on the outcomes of a community workshop, identified road infrastructure and traffic issues facing Strahan, including: Upgrade of town entrance to enhance safety, mobility and amenity for all
vehicles. The existing entrance is considered to provide a less than positive initial visual image for tourists. Improved road infrastructure and traffic management within the town.
Strahan is a destination for the majority of traffic and handles very little through traffic. Suggested improvements include junction upgrades, parking facilities and pedestrian and cycle paths. The Esplanade provides a focus for tourism and commercial activity. Road and traffic improvements that enhance mobility, safety and amenity for vehicular and pedestrian traffic would be advantageous.
Table 1: Emerging needs and strategic infrastructure gaps General Issue and Need
Emerging Needs and Strategic Gaps
Weak Links and Gaps
Rail link at Hampshire mill to transport woodchips to Burnie Port
The Region’s transport network is only as strong as its weakest link. Over the next twenty years there is scope to target:
The Hampshire wood mill south of Burnie is a major regional transport destination for forestry products. An infrastructure gap prevents woodchips being transported out of the mill by rail. A short rail connection and loading facilities at the mill would enable woodfibre to be transported by rail to the Burnie Port.
Devonport Port container transport
road and rail linkages; rail connections to the port
at east Devonport; productivity improvements
to Categories 2–4 roads; and under-strength bridges on
strategic roads.
The Port’s main container berths, located on the eastern side, currently have only road access; the western half of the Port, which handles bulk resources, has both road and rail access. Recent private investment in the eastern port has consolidated container transport on the eastern section of the Port. There is a need to improve the efficiency of rail based container transport, and reduce the amount of road freight used to transport containers to and from other parts of the State.
Bass Highway alignment north of Latrobe Over the past two decades, the safety and efficiency of this section of Category 1 Highway has declined significantly. There is a need to ensure plans for this Highway, through to Port Sorell Main Road, identify and protect the most suitable long term alignment.
Map 1: Overview of key emerging needs and strategic gaps in regional transport infrastructure, Cradle Coast Region Currie
Grassy
Road and port infrastructure, scheelite mine, Grassy.
Improvements to regional freight road connecting Smithton to Burnie and Devonport. Road and rail infrastructure associated with major processing industry at Port Latta.
Improve rail connection to Smithon/forest resources to south of current line. Creation of improved loop, Arthur River to Smithton in the long term
Improvements to ‘Sisters Hills’, Bass Highway. Improved use of rail for transport of containers.
Smithton
Wynyard Burnie
Passing loops/ duplicated rail line, Cement Australia and Port.
Arthur River Improvements to local road network to cater for increased amounts of plantation timber to Hampshire. Rail connection, Hampshire mill for transport of woodchips.
Devonport Hampshire
Railton
Cradle Mountain
Improvements to regional freight road, West Coast to Burnie/Devonport. Improvements to tourism experience, traffic circulation, parking and road network, Strahan
Bass Highway alignment north of Latrobe.
Road and rail infrastructure associated with major processing industry at Dulverton.
Integrated transport hub, approaches to Cradle Mountain.
Zeehan Queenstown Strahan
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7.1. Accessibility
Walking was the second most popular form of transport, with other modes, including bus and cycling, forming only a minor component.
Accessibility describes the ability of people to access goods services, social and recreational activities using an acceptable amount of time, money and effort, and in safety. It a key objective of any transport system. Accessibility is partially determined by the modes of transport available and the relative distance to destinations. For example, people whose only means of transport is walking or cycling will have a far higher degree of access to basic services if they live near the centre of town in comparison to persons living in remote, rural locations. Over the past forty years, increased car ownership has greatly improved the personal mobility of the majority of individuals and families within the Region. The lifestyle, time and locational choices car ownership has provided has contributed to an enhanced quality of life for most people.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Cycling and walking provide generally localised transport options, and have additional health and environmental benefits. However, the relative convenience, comfort and personal security provided by cars make the motor vehicle the mode of choice for many short trips which could be undertaken by cycle or on foot. In order for the proportion of trips undertaken by cycling and walking to increase, these modes need to be made as safe and convenient as possible.
Journey to Work data is currently the only periodic survey measuring how Tasmanians travel on a daily basis. Reflecting national and State trends, the dominant method of travel to work within the Region is private car (see Figure 1).
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In a public policy context, there is a concern that individuals and families who do not have access to a private car and the mobility a car provides, may suffer social and economic disadvantage. To address this concern a diverse range of subsidies, concessions and regulated passenger services have been established to improve access for key groups.
The basic aim is to promote cycling and walking ‘friendliness’ in all aspects of transport and urban planning, and infrastructure design and provision.
Figure 1: Journey to Work, Cradle Coast Region, 2001 West Coast
Waratah/Wynyard Pt A
Latrobe Pt A
Kentish
Circular Head
Central Coast Pt A
Burnie Pt A 0%
20% Car (driver)
Car (passenger)
40% Walked only
60% Bus
80% Bicycle
100% Motorbike/taxi
Transport Disadvantage
Public Passenger Transport
Where accessibility is constrained, transport disadvantage can occur. Transport disadvantage arises from a range of factors, including an individual’s personal characteristics, such as income, age and health, settlement patterns, the relative location of key services, and available public transport services.
Tasmania has three distinct public passenger transport sectors:
People who are transport disadvantaged tend to rely on walking, public transport services, such as buses, lifts from family and friends, and taxis, to meet their transport needs. Research shows that people with certain characteristics undertake a lower than average number of trips because of personal limitations including age, income and health, which affect their ability to use, afford and access transport services. These characteristics are:
Adults who do not have access to a car;
Persons aged over 60 years;
Persons on a disability pension
Adults on a low income
Adults not in the labour force
Young people below 17 years; and
Persons enrolled in an educational institution.
Tasmania’s aging population will increase the proportion of the population who are transport disadvantaged. While many older people will continue to drive, a proportion, particularly as they age will become reliant on public transport and assistance from family and friends. The Tasmanian Government operates a range of programmes to reduce transport disadvantage and facilitate mobility for individuals. The provision of core passenger bus services in urban and regional areas, subsidisation of transport costs for eligible travellers, and specific-need schemes such as the introduction of wheelchair accessible taxis and community transport funded through the Health and Community Care programme, provide key examples.
Tasmanian Transport Access Scheme The Tasmanian Transport Access Scheme (TAS) provides parking and taxi fare concessions for people with severe or permanent disabilities. There are currently 19 000 TAS members, with DIER currently receiving between 300 and 400 new applications for TAS assistance per month. From an allocation of $640 000 in 2001/02, the budget for TAS has increased to $2.06 million in 2004/05, representing a growth of around 222% in four years.
1. Core passenger bus services In the 2005-06 financial year the Tasmanian Government will spend $57 million on the provision of regular bus services through direct funding and fare concessions (see Table 1). This expenditure includes:
Metro bus services in Hobart, Launceston and Burnie ($22.9 million) and Mersey- Link’s metrostyle bus services in Devonport ($1.3 million);
school bus services providing free transport for school students to and from schools across Tasmania ($20.6 million) and conveyance allowances assisting isolated students ($733,000);
route bus services ($8.4 million):
between the major cities and towns in Tasmania (eg Hobart to Launceston);
linking the urban fringe areas to the city centres (eg New Norfolk and Sorell to Hobart, George Town and Longford to Launceston);
transporting school children from the urban fringe to schools within the city centres;
transporting children to and from school within smaller regional centres such as Ulverstone, Rosebery, Scottsdale and Sorell; and
transporting children to and from school within Hobart, Launceston, Devonport and Burnie.
Table 1: Transport concessions Tasmania, 2003/04 and 2004/05 2003/04 ($m)
2004/05 ($m)
20 877
21 557
Conveyance allowance
733
733
Driver licence concession
772
790
Motor tax rebate
895
912
1 280
1 370
School bus operators: contract services
18 832
19 397
School bus operators: route services
6940
7148
903
1081
8
8
1 510
2 063
52 750
55 059
Metro Tasmania
Motor vehicle registration fee concession
Pensioner aged and unemployed concessions (private operators) Pensioner air travel subsidy Transport access scheme TOTAL CONCESSIONS
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2. Commercial public passenger services The commercial sector of Tasmania’s passenger transport system includes taxis, luxury hire cars and charter buses. Demand for these services is driven by market forces, where users are free to pay a premium for individualised door to door travel.
A regular air passenger transport service provides a critical connection between King Island and both Tasmania and Victoria.
Table 2: Transport providers, Cradle Coast Region, 2005
3. ‘Community’ or flexible transport ‘Community transport’ refers to heavily subsidised or free-to-user transport services that are provided by welfare and community-based organisations. People use community transport where regular passenger transport (i.e. scheduled bus) services are either limited or unavailable, where commercial services are too expensive and where people are unable to use other services because of physical, age and health re-lated reasons. Transport providers operating within the Region are shown in Table 2. Services are offered by a diverse range of providers, across the State, regional and local areas and under a variety of funding programmes. This situation reflects the ad hoc development of community transport services in Tasmania, with a more coordinated and strategic approach likely to result in improved outcomes for both transport providers and users.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Rural and Regional transport services
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The Region’s dispersed settlement pattern makes the provision of affordable public transport challenging. Just as Tasmania is Australia's most decentralised state, the Cradle Coast Region is Tasmania's most decentralised region. Whereas the north-east and south of the State have a high proportion of the population living in 'radial' urban areas, the settlement pattern of the Cradle Coast Region is characterised by a 'linear' strip of towns and cities along 70 km of the North-West Coast, with outlying rural and regional towns. Key features of the Region’s public passenger transport system are:
regular urban bus services centred on Burnie and Devonport;
a dense network of student bus services (the Region has 143 school bus contracts);
regular long distance bus services linking major towns and cities;
small, specialised community transport services; and
taxis, predominantly located in major towns and cities.
Town/suburb Area served CTST Ulverstone
Ulverstone
Ulverstone, Sprent, Nieta, 30 min south
Kentish (Sheffield) HACC Bus
Sheffield
Sheffield Railton, Latrobe
North West Volunteer Service
Burnie
Burnie and surrounds
West Coast Council (Queenstown)
Queenstown Queenstown, Strahan, Zeehan
Wyndara Centre Inc.
Smithton
Smithton and surrounds
Tandara Lodge Community Care Inc
Sheffield
Sheffield and surrounds
Patient Transport Services South
Burnie
State-wide
Returned Services League - Rosebery
Rosebery
Rosebery area
Red Cross - Burnie
Burnie
All North West Tasmania
Burnie Youth Accommodation Service
Cooee
Burnie and surrounding rural
Circular Head Aboriginal Corporation
Smithton
Smithton area
Mersey Community Care Association (Transport)
Devonport
Devonport and surrounds
Based on known services provided at time of study
General Issues and Opportunities Review of Core Passenger Services The Passenger Transport Act 1997 abolished the rigid public vehicle licensing regime and obliges the Government to facilitate a two-stage process for reviewing all essential (core) regular passenger transport (RPT) services. The Review process is scheduled to conclude by 30 June 2008. Core passenger services include 486 school bus contracts (covering over 600 routes), approximately 100 route service contracts and the Metro and Mersey Link contracts. Nearly every centre in Tasmania receives a core passenger service. School bus services and the presence of conveyance allowances mean that buses are provided. However the current guidelines restrict who can travel on these services and limit the services to school children. Other students and groups are not provided with access to these services. The Review will be conducted in 3 broad stages:
Stage 1: Data/information gathering, initial operator and community consultation and determination of the route review process.
Stage 2: Individual route reviews in consultation with operators and local communities; provision of recommendations to Government.
Stage 3: Implementation of the decisions of Government in relation to the Review.
Key issues examined by the Review include:
Age of the bus fleet.
Application of the Disability and Discrimination Act 1992 (DDA) standards.
Appropriate standards for buses used to deliver core services.
Safety.
Services to urban fringe areas and in the four main population centres.
Conveyance allowances, concessions, subsidy levels and fare inconsistencies.
Payments to operators of core services and their contracting obligations.
The Review has visited nearly every operator in the State and gained data on nearly all bus routes. Additional consultation, including public meetings, has involved over 600 people.
Rural Transport Solutions Project There are unmet transport needs in parts of rural Tasmania where core passenger services are either limited, unavailable, or not appropriate for essential transport needs. While the role of community transport is becoming increasingly important there appear to be opportunities for enhanced coordination within the existing system. The Tasmanian Government is investigating alternative means to meet the needs of rural communities that have limited or no core services through the Rural Transport Solutions project. The project aimed to:
coordinate government transport-related funding and procurement arrangements;
encourage further improvements in community transport coordination; and
address regulatory impediments to the delivery of community transport.
The first stages of the Project are now complete, and included: Market Research to capture the views and perceptions of key stakeholders in relation to the effectiveness of current arrangements. Stakeholders surveyed include public transport users, community transport providers, commercial transport industry and government agencies that fund transport-related services. Infrastructure audit. An audit of community transport resources to obtain data on:
The location, number, capacity and wheelchair accessibility of community transport vehicles currently deployed in Tasmania
Funding sources supporting the provision and operation of each vehicle.
Any legislative/regulatory restrictions or condition of funding or accreditation that restricts the use of vehicles in any way.
Temporal span and frequency of service availability; patronage on existing services, and utilisation rate.
Financial contribution made by the vehicles’ passengers.
Total capital and operating cost of each vehicle, including fuel, insurance, vehicle purchase/replacement cost and maintenance, volunteer reimbursement, wages and administrative expenses.
Insurance, including public liability.
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Demographic profiling to identify demographic characteristics and trends in target areas as a basis to forecast likely future service demand. The Project has demonstrated the wide range of community transport service providers across Tasmania, and confirmed that community transport plays a major role in Tasmania’s passenger transport system. Outcomes of the project will be used to inform policy development and related initiatives for consideration by the Government. Wheelchair Accessible Taxis Wheelchair Accessible Taxis (WAT) commenced operation in Tasmania’s major metropolitan centres in 2004/05. WAT services have provided significantly improved access and mobility for wheelchair-dependent travellers. Demand for WAT services has been strong. Between 1 January and 10 October 2005, 46 400 trips were undertaken by the WAT fleet, with 48% of trips carrying wheelchair-dependent passengers. A total of 33 WAT licences have been made available statewide over the past two years: 16 in 2004 and 17 in 2005. There are now 10 WAT vehicles licensed for operation in Hobart, 4 in Launceston and 1 in each of Devonport and Burnie (see Table 3).
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Table 3: Current and available WAT licenses, Tasmania
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Taxi area
Current licences
Min. extra licences available ‘06
Max. extra licences available ‘06
Hobart
207
10
20
Launceston
91
5
10
Burnie
22
1
2
Devonport
22
1
2
A further 17 WAT licences were made available in March 2005. Sixteen of those licences have now been issued and these additional WATs will be on the road in the second half of 2005. The only metropolitan taxi area for which an application was not received in the 2005 round was Devonport. This licence remains available to anyone who can submit a compliant application.
Land Use Planning Land use planning decisions regarding the location of housing, commercial services and employment can have a significant impact on accessibility. For example, locating activities such as retail shops that generate a high level of public use, in areas which support walking, cycling and bus services can improve accessibility. Generally, a mix of land uses or the ‘clustering’ of compatible activities and facilities, and higher density urban areas can:
Support non-motorised transport, particularly for short journeys;
Decrease total number of car based trips, by concentrating uses in one location; and
Provide a critical mass for public passenger transport services.
Broader trends compound the challenges of better integrating land use and transport planning. For example:
At a state and regional level, Tasmanians are moving from remote, rural and inland areas to urban and coastal settlements.
At a local level, a preference for low density housing with good access to major urban centres (Hobart, Launceston, Burnie and Devonport) is strongly evident.
Detached single dwellings on private lots, including larger lots, remain the preferred housing type.
The issue of land transport planning and accessibility is explored more fully in Chapter 5. Facilitating Short-term Passenger Transport Opportunities The Review of Core Passenger Services is a high-level, regulatory and structural review of core passenger services provision in Tasmania. Additional opportunities to improve public transport services may exist in the shorter-term and outside this Review process. The Wheel Deal programme, trialled in the Dorset municipality, represents one such opportunity. The programme provides community transport for young people in the area via a brokerage service. A transport hotline helps young people to source transport at an affordable price, with passengers making a contribution toward travel costs. The programme was designed by young people and transport providers in consultation with Dorset Council.
Strategies
Community Passenger Facilities
Bus Interchange Facilities
issue: the challenge of passenger transport in remote communities
issue: connectivity, safety and comfort of bus interchange areas Major bus stop and interchange areas in the centre of towns and cities are important access points to shopping, business activities and civic and recreational facilities. They can provide a focus for activities and provide a ’gateway’ to local business areas. Over the past decade, improvements to the Central Business Districts in Devonport and Burnie and major towns have greatly improved the image, comfort and convenience of bus interchange areas. There is still significant scope to improve the pedestrian and cycling links to central bus stations, encourage compatible adjoining land uses and improve the comfort and convenience of facilities. Strategy 7.1.1 Enhancing movement networks to, and convenience of, central bus interchanges. Outcome Centrally located bus stops with improved pedestrian and cycle links and a high level of comfort and security for users.
Action Incremental improvement of the use, comfort, safety and connectivity of bus interchange areas in urban centres through mechanisms such as:
providing and improving pedestrian and cycle links for bus interchange areas to surrounding business and residential areas;
provision of secure bike parking;
extending pavements to provide more room for waiting passengers;
provision of rain/wind shelters, security lighting and information panels;
encouraging active retail/business activities around the interchange areas; and
providing parking spaces and concession for community transport vehicles.
Organisations Local government, bus operators
The review of core passenger services aims to ensure that an efficient and reasonable safety net of passenger services is available, and that these services target the essential transport needs of regional and urban communities as adequately as budgetary constraints allow. In the context of ongoing budgetary constraints, it is likely that, despite the review process, small rural and remote communities located off the main networks will continue to be without regular passenger transport services. This is unless there is sufficient local patronage for an operator to run a commercial service which can be supported through commercial fares and concession fares for which the government pays its per passenger subsidy as a standard ratio of the fare. If small, regional communities are located off the main network and are too small to support a core regular service of their own, then there will be a need for DIER to work with local government to identify alternative transport solutions. One option is to make fuller use of existing school bus services that operate daily into nearby centres. It is recognised that addressing the transport problems of rural and remote communities in Tasmania will require locally based solutions. That is, where remoteness is such that a transport service is untenable, there is a need to consider other options such as:
better use of existing community based transport; and
developing mechanisms which enable transport services to be better shared.
Strategy 7.1.2 Enhancing passenger transport options in rural and remote communities. Outcome More flexible and responsive use of passenger transport to cater for the access needs of rural and remote communities.
Action Investigate options and mechanisms for enhancing and better utilising community transport services in remote and rural communities. Organisations DIER, local government, relevant community groups.
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Better Catering for Cycling issue: facilitating safe travel for cyclists along the north-west coast
Organisations
Generally, people have a positive attitude towards cycling, however cyclists are vulnerable road users, particularly on high speed roads.
issue: providing improved transport options for wheelchair dependent persons
Along many sections of the coast the Bass Highway is the only cycling route available. However, poor alignment and inadequate road shoulder width create safety issues on some sections. The strategic significance of the Bass Highway as the Region's primary cycle route warrants greater provision for cycle lanes that are separated from vehicular traffic.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Investigate the development of complementary off-Highway cycle routes and paths.
Cycling is an environmentally friendly and economic mode of transport, offering significant health benefits to individuals. It is an accessible form of transport for most of the Region’s population.
The linear form of towns and cities along the North-West coast means that the Bass Highway provides the key transport link for 75% of the Region’s population. For many cyclists, the Highway is the fastest and most convenient route, however alternative off-Highway routes (including sections of the old highway alignment and localised paths) may also be preferred by cyclists for safety and amenity reasons.
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Action 2
DIER, CCA, local government, cycle groups Wheelchair Accessible Taxis
The introduction of wheelchair accessible taxis into Tasmania has provided significantly improved access and mobility for wheelchair dependent persons. Currently, 1 WAT licensed vehicle is available in each of Devonport and Burnie, with an additional license available, but not yet taken up, in Devonport. The licence remains available to anyone who can submit a compliant application. Given the significant benefits offered by WAT vehicles, the uptake of this license and introduction of further vehicles is important. Strategy 7.1.4 Improved accessibility for wheelchair dependent travellers. Outcome
The Cradle Coast Tracks Strategy identifies two projects directly related to improving off-road access for cyclists. The undertaking of a planning and route alignment study for the development of priority sections of a coastal path linking Devonport to Wynyard, is particularly relevant. The path would provide an important alternative transport linkage and would be multiuse.
Enhanced transport choice and access for the Region’s wheelchair dependent travellers.
Strategy 7.1.3
Organisations
Better catering for cyclists along the NorthWest coast, including between major urban population centres.
DIER, CCA, local government
Outcome Safe and convenient travel for cyclists along the North-West coast using a combination of on- and off-Highway routes and paths.
Action 1 Provide safe and convenient conditions for cyclists along the Bass Highway separated, wherever practicable, from arterial traffic through wide sealed shoulders and on-road cycle lanes.
Action 1 Encourage the uptake of the additional WAT license in Devonport and investigate the feasibility of introducing further WAT vehicles into the Region.
7.2. Road Safety
Over the past twenty years, the number of fatalities on Tasmanian roads has fallen by over 50% despite an increase in the number of motorists over the same period. This reduction is primarily linked to a series of initiatives over the period including:
introduction of seat belts;
random breath testing;
improvements in vehicle design;
speed cameras; and
community education programmes.
However, over the past two decades, there has been no significant decline in the number of people injured on Tasmania's roads. Challenges to improving road safety outcomes in Tasmania include:
Numerous hilly and winding roads, which have high scenic appeal but require slow travel speeds.
Rapidly changing weather patterns and extreme conditions in exposed areas.
Large numbers of tourists driving on unfamiliar roads.
A car fleet, which for a variety of economic and social reasons, is the oldest in Australia.
A dispersed population and significant numbers of people living in rural and isolated areas for whom mobility is an issue of high concern.
The difficulties in providing a public transport system to rural and isolated communities.
An ageing population, resulting in an increased number of high risk, older drivers on the road.
A significant number of motorists who continue to speed.
In 2004, the main causes of road trauma in Tasmania were inattentiveness (25.6%); not giving way (8.8%); excessive speed (6.2%); road conditions (5.4%); and blood alcohol content over 0.05% (6.4%). Almost a third (28%) of all road accidents in Tasmania in 2004 were attributed to ‘other causes’ including failure to keep left, pedestrian or passenger responsible, vehicle defects, infirmity, dazzled by lights, attributed to animals and following too close.
10% of road accidents in Tasmania in 2004 were attributed to unknown causes. Whilst statistics show that most of the characteristics affecting road safety in the Cradle Coast Region are the same as for Tasmania as a whole, there are some differences (Table 1). For example, a higher proportion of accidents involving leaving the road, in speed zones over 100 km/h and speeding.
Table 1: Selected road safety statistics, Cradle Coast & Tasmania, 2000-2004 Cradle Coast Tasmania (%) (%) Cause of crash: speed
7.2
5.9
1
1.9
Cause of crash: road condition
6.5
5.1
Cause of crash: not giving way
9.9
8.3
Cause of crash: inexperience
5.8
4.3
Cause of crash: inattention
20.3
23.5
Type of crash: rear end
12.7
17.7
Type of crash: leaving road
22.7
17.4
4.4
6.1
Type of crash: collision with parked vehicle
11.7
13.7
Speed zone 60 km/h
36.8
44.7
Speed zone 100 km/h
22.9
17.0
Cause of crash: ignoring signals
Type of crash: side swipe
A combination of two or more of the following factors:
speed;
road condition;
leaving the road; and
crashes within zones of 100 km/h and over;
account for more crashes than the Tasmanian average.
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Targeting driver behaviour, such as blood alcohol, speed, inattention and fatigue, via education and enforcement, is an essential element of any road safety strategy. However, increasingly, attention must be focused on road safety measures other than improving driver behaviour, including:
road engineering (e.g. divided highways and speed calming measures);
reduced urban and rural speed limits, particularly where roads do not have protective infrastructure characteristics to safeguard drivers in the event of a crash; and
encouraging consumers to access the latest developments in vehicle design and safety (e.g. airbags and side-impact protection).
Characteristics of Road Safety and Road Types In terms of road safety, prevention is better than cure. General road improvements which are designed to cater for increased traffic, changes in types of road users, replacement of assets or changes in land use can have significant road safety benefits. Figure 1 shows the differences between the factors associated with crashes in the Cradle Coast Region in comparison to Tasmania as a whole. The most significant differences include:
A higher percentage of accidents involving excessive speed, not giving way, reversing, overtaking, road conditions, inexperience, animals and not keeping left.
Causal factors such as following too closely, hit and run and ignoring signals were less significant compared to Tasmania as a whole, reflecting the largely rural nature of the Region.
Improving the safety of roads is the single most significant factor in reducing road trauma. At a regional level, road safety measures are likely to focus on improved road engineering; land use planning; and traffic management.
Regional Road Users The Region contains a range of different transport infrastructure users. In 2004, the following type and number of vehicles were registered in the Region: C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
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58 800 passenger vehicles; 11 900 light commercials; 8 200 trucks; 2 400 motor cycles; 400 buses; and 67 caravans.
Whilst the needs of individual road users will vary, generally all users require a road environment that is visually clear and easy to interpret. Not all road users enjoy the same level of safety. Over the next twenty years, the number of commuters, tourists and older drivers on Tasmania's roads will increase. These groups have characteristics that may increase the risk of road crashes, including increased time spent on the road; unfamiliarity and uncertainty regarding road conditions; and physical impairment. In 2001, 13.4% of the population within the Region were aged 65 and over, with the highest percentage recorded in Burnie-Devonport (14%). Journey to work statistics also indicate that, in some municipalities, between 30% and 50% of residents travel outside their area for employment. High commuter areas include: Latrobe (urban) - 51 %; Burnie (urban) - 47%; and Devonport, Central Coast and Waratah/Wynyard (urban) - 33%.
The crash profile of the Region is directly related to the relatively higher proportion of driving that occurs on rural open roads as opposed to urban roads. The development of strategies that recognise road safety on rural roads was identified as a high priority during the consultation phase of the Strategy. The characteristics of rural, open roads include:
High incidence of crashes related to loss-of control, head-on collisions, overtaking and at intersections.
As there are fewer places to overtake, this can be a more high-risk activity on a rural road as opposed to a highway.
Traffic levels are generally small, which can make engineering treatments and regular enforcement difficult.
Table 2 shows the characteristics, crash profile and possible safety interventions for different road types. If not for cost, it would be possible to design and build each road to be virtually crash proof at suitable speeds. In reality, roads are built to a safety standard that is economically and socially justified by the amount and type of traffic carried. Within the Region, there is approximately 400 km of Categories 1 and 3 major arterial roads, and 3,500 km of rural roads. Generally, these roads will never be able to justify the levels of road improvement expenditure that occurs on major arterial roads. More incremental, small scale and adaptive intervention techniques are needed to improve rural road safety.
Where traffic is highest, the community can afford separate lanes to carry traffic in different directions. At the other extreme, traffic is generally so low on many rural roads that only low cost engineering treatments are justifiable. On these roads it is particularly important to ensure new works are designed and constructed with safety in mind, as the cost of retro-fitting unsafe works can be prohibitively high.
General Issues and Opportunities Tasmanian Road Safety Strategy
Local governments are also addressing the needs of cyclists and pedestrians through the introduction of cycle lanes and cycleways, as well as pedestrian refuges and wider footpaths. In Tasmania, considerable safety improvements can be achieved through implementation of targeted, cost-effective road improvements. Careful analysis of crash data is essential to determine emerging crash trends, and to ensure that road planning and design are tailored to specific needs. Cost-effective measures to improve safety include audible edge and centre lines, and improved delineation through increased use of pavement markers and warning signs.
Both the State and local governments already commit considerable resources to improving the safety of Tasmanian roads. There is now widespread use on local government roads, particularly in urban centres, of a range of safety measures such as speed calming devices, especially in shopping precincts.
Figure 1: Factors associated with accidents, Tasmania and Cradle Coast region 2000-2004 Inattentiveness Other Not giving way Not known Excessive speed Reversing
CRASH FACTORS
Road conditions Inexperience BAC greater than 0.05% Involving animal Not keeping left Following too close Turn without care Ignoring sign Overtaking
Tasmania Cradle Coast
Hit run Ignoring signals 0
5
10
15
20
25
PERCENT %
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Table 2: Characteristics, general crash profile and proposed interventions for major road categories Road type
Characteristic
Crash profile
Examples of interventions
Highways and major arterial roads
Link cities and larger towns
Loss of control
Audible edge lines and sealed
Speed limit range of
Head-on collisions
80 km/h – 110 km/h
and overtaking Intersections
shoulders Forgiving roadside environments Provide overtaking opportunities Control new junctions & accesses Separation of opposing traffic flows
through use of mid-road barriers Minor rural roads
Rural roads of varying
standard Speed limit range
60 km/h – 100 km/h
Loss of control Head-on collisions
and overtaking Intersections
Less freight an general
Arterial or busy
distributor road Generally local govt.
- controlled Speed range
50 km/h – 80 km/h Minor urban
Intersections Pedestrians and
Intersections Pedestrians and
cyclists Loss of control
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
traffic signals and roundabouts Provide cycle lanes
Control crossroads and junctions
with signs and roundabouts of consistent and cycle-friendly design Improved lighting and delineation Cycle lanes use and conflict warrant
local govt.
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Control all intersections, e.g.
Rear-end collisions
General speed of Design standards by
bends where speed should be reduced by 15 km/h or more
Median refuges for pedestrians
cyclists Loss of control
Controlled by local govt.
50 km/h – 60 km/h
volumes warrant Advisory speed signs on all
Advance intersection warning signs
traffic than major arterial roads Major urban/ connector road
Sealed shoulders where
Tasmania’s Road Safety Strategy 2002-2006 outlines a range of actions related to road infrastructure improvements that address safety concerns.
encourage all road owners to develop and implement appropriate engineering treatments at crash sites;
These actions include to:
work with local government to develop community road safety programs that encourage community involvement in identifying and reporting perceived trouble areas; and
consider all road-user needs in road design and traffic management plans, including those of light and heavy vehicle drivers, motorcyclists, cyclists and pedestrians.
ensure that road safety is pre-eminent in road design & in setting road improvement priorities;
ensure the systematic analysis of crash data and road safety audits to inform planning and design of road improvement and development programs;
establish a code of practice for the design and maintenance of safe and 'forgiving' roadside environments;
make road safety audits mandatory at designated stages of road design and construction, and ensure that a process is in place to follow through on audit recommendations;
educate drivers to choose a speed that is appropriate for the particular road and weather conditions, but which may vary from posted limits;
Human factors, including speed, fatigue, inattention, alcohol and drugs, are a significant factor in road crashes and injuries. Programmes that link enforcement activities with public education, and which target improvements in road user attitudes, behaviour and skills – for example, community education, public information and enforcement – can significantly reduce road crashes.
The Road Safety Task Force, established in July 1996, plays an important role in developing, implementing and monitoring public education and enforcement programmes. The primary objective of these programmes is to reduce the number of fatalities and the number and severity of injuries on Tasmanian roads. Road users have different requirements in relation to transport and travel, resulting in ‘road user specific’ issues in relation to road safety. For example:
Young persons (aged 17-24): Account for disproportionately high percentage of road fatalities and injuries. Vulnerable due to lack of experience and risk-taking behaviour.
Older road users: Vulnerable due to physical frailty and reduced capacity to survive an impact.
Tourists: Travelling in unfamiliar environments, which may lead to unpredictable and/or inappropriate driver reactions.
Pedestrians and cyclists: Vulnerable due to lack of physical protection against injury. Increased awareness by motorists as to how to share the road environment with other users is required.
Motorcyclists: Speed, drugs and inexperience are major causes of motorcycle crashes. However, as with cyclists and pedestrians, due to reduced physical protection, motorcyclists are more vulnerable to injury as a result of error.
Strategies that focus on modifying roads by taking into account the capacities and limitations of road users have the potential to improve road safety. For example:
Strategies Road Safety Action Groups and Local Government Community involvement is an important part of any road safety strategy. Community ownership and participation in road safety provides an opportunity to identify local safety issues, communicate information, increase awareness of road safety and related issues, promote programmes, and provide an avenue through which people can participate in road safety improvements. Strong synergies exist between education, enforcement and information in developing safe behaviour in road users. Local government and schools are well placed to support local advocacy and other road safety initiatives within communities. The Community Road Safety Partnerships (CRSP) programme is a statewide initiative that promotes a community based approach to road safety responsibility and ownership in the community. CRSP address road safety issues at a local level through building partnerships with community organisations. The main emphasis of the programme is to address high-risk road user behaviour, primarily through raising public awareness and conducting community education programs. Twelve local governments, including the Burnie and Kentish municipalities, have entered into agreements with DIER to develop a Community Road Safety Partnership.
'Forgiving' road environments that provide for a recovery area or 'clear zone' so that when vehicles run off the road, it is possible to stop or control the vehicle before colliding with immovable objects. Where a hazard cannot be removed, barriers should be provided, bringing vehicles to a controlled stop or redirecting vehicles away from the hazard.
Safer pedestrian and cycling facilities; and
In 1997, the Circular Head Circular Head Council, in conjunction with the State Government, established the first Local Road Safety Committee, the Circular Head Community Road Safety Action Committee. The Committee has developed an Action Plan, which identifies objectives for different target groups, including children, motorcyclists and young drivers, and calls on community groups and organisations to participate in implementation of the Plan. For example:
Improved traffic controls.
Drink driving and young persons: promote charter of responsible serving of alcohol in all licensed premises.
Wearing of bike helmets: organise exhibitions at schools and encourage schools to have a 'no helmet, no bike' policy.
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The North-West also contains the Road Trauma Support Team, a voluntary, community group offering support for persons affected by road crashes and trauma.
Strategy 7.2.1
Related to local government's role in road safety is improved transport and land use planning, which considers impacts on road safety and improvements in travel time and efficiency in the development of the road and public transport network. In particular, reducing the need to use motor vehicles can reduce exposure to road trauma and crashes, as well as providing benefits such as less congestion and a reduced environmental impact.
Outcome
Land use planning that reduces the amount of transport necessary for the movement of people and goods may include strategies such as:
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
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Focusing on key business and service centres that are well serviced by public transport; e.g. Devonport-Burnie, Wynyard, Smithton and Strahan/Queenstown.
Transport planning that integrates transport systems and improves the quality and effectiveness of transport.
Promoting the benefits of public transport, walking and cycling.
Arterial roads are important transport corridors, providing comparatively more efficient travel, via higher speeds and smooth, uninterrupted travel. However, in some cases, the function of arterial roads has been reduced by ribbon development, including a greater number of driveway accesses and road junctions. These developments produce unexpected driving events that increase the incidence of crashes. It is estimated that each house access along an arterial road adds 1-5% to the crash rate, whilst each commercial access per kilometre can add 5- 10% to the crash rate. Local government planning schemes can improve the safety of major arterial roads by:
incorporating visibility standards;
limiting direct access to rural arterial roads;
recognising that some existing road junctions are deficient; and
ensuring that development applications contain a Traffic Impact Assessment so that safety issues are professionally analysed.
Road safety through local communities and local land use planning.
Improved road safety through locally driven solutions and processes.
Action 1 Support continued development of key regional and local service centres, which are focused on public transport nodes. Action 2 Development of community road safety programmes at the local government level, which encourage community involvement in identifying and reporting perceived trouble areas. Action 3 Incorporate traffic management and access control principles into local planning schemes. Organisations DIER, local government
Safety in Road Project Design Issue: integrating safety into new road projects Integrating road safety into road project design involves identifying and incorporating the characteristics and purpose of the road, as well as the needs of different road users. Road design standards should incorporate safety features appropriate to function, traffic volumes and road user needs. A road design should cater for all road users, particularly vulnerable road users, including pedestrians, cyclists and motorcyclists. Identifying and addressing the needs of different road users in road design can decrease the risk of crashes. For example, older drivers are mainly involved in urban intersection and U-turn crashes, which reflects difficulties in making complex decisions rapidly. Thus, older drivers need a road environment that aids decision-making, including good lighting, clear and easily visible signs, and clear intersection controls that provide adequate warning.
Strategy 7.2.2 Focus on user safety in all road projects. Outcome Ensuring safety is the focus of all road projects.
Action 1 In undertaking road improvements and designing new road projects:
Road safety shall be given a primary priority in planning, design and construction; and
The needs of all road users will be considered in the planning and design of all road projects.
Organisations All road owners
Analysis of crash data is essential to identifying emerging crash trends and to ensure that road planning and design are tailored to the specific needs of the road and its users. The use of crash data to identify problem sites can result in considerable safety improvements through targeted, cost-effective road improvements. Road safety audits examine features which may lead to future crashes, whilst crash data reviews examine past crashes and aim to modify the feature(s) which have caused the crash. If undertaken in tandem, the audit and review processes can help to clarify areas to target improvements. Strategy 7.2.3 Road manager training – safety audits and crash data analyses – focusing on rural roads. Outcome
Rural Roads: Safety Audits and Crash Analysis Issue: road safety practices on rural roads The importance of improving safety on rural roads was identified as a priority in the development of the Strategy. Due to the relatively low traffic volumes on rural roads, low cost and incremental strategies to improve the road environment are needed. Training road managers and persons with an operational role in road work, in the principles of safety audits and the use of crash data information, are mechanisms which offer the potential to entrench road safety practices into every day work across all jurisdictions. A road safety audit is a formal examination of an existing or future road or traffic project in which a team reports on crash potential and safety performance. Importantly, road safety audits can provide a means of identifying black spot locations before serious crashes occur.
Improved knowledge on practical means of implementing road safety objectives for rural roads.
Action 1 Provide practical training of all road owners in road safety audit principles and practices, with emphasis on rural roads. Action 2 Undertake ongoing safety audits of existing roads. Action 3 Improve use of road crash data to analyse and target road safety issues - and ensure all road users have access to and are able to use this information. Organisations All road owners.
Safety audits of existing rural roads can help to:
identify improvements in routine maintenance and procedures;
attend to changes before they lead to crashes;
check consistency between road features; and
check sightlines on curves and at junctions and accesses.
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7.3. Tourism and Transport
As an island, sea and air transport into Tasmania is a critical aspect of the State and Region's tourism industry. For some time research has shown that:
80% of Australia's travellers prefer to travel with a car while on holiday; and
there is little shift in demand between sea and air access.
The operation of two super-fast ferries serving Melbourne provides additional capacity for visitors travelling with a vehicle. In combination with the Bass Strait Passenger Equalisation Scheme, this additional capacity directly targets issues related to intra-state visitor access.
their own vehicle and 19.8% using a friend or relative’s vehicle. The travel patterns established by tourists through the routes they use and the destinations they visit is a major aspect of tourism industry planning and development by Tourism Tasmania, CCA and other organisations within the region.
Cradle Coast Tourism Characteristics The Cradle Coast Region offers a diversity of tourism range of experiences, including adventure travel, farm-style bed and breakfasts, fresh produce, cultural heritage, sea cruises and scenic air flights. The Region is known for its wilderness and adventure-style experiences, high quality produce and cultural heritage, including mining, convict and aboriginal history.
Tasmania is recognised as Australia's leading touring holiday destination. Tasmania's internal transport network, attractions and the experiences it links for tourists, and the opportunities it supports for tourism operators, is an important aspect of the tourism industry.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Table 1 shows the relative share of visitor arrivals by mode and port to 2004. In 2004, 754 900 visitors came to Tasmania, around 0% of whom visited for leisure/holiday. In 2003/04, 39.6% of all holiday visitors used rental vehicles while in the State with a further 19.3% using
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Table 1: Mode and port of arrival, interstate and overseas visitors, 1998-2004 Mode and port of arrival Percentages (%)
1998
1999
2000
2001
2002
2003
2004
AIR Hobart
42.6
41.2
42.7
46.3
46.1
42.6
47.5
Launceston
29
27.2
25.9
23.5
23.8
22.5
23.3
Devonport
5.1
5.0
5.6
5.5
4.2
4.4
3.7
Burnie
2.8
3.2
3.0
2.4
2.5
2.5
1.5
King and Flinders Islands and other airports Total air
3.1
4.1
0.6
0.2
0.3
0.2
n/a
79.5
76.6
77.1
77.7
76.7
72.1
76
17.4
19.3
19.6
18.4
19.5
27.0
24.3
n/a
n/a
2.1
2.3
2.4
n/a
n/a
17.4
19.4
21.6
20.7
22.0
27.0
24.3
501 600
524 200
531 500
531 000
519 900
652 200
754 900
SEA Devonport (TT-Line) George Town (catamaran) Total sea Total visitors (no.)
Š Tourism Tasmania
The Region includes some of Tasmania's major attractions and population centres, including:
Cradle Mountain;
Strahan and the West Coast;
Burnie/Devonport; and
Stanley.
The Region has significant natural advantages in both the touring holiday and nature-based tourism markets, containing and bordering extensive wilderness and natural areas. The West Coast in particular, is renowned for its wilderness qualities, with its relative isolation, low population density and large natural areas combining to create unique ecotourism experiences. The number and variety of towns and natural attractions spread throughout the Region offers visitors a range of experiences, and encourages widespread travel throughout the Region. There is strong potential to further develop the Region's comparative geographical isolation into a strength via the development of regional and local ‘journeys.’ Various touring routes currently exist in the Region, concentrated in and around significant regional population centres and localities in each of the nine local government areas. Major national parks include the:
South-West World Heritage Area;
Arthur-Pieman Protected Area;
Savage River National Park;
Rocky Cape National Park;
Wild Rivers National Park;
Cradle Mountain-Lake St Clair National Park; and
Narawntapu National Park.
The importance of touring to the Region is reflected in the development of the Cradle Coast Regional Touring Route Strategy (2003), which focuses on the development of three strategic touring routes within the Region. A key activity in furthering the Strategy is the formulation of local tourism development plans for each of the three touring routes. The local plans will coordinate marketing, product and infrastructure development proposals and ensure each touring route offers a different experience and range of activities to visitors. The overall aim is to integrate the range of attractions and experiences in the tourism hubs in each Council area along the touring routes into a comprehensive strategy for touring through and within the Region. Cradle Mountain and the Gordon River recorded the highest and third highest visitation numbers, respectively, of all natural areas visited in Tasmania in 1999 (the last period for which this type of survey data was collected). These formally designated areas are in addition to the numerous forested reserves, beaches and nature trails located within the Cradle Coast Region. Table 2 shows the division of total visitors to key population centres in 2004. Key observations for the West Coast include:
Strahan and Queenstown recorded the highest numbers of total visitors.
Strahan recorded the highest percentage of people staying overnight, and the lowest percentage of people 'passing through'.
Zeehan and Tullah recorded a high percentage of people passing through.
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Table 2: Towns and cities visited, percentage of total visitors, North West and West Coasts, 2004 Town
Passed through
Stopped but did not stay overnight
Stayed overnight
Places visited
Devonport
6.7
18.1
11.2
36.0
Burnie
6.0
14.4
5.3
25.6
Sheffield
5.1
11.9
1.7
18.7
Percentages (%)
Wynyard
5.5
8.8
2.6
16.9
Stanley
0.9
9.3
5.1
15.4
Smithton
2.3
4.9
1.5
8.6
Latrobe
6.2
8.7
1.7
15.6
Other North West
2.3
6.1
13.2
21.6
Strahan
0.8
6.5
14.8
22.1
Queenstown
7.2
10.6
5.9
23.7
Zeehan
8.1
7.6
1.7
17.4
Tullah
9.1
3.8
1.2
14.1
Other West Coast
3.2
3.7
4.1
11.0
Based on percentage of total visitors to Tasmania (i.e. 754 890) for calendar year, 2004
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
For the North-West, key observations include:
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Burnie and Devonport recorded the highest percentage of visitors, with Devonport also recording the highest percentage of persons staying overnight.
Significantly, with the exception of Devonport, no one individual town recorded a high percentage of overnight visitors, with overnight stays distributed throughout 'other North West' towns.
One of the key regional tourism development strategies is to attract more visitors to the far North-West coast. The growing but dispersed cluster of attractions including Dismal Swamp; the historic Woolnorth property and surrounds; attractive natural appeal of the far North West's coastline; the heritage and natural values of Stanley and the key population centre of Smithton, provide the basis for growing the tourism industry in this sub-regional area. The Western Explorer, which links Smithton to Corinna, and on to other West Coast towns, provides a different type of experience for visitors. Sections of the road are unsealed, winding, narrow, steep and particularly susceptible to changing weather conditions. Importantly, the road passes through varied landscapes, including coastal and inland rainforest, and remote areas, providing a range of experiences for visitors.
Due to the road conditions and variety of landscapes and experiences offered, the route is likely to be particularly attractive to the 4WD niche market.
General Issues and Opportunities Expanded Bass Strait Ferry Services The commencement of TT-Line's twin superfast ferries between Devonport and Melbourne represents one of the State’s most significant tourism industry development investments. The service, which offers significantly increased capacity for vehicles and passengers together with subsidised vehicle fares, provides the much needed link for mainland tourists wishing to travel to Tasmanian with their car. In January, 2004, the Spirit of Tasmania III commenced a regular overnight passenger ferry service from Sydney to Devonport. Despite expectations that the service would be self-funding, passenger movements have fluctuated. Competition from low-cost airlines has been a significant factor, and a decision was taken to withdraw the ship from service in August 2006. This in no way affected the twin ferry service to and from Devonport and Melbourne.
Tourism Development Framework
Ecotourism
The Tourism Development Framework provides direction and innovation for implementation of the Tourism 21 Strategic Business Plan. The Framework outlines how visitors undertake drive tourism around the State and reflects that in a strategy framework to foster product development and marketing, sound planning and availability of supporting infrastructure.
'Nature' is identified as one of the four key values of the Tasmania Brand.
The Framework addresses tourism development from a variety of perspectives, including identification of major tourism attractions and service centres, potential development sites, and visitor centre locations. Importantly, the Framework emphasises touring routes and trails, outlining key existing routes on a state-wide and regional basis. In essence, it is the embodiment of how visitors experience Tasmania - key destinations linked by touring routes. The Tourism Development Framework defines a touring route as a:
Journey: a primary themed route between clusters.
Themed tourism trail: a localised special interest or themed route within a cluster or off a journey.
Cluster: a critical mass of competitive tourism product including one or more major attractions in a concentrated geographical area.
Map 1 shows major touring routes for Tasmania.
Map 1: Major touring routes, Tasmania
In 2004/05, 35% of visitors to Tasmanian participated in nature-based tourism. Expenditure by nature-based tourists is substantially above average per visitor and per night. Two of the three most visited natural areas in 2001/02 were located in the Cradle Coast region – Cradle Mountain (I) and the Gordon River (3). The Cradle Coast region contains and borders extensive natural areas, including formally designated national parks and reserves (e.g. Cradle Mountain National Park, Arthur-Pieman Protected Area and the South-West World Heritage Area). The comparative geographical isolation of some parts of the Cradle Coast region, combined with its large natural areas, offers strong potential to link ecotourism activities and natural areas to regional and local touring routes.
Strategies Planning Touring Routes and Trails issue/opportunity: touring journeys and trails Tasmania is arguably Australia's best touring destination. Its compactness and diversity of scenery make travelling an engaging and enjoyable experience. In 2003/04, 39.6% of all holiday visitors used rental vehicles while in the State with a further 19.3% using their own vehicle. 19.8% of visitors used a friend’s or relative’s vehicle. A further 7.7% used public transport and 5.2% an organised tour coach. The Tourism Development Framework provides a strategic framework for the development of drive tourism in Tasmania. The Framework addresses tourism development from a variety of perspectives, including identification of major tourism attractions, potential development sites, and visitor centre locations. The Framework identifies key State and regional touring routes (see Map 1). Tasmanian Government initiatives to develop partnerships with local government has seen, in the case of tourism, the development of regional touring route strategies. The Cradle Coast Regional Touring Strategy 2003 provides a regional-level strategy focusing on three key touring routes and associated themes (see Map 2).
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Table 3: Characteristics of key touring routes, Cradle Coast Region Route
Location/links
Characteristics
Great Nature Trail
North-west coast from Devonport to Arthur River; option to extend to Narawntapu National Park
Partly established and marketed, particularly in
Circular Head. Follows the Bass Highway for the majority of the route
and is therefore on good quality roads. Links visitor entry points to the State (Spirit of Tasmania
I and II and airports) with potential Stanley cluster. Cradle Country Touring route
Links Devonport, Latrobe, and Sheffield to Cradle Mountain and Burnie to Cradle Mountain
Established and popular touring route Links attractions, facilities and services of key
destinations including Devonport, Latrobe, Sheffield and Cradle Mountain. Provides various options for accessing Cradle Mountain,
avoiding need for visitors to ‘backtrack’. Wilderness Way
Links Cradle Mountain, Zeehan, Strahan, Queenstown and Lake St Clair
Primary wilderness journey for the State Connects 3 major gateways to the Western Tasmania
WHA – Strahan, Cradle Mountain and Lake St Clair. TVIN centre at Strahan with interpretation facilities
related to the wilderness theme. Source: Inspiring Place, 2003, Cradle Coast Draft Regional Touring Strategy.
The Strategy was prepared under a partnership agreement between the State Government and the Cradle Coast Authority, with assistance and advice from the local tourism industry, local government and Tourism Tasmania.
Map 2: Key touring routes, Cradle Coast Region
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
The Strategy identifies the key selling points of the Region as a touring route destination and outlines strategies for:
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key touring routes and hubs;
market positioning and branding of routes;
co-ordination of collateral to spread the benefits across the region and share responsibility; and
development of infrastructure/product, business development programs and other support mechanisms.
A key outcome of the Strategy is the development of local touring route plans. The touring routes identified within the Strategy are:
Cradle Coast Touring Route;
Great Nature Trail; and
West Coast Wilderness Way (see Map 2).
Table 3 provides an overview of each route. The CCA commissioned a study examining visitor services infrastructure (e.g. directional, touring route and interpretive signage, rest areas, toilets and visitor information services) for touring routes within the Region.
The study examined over 120 sites across the Great Nature Trail, West Coast Wilderness Way and Cradle Country touring routes, providing recommendations for improvements and enhancements.
Strategy 7.3.1
Tourists/visitors prefer:
Complement the Touring Route Strategy through transport planning and investment activities.
Opportunities for stopping and viewing the environment and surroundings;
Non-threatening travelling environment, particularly on unfamiliar roads/areas;
Clear information, which provides adequate time to make a decision or choice, before they have to act;
Options and opportunities which allow them to make circuits or round trips that do not involve travelling over the same ground twice;
If they wish to turn off the highway to visit an attraction, that it is safe to do so; and
If they are driving a vehicle, to not be surprised, be made to feel they will be menaced or threatened if they make a last minute decision, and/or relatively unpredictable turning, slowing or stopping movements.
Outcome Continued implementation of the Cradle Coast Touring Route Strategy – through reinforcement of the role and function of identified touring routes and hubs in transport planning.
Action 1 Ensure transport and traffic issues are addressed in Tourism Development Plans being prepared for Devonport, Stanley, Cradle Mountain and Strahan. Action 2 Review the role of roadside facilities given the function and themes adopted in the Touring Route Strategy. Action 3 Review the recommendations contained in the Cradle Coast Authority Touring Route and Facilities Audit 2004.
On-road cyclists prefer:
A smooth, clean surface on which to ride;
Adequate distance between cyclist and passing traffic to provide some protection from the draft of high speed heavy vehicles; and
Predictability, visibility and ease in entering and exiting intersections.
Organisations DIER, CCA, local government, Tourism Tasmania.
Transport Network Implications of Expanded Bass Strait Ferry Services Issue/opportunity: impacts for the transport system of increased numbers of touring visitors The operation of two super-fast ferries between Devonport and Melbourne represent a significant increase in capacity for tourists wanting to travel with a car to Tasmania. The expected additional numbers of tourists will have impacts on the road network, related to an increased diversity of vehicles using Tasmania's roads, as well as a larger number of vehicles within peak periods (i.e. during holidays). At a strategic level, these impacts are related to the different needs and requirements in relation to transport and travel, of both individual vehicle types and transport corridor user groups. Two major groups that are likely to see an increase in numbers as a result of the fast ferries are tourists/visitors, and cyclists. The requirements of these two groups include:
Off-road cyclists prefer:
An interesting and picturesque route through which to cycle;
Safe places for children to ride;
Low level of hazard;
Safe crossing and high visibility of roads if a path intersects a road;
Clean, rubbish-free surface; and
Security along the path/area, including good quality lighting.
The caravan and campervan market is an important and growing sector of Tasmania's tourism market. In 2004/05, 9.5% of all visitor nights were spent in campervans or caravans, 5.4% in cabins and 4.9% in tents. In Tasmania, visitors using caravans or campervans stay almost twice as long as visitors using hotel/motel accommodation. Persons travelling with a caravan or campervan or camping in a tent, require safe, accessible areas in which to park/camp, preferably located near key service centres, attractions or areas of interest, and appropriate supporting infrastructure including toilets and washing facilities.
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Councils in the Region may like to review existing areas/facilities and examine the feasibility of providing other areas, in order to cater for this important market. Strategy 7.3.2 Analyse information on tourist vehicle composition and peaks, and determine implications for the transport network. Outcome Improved understanding of trends in tourist vehicle road use and the related consequences for road design.
Action 1 Compile information on tourist vehicles and volumes as part of normal operating and reporting mechanisms. Action 2 Analyse the implications of trends in tourist vehicles and routes for long term road design standards. Organisations DIER, CCA, TT-Line, Tourism Tasmania, local government.
Significantly, on the North-West Coast, with the exception of Devonport, no one individual town recorded a high percentage of overnight visitors, with overnight stays distributed evenly throughout ‘other North West.’ Again, this suggests tourists travel relatively widely throughout the Region, on both major regional and local roads.
The mobility of many visitors to Tasmania indicates that the scenic quality of its roads is an important element of visitor experience. This approach is consistent with a view of 'the journey as the destination.' Strategic marketing by Tourism Tasmania aims to 'convey the sense of a great journey to visitors.' A journey is multidimensional, focusing attention away from specific destinations and attractions to a whole of trip experience. The concept recognises the fact that what tourists see as they travel throughout Tasmania is at least as important as the final destination in defining and enhancing their overall experience and enjoyment. Scenic quality is linked to, and enhanced by, roadside facilities. Strategy 7.3.3 Improving the scenic quality and managing visual impacts along key regional touring routes. Outcome
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Scenic Quality of the View from the Road
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Issue/opportunity: maintaining the scenic quality of key touring routes to enhance visitor experience
Improved management of use and development that impacts on the specific qualities viewed from major tourist routes.
Action 1
The number and variety of towns and natural attractions throughout the Region offers both a range of experiences and encourages widespread travel. The former West North West Regional Tourism Association noted the 'great appeal' of the Region 'is what lies in between.'
Establish mechanisms in planning schemes which control the impact of commercial signs, third party advertising and site landscaping along key regional tourism routes.
In 2001/02, over 30% of tourists to Tasmania visited Burnie, Devonport, Cradle Mountain and Queenstown, with over 20% visiting Wynyard, Zeehan, Sheffield and Strahan.
Ensure that the design, construction and revegetation of road works undertaken along key regional touring routes adopts best practice landscaping and urban design practices.
Key observations include:
Approximately 29% of tourists visited Strahan and Queenstown respectively, with 19% visiting Zeehan. These centres are some hours drive from the major State entrance points of Devonport/Burnie, Launceston and Hobart, indicating that tourists are willing to travel to attractions. Thus, the type, nature and quality of the journey will be an important part of visitor experience.
Action 2
Organisations DIER, CCA, Local government.
Roadside and Lookout Areas Issue/opportunity: provision and planning of roadside facilities for visitors The variety, standard and location of rest areas, lookouts, feature walks and other facilities at the roadside are important to tourist experience and comfort. Touring is enhanced by the provision of appropriate infrastructure, such as picnic areas, lookouts, tourist information bays and toilet facilities. Roadside facilities should cater for a range of experiences. For example, scenic lookouts for persons wishing to stop in a convenient location and appreciate/photograph Tasmania's varied scenery, versus nature trails, which offer a more interactive experience and require a longer stopover. Tasmania's key attractions are generally two to five hours apart, with toilet and rest areas provided for travellers along some routes. The coverage and quality of these facilities varies. The provision of facilities at strategically defined locations - i.e. not too close together and at areas of interest such as rivers - is important in ensuring facilities fulfil their role of improving visitor experience. Strategy 7.3.4 Strategic provision of roadside visitor facilities on key touring routes. Outcome Improved, strategic provision of roadside facilities, including lookouts and rest areas, which enhance visitor experience of the Region and better cater to visitor needs.
Location of Tourism Activities and Attractions in Relation to the Road Network Issue/opportunity: location of activities and attractions to reinforce synergies with the transport network, including touring routes The location of activities and attractions to complement and capitalise on touring routes and the road network benefits both private enterprise and government. Diagram 1 shows, in a stylised manner, the suggested location of tourism activities in relation to the road network. Tasmania's major touring routes link key destinations and attractions, and represent areas of concentration for touring visitors. Surveys indicate tourists will travel several kilometres off the main route to sites that are well sign posted or promoted. Thus, businesses that are linked to major touring routes can benefit from the comparatively higher numbers of tourists using the road, as well as the indirect support provided via signage, strategic marketing and information which draw tourists to the area. The Tourism Development Framework defines a cluster as a critical mass of competitive tourism product, including one or more major attractions in a concentrated geographical area. A cluster offers advantages to individual businesses and tourists, by concentrating resources, infrastructure and attractions/activities in one, accessible location. The siting of clusters in relation to touring routes provides additional support for businesses and is also advantageous for tourists.
Diagram 1: Location of tourism activities in relation to the road network
Action 1 Major freight road (Category 2)
Undertake an audit of tourist related roadside visitor facilities on key touring roads in the Region. Action 2 Develop a regional strategy to set direction for the provision, improvement, rationalisation and management of roadside visitors facilities which:
Reinforces the regional tourism development framework;
Ensures safe and convenient facilities are provided in strategic locations to enhance visitor experience.
Organisations DIER, CCA, local government, Tourism Tasmania.
Town
Rural manufacturing tourism operation
Highway
Local road
Village
Natural fixed resource based tourism operation Major connector or tourist road
Rural manufacturing tourism operation
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There are a wide range of tourism related activities, each of which has specific locational needs for the enterprise to be successful. For example:
Bed and breakfast accommodation - may be best located within a town close to other services.
Resorts - may be best located in an area adjacent to natural/rural attractions.
Rural manufacturing - may need to be located on a visible site where processing can occur.
Art/craft galleries - may be best located within a town alongside a range of other attractions, and/or in a location that allows integration with a major regional/local touring route.
Many tourism-related activities achieve synergies by locating in visible sites in towns with a range of other attractions. Some activities that are not suitable in towns, or are dependent on the characteristics of a particular site, prefer highly visible locations adjacent to major roads. In many cases, such locations are available on sites that do not affect the safety or efficiency of high-speed arterial roads such as the Bass Highway.
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Strategy 7.3.5
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Promote the location of tourism activities to reinforce synergies and limit impacts on major arterial roads. Outcome Provision of consistent advice to tourism operators to promote the location of tourism activities to:
reinforce synergies; and
limit impacts on major state and local arterial roads.
Action In principle agreement to the following issues when providing advice and information to operators establishing tourism activities:
There are often significant benefits in locating activities in towns and areas which reinforce the synergies created by tourism attractions being in proximity to each others.
High-speed, major arterial roads, such as the Bass Highway, should be protected from new accesses created by tourism activities.
However, there are opportunities to have highway frontage without highway access.
There are a vast range of tourism activities, some of which are very dependent on the unique attributes of specific sites.
Subject to local government planning approval, the decision on where best to locate a tourism activity will be determined by operators on commercial grounds.
Organisations DIER, CCA, local government, DED.
7.4. Resource Industries, Industrial Areas and Transport
Despite a decline in the employment share of resource based industry sectors, these sectors are vital in gaining export income for the region and in supporting employment growth in other sectors. Research undertaken by the University of Tasmania demonstrates that the rural, manufacturing and physical services sectors generally have the largest multiplier effect in terms of their contribution to the creation of spin off jobs in other industries. There has been a recent resurgence in mining activity within the Region, with new mines shortly commencing operation at Trial Harbour and on King Island. In addition to tourism, resource based and manufacturing industries form an important part of the Region’s economy. The land transport system in the Cradle Coast Region provides a fundamental support to the economy and society. The sea and air transport systems provide a critical connection to interstate and overseas destinations. The performance of the transport system critically effects the performance of the regional and state economy and associated key productive industries.
data was available), 57% of the dairy herd was located in the Burnie, Devonport and Smithton districts, with an average farm size of 200 cows. Smithton is Tasmania’s largest dairying district with 36% of the State’s herds and farms. Tasmania’s dairy farmers are recognised globally as being amongst the lowest cost producers. The Region is the primary vegetable growing area in the State. Most vegetables are produced under contract for processing, with potatoes the single most important crop. The majority of potatoes are processed for the frozen chip market in Australia by Simplot Australia and McCain Foods. Onions are the second most important crop, with production expanding significantly over the past decade. Most of the Region’s supply is exported to Northern Hemisphere countries. Transport costs impact heavily on the returns available to growers. Other important agricultural activities in the Region include beef, pyrethrum, poppies and fresh vegetables. Agricultural Processing
For business exporting goods or relying on the cost-effective importation of goods, an internally efficient, flexible, world competitive and high quality transport system is essential.
Due to its agricultural base and location, the Region has a natural advantage in processing a range of high quality food products grown in the area. Consequently, a number of export orientated firms have established in the Region.
Agricultural Production
The dairy products sector is dominated by a few large scale and a large number of smaller scale, specialised firms which are fully or partly located in the Region. Firms include:
The majority of Tasmania’s prime agricultural land (Class 1, 2 and 3 land under the Land Capability Classification System) occurs within the Region.
Bonlac Foods Ltd. Established from the merger of Bonlac Foods Ltd. and UMT in 1999. The company is one of Australia’s largest supplier–owned and controlled enterprises and is the largest dairy manufacturer in Tasmania taking in over half the State’s milk. Manufactures milk powders, cheddar cheeses, butter and products such as whey powder.
Lactos. A specialist cheese producer based in Burnie. It successfully exports a range of products both overseas and interstate.
The deep basalt soils of the Region support a large vegetable production industry and provide an ideal base for dairying. Over the past five years the contribution to the Tasmanian economy from dairying and cropping activity has increased substantially, whilst the contribution from the wool and sheep meat sectors has declined. In 2003-2004, Tasmanian dairy farms produced 590 million litres of milk at a farm gate value of $151 million (2002/03). In 1999 (the last year this
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Cadbury Schweppes. Processes milk at its Burnie factory for use in the production of chocolate products at its Hobart factory.
Major destinations for logs within the Region include:
Burnie Port – woodfibre and logs for export;
Classic Foods. Produces UHT products.
Gunns mills at Smithton and Hampshire;
King Island Dairies. Specialist cheese produce, primarily for the Australian market.
Gunns veneer mill at Somerset;
Gunns pine chipper at Burnie; and
Australian Paper at Wesley Vale.
Over 90% of Tasmania’s milk is manufactured into dairy products, with the balance consumed within the State as liquid milk. 65% of Tasmanian milk production is exported as manufactured dairy products, 26% of which are consumed in Australia as manufactured product. In 2002/03, Tasmania’s export dairy products were worth over $90 million. Major export destinations included North Asia and the ASEAN countries. The vegetable processing sector in Tasmania is dominated by McCains (Smithton) and Simplot (Ulverstone and Quoiba). Together, these two firms process approximately 80% of all potatoes grown in Tasmania, the majority of which are sold in the Australian market. Other processed and frozen vegetables include peas, beans, carrots and cauliflowers. Forestry and Forest Products Forestry and the production of forest products is an important sector of the Region’s economy.
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The area contains:
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182,000 hectares of State Forest native forest available for logging;
20,900 of State Forest plantations;
136, 000 ha of Private Timber Reserves;
61, 000 ha of private hardwood plantations; and
2,500 ha of private softwood plantations.
Between 1995 and 2003, the area of private land in the State used for plantation forestry increased from 57 500ha to 124 000ha. This growth was most concentrated on the North- West Coast. Between 1995 and 2003, private plantation forestry in the North-West increased from 24 000ha to 68 000ha. The local government areas of Burnie and Waratah/ Wynyard have experienced particularly high levels of plantation establishment, with an estimated 49% of land used for private hardwood plantations.
The Forestry Growth Plan 1998 outlines the key development concepts driving activity in the forestry industry. These include:
major expansion of forestry plantation programs;
redesign of the harvest, transport and timber segregation systems through the establishment of merchandising facilities ‘in the forest’;
improved log segregation and value adding; and
the development of new downstream processing facilities.
Forestry Tasmania has established a new merchandising yard at the Circular Head Wood Centre, allowing for the transfer of timber segregation activities from the temporary yard at Wiltshire. A private proponent, Gunns Limited, is currently investigating the development of a bleached kraft pulp mill at Bell Bay, near Launceston. Mill output would be in the range of 500,000 to 1,300,000 air dried tonnes of pulp per annum. A pulp mill will generate additional transport flows above those associated with existing chip mills. Given that significant forest resources in both the north east and north west are needed to support the pulp mill, flows would likely increase across northern Tasmania. There is a need to strategically plan for these additional movements on both the road and rail networks. Mining and Mineral Processing Tasmania is extremely rich in minerals and opportunities exist for increased mining and processing of Tasmania’s mineral resources. The State exports ores and concentrates of iron, copper, lead, zinc, tin, high-grade silica and tungsten. Total sales in the industry were estimated at $1457 million in 2003/04, including over $700 million in exports. The minerals industry in Tasmania comprises three distinct areas: exploration, mining activity; and mineral processing.
While exploration forms only a relatively small part of the industry, exploration activity is essential for growth and diversification in extraction of finite resources. In recent times exploration activity in the Cradle Coast Region has revealed key resources, including magnesite at West Takone and Main Creek. Mining activity in Tasmania is highly concentrated, with a small number of companies mining ore bodies. These mines include:
Savage River – iron ore;
Henty – gold;
Corinna - silica;
Rosebery – zinc, lead, silver, copper;
Renison – tin; and
Mt Lyell – copper, gold, silver.
The North-West Coast also contains a large number of mines and quarries, providing construction materials and non-metallic minerals. Much of this material is used for construction of roads and other large civil works, as well as for the production of bricks and pavers. These sites include:
Circular Head Dolomite – Smithton;
Caroline Quarries – Railton;
Brambles Quarry – Ridgley;
Besser Tasmania – Calder; and
Boral Resources – Nook.
In addition, all necessary approvals have been granted for Australian Titanium Minerals to commence mineral sand mining in the Naracoopa area of King Island. Significant resources of tungsten remain in the Grassy area of King Island following the cessation of mining there. The major mineral processing sites within the Region are:
Australian Bulk Minerals (Port Latta): Production of iron ore pellets and iron ore concentrates. Shipped directly from the site.
Cement Australia (Railton): Production of cement clinker and cement. The site includes a quarry and processing facilities.
Investigation of downstream processing opportunities is being undertaken for a number of Tasmania’s ore bodies. A range of options are being investigated to utilise the Savage River iron ore resource, including pig iron smelting, hot briquette iron production and steel production. The Department of Economic Development is currently undertaking a planning project inland from Australian Bulk Minerals’ Port Latta site to determine its suitability and potential as a major industrial site for mineral processing. Western Metals Ltd. is currently investigating options for treating tailings from the former Hellyer mining operation, which contain significant levels of zinc, gold and silver. Manufacturing (general) Manufacturing industries form an important component of the Tasmanian economy, employing approximately 20 600 persons (9% of the total workforce) and generating a turnover of $5.04 billion in 2000/01. The manufacturing industry was the second biggest employer, after retail trade (15%) in the Cradle Coast region in 2001, employing 14.5% of the Region’s workforce. Major manufacturing firms, outside of the food, forestry and mining sectors, within the Region include:
Australian Weaving Mills;
Tascot Templeton;
Caterpillar Elphinstone; and
Vestas.
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The manufacturing sector includes a diverse and large number of small scale and niche firms, which provide essential products and services for the local, regional and state economies in areas such as:
steel fabrication;
mining equipment;
printing and publishing;
prefabrication of building materials;
clothing and textile production; and
composite manufactures.
Other chapters of the Report address industry use of the transport system more generally, through an analysis of linear infrastructure, freight, shipping, aviation and ports. Forestry and the Transport Network Issue: forestry freight planning The continued implementation of the Forestry Growth Plan is seeing significant changes to the Region’s timber industry. Over the next twenty years within the Region there is likely to be:
increased softwood and hardwood plantations on both State forest and private land;
The Cradle Coast Region has real opportunities to expand and diversify its manufacturing and resource based industries, through value adding activities, targeting export market opportunities and cost effective energy sources.
increased harvesting and timber production;
continued improvements to, and economies of scale in, log segregation that will improve product quality; and
new downstream processing activities.
There are currently a wide range of resources and initiatives that will facilitate further development in these industries. These include:
The development and growth of the Region’s forestry industry will need to be supported by transport infrastructure that enables the provision of internationally cost competitive transport services.
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General Issues and Opportunities
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The North-West wind farms and the manufacturing spin-offs from this form of technology.
The Natural Gas project, which has extended the gas supply through to Australian Bulk Minerals at Port Latta.
Many of the new plantations to be harvested over the next two decades are located in areas not serviced by existing traditional forest road networks, developed for native forest harvesting.
Development of the Basslink electricity cable, which may enable the further expansion of wind energy resources in the State, and also provide an additional source of energy.
Currently the Forest Practices Act 1985 requires major forestry companies to prepare Three Year Plans that provide information on:
The Smithton wood centre project which will create value adding opportunities for wood production.
High quality agricultural land and international recognition of quality produce and pest free status, which provides further potential for high value agricultural production. Exploration and the discovery of increased and new commercial mining resources on the West Coast and King Island, which are supported by a world class bank of geological data.
Strategies This Chapter focuses on industry specific issues in relation to:
forestry;
mining; and
major resource processing industrial areas.
location of land from which timber is to be harvested;
approximate volumes of timber to be harvested; and
routes used for transporting harvested timber.
Major log truck routes in terms of tonnage are located between Smithton and Burnie and Hampshire and Burnie. Major routes are also located in and around these three localities, reflecting the location of timber resources and processing areas. Three Year Plans provide the basis for discussion between forestry companies and local government, including the impacts of planned harvesting activities on local roads. Three Year Plans can provide the basis for companies and road owners to agree on actions which enable local government to protect assets and for companies to transport timber more efficiently.
However, the relatively short term horizon of Plans and a focus on local roads and areas may prohibit more strategic and integrated transport planning and investment decisions.
The Study should be organised and scoped in consultation with industry and transport operators and should involve the following participants:
If longer term transport planning and investment decisions are to be made to support the growth of the forestry industry, a more strategic process is needed.
Road managers/planners from DIER and all Councils;
Forestry planners from key companies;
Forest Practices Board;
To be effective a long term forestry freight plan would need to be:
Pacific National Tasmania; and
The Tasmanian Logging Association.
Strategic – focusing on a limited number of strategic routes rather than investigating improvements to all potential routes.
Integrated - combining road, rail, logistical and land use planning solutions to forestry transport issues;
Cooperative – developed through a collaborative process including forestry companies, road owners and transport operators.
Strategy 7.4.1
The Study should aim to achieve the following:
shared understanding of forestry freight issues from different perspectives;
shared understanding on the long term demand for forestry freight routes and needs for new/upgraded routes;
agreement on long term major freight routes on local and State roads which facilitates improved higher productivity vehicle use;
assessment of the strengths and weaknesses of the current forestry freight network;
agreement on freight enforcement actions needed to give effect to the freight network;
agreement in principle on potential, new higher productivity routes;
identification of priority infrastructure projects; and
agreement in principle to any cost sharing or infrastructure exchange arrangements to make specific improvements on roads and to give effect to the plan.
Improved long term forestry freight planning. Outcome To plan long term forestry freight networks and reach agreement on forestry transport issues and actions.
Action Preparation of a Forestry Transport Infrastructure Evaluation Study which includes:
Identification of current and future plantation areas;
Existing and future haulage routes;
Location of processing plants and ports;
Development of a strategic forestry road/rail network for harvested timber; and
Costing, evaluation and prioritising of infrastructure investment works.
The information used in the planning process will be based primarily on the local knowledge and experience of the participants involved. A whole of state working group is currently investigating the production of consolidated data on productive native and plantation forest, an estimate of harvesting periods and volumes, and routes to be used over a twenty year period. Once produced this data will provide the information needed for improved long term forestry freight planning to occur. Organisations Relevant government agencies, local government, major forest companies, enterprises and associations, Pacific National Tasmania.
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Mining and the Transport Network Issue: new and potential mining operations The rich and diverse nature of the Region’s mineral resources mean there is likely to be several new mines established over the next two decades. The transport implications of mining activities tend to be significant as most mines involve the transport of large quantities of bulk materials; and tend to be located in rural and remote areas. However, as shown by Australian Bulk Minerals slurry pipeline, which connects Savage River to Port Latta, innovative solutions to the transport needs of the mining sector are possible. Transport represents a significant cost to the mining sector. The impact of the transport task on nearby communities and physical assets can also be significant. Consequently, it is important to ensure that transport needs and solutions are integrated into the early planning stages of any new mining proposal.
Resource Processing, Industrial Areas and Transport Infrastructure Issue: transport implications and requirements of industrial areas Over the next two decades there is considerable scope for the development of new, downstream processing activities. The Region contains a variety of industrial estates catering for light industry and small scale manufacturing activities. There is strong demand along the North-West Coast for light industrial sites, which are normally able to be provided through the local land use planning process, and developed by the private sector. The planning of major industrial areas usually occurs over a longer timeframe and requires substantial up-front engineering, environmental, land use and social planning to locate and protect tracts of land for future industrial use. Major industrial areas are more geographically constrained than light industrial estates. Major industrial areas generally require:
Strategy 7.4.2
Early assessment of transport implications and requirements of mining activities.
Good access to, and linkages between, major transport networks.
Adequate road infrastructure to support the movement of heavy and higher productivity vehicles.
Adequate separation between noncompatible land uses, in order to minimise adverse impacts, including residential and commercial areas.
Location away from sensitive environmental areas/features, including waterways, to minimise external environmental impacts.
Outcome
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Transport needs and solutions are assessed at the earliest stages of developing new mining activities.
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Action Transport assessments to identify needs and solutions shall be undertaken in the earliest stages of any new mining activity. The assessment should include resource volume, location, destination and method of transport
State and local governments usually play a leading role in the planning of major industrial areas as:
governments have a core interest in ensuring land use planning protects land for future industrial use;
the longer timeframes and risks involved are not attractive to the private sector; and
such areas have strategic significance for the long term economic development of Tasmania.
Organisations DIER, DED, local government.
Transport issues tend to be significant for major processing activities due to the:
quantity of goods and resources being transported;
sensitive relationship between the viability of activities and transport cost; and
potential for transport to impact on communities and safety.
Other transport issues which may relate to industrial areas include:
Locating industrial areas where they can capitalise on existing road and rail infrastructure, and other strategic infrastructure.
The need to plan for new road and rail corridors that connect industrial areas to the existing network.
The physical impact of road freight on rural roads.
The impact of the cost of providing transport infrastructure on the viability of the area being developed.
Two planning processes for major industrial areas have been initiated in the Region: Port Latta and a joint industrial study by the Devonport, Kentish and Latrobe councils.
Port Latta The first project involves land to the south of Port Latta. This area was initially identified as a potential site for major mining processing activities as part of a joint Commonwealth, State and mining industry program in 1999.
Strategy 7.4.3 Provide information on the transport planning and design issues and requirements for major industry at Port Latta. Outcome Capitalising on the transport benefits of Port Latta for major industry, and further assessment of transport infrastructure options and requirements.
Action 1 Continue to develop information on the land transport needs of Port Latta, both within the site and on the surrounding network. Action 2 Ensure that any plans for design and subdivision of the belt and pipeline transport options. Organisations DIER, CCA, DED, Circular Head Council.
DED, in conjunction with the Circular Head Council has completed a project to:
assess the environmental and heritage baseline information of the area;
prepare outline development concepts for the area;
assess the infrastructure needs for the industrial area; and
prepare suitable planning scheme provisions to protect and zone suitable land for major industry.
In terms of transport infrastructure and services, the Port Latta area has some clear advantages for major industry, including:
proximity to a Category 2 Highway;
good access to rail infrastructure;
traffic to and from the area will not adversely impact on residential areas;
potential to develop port facilitates at Port Latta may reduce land transport freight tasks; and
good road and rail access to the three, main northern trading ports.
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Mersey Regional Industrial Estate Planning Project The second project involves the sub-regional area of Devonport, Latrobe and Kentish. The three local governments involved have undertaken a planning process to identify and protect suitable sites for industrial development, including a possible major processing industry. The project was initiated due to joint recognition by each of the three local governments that:
demand for sites for major processing industries could no longer be met within the Devonport City local government area; and
collaborative action was needed to identify and plan for a site catering to major processing industries.
The first stage of the process involved undertaking a sub-regional suitability assessment to determine which areas are or are not suitable for industrial development.
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Based on this process, a more in-depth examination of potential sites, their benefits and constraints was undertaken by an independent consultant. The assessment used a number of hypothetical industrial development scenarios and a range of social, environmental, economic, planning and infrastructure criteria to review the strengths and weaknesses of individual sites.
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Later stages may involve investigation of amendments to local planning schemes for both the site and infrastructure corridors, and detailed site design. The land transport implications and requirements for any new large-scale industrial activities are likely to be significant and involve the following issues:
The area will need to have access to the rail network and the Bass Highway.
The location of the area in relation to the rail and strategic road network will impact on the cost effectiveness of providing land transport infrastructure.
The level and type of freight activity from industrial activities will determine the capacity and type of transport infrastructure needed, and the degree to which communities are affected by freight transport movements.
There may be a need to plan land transport corridors well in advance of their actual development.
The ultimate design and layout of the industrial areas will need to provide for both road and rail access.
Transport issues associated with the project are able to be addressed provided they are fully integrated into the various stages of the process, from the suitability analysis through to the completion of a detailed site layout. Strategy 7.4.4 Consideration of transport issues at all stages of the Mersey Regional Industrial Estate planning project. Outcome Consideration and integration of transport implications and requirements throughout the process of Devonport, Latrobe and Kentish local governments planning of an area for major processing industry. Action 1 Information and advice will be exchanged to ensure transport implications and requirements are integrated into the Council’s processes at all relevant stages including:
Sub-regional suitability analysis; Site assessment; Planning scheme amendments; and Site design.
Organisations DIER, DED, DPIWE, Devonport, Latrobe and Kentish Councils.
7.5. Marine and Aviation
Tasmania’s island status places considerable emphasis on the performance of the marine and aviation sectors to support and enhance the quality of life of all Tasmanians. Around 99% of Tasmania’s trade arrives or departs by sea, and over 80% of passenger movements into and out of the State are by air. The marine and aviation systems and their associated ports, are crucial to Tasmania’s and the Region’s economic and social well-being. Tasmania’s off-shore islands are particularly reliant on aviation and shipping services, which form an integral part of daily commercial and personal activities.
Figure 1: Maritime transport system INTERNATIONAL NATIONAL STATE Competition
Physical and biological environment
Shipping Services The marine transport system consists of shipping services that provide the interstate and international services for the movement of both passengers and freight. The inter-relationships within the marine transport sector are outlined in Figure 1. Whilst complex, the marine transport environment has until the last four decades, been characterised by considerable stability within most of its elements. Some of the major influences shaping Tasmania’s port system in the foreseeable future include:
Characteristics of shipping using Tasmanian ports (vessel type, size, frequency and routes operated).
Location of export industries and future development proposals.
Relative efficiencies of sea, air, road and rail transport for shippers.
Passenger Services
Community expectations
Freight Services
Infrastructure (ports etc)
Technology
Both the marine and aviation systems are dynamic systems involving passenger and freight services provided on a commercial basis, in response to demand. The Region contains seven airports (two unlicensed) and eight ports. The services provided by these ports and airports enable the business community to operate in national and international markets, and influence its performance at a local, regional and state economic level. The level and upkeep of this infrastructure places a burden on the community.
Fishing and aquaculture
Legislation and regulation
Ship building and repair Commercial/ financial constraints Culture
Other transport modes
Accessibility to internal transport systems such as the rail network.
Growth in freight and passenger volumes.
Emergence of the global economy and an increasing dependence on trade outside Tasmania.
Increasing use of just-in-time delivery and third party logistics providers.
Changing standards for containerised trade.
Population distribution.
Increasing consumer demand for imported goods.
Developments in passenger ferry operation.
Port infrastructure that is unable to be relocated and which has substantial residual life.
Adjacent land use, including availability of land for potential future port expansion.
Technological change in information and communication systems.
Development and reticulation of gas energy.
Community and industry comfort with, and dependence on, existing port arrangements.
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As the marine transport system changes, a range of factors will need to be taken into account, including:
Tasmania’s island status means an absence of alternative forms of interstate transport like road and rail, and its consequent reliance on daily containerised sea services.
Decentralised population and its divergent perspectives on the ongoing maintenance of infrastructure and service level expectations.
Emergence of global markets with international competition for Australia’s domestic products together with an increased need by local producers for access to international markets.
Dependence of Bass Strait island communities on coastal shipping for the movement of goods that underpins their viability.
Sea carriage of tourism and its growth potential.
Substantial land transport reforms such as major road infrastructure investments, and access rights to and privatisation of rail networks, which far outweigh the benefits of the limited reforms in the maritime sector.
Increasing dimensions of ships, especially on international services, and the ability of Tasmania’s ports to accommodate them.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Key characteristics of Tasmania’s and the Region’s general freight shipping include:
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The majority of Tasmania’s non-bulk trade is with the Australian mainland. The predominant carriers of this domestic trade are Toll, Patrick, ANL and TT Line.
Toll operates two identical container cargo vessels (the Tasmanian Achiever and the Victorian Reliance) of approximately 520 TEU capacity between Port Melbourne and Burnie. These sail seven days a week each in alternate directions. The ships were purposebuilt for Bass Strait and have a service speed of 20 knots and roll reduction tanks. This speed allows them to spend a full working day in port and to cross the Strait at night.
Patrick is the second major carrier in the State, operating between Devonport and Melbourne six days per week. Patrick also operates a weekly King Island service, connecting to Devonport and Melbourne (4,000 TEU equivalent/year).
ANL operates a lift on/lift off container services operation three times per week to Bell Bay and once per week to Burnie.
TT-Line’s operation of two superfast ferries has increased freight capacity with each vessel operating at a capacity of approximately 40 semi-trailers per voyage.
Bass Strait is essentially a TEU container market, with only a small number of Fortyfoot Equivalent Unit containers used.
Table 1 shows port shipping activity in Tasmania for the financial year, 2003/04. Calls to Tasmania by international shipping are directly related to profitability through revenue from trade volumes. Over recent years the Port of Launceston’s share of international container shipping share has increased significantly due to the synergies created with international bulk shipping from the Port.
Table 1: Port shipping activity, Tasmania 2004/2005 Total Trade (mass tonnes)
Container traffic (TEUs)
Ship visits (commercial) (no.)
Burnie
4 063 434
181 979
496
Devonport
3 202 534
172 711
984
Launceston
6 047 060
45 023
N/A
Hobart
3 086 648
2 991
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Port Infrastructure Tasmania’s four major ports, located at Hobart, Launceston, Devonport and Burnie, are all now part of TasPorts, the merged port company. Launceston, Devonport and Burnie offer traditional land based seaport activities and each facility has annual turnovers of approximately $10m. TasPorts is responsible for the operation of extensive cold storage facilities, the minor ports of King Island, Flinders Island, Strahan and Stanley, and the international airport at Hobart and domestic airport at Devonport.
Table 2: Characteristics of ports, Cradle Coast region Port
Owner
Comments
Burnie
TasPorts
Services Tasmania’s major west coast mines and handles most types
of bulk shipping. Trade is facilitated through two container cranes and two berths with stem loading ramps. Able to accommodate large quarter ramp vessels at three berths and Toll Shipping (the major operator) have roll-on, roll-off facilities. Operates a large cold store (31,279) and has excellent inter-
modal access to road and rail infrastructure. Devonport
TasPorts
Major tourist port in Tasmania Patrick Shipping operates an overnight roll-on, roll-off facility
between Devonport and Melbourne. Major Tasmanian port handling shipments of live animals to the
Middle east No tidal constraints for current operators.
Port Latta
Owned and operated by Australian Bulk Minerals.
The port is a conveyor belt, bulk loading facility which is operated
in conjunction with the company’s iron ore mining activities. Port facilities can potentially be used for the import/export of
other bulk commodities. The port has no breakwater facilities and is subject to
weather restrictions. Strahan
TasPorts
Fishing port and base for extensive tourism cruise operations.
Grassy
Tas Ports
King Island’s main commercial port. Wharf will require investment
in the medium term. Regular freight shipping services are provided weekly by Patricks
on a commercial basis. Main import is fertiliser to support the grazing activities on the
Island. Main exports are beef, dairy products and kelp. There is a considerable transport task in moving empty refrigerated containers to the island and empty fertiliser containers from the Island. Stanley
TasPorts
Currently a fishing port with infrequent visits by trading vessels. The rail link to the port was removed in the last decade. In recent years the potential to use the port for a fast ferry freight
service for perishable foods has been investigated. Smithton
Tas Ports
Fishing port.
Currie
Tas Ports
Fishing port.
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It also operates under a more diversified business and commercial model with interests in port facilities at a number of locations around the State (including Strahan, Triabunna and Stanley), shipping services, accommodation complex, cold storage centre, transport business and services including stevedoring and plant hire interstate and intrastate. There is also fuel distribution at King Island and Flinders Island. The Corporation operates the King Island Port, Risdon Port Services, and Hobart International Airport as subsidiary companies. Annual turnover is approximately $50m. The Cradle Coast Region contains eight ports, one of which is an important bulk facility – Port Latta – with three others serving as fishing and recreational ports – Stanley, Smithton and Currie. Strahan is both a fishing port and a base for tourist cruises along the Gordon River and on Macquarie Harbour. The King Island Ports Corporation manages the Currie and Grassy ports as a wholly owned subsidiary of the Hobart Ports Corporation. Table 2 shows the characteristics of the Region’s major and minor ports.
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Ports have become regional focal points, with communities and industries developing to take advantage of the placement of infrastructure. Historically, this regional and local focus has led to a situation where port reform and port management have tended to focus on local impacts rather than the role and future of ports within the context of an industry-driven, statewide transport system. The four port corporations recently merged into a single operating entity, TasPorts. The merger provides a whole of Tasmania focus for the ports system, better positioning it to respond to national and international changes.
Aviation Infrastructure It is generally recognised that the northern region of Tasmania is oversupplied with airports. The driving time between Launceston and Devonport airports is one hour, and between the Devonport and Burnie Airports, forty-five minutes. The duplication of services between Devonport and Burnie mean the economies of scale needed to attract more frequent services or larger aircraft are not realised. The issue of diseconomies of scale may mean the overall level of airline services to the region is lower than it could be.
Figure 2: Passenger numbers, all Tasmanian airports (1996/97 to 2003/04) 1,400,000 98/99 1,200,000
99/00 00/01
Passenger numbers
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
The types of infrastructure provided by ports are the essence of the competitive system that benefits shipping companies and shippers, and therefore the Tasmanian community.
Tasmania’s port system reflects the gradual evolution of individual ports servicing specific geographical areas and towns/cities.
1,000,000
10/02 02/03
800,000
03/04 600,000
400,000
200,000
0 Hobart (e)
Launceston (e)
Devonport (e)
Burnie (e)
King Island (e)
Flinders Island (e)
Data sourced from Avstats Division, Department of Transport and Regional Services (DoTaRS). Includes regional data, which may be based on estimates rather than actual passenger numbers
Currently, Rex and QantasLink have rationalised their services to the Region. Rex now operates solely out of Burnie and QantasLink, from August 2006, will operate solely out of Devonport. It is hoped that this will stablise the usage of interstate airports on the North West coast. The freight and passenger services provided by airports in the Cradle Coast Region are provided by the private sector on a user pays basis, and are thus directly related to demand.
Since 1986, the number of passengers using Tasmania’s domestic and regional air services has had an average annual increase of just over 1%. However, over this fifteen year period, there have been significant changes to the relative passenger share of the four mainland airports, with the proportion of passengers using the Hobart airport increasing from one third to 50%. Figure 2 shows passenger numbers at Tasmania’s interstate airports over the period 1996/97- 2002/03. The Region has three major inter-state airports and a number of minor airports. The general characteristics and strategic significance of these are outlined in Table 3.
Table 3: Characteristics of airports, Cradle Coast region Airport
Owner
Comments
Devonport
Tas Ports
Sealed runway 1838m long; grass runway 880m long. Suitable for turbo-prop aircraft and limited jet landings.
Burnie
Burnie City Council
Sealed runway 1650m long; partially sealed runway 1188m long. Suitable for turbo-prop aircraft and limited jet landings.
King Island
King Island Council
Sealed runway 1585m long; gravel runway 1105m and 800m
long respectively Island’s only licensed airport, therefore has high strategic significance
in social and economic terms for the King Island community. Suitable for turbo-prop aircraft
Smithton
Crown, Department of Infrastructure, Energy and Resources
Gravel runway 1599m and 560m long respectively The airport is licensed but is not used for any regular passenger or
freight services. The main use of the airport is for private aircraft owners and for
recreational users. Given the proximity of the airport to Burnie it is considered to have
a low level of strategic significance. Strahan
West Coast Council
Gravel runway 1220m long Licensed airport. but is not used for any regular services. The airport would require considerable expenditure for use by 36
seater turbo props. The airport could be significant in the longer term as part of the
tourism and mining industries and for access to a relatively remote community. West Coast Council has decided to consolidate any future airport
investment at Strahan. Any upgrade would have an estimated cost in the millions of dollars. Zeehan
West Coast Council
Unlicensed airport, with no regular traffic. Significant impost on
Council for maintenance. Queenstown
West Coast Council
As for Zeehan, unlicensed airport, with no regular traffic. Significant
impost on Council for maintenance.
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Aviation Services
General Issues and Opportunities
Air transport provides a vital role in the maintenance and development of passenger and airfreight flows between Tasmania and the mainland. The role of air transport for the Tasmanian mainland and King and Flinders Islands is more important than many other areas of Australia, where alternative modes for interstate passenger and freight transport exist.
Issue: ports, structures and comparative advantages
As a result, Tasmania and its offshore islands are potentially more affected by changes in air services and providers. The entrance of Virgin and Regional Express is part of the demand driven nature of aviation services to and from Tasmania.
In 1997, the Tasmanian Government legislated in the form of the Port Companies Act 1997 for the formation of a company to perform functions relating to the operation of a port. This enabled the establishment of four port corporations (Hobart Ports Corporation, Port of Launceston, Port of Devonport Corporation and Burnie Ports Corporation) and two subsidiary port companies (King Island Ports Corporation and Flinders Island Ports Corporation) to administer the State’s ports.
The possible rapidity of change within the aviation market implies the need for governments to ensure that the interests of remote and regional locations are catered for in the future. The creation of a genuinely competitive regional airline market in Australia provides the greatest opportunity to cater for the needs of regional and remote areas.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
The freight and passenger services provided by airports in the Region is provided by the private sector on a user pays basis. Thus the services offered are directly related to demand.
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The emergence of a new operator in the Region, Regional Express has provided services to the North West coast. Tasfast Airfreight currently offers a daily overnight freight service between Moorabbin and Burnie, which includes King and Flinders Islands. Since 1986 the number of passengers using Tasmanian domestic and regional air services has had an average annual increase of just over 1%. However over this nearly twenty year period other significant changes have occurred including an increase from one third to half all passengers using Hobart airport. Whilst total passenger numbers to King Island are low compared to other airports, the numbers are significant in the context of its relatively small population of less than 2 000. As at August 2006, Qantas are providing services into Devonport and Rex are providing services into Burnie. Tasair provide RPT services from Burnie and Devonport to intrastate destinations.
Tasmania’s port system has evolved over two centuries in a manner that has seen individual ports compete for a share of Tasmania’s total shipping trade based on price, service and infrastructure provision.
In June 2004, at the request of the four port corporations, the shareholder Ministers commissioned a high level review of the structure of the Tasmanian ports system. This review was aimed at capturing the synergies, greater opportunities and stronger market positions resulting from a consolidated ports organisation. The Review, undertaken by Meyrick and Associates, recommended amalgamation of the four ports into one single port company. Identified merger benefits include:
Economic growth: Savings and efficiencies of combined ports structure are estimated at between $2 million and $5 million per year.
Employment: Creation of new job opportunities within the port and ancillary businesses and industries.
Strategic planning and infrastructure use: Opportunities for synergies within the ports will be maximised, creating a stronger platform to support the development of Tasmanian business and more efficient use of transport infrastructure.
Avoiding duplication: Integrated planning will allow each port to build on current infrastructure strengths and develop the facilities required to cater for an anticipated increase in trade, without the risk of duplication.
Financial viability: Greater access to investment and infrastructure funding; a stronger and more stable cash flow; better capacity to manage debt; and more flexibility to deal with the inevitable ‘lumpiness’ in expenditure associated with major capital development.
Responding to industry change and customer needs: Improved ability to respond to change in freight owners and shipping providers (which will tend to result in fewer shipping lines with larger ships), as well as powerful land transport operators. Enhanced ability to develop comprehensive solutions to customers’ needs and to provide a single point of contact for customers. Use of human resources: Ability to draw on a broader base of skills and experience. Enhanced professional learning and growth opportunities for staff.
The study recommended adoption of a ‘Business Lines Model’, based on the argument that the structure of any new corporation should reflect the key activities in which the corporation is engaged rather than the geographical divisions that have historically characterised the Tasmanian ports industry. On 1 January 2006, TasPorts became operational, with its head office located at the Port of Devonport. Rather than four small ports with little market influence and impact, TasPorts now occupies a market position comparable to that of Fremantle, approaching Brisbane’s and significantly greater than the South Australian ports. It is expected that, as a combined entity, TasPorts will have greater access to investment and infrastructure funding and be able to strategically plan port development and business growth. The Study conservatively estimated business and revenue growth as a result of amalgamation at between 5 to 6% per year, adding approximately $50 million in gross port revenue. The combined structure will generate estimated savings and efficiencies of between $2 million and $5 million per year. Issue: King Island King Island is located mid-way between Victoria and Tasmania; has a population of 1,800 persons, and is renowned for its primary industry exports, including dairy products, beef, seafood and kelp.
Freight connections are provided by Tasair, King Island Airlines, REX and Tasfast Airfreight (operating out of Moorabbin and Burnie). A weekly sea freight service is provided by Patrick. King Island Council has identified the need for upgraded infrastructure as a key issue in the Island’s air and sea transport services. The Council is working with the King Island Ports Corporation to identify potential opportunities to expand the current port using overburden from the reopened scheelite mine. King Island’s smaller market size means the cost of providing transport services is higher compared to larger, more heavily patronised routes, where larger equipment and trade volumes help to contain costs. The King Island air route is prone to directional flows, particularly at peak periods, resulting in full plane loads in one direction, with low/nonexistent loads in the reverse direction; for example, during school holidays and the peak tourist season of January-March. Despite Council concerns that current air capacity and aircraft type are inhibiting visitor numbers, it appears the existing level of service, schedules and aircraft types is a realistic response to the current market. Any increased demand would likely be met by a commercial response from airline operators through changes to service levels, schedules and aircraft types. The airlines servicing King Island have done so on a commercial basis for several years. These airlines are expected to continue to service the Island in the future with appropriate aircraft, schedules and service levels. The expansion of tourism and air services on the Bass Strait Islands will likely require a number of sustainable, smaller steps rather than large ‘jumps in capacity’, based on multi-million dollar aircraft, new or upgraded infrastructure. This will involve targeted tourism marketing and promotional campaigns to bring about a sustainable increase in patronage to justify improved services.
The Island is serviced by regular passenger flights but has no equivalent sea passenger service. Thus, the community is highly reliant on air services for the movement of people, and to a lesser extent, goods. King Island air services currently focus on Victoria, via King Island Airlines and Regional Express (King Island to Melbourne). Services to Devonport and Wynyard are provided by Tasair.
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The Commonwealth-funded Bass Strait Passenger Vehicle Equalisation Scheme (BSPVES) applies to the King Island-Victoria sea route for passengers travelling by air and their car by a scheduled sea freight service. King Island Council has argued that the BSPVES should be extended to air services to and from King Island given the absence of any alternative sea route, and be applied to travel to both mainland Tasmania and Victoria. The State Government recognises the importance of King Island exporters having access to a regular commercial shipping service. The Island is currently services by a reliable and regular (weekly) shipping service, provided on a commercial basis by a private operator in conjunction with its Bass Strait services. Whilst changes to the provision of Bass Strait shipping services are possible in future, it is not possible to foreshadow the nature of these changes or their timing. The State Government will continue to liaise with the shipping company, shippers and the Council with regard to the provision of suitable shipping services. The roles of government, Council, private industry and other stakeholders in addressing issues associated with Island shipping services are currently being addressed at a strategic level within the bilateral agreement process between the State Government and King Island Council.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Commonwealth Review of Regional Aviation Services and Transport Links to Major Populated Islands
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On 18 June 2002, the Minister for Transport and Regional Services requested the Commonwealth House of Representatives Standing Committee on Transport and Regional Services to inquire into commercial regional aviation services in Australia and transport links to major populated islands. The terms of reference of the Inquiry included:
adequacy of commercial air services in regional and rural Australia.
policies and measures required to assist in the development of regional air services, including regional hub services and small scale owner-operator services.
adequacy of commercial air services to major populated islands and the adequacy of alternative sea services.
Interconnectivity between regional air transport systems, major national air services and international services (including oncarriage, through ticketing, freight handling, timetabling and airport slotting).
The role of all three levels of Government in supporting and assisting the development of
regional air services and island transport systems.
The role of major air transport carriers in providing regional services.
Examples of issues in some of the key areas related to the Region include:
Tourism: The provision of adequate passenger services that meet the needs of the Tasmanian passenger movement profile, taking into account the size of the market, seasonality and reason for travel.
Regional airports: The Commonwealth to reconsider the funding arrangements under the Airport Local Ownership Programme (ALOP) to address the cost burden many small airports impose on small communities.
Air freight: The provision of adequate airfreight services meeting the needs of time sensitive freight and the imbalance between inbound and outbound volumes.
Sea freight (transport connections): Continuation of the Tasmanian Freight Equalisation Scheme and the Bass Strait Passenger Vehicle Equalisation Scheme.
Primary industry: The Commonwealth continue to materially support the provision of quarantine services that preserves Tasmania’s disease-free status.
Strategies Many of the issues associated with port, shipping and aviation services are better addressed through more specific processes or determined through more competitive arrangements. The strategies of this section address:
strategic investment in minor airports; and
land transport and freight needs of trading ports.
Issue: strategic investment in and provision of minor aviation infrastructure Generally, the impact of the Commonwealth Government’s withdrawal from responsibility for aviation infrastructure has placed more pressure on State and local governments to meet the growing costs of maintenance and improvement. Local government ownership of airports was the result of the Commonwealth handing back these facilities to their communities in the early 1990s, generally with a cash incentive. Primary responsibility for the airports rests with their owners, which includes local government, TasPorts, a private company and DIER. The Cradle Coast Region contains seven airports, two of which are unlicensed (Zeehan and Queenstown) and serve little purpose. A third (Smithton) is licensed, but appears to serve little strategic value given its proximity to Burnie Airport at Wynyard. There are large amounts of capital sunk in both minor airports and ports, with the maintenance of both an expensive undertaking requiring large, single investments. For example, the West Coast Council maintains three airports, all of which represent a significant impost in terms of maintenance. A strategic overview of these three airports shows that the only licensed air port, Strahan, has the highest future potential in terms of a gateway to the West Coast, reflecting its proximity to tourist attractions such as the Gordon River. The Smithton airport contains an infrastructure base that is not related to commercial demand. Its ownership and development by the State Government may distort the provision of efficient and commercial airport infrastructure along the North-West Coast. Strategy 7.5.1 Consolidation of West Coast airport infrastructure. Outcome Concentration of future West Cost airport infrastructure at Strahan.
Action Rationalise current airport operations on the West Coast from three to one and ensure any future infrastructure catering of demand is focused on Strahan. Organisations West Coast Council.
Strategy 7.5.2 Transfer of Smithton airport into private ownership. Outcome Transfer of Smithton airport to a commercial owner.
Action Transfer ownership of Smithton airport to a commercial operator who will run the airport to cater for commercial demand. Organisations DIER, Circular Head Council.
Issue: ports and land transport infrastructure Landside movements account for around one third of port related transport costs. There is need to ensure intermodal transport interfaces serving ports are efficient and effective aspects of logistics chain. Fifteen transport companies have established freight depots at East Devonport. In addition, introduction of a twin-ship Bass Strait ferry service from 1 September 2002 and a decision by Patrick to consolidate its northern operations around a six-day-a-week sailing from Devonport have dramatically increased port related freight vehicle movements. A new $2.2 million, 450m dedicated heavy vehicle access road between the National Network and the port area at East Devonport was officially opened on 1 July 1999. The reconfigured port road system removed heavy interstate and intrastate traffic using the port facilities from residential roads and provided a dedicated freight route entering and departing the port. Improved traffic management into and around the port area at East Devonport was an important issue identified in a recently completed Urban Design Framework for the Eastern Shore of Devonport. The Framework makes recommendations for improvements to the local road network in relation to tourist, local and port related traffic. Generally, these changes relate to consolidation of freight traffic movements along the southern end of Wright Street and ferry traffic along Murray and Tarleton Streets. The port access road serves a strategic function as part of the State’s main road freight network. The port access road should be owned and managed by the State Government as part of this network.
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In comparison to road infrastructure there have been few changes to the rail infrastructure arrangements serving the Port of Devonport. The eastern section of the Port of Devonport is one of the State’s major container transport nodes. However the rail access for container traffic is located on the western side of the port. The inter-modal problems associated with transporting containers by rail may increase the costs of freight for users and limit the potential for rail to reach it optimal level. Strategy 7.5.3 Rationalisation of road ownership for the main freight access to the Port of Devonport. Outcome Major road freight access to the eastern section of the Port of Devonport under single ownership as part of the strategic State network.
Action Transfer ownership of port access road on the eastern side of the Port of Devonport from local government to State ownership. Organisations DIER, Devonport City Council.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Strategy 7.5.4
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Consider options to improve rail container transport for the port of Devonport, consistent with future TasPorts strategies. Outcome Improved arrangements and infrastructure for container movements by rail for the eastern section of the Port of Devonport.
Action Within the context of TasPorts strategies and general objective to maximise whole-of-state benefits, undertake a cost benefit analysis of options to improve rail access for container transport into and out of the eastern section of the Port of Devonport. Organisations DIER, Devonport City Council, TasPorts, Pacific National Tasmania, Patrick.
7.6. Linear Infrastructure and Freight
The linear transport infrastructure of the Region consists of a network of road and rail.
Sections of the Bass Highway have been rerouted to bypass towns.
A large number of north-south local roads, run along valley edges and connect onto the Bass Highway.
Roads are the major conduits through which rural and urban communities in the Region deliver products to market, receive goods and services and access community and commercial services.
The primary connections to the West Coast towns are:
Whilst road infrastructure is only one component of a multi-modal transport system, including air, sea and rail, these other modes generally require roads to complete the journey.
The road network consists of 3 922 km of local roads (2 120 km sealed and 1 800 km unsealed) and 1 151 km of State Road network. In terms of length, the Region contains 30% of Tasmania’s local rural roads. Table 1 shows road length and bridge deck by local government.
Tasmania’s State Road network is strategically planned via a road hierarchy system. The road hierarchy provides for informed decisions regarding investment priorities in road construction and development, maintenance and environmental performance. The advantages of a hierarchical approach include, inter alia, identification of roads with similar functions and associated target standards; strategic allocation of road funding and maximisation of transport efficiency.
Road
- from Burnie – Murchison Highway and Guilford/Hampshire Main Road; and - from Hobart – Lyell Highway.
Key characteristics of the road network in the Region include:
The Bass Highway along the North West Coast is the primary element of the network.
The only major inland east-west connection is the Cradle Mountain Developmental Road and the Mole Creek Main Road which link Deloraine to the Murchison Highway.
Table 1: Road length and bridge deck area by council, Cradle Coast Region Local government
Local government road length (km) Sealed
Unsealed
Total
State Road Network length (km) 1 Trunk Road
2 3 4 Regional Regional Feeder Freight Access Road Road Road
Bridge deck area (m2)
5 Other Road
Burnie
281
72
353
14
48
-
-
-
2 800
Central Coast
522
141
663
29
-
-
-
10
5 817
Circular Head
266
501
767
-
46
8
-
129
5 225
Devonport
225
14
239
13
-
-
3
6
1 065
Kentish
238
247
485
24
-
-
107
6
5 110
King Island
47
385
432
-
-
-
34
44
993
Latrobe
207
79
286
24
3
4
43
15
1 887
Waratah/Wynyard
253
269
522
16
27
37
15
142
4 826
West Coast
82
93
175
-
35
111
80
78
2 557
2121
1801
3922
120
159
160
282
430
TOTAL
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Map 1: Tasmanian State Road Hierarchy
State Road Hierarchy 1 2 3 4 5
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
The road hierarchy applies to State Roads only and consists of five categories, in decreasing order of priority from Category 1 (Trunk Roads) to Category 5 (Other Roads) (see Map 1 and Table 2).
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The Region contains one Category 1 road – the Bass Highway east of Wynyard. The majority of this road is comprised of the new AusLink Land Transport National Network, i.e. the Bass Highway between Burnie and Launceston. Tasmania has a relatively extensive road infrastructure network for its population, with 15 persons per kilometre of road. The Cradle Coast Region has a higher than State average, with 21 persons/km (see Figure 1). Road Funding and Expenditure Under the AusLink National Land Transport Plan, the Australian Government shares financial responsibility for the construction and maintenance of the AusLink National Network with State governments. It also provides funding for State and local roads through programmes such as ‘Black Spot.’ The Tasmanian Government funds State-classified roads from normal revenue sources. Over the past fifteen years, the State road agency has been largely transformed from a builder of new roads to
asset manager of a substantially mature network. Maintenance of an extensive road network now accounts for 62% of the State Road budget. Maintenance expenditure has remained consistently above reinstatement and upgrading works for the past decade. Figure 2 shows expenditure on State roads and bridges to June 2005. Local government funds road works via its own rates base, and through tied and untied Commonwealth and State grants. Local government receives additional funding through initiatives such as the Commonwealthfunded Roads to Recovery Programme.
Figure 1: Persons per kilometre of road, Cradle Coast and other locations US
NSW
Canada
Cradle Coast
SA
WA 0
10
20
30
40
50
Table 2: Key characteristics of the Tasmanian State Road hierarchy Category
Purpose
Traffic profile
Target standards
Example
1. Trunk Road
Connect major population centres, sea and air ports, and industrial locations. Facilitate interregional freight and passenger vehicle movements.
At least 2,500 vehicles/day. 700 truck movements/day.
Sealed surfaces
Bass Highway, (Launceston to east of Wynyard)
3.5m lanes; up to 2m sealed shoulder
(at least 1m sealed and 1m unsealed) Overtaking lanes at least every 15km Dual carriageways where warranted Town bypasses where economically justified High performance road markings
(raised reflective markings and audio tactile markings) Road standard and geometry
permitting 110kph Junctions designed for high productivity
vehicles where appropriate Truck parking areas at least every 50km Limited property access directly onto
the road 2. Regional Freight Road
Connect major freight generating areas with trunk roads and major regional resources with main railheads. Facilitate regional freight movement and sub-regional passenger, commercial and tourist movements.
Av. daily vehicle movements of 1000 to 5000 vehicles. 300 - 700 truck movements/ day.
Sealed surfaces Where two lanes, each at least 3.5m
wide, up to 1m sealed shoulder and an unsealed shoulder to make total shoulder of 1.6m
Bass Highway, (west of Wynyard to Smithton)
Overtaking lanes where warranted Standard road markings (e.g. edge lines
and centre lines); raised reflective markings where warranted Road standard and geometry
permitting 100kph Where appropriate, junctions designed
for high productivity vehicles Truck parking areas at least every 50km Limited property access directly onto
the road 3. Regional Access Road
Connect smaller regional resource bases with trunk and regional freight roads. Facilitate local commercial interaction and subregional passenger, tourist and freight movements to trunk and regional roads.
Av. daily vehicle movements 1500 to 5000 vehicles. Up to 300 truck movements/ day.
Sealed surfaces Where two lanes, each at least 3m wide,
up to 1m sealed shoulder Overtaking lanes where warranted
Murchison Highway (Zeehan to Guildford)
Standard road markings, including edge
lines and centre lines, and raised reflective markings where warranted Road standard and geometry permitting
80kph in rural areas Junctions designed for high
productivity vehicles Limited property access directly onto
the road supported by planning scheme controls
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Table 2: Key characteristics of the Tasmanian State Road hierarchy Category
Purpose
Traffic profile
Target standards
Example
4. Trunk Road
Facilitate local commercial interaction; connections to major tourist destinations; local freight and passenger movements to trunk and regional freight roads.
Daily average below 1000 vehicles
Sealed surfaces
Henty Main Road
Lanes at least 2.75m wide, 0.6m sealed
shoulder Standard road markings, including edge
lines and centre lines, and where lanes are less than 3m wide, the edge lines are located on the shoulder Road standard and geometry
permitting 60kph Where appropriate, junctions designed
for high productivity vehicles Local government planning scheme
control of property access complimented by limited property access on more important roads 5. Other Roads
Primarily property access.
Lowest traffic levels (i.e. below 1000 vehicles)
Figure 2: State road expenditure ($000’s) ($ indexed to June 2002)
Appropriate minimum acceptable safety
standards reflecting their use, e.g. a higher safety standard where used for forestry or agricultural purposes
While rail is competitive with road for the movement of bulk freight over long distances, most haulage distances in Tasmania are relatively short.
Poor alignment over difficult topography.
A market characterised by a small industrial and population base and dominated by a small number of large bulk producers.
$40,000 $35,000 $30,000 $25,000 $20,000
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$10,000 $5,000
Reinstatement
04-05
02-03
03-04
00-01
01-02
99-00
97-98
98-99
95-96
Upgrade
96-97
94-95
92-93
$0 93-94
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$15,000
Maintenance
Rail The Tasmanian rail network consists of 629km of track, connecting major ports, cities and processing industries. Annual freight tonnages are carried over individual lines are shown in Map 2. By its nature, rail is suited to the long-distance movement of bulk freight. In Tasmania, impediments to the greater use of rail include:
The State Road network has attracted significantly higher investment compared to rail.
The network is duplicated by road, meaning it has no unique markets.
Railton Main Road
In November 1997, Tasmania’s rail operator Tasrail, previously a subsidiary of the Commonwealth-owned Australian National Railways, was privatised and sold to the Australian Transport Network (ATN). A privatised Tasrail saw changes to network operations, including significant capital investment and a more aggressive approach to selling services. Toll Holdings acquired Tasrail in early 2004, with Tasrail subsequently becoming part of Pacific National and renamed PNT. In September 2005, PNT advised the Tasmanian Government that it would close down the intermodal service between Hobart and Launceston unless government financial support was forthcoming. The Tasmanian and Australian Governments offered a rescue package of $118 million over 10 years for capital investment and maintenance of infrastructure over the AusLink National Network, subject to PNT investing $38 million over 8 years in improved rolling stock. The arrangements of this package are currently being finalised by all stakeholders.
Rail has played a declining role in Tasmania’s transport task since the 1950s. This decline has been matched by substantial public investment in road infrastructure, changes in transport technologies and patterns, and a lack of leadership regarding the function of rail in meeting Tasmania’s transport task. Nevertheless, rail still plays a significant role within Tasmania’s transport system, moving approximately 25% of the total freight task based on Net Tonne Kilometres and 50% of the non-urban net tonne kilometres of freight. This is expected to increase as part of the State’s overall growth in the transport task. Some of the key areas for future rail investment include:
improvements to the mainline track to reduce long-term maintenance costs;
strategic infrastructure investments to facilitate competition for new cargoes; and
road-to-rail facilities, which will benefit both rail and road transport providers.
Map 2: Tasmanian rail network freight tonnage (02/03)
The Tasmanian Government and Circular Head Council recently spent around two years planning a potential corridor between Smithton and Wiltshire under a partnership agreement. Whilst the Circular Hear Council has since withdrawn its support for the project, generally, it maintains in principle support provided there is a viable commercial use for the link.
General Issues and Opportunities Minimising Community Impacts of Freight The movement of freight can have a significant impact on the amenity of local communities, particularly in areas of concentrated transport activity; for example, major truck routes. In terms of road transport, major impacts are related to the use of heavy vehicles, which can generate significant noise and air pollution. Various approaches can reduce the social and environmental impacts associated with freight movement and enable more compatible land use and activity. For example, use of other transport modes (a freight train can potentially replace 40 to 50 semi-trailers, reducing congestion); improved local area and transport planning that separates residential areas from freight routes; and improvements to vehicle design. It is important to find a balance between the need for transport system efficiency and community demands regarding safety and amenity. This may involve separating vital transport infrastructure from urban encroachment and the demands of recently established communities whose priorities are not the efficient operation of the freight system. Over the past twenty years the National Highway has been realigned to bypass many towns along the North West Coast. The rail network however, continues to pass through many urban settlements. There are significant community concerns about the level of road freight traffic passing through Latrobe and Ridgley.
Potential, medium-term rail infrastructure projects in the Cradle Coast Region could include:
recommissioning of the line between Burnie and Wiltshire;
extension of the line from Wiltshire to Smithton;
extension of rail to the eastern section of the Port of Devonport;
extension of the rail line to Gunns Timber Mill in Hampshire;
development of log transfer yards; and
possible extension of the line into the Port Latta industrial site.
Community concerns in these two localities reflect safety and amenity issues associated with residential settlements and communities that are located alongside priority and/or high-use transport corridors. In Tasmania, these problems are most pronounced in those towns located on Category 1, 2 or 3 roads, where both the level of general and freight traffic and the strategic importance of the road, is higher.
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Table 3: Average daily truck movements, key Tasmanian towns, 2004 Town
Av. daily vehicle movements
Av. movements attributable to trucks %
Number
10931
7.8
853
Campbell Town
5069
13.3
675
Huonville
4844
7.8
378
Latrobe
6200
4.3
267
Ridgley
1993
29.6
153
10685
4.9
1078
19.5
Brighton
Sorell Triabunna
524
East Tamar Highway, Bell Bay Main Road; and
210
rail corridors from Hobart to Burnie and Western Junction to Bell Bay.
The State has no current programmed projects to undertake any town by-passes. C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Under the Plan, the Tasmanian Government now shares responsibility for construction and maintenance of the National Network, which has been expanded to include: National Highway (Midland Highway, Hobart to Launceston; Bass Highway between Launceston and Burnie);
In many cases, innovative solutions involving traffic calming, changes to lane width, reduced speed zones, improved pedestrian paths and refuges, are able to significantly reduce the impact of traffic in the commercial centre of town.
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AusLink channels funding into three core streams: the AusLink National Land Transport Network; Roads to Recovery (including a one-third strategic component) and the Black Spot Programme.
Table 3 shows average daily vehicle and truck movements through selected towns in Tasmania. Ridgley recorded the highest overall percentage of truck movements as a component of daily vehicle movements, with 29.6%. A high overall percentage was also recorded in Triabunna (19.5%) and Campbell Town (13.3%).
Funding is for a five-year rolling programme, renewed annually. In its May 2006 budget, the Australian Government increased its initial national funding commitment of $12.7 billion to $15 billion over the first five years - 2004/05 to 2008/09. Tasmania will receive $441.7 million under the first five year phase, of which $194.3 million is directed to major land transport construction projects and the remainder to maintenance, local road upgrades, elimination of crash 'black spots', and research and development. This allocation includes:
Bass Highway – Penguin to Ulverstone duplication Stage 1: $28.5m (complete)
Bass Highway – Penguin to Ulverstone duplication Stage 2: $42m
Midland Highway – Bridgewater Bridge Replacement: $57m
Bass-Midland Highways junction upgrading: $1.4m
East Tamar Highway upgrade, $60 million
Lilydale-Scottsdale Road: $7.47m
Maintenance: $5.9m (2006/07)
AusLink In June 2004, the Australian Government released the AusLink White Paper, outlining the final arrangements for development of the AusLink National Land Transport Plan. In relation to funding, the White Paper identifies the major components of AusLink as:
the continuation of the Black Spot Programme.
a defined AusLink National Land Transport Network encompassing important road and rail infrastructure links and their intermodal connections;
the AusLink Investment Programme, outlining the Australian Government's investment priorities for national land transport infrastructure over the next five years;
new partnership arrangements with the States and Territories, including cost-sharing for some projects;
Roads to Recovery and Strategic Regional funding programmes to assist local and regional transport improvements; and
Despite the inclusion of rail within the Network, no new funds have been allocated for the rail network over the first five-year funding phase. The Commonwealth Government has made an offer of $78 million for rail upgrading between Hobart and Launceston, and will consider a $3.75 million contribution to the intermodel terminal at the Port of Launceston and up to $5 million for a proposed intermodel terminal at Brighton. The offer is conditional on the Tasmanian Government and Pacific National meeting identified undertakings.
State Infrastructure Planning System
Strategies
Infrastructure is a key driver of Tasmania’s competitiveness in national and global markets.
The strategies in this section relate to the high and medium priority issues identified through consultation and workshop process undertaken in developing the Strategy, and include:
Well-designed, functional infrastructure:
assists in improving an economy’s competitiveness, generating improved productivity and supporting strong economic growth; and is an important element in maintaining a high quality of life and social wellbeing.
Governments play a central role, in partnership with the private sector, in planning, providing, facilitating and maintaining infrastructure. An improved ability to research, analyse and plan infrastructure against demand drivers is critical to the strategic planning of infrastructure into the longer-term. To this end, the Tasmanian Government is developing a State Infrastructure Planning System (SIPS). SIPS is an analytical tool, which is based on a systematic and transparent method of demand forecast and supply analysis. It will contribute to improved investment decision-making by enabling the identification of gaps in existing infrastructure; finding the type of infrastructure best able to support economic development; and planning future investment in response to emerging trends and need. SIPS will be implemented in three phases over four years (2005/06 - 2008/09), involving the gradual roll-out of the programme across the State Government. Key areas of development associated with Phase One include:
Forestry Freight Model: analysis of the road and rail based forestry freight transport task.
Road/Rail Freight Maintenance Cost Model: a model of the average annual and life cycle maintenance costs associated with various freight load scenarios across Tasmania’s land transport infrastructure.
Infrastructure, Resource, Activity and Demographic Information: a consolidated database and GIS analysis tool for a selected range of transport infrastructure, resource economic activity and demographic information.
Freight Demander System: an interactive GIS system showing point in time freight demand on the transport network.
road maintenance expenditure;
expanded use and implementation of the road hierarchy;
continued local road planning studies;
better integration of rail into transport planning and investment; and
facilitation of high productivity vehicles.
Road Maintenance Expenditure and Asset Management Strategies Issue/opportunity: optimisation of resources in terms of road expenditure and asset management at the state and local government levels With 15 people per kilometre of road, Tasmania has a more dispersed road network than the Australian average. While the Cradle Coast Region has an average of 21 people per kilometre of road, many local governments have cited road maintenance expenditure as one of their highest priority issues through the development of the Strategy. Figure 3 shows the asset life cycle, including the relationship between asset condition and maintenance. As the asset deteriorates with age, there is a higher proportional increased in maintenance expenditure. Thus, expenditure costs to maintain an asset during the last 12% of its lifetime are approximately five times that of maintenance during the first 75% of its lifetime. The State Government funds the State Road network from normal revenue sources. The majority of road expenditure – $30 million/year – is on maintenance and reinstatement, whilst around $5 million/years is spent on infrastructure improvements to the State managed road network (outside of Infrastructure Fund). Local government funds road works via its own rates base, tied and untied Commonwealth and State grants, and via programmes such as the Commonwealth-funded Roads to Recovery.
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Figure 3: Asset life cycle Excellent 40% drop in quality
Asset condition
Good 75% of life Fair $1 for maintenance here
40% drop in quality
Poor 12% of life Very Poor $5 for maintenance here Failed Time
Commonwealth assistance to local government for local roads is also provided via Financial Assistance Grants according to a percentage allocation system, changes in the CPI and population sizes. In relation to total expenditure from all government sources, Commonwealth Government assistance accounted for 24% of local government funding in Tasmania.
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A 1998 Auditor General report found that:
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most local governments would have difficulty sustaining current road and bridge stock with current expenditure patterns; and
many smaller local governments did not have the resources or expertise to carry out asset management activities.
Many rural roads in the Region were built when the average truck weight was around 10 tonnes and traffic volumes were very low. Some roads in the Region are experiencing accelerated deterioration due to increased heavy vehicle use, financial constraints and increased traffic volumes. The urbanisation of many rural areas is also leading to increased community expectations regarding the service standards of rural roads. Strategy 7.6.1 Improved information on social and economic implications of long-term maintenance expenditure levels. Outcome More informed and conscious decision making about road maintenance expenditure based on factual information.
Action 1 Road owners will establish life cycle asset management strategies that enable long-term asset expenditure needs to be clearly identified. Action 2 Road owners will aim to ensure that when State/ local governments are determining overall budget priorities decision makers are provided with accurate information about the long-term economic and service implications of road maintenance expenditure. Organisations DIER, local government. Road hierarchy Issue/opportunity: extend the hierarchy classification to cover all strategic roads and the rail network to provide a more effective tool for planning and managing the land transport network The current State Road hierarchy provides a strategic planning and management tool for roads owned by the State Government. The road network however, is used as a total system. The function of both state and local roads should be considered and managed to provide better network performance and transport outcomes.
There are a number of local government-owned roads within the Region that perform a local strategic function, including:
Road users, particularly the long distance road freight industry, expect standards to be reasonably consistent over long distance road links. This consistency provides safety benefits for all road users.
Irishtown Road, south of Smithton
Castra Road, south of Ulverstone
Mount Hicks Road, south of Wynyard
Strategy 7.6.3
Sheffield Road, linking Railton and Sheffield plus many other roads.
Consistent design of State roads in relation to function.
The current hierarchy of five categories will need to be reviewed to cater for the function of local roads. At a strategic level the focus on the function of the road system may misrepresent the role and function of the rail network in catering to the transport task. Strategy 7.6.2 Identify key transport corridors and categories according to functional hierarchy. Outcome A functional plan of the Region’s land transport network.
Outcome State roads developed to design standard targets based on function of the road.
Action State roads will be progressively developed to the functional design standards set under the State Road Hierarchy, with general priority given to Category 1-3 roads:
Bass Highway to Smithton; and
Guilford/Hampshire Main Road - Ridgley Main Road - Lyell Highway;
where the safety and efficiency gains are the greatest.
Action
Organisations
Identify regional hierarchy of significant road and rail transport corridors based on objective data of the current and projected function within the overall land transport system.
DIER
Organisations
Issue/opportunity: road and corridor planning studies needed to identify road improvement projects
DIER, local government, Pacific National Tasmania.
Issue: inconsistent road standards As outlined in the chapter on Road Use and Safety, the design standards for different functional parts of the road network are set to optimise safety. Thus, while it may be cost effective to have dual separated carriageways for sections of the Bass Highway with large volumes of traffic, some rural roads with very low traffic levels are relatively narrow and windy. The State Road hierarchy sets design standard targets based on the function of the roads. However, due to the level of investment needed to meet these standards, considerable inconsistencies remain over the State Road network. In recent years the level of construction activity on the National Network has resulted in a very large difference between the standards of this section of the network and other major arterial roads.
Road Planning Studies
Over the past four years, the State Government has undertaken a rolling programme of corridor and network planning projects, supplemented by road safety audits, asset management audits and major private project facilitation plans. To date, most corridor planning studies in the Cradle Coast Region have concentrated on the Bass Highway east of Smithton. The State Government’s 2001/2002 statewide infrastructure investment strategy identified the following priority issues:
Access of people and services to regional Tasmania;
Safety of major roads and the rail system;
Important tourist roads; and
Opportunities for road and rail freight providers to work together to provide better solutions for freight demanders.
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The State maintains a five-year forward programme of road improvement projects. Project timing is determined annually according to funding, competing priorities and emerging issues. The forward road programme and State Road Infrastructure Strategy is largely drawn from the findings of more specific corridor planning studies. Planning studies are also means of identifying road project priorities on local roads, which may be linked to a future funding programme. On some strategic local roads, bridge strength is a key determining factor limiting the use of roads by heavy vehicles. A more detailed planning study on this issue at a regional level may provide valuable information needed to target weak links in the road network. Strategy 7.6.4 Undertake planning studies on strategic issues and in key locations to identify priority road projects within the Region. Outcome Road plans for significant corridors and issues are undertaken to identify improvement projects.
C r a d l e C o a s t | I n t e g r a t e d Tr a n s p o r t S t r a t e g y 2 0 0 6 | Supporting Information Report
Many issues surrounding competitive neutrality in Tasmania are the result of previous Commonwealth Government programmes, which principally focused on investment in the National Network to improve the productivity of road freight. Despite improvements to the National Network and some State Government-owned arterial roads, comparable improvements to the rail network have not been considered as part of changes to Tasmania’s transport system. Consequently, there are some major resourcebased productive industries and processing activities within the Region that may be able to reduce their transport costs from improved rail infrastructure and services, which are less able to compete due to inadequate rail infrastructure.
Complete a corridor planning study and identify priority projects for the Category 2-3 Ridgley Main Road - Guildford/Hampshire Main Road between Burnie and Queenstown.
In Tasmania, there has been a tendency for the functions of the road authority to dominate the focus of transport planning projects, which may have limited opportunities to fully consider road and rail issues and opportunities in a coordinated way.
Action 2
Strategy 7.6.5
Undertake a study to identify priorities for bridge strengthening on regionally significant state and local roads where improvements are needed to cater for the freight task.
Develop mechanisms to ensure rail is better integrated into transport planning and investment decision making.
Action 1
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Competitive neutrality issues arise regarding government policies and processes that favour one mode over another. The primary objective of government investment in freight transport infrastructure is to establish a framework that provides for productivity improvements and enables industry to compete with least cost transport options. It is not to increase the profitability or market share of any particular transport business.
Outcome Organisations DIER, local government.
Government Relationship with Rail Issue/opportunity: a strategic and coordinated approach to Tasmania’s rail network as part of broader transport planning and industry development plans The improved utilisation of railways, ports and shipping services has a vital role to play in building a sustainable distribution system. In Tasmania, rail primarily competes with road, and to a lesser extent, coastal shipping, for a share in the freight transport market.
Rail freight issues better integrated into land transport planning and investment.
Action Clarify and confirm the roles and function of the State Government in relation to rail planning and investment in consultation with major rail users within the Region. Organisations DIER, Pacific National Tasmania, rail user organisations.
Strategy 7.6.6 Collaborative government and industry action to improve community awareness of the benefits of B-Doubles. Outcome Greater community awareness of the social, economic and environmental benefits of higher productivity vehicles.
Action Explore collaborative means and opportunities to provide information to the community and decision makers regarding the benefits of BDoubles. Organisations DIER, local government, industry organisations.
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