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IX
THE COOKS RIVER OPTION
1. NATURE OF THE OPTION
1.1 The Resurrection of the Kyeemagh-Chullora County Road
The County of Cumberland Plan 1951 established an
elaborate network of roads. The network included
the Kyeemagh-Chullora Road along the Cooks River
Valley. The road was not built. It was simply
a line upon the map.
elaborate network of roads. The network included
the Kyeemagh-Chullora Road along the Cooks River
Valley. The road was not built. It was simply
a line upon the map.
The decision was then taken to establish Port Botany.
The Kyeemagh-Chullora Road was then resurrected.
The Bankstown Council made this comment in the
course of its submission (11):
The Kyeemagh-Chullora Road was then resurrected.
The Bankstown Council made this comment in the
course of its submission (11):
"..No interest has been shown
by
successive State Governments in
constructing such a road until
the recent Port developments in
Botany Bay. Following those
developments the present State
Government is again considering
the construction of the road to
link the new Port facilities with
industrial areas in the West and
South-West of Sydney."
successive State Governments in
constructing such a road until
the recent Port developments in
Botany Bay. Following those
developments the present State
Government is again considering
the construction of the road to
link the new Port facilities with
industrial areas in the West and
South-West of Sydney."
The public characterised the road as a Port road.
Almost every submission mentioned containers and
the desirability of despatching containers by rail
rather than road.
Almost every submission mentioned containers and
the desirability of despatching containers by rail
rather than road.
The road was to be a freeway. In 1977 its cost
was estimated to be $88 million (including certain
ancillary works and the replacement of open space)
(12). That was too expensive. The design was
modified. It was reduced to a 'major arterial road'.
Instead of having an overpass at every major
was estimated to be $88 million (including certain
ancillary works and the replacement of open space)
(12). That was too expensive. The design was
modified. It was reduced to a 'major arterial road'.
Instead of having an overpass at every major
11. Submission
S.K/C 1196 Bankstown Municipal Council
page 1.
12. UTSG (now STSG) Central Industrial Area Study -
Analysis of Chullora-Kyeemagh and Johnston’s
Creek Road, February, 1977, page 4.
page 1.
12. UTSG (now STSG) Central Industrial Area Study -
Analysis of Chullora-Kyeemagh and Johnston’s
Creek Road, February, 1977, page 4.
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intersection, the road would cross ‘at grade'
(i.e., at ground level).
(i.e., at ground level).
The Cooks River Option before this Inquiry is
described in these terms (13):
described in these terms (13):
"The Cooks River Option was..
- a four-lane undivided road from
General Holmes Drive to Marsh
Street (Arncliffe) with at-grade
inter sections
- a six-lane divided arterial road
from Marsh Street to Canterbury
Road (Canterbury) with at-grade
intersections at Princes Highway,
Carrington Road/Bayview Avenue
(Earlwood), Illawarra Road,
Wardell Road and Canterbury Road.
- a four-lane undivided road from
Canterbury Road to Hume Highway
with at-grade intersections at
Brighton Avenue, Punchbowl Road/
Coronation Parade, Hill Street
and Hume Highway."
The route is depicted in Figure 19 (14).
1.2 Two Sub-Options Before the Inquiry
The following alternatives were put to the Inquiry:
- an option termed the ‘minimum
property effect’
- an option referred to as the
‘maximum open space’ option
The sub-options are identical between General Holmes
Drive, Kyeemagh and Permanent Avenue, Earlwood. From
Permanent Avenue to Coronation Parade, Strathfield
the route follows the River. The options differ from
each other in the breadth of the band of open space
between the route and the River. In both options the
band is fairly narrow. Under one (the minimum
property effect) there would be barely room (at
Drive, Kyeemagh and Permanent Avenue, Earlwood. From
Permanent Avenue to Coronation Parade, Strathfield
the route follows the River. The options differ from
each other in the breadth of the band of open space
between the route and the River. In both options the
band is fairly narrow. Under one (the minimum
property effect) there would be barely room (at
13. DMR
Submission S. K/C 340 (De Leuw Cather)
September, 1979, page 26.
14. See page 153.
September, 1979, page 26.
14. See page 153.
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certain points) for a bicycle track, a footpath
and a patch of grass.
There is a difference in cost between the two sub-
options. It is (1978/79 dollars):
options. It is (1978/79 dollars):
- $49.7 million - minimum property
effect
- $51.3 million - maximum open space
The difference is occasioned by the acquisition
costs of property and open space.
costs of property and open space.
1.3 The Problem of the Eastern Terminus
Where should the road end? Should it circumnavigate
the airport to the north or to the south? (15)
The proposal before the public suggested a southern
alignment. It followed the Cooks River, terminating
at the junction of Tancred Avenue and General Holmes
Drive, Kyeemagh.
alignment. It followed the Cooks River, terminating
at the junction of Tancred Avenue and General Holmes
Drive, Kyeemagh.
The Department of Main Roads, for its part, evinced
little enthusiasm for that alignment. The Police
Department (16), the NRMA (17), and the Rockdale
Council (18) likewise thought a northern alignment
(terminating somewhere in the Central Industrial
Area, and giving easy access to the Port) would be
preferable.
little enthusiasm for that alignment. The Police
Department (16), the NRMA (17), and the Rockdale
Council (18) likewise thought a northern alignment
(terminating somewhere in the Central Industrial
Area, and giving easy access to the Port) would be
preferable.
The reasons for that view are not difficult to
discover. First, the corridor terminating at
General Holmes Drive was established in 1951. The
airport had not then been extended into Botany Bay.
There was not then, as there is now, the problem of
discover. First, the corridor terminating at
General Holmes Drive was established in 1951. The
airport had not then been extended into Botany Bay.
There was not then, as there is now, the problem of
15. Certain
submissions (e.g. Mr. Ross Woollett S.K/C
1420) suggested a ring around the airport. Whilst
that may have obvious advantages, there is clearly
insufficient money.
16. Submission S.K/C 1313.
17. Submission S.K/C 684.
1420) suggested a ring around the airport. Whilst
that may have obvious advantages, there is clearly
insufficient money.
16. Submission S.K/C 1313.
17. Submission S.K/C 684.
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a tunnel under the airport. The tunnel is already
over-worked. Suggestions have been made that the
capacity of the tunnel can be increased by 'adding’
a further lane and making the other lanes more narrow.
A container truck (or any large vehicle) on a wide
road is not an engaging companion. In a tunnel with
narrow lanes it is liable to intimidate other road
users to an unacceptable degree.
Secondly, the Commonwealth Members of the MANS
Committee have suggested an extension to the
Kingsford Smith Airport. The runway would be
duplicated. There would be further reclamation of
Botany Bay. The tunnel, presumably, would be made
longer. The problem would be magnified.
Committee have suggested an extension to the
Kingsford Smith Airport. The runway would be
duplicated. There would be further reclamation of
Botany Bay. The tunnel, presumably, would be made
longer. The problem would be magnified.
Thirdly, the route would not be convenient to an
important class of vehicles. The tunnel cannot be
used by vehicles carrying inflammable liquids or
explosive chemicals. Yet this is the very class of
vehicle (along with container vehicles) for which
provision should be made. The impact which these
vehicles make upon the environment, and upon the
public mind, (and their potential for accidents)
makes it rather more important that their accessibility
needs are met than other classes of traffic (especially
cars). The New South Wales Government (19) has
recently announced that the vacant Port land at
Botany will be used for the discharge of crude oil
tankers. This may mean that road tankers will be
more prominent in the future than they have been in
the past.
important class of vehicles. The tunnel cannot be
used by vehicles carrying inflammable liquids or
explosive chemicals. Yet this is the very class of
vehicle (along with container vehicles) for which
provision should be made. The impact which these
vehicles make upon the environment, and upon the
public mind, (and their potential for accidents)
makes it rather more important that their accessibility
needs are met than other classes of traffic (especially
cars). The New South Wales Government (19) has
recently announced that the vacant Port land at
Botany will be used for the discharge of crude oil
tankers. This may mean that road tankers will be
more prominent in the future than they have been in
the past.
Fourthly, the route would terminate on the southern
side of the Cooks River, a short distance from the
mouth of the tunnel. The area is already congested
in the morning and evening peak. Would the route
exacerbate the existing problems? The Study Group
made the following comment upon the 'Southern Corridor
at the Airport' (20):
side of the Cooks River, a short distance from the
mouth of the tunnel. The area is already congested
in the morning and evening peak. Would the route
exacerbate the existing problems? The Study Group
made the following comment upon the 'Southern Corridor
at the Airport' (20):
19. Financial
Review 29/12/80, page 5.
20. UTSG (now STSG) 1978 URTAC Review – Deficient
Road Corridors – Present and Past, page 11.
20. UTSG (now STSG) 1978 URTAC Review – Deficient
Road Corridors – Present and Past, page 11.
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"There is (at present) a
significant
existing deficiency in this corridor
as evidenced by the poor operating
conditions on General Holmes Drive
and the Princes Highway. This area
is already intensively traffic
managed."
existing deficiency in this corridor
as evidenced by the poor operating
conditions on General Holmes Drive
and the Princes Highway. This area
is already intensively traffic
managed."
Having made that comment, the Study Group add the
following question (21):
following question (21):
"In fact the Chullora-Kyeemagh
route
could possibly worsen conditions?"
could possibly worsen conditions?"
The traffic assignments (by the traffic model)
suggest that congestion would not be significantly
aggravated in this area. That conclusion, however,
is subject to the acknowledged difficulty, which the
assignment process has, of channelling traffic around
a large land mass, such as the airport (22).
suggest that congestion would not be significantly
aggravated in this area. That conclusion, however,
is subject to the acknowledged difficulty, which the
assignment process has, of channelling traffic around
a large land mass, such as the airport (22).
Finally, it was evident from the modelling process
that traffic tended to desert the Cooks River route
(or the South-Western route) in the vicinity of
Marrickville. Drivers either wanted to go to
Marrickville itself, or to the north of the Airport
rather than the south. To spare the southern
residential area of Marrickville that traffic, and
to accommodate the evident desire of these motorists,
it seemed to the Department of Main Roads that a
northern orientation may be preferable. It said (23):
that traffic tended to desert the Cooks River route
(or the South-Western route) in the vicinity of
Marrickville. Drivers either wanted to go to
Marrickville itself, or to the north of the Airport
rather than the south. To spare the southern
residential area of Marrickville that traffic, and
to accommodate the evident desire of these motorists,
it seemed to the Department of Main Roads that a
northern orientation may be preferable. It said (23):
"..The Department’s current
investiga-
tions show that traffic may not be
distributed adequately to available
routes to the north and east of the
airport."
tions show that traffic may not be
distributed adequately to available
routes to the north and east of the
airport."
The matter was taken a step further by Consultants
to the Department (24):
to the Department (24):
21. ibid.,
page 11.
22. See Volume II Transport Criteria, page 203.
23. DMR Submission S.K/C 340 July 1979, page 17.
24. DMR Submission (De Leuw Cather) September 1979,
page 57.
22. See Volume II Transport Criteria, page 203.
23. DMR Submission S.K/C 340 July 1979, page 17.
24. DMR Submission (De Leuw Cather) September 1979,
page 57.
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"It should be noted that both
schemes
(Cooks River Option and South-Western)
have the same magnitude of traffic
dispersion problems at the eastern
terminals near Undercliffe, with
heavy traffic loadings on the
Carrington Road bridge, and ultimately
across the railway line(in Marrickville).
The principal desires are in a north-
easterly direction towards the City
of Sydney and the Central Industrial
Area. These dispersal problems would
be alleviated by the extension of both
options to connect to works in the
Southern Freeway Corridor."
(Cooks River Option and South-Western)
have the same magnitude of traffic
dispersion problems at the eastern
terminals near Undercliffe, with
heavy traffic loadings on the
Carrington Road bridge, and ultimately
across the railway line(in Marrickville).
The principal desires are in a north-
easterly direction towards the City
of Sydney and the Central Industrial
Area. These dispersal problems would
be alleviated by the extension of both
options to connect to works in the
Southern Freeway Corridor."
The Consultants acknowledge that the problem is
difficult. It would require extensive study. They
do not appear to doubt, however, that a northern
alignment is a significant advance upon that proposed
to the south. They conclude with these words (25):
"The benefits obtainable from
connec-
tion of the eastern terminal to a
section of Southern Freeway appear
to be significantly greater than a
connection via the County Road to
General Holmes Drive. This applies
to either the Cooks River route or
the South-Western Freeway."
tion of the eastern terminal to a
section of Southern Freeway appear
to be significantly greater than a
connection via the County Road to
General Holmes Drive. This applies
to either the Cooks River route or
the South-Western Freeway."
1.4 There is No Road to Recommend
Where does this leave the Inquiry? In a very real
sense the Inquiry is left without a road which it
could recommend (if it took the view that a road
were needed). The southern alignment causes problems
in the Marrickville area which are quite unacceptable.
Its inadequacy has been demonstrated, and it fails
to cater for the important road tanker class of traffic.
sense the Inquiry is left without a road which it
could recommend (if it took the view that a road
were needed). The southern alignment causes problems
in the Marrickville area which are quite unacceptable.
Its inadequacy has been demonstrated, and it fails
to cater for the important road tanker class of traffic.
The northern alignment may prove not to be feasible.
Somehow the carriageway must be transferred from
the Southern bank of the Cooks River to the northern
side of the airport. As an exercise in engineering
that may not be a simple matter. Two railway 1ines,
a major road (the Princes Highway) and a significant
tract of water (adjacent to the Cooks River bridge
Somehow the carriageway must be transferred from
the Southern bank of the Cooks River to the northern
side of the airport. As an exercise in engineering
that may not be a simple matter. Two railway 1ines,
a major road (the Princes Highway) and a significant
tract of water (adjacent to the Cooks River bridge
25. ibid.,
page 77.
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at Tempe) must all be bridged. We have no idea
whether height restrictions may pose a problem. We
assume they would not. Whatever the problems, it
is clear that the structure would be massive. It
may attract considerable opposition, environmentally.
It is likely to be most expensive.
whether height restrictions may pose a problem. We
assume they would not. Whatever the problems, it
is clear that the structure would be massive. It
may attract considerable opposition, environmentally.
It is likely to be most expensive.
There are other problems. Making a connection with
roads which give access to the Port is, itself, a
matter of some uncertainty. The land is expensive
to resume. Its cost, when added to the cost of
bridging the Cooks River, may produce a grand total
quite out of keeping with the problem which it addresses.
If it is too costly, its implementation may cause the
neglect of other urgent problems within the Sydney
Metropolitan Area. How the project, revamped in
this way, would perform by the measure of cost/
benefit analysis we cannot say.
roads which give access to the Port is, itself, a
matter of some uncertainty. The land is expensive
to resume. Its cost, when added to the cost of
bridging the Cooks River, may produce a grand total
quite out of keeping with the problem which it addresses.
If it is too costly, its implementation may cause the
neglect of other urgent problems within the Sydney
Metropolitan Area. How the project, revamped in
this way, would perform by the measure of cost/
benefit analysis we cannot say.
All these matters are unknown. The Inquiry is in a
position where the southern alignment is out of the
question. Nothing positive has been suggested in its
place. The road, at the moment, leads nowhere.
position where the southern alignment is out of the
question. Nothing positive has been suggested in its
place. The road, at the moment, leads nowhere.
We return to the question of onus (26). It may be
said with some justification that until the problems
of the northern alignment have been sorted out, and
until it has been demonstrated that Marrickville
will not be subjected to the traffic burden which
would emerge from the present design, and until we
know that the project is feasible, technically and
economically, the public cannot be called upon to
answer a case for the road (27).
said with some justification that until the problems
of the northern alignment have been sorted out, and
until it has been demonstrated that Marrickville
will not be subjected to the traffic burden which
would emerge from the present design, and until we
know that the project is feasible, technically and
economically, the public cannot be called upon to
answer a case for the road (27).
2. TRANSPORT AND PLANNING IMPLICATIONS
2.1 A Sequence of Questions
The test is the same. The following questions will
be addressed:
be addressed:
26. See
page 23.
27. See Discussion DMR Transcript 18/3/80, pages
87-96.
27. See Discussion DMR Transcript 18/3/80, pages
87-96.
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- First, where, within the Study Area,
is congestion (or accessibility) a
problem, or likely to be a problem
in the future?
- Secondly, what are the land-use
implications of constructing the
road facility?
- Thirdly, can the problem be solved
in some other way. Specifically is
it necessary to resort to a major
road? Will something less dramatic
do the job? Is it possible to deal
with the problem by a land-use solu-
tion, or by bolstering public transport?
2.2 The Case Made Out for the Cooks River Option
The line-up of parties who support the Cooks River
Option is formidable indeed. The Urban Transport
Advisory Committee (URTAC) (28), the Planning and
Environment Commission and the Police Department
each thought its construction was desirable.
The case for the road rests upon five propositions.
First, it addresses existing problems. Specifically
it tackles "existing transport problems in
Marrickville and Ashfield and adjacent suburbs that
have been identified in successive studies" (29).
It depends upon the 'here and now’ rather than
problems forecast in the future, which may or may
not come to pass, depending upon the accuracy of the
forecasts.
First, it addresses existing problems. Specifically
it tackles "existing transport problems in
Marrickville and Ashfield and adjacent suburbs that
have been identified in successive studies" (29).
It depends upon the 'here and now’ rather than
problems forecast in the future, which may or may
not come to pass, depending upon the accuracy of the
forecasts.
Secondly, the road caters to future traffic needs.
Conceding the forecasts can never be infallible, it
is nonetheless obvious (so it is said) that the
airport, the Port, and the Central Industrial Area,
as well as commuter traffic, will each make a growing
Conceding the forecasts can never be infallible, it
is nonetheless obvious (so it is said) that the
airport, the Port, and the Central Industrial Area,
as well as commuter traffic, will each make a growing
28. Now
known as TRANSAC.
29. URTAC Submission S.K/C 1019, page 32.
29. URTAC Submission S.K/C 1019, page 32.
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contribution to the traffic stream. That contribu-
tion can be comfortably accommodated by the Cooks
River Route.
Thirdly, in contrast to the South-Western Option,
the Cooks River Option is convenient and attractive
to trucks. It will provide access between the Port/
Airport/Central Industrial Area complex and the
growing Western and South-Western industrial regions.
the Cooks River Option is convenient and attractive
to trucks. It will provide access between the Port/
Airport/Central Industrial Area complex and the
growing Western and South-Western industrial regions.
Fourthly, there is a gap, so it is said, in the
network of roads between Sydenham and Bexley Road.
The Planning and Environment Commission say this (30):
network of roads between Sydenham and Bexley Road.
The Planning and Environment Commission say this (30):
"..The Cooks River route would
fill
a gap in the network of arterial
roads, by providing a circumferential
link, whereas the South-Western Option
would merely be another radial route
in a sector where there are already
several major radials."
a gap in the network of arterial
roads, by providing a circumferential
link, whereas the South-Western Option
would merely be another radial route
in a sector where there are already
several major radials."
Finally, the Cooks River route (unlike the South-
Western Route) is not in competition with public
transport. It is servicing a quite different need.
The Planning and Environment Commission make the
point in this way (30):
Western Route) is not in competition with public
transport. It is servicing a quite different need.
The Planning and Environment Commission make the
point in this way (30):
"In the Cooks River
circumferential
corridor..public transport services
are rather poor, and usage is low.
Construction of the Cooks River Road
Option would enable improved bus
services to be provided."
corridor..public transport services
are rather poor, and usage is low.
Construction of the Cooks River Road
Option would enable improved bus
services to be provided."
These were the claims made on behalf of the Cooks
River Option. In some cases the evidence supported
those claims. In others it did not. In the remain-
der of this chapter we will review the evidence.
River Option. In some cases the evidence supported
those claims. In others it did not. In the remain-
der of this chapter we will review the evidence.
2.3 The Effect Upon Network Congestion
2.3.1 Existing Problems
In the spread of Sydney the Study Area is fairly
small. The cost of the Cooks River Option is
30. PEC
Submission S.K/C 947 Attachment A, page 15.
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slightly less than the entire annual construction
budget for the Sydney Metropolitan Area (31).
Obviously the road would be built over a number of
years. The cost burden would be spread, therefore,
over the period of construction. It, nonetheless,
remains true that it is a major project within a
relatively small area. It is important to examine
the way in which it deals with the problems of that
area.
It is convenient to adopt the same test as we
applied to the Bexley Road and South-Western Options.
What effect would the Cooks River route have upon
the eleven locations within the Study Area identi-
fied as ‘critical' by the Joint Study Report (32).
The picture which emerges can be summarised in these
words:
applied to the Bexley Road and South-Western Options.
What effect would the Cooks River route have upon
the eleven locations within the Study Area identi-
fied as ‘critical' by the Joint Study Report (32).
The picture which emerges can be summarised in these
words:
- the route makes no difference one
way or the other to six locations.
One of the six (Canterbury Road)
is made worse for a small section
where it crosses the route (33)
- in three locations it is suggested
that the route would improve
operating conditions (33):
- Princes Highway, Tempe and
Canal Road.- Unwins Bridge Road, Temp
- Homer Street, Earlwood
- two critical locations would be
made worse.
This is not an impressive performance. Even these
benefits are overstated. We cannot believe that
Unwins Bridge Road, Tempe would be improved by the
Cooks River route. We are reinforced in our view
benefits are overstated. We cannot believe that
Unwins Bridge Road, Tempe would be improved by the
Cooks River route. We are reinforced in our view
31. See Volume II Transport Criteria, page 214.
32. Joint Study Report, page 3-4.
33. See Figure 6.1 Joint Study Report.
32. Joint Study Report, page 3-4.
33. See Figure 6.1 Joint Study Report.
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by the text (as opposed to the diagram) which
accompanies the Joint Study Report. The following
is said (34):
"Further, it is to be expected
that
the connection from the Cooks River
route at Bayview Avenue to Carrington
Road would increase traffic loadings
on roads to the south-eastern area of
Marrickville, such as Unwins Bridge
Road, Carrington Road and Victoria
Road."
the connection from the Cooks River
route at Bayview Avenue to Carrington
Road would increase traffic loadings
on roads to the south-eastern area of
Marrickville, such as Unwins Bridge
Road, Carrington Road and Victoria
Road."
In the Central Industrial Area Study the Study
Group came to the same view. It said (35):
"Construction of the Chullora/
Kyeemagh Route will increase the
traffic demands on Unwins Bridge Road."
Kyeemagh Route will increase the
traffic demands on Unwins Bridge Road."
Traffic in the other location said to benefit, Homer
Street/William Street, Earlwood is predicted to
decrease anyway between 1976 and 1991 (36).
Street/William Street, Earlwood is predicted to
decrease anyway between 1976 and 1991 (36).
This commentary is based upon triptable C. There is
one significant addition, if the measure is triptable
D. Figure 4.5 of the Department of Main Roads
submission (September 1979) (37) suggests that the
Bexley Shopping Centre would be made worse by the
Cooks River route. The traffic model predicts the
following traffic loadings (which are two-hour,
two-wayr a.m. peak figures):
one significant addition, if the measure is triptable
D. Figure 4.5 of the Department of Main Roads
submission (September 1979) (37) suggests that the
Bexley Shopping Centre would be made worse by the
Cooks River route. The traffic model predicts the
following traffic loadings (which are two-hour,
two-wayr a.m. peak figures):
- 6,700 vehicles if no work is undertaken.
- 7,300 vehicles if Cooks River Option
constructed. - 5,800 vehicles if South-Western Option
constructed.
The differences are not substantial. The very fact
that the Cooks River Option may, even slightly,
that the Cooks River Option may, even slightly,
34. Joint
Study Report, page 26.
35. Central Industrial Area Study UTSG (now STSG)
Chapter IV, page 66.
36. See figure 6.4 Economic and Transport Analysis
DMR Submission S.K/C 340.
37. DMR Submission S.K/C 340 (De Leuw Cather), page 55.
35. Central Industrial Area Study UTSG (now STSG)
Chapter IV, page 66.
36. See figure 6.4 Economic and Transport Analysis
DMR Submission S.K/C 340.
37. DMR Submission S.K/C 340 (De Leuw Cather), page 55.
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exacerbate the plight of the Bexley Shopping Centre
causes one to pause. That centre already suffers
significant disamenity (38).
If we direct our attention to the problem areas
identified by traffic engineers in the Transport
Systems Management Study (See figures 8 to 13),
the performance is no better. Indeed, in some ways
it is worse.
identified by traffic engineers in the Transport
Systems Management Study (See figures 8 to 13),
the performance is no better. Indeed, in some ways
it is worse.
In the morning peak, the following areas within
the Study Area, were identified as suffering severe
congestion:
the Study Area, were identified as suffering severe
congestion:
- the junction of Forest Road, Princes
Highway, Wickham Street and Marsh
Street.
- the Hume Highway at Pemberton Street,
Homebush
- Canterbury Road at Bankstown
The areas of moderate congestion are:
- the Grand Parade from President Avenue
through to General Holmes Drive and
the Cooks River
- Forest Road at the Bexley Shopping
Centre.
The same locations are under strain in the evening
peak. In the off-peak the areas of severe congestion
were:
peak. In the off-peak the areas of severe congestion
were:
- Canterbury Road between the Cooks
River and Bankstown
- the Bexley Shopping Centre.
38. See
pages 186 to 187.
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The Cooks River Option begins in General Holmes
Drive (the site of moderate congestion). It ends
at the Hume Highway (the site of severe congestion).
It will hardly assist either of those areas. It
will aggravate the problems which arise through the
confluence of a number of significant roads in
Arncliffe (Forest Road, Princes Highway, Wickham
Street and Marsh Street) (39). Wickham Street will
suffer, according to the prediction, a significant
increase in traffic. It certainly will not assist
the Bexley Shopping Centre. It may even cause
deterioration. Since Canterbury Road is an access
road to the route, its burden may be made the heavier.
Its performance in addressing existing problems is
less impressive in many ways than the South-Western
Option. The South-Western Option, however, suffered
from a number of other disadvantages which swamped
its benefits (and made it likely that they would be
transitory anyway).
less impressive in many ways than the South-Western
Option. The South-Western Option, however, suffered
from a number of other disadvantages which swamped
its benefits (and made it likely that they would be
transitory anyway).
If the measure of its performance is not its capacity
to deal with existing traffic problems, but rather the
provision of capacity where capacity is needed, what
would it achieve? The Joint Study Report says this (40):
to deal with existing traffic problems, but rather the
provision of capacity where capacity is needed, what
would it achieve? The Joint Study Report says this (40):
"It is clear (from a diagram)
that
reductions in traffic flows and
congestion levels could be expected
on both sides of the Cooks River
Valley and in the eastern and
western parts of the Study Area.
reductions in traffic flows and
congestion levels could be expected
on both sides of the Cooks River
Valley and in the eastern and
western parts of the Study Area.
The reductions would tend to be
mainly on routes which are more or
less parallel to the Cooks River
route such as the Crinan Street
Ewart Street route, the New
Canterbury Road - Marrickville Road
route, the Bexley Road route, the
William Street - Homer Street route,
the back routes between Bardwell
Park and Arncliffe, and Bestic Street
mainly on routes which are more or
less parallel to the Cooks River
route such as the Crinan Street
Ewart Street route, the New
Canterbury Road - Marrickville Road
route, the Bexley Road route, the
William Street - Homer Street route,
the back routes between Bardwell
Park and Arncliffe, and Bestic Street
39. See
Figure 6.1 Joint Study Report.
40. Joint Study Report, page 26.
40. Joint Study Report, page 26.
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(Rockdale). It is to be noted that
nearly all the improvements would
be on minor routes rather than major
routes."
The price for these achievements is high. Traffic
on access routes would increase, in some cases
significantly. The Joint Study Report says this (41):
on access routes would increase, in some cases
significantly. The Joint Study Report says this (41):
"Those roads providing access
to and
from the new route could expect some
increases in congestion close to the
route, notably on some sections of
the Hume Highway, Coronation parade,
Ninth Avenue (Campsie), Brighton
Avenue (Campsie), Canterbury Road,
Wardell Road, Homer Street (Earlwood)
and Wickham Street (Arncliffe)."
from the new route could expect some
increases in congestion close to the
route, notably on some sections of
the Hume Highway, Coronation parade,
Ninth Avenue (Campsie), Brighton
Avenue (Campsie), Canterbury Road,
Wardell Road, Homer Street (Earlwood)
and Wickham Street (Arncliffe)."
2.3.2 Will the Road Assist Marrickville?
The issue was examined in the context of the South-
Western Option (42). We will not repeat the
evidence. The comparison emerges from the following
table:
Western Option (42). We will not repeat the
evidence. The comparison emerges from the following
table:
- if nothing is done (the base case)
the increase in traffic between
1976 and 1991 would be:
- 7% in an easterly direction
- 17% in a westerly direction
- if the Cooks River scheme is built
(which is the Cooks River Option plus
certain works in the South-Western
Corridor west of King Georges Road)
the figures are:
- 38% increase in traffic in an
easterly direction- 54% increase in traffic in a
westerly direction
Although there are some benefits, it is plain that,
overall, Marrickville is not assisted by this option.
overall, Marrickville is not assisted by this option.
41. Joint
Study Report, page 26.
42. See pages 256-260.
42. See pages 256-260.
-353-
Specifically it, is not assisted by the Carrington
Road spur which is part of this option. The
Marrickville Counci1 says this (43):
Road spur which is part of this option. The
Marrickville Counci1 says this (43):
"..A significant volume of
industrial
and commuter traffic will desire
to use the road system within the
municipality of Marrickville..which
would encourage traffic in the
municipality to locations that now
are not being detrimentally affected
to a significant extent by large
volumes of through-traffic."
(emphasis added)
and commuter traffic will desire
to use the road system within the
municipality of Marrickville..which
would encourage traffic in the
municipality to locations that now
are not being detrimentally affected
to a significant extent by large
volumes of through-traffic."
(emphasis added)
What would happen to Marrickville if no option were
built? The Joint Study Report describes the expect-
ation, so far as trucks are concerned (44):
"Significant reduction,
however, would
be expected in Marrickville, Belmore
and Ashfield. Little change would
occur in other centres."
(emphasis added)
be expected in Marrickville, Belmore
and Ashfield. Little change would
occur in other centres."
(emphasis added)
The problems of Marrickville created by the Option
may be resolved by altering the alignment of the
route, so that it terminates to the north of the
airport rather than the south. That has yet to be
demonstrated. Until it is demonstrated, the claim
by URTAC and by the Planning and Environment
Commission to be assisting Marrickville, is not made
out. Far from alleviating the traffic burden of
Marrickville, the route would appear to add to it.
It is hardly surprising that the Marrickville Council
has vehemently opposed the route's construction.
may be resolved by altering the alignment of the
route, so that it terminates to the north of the
airport rather than the south. That has yet to be
demonstrated. Until it is demonstrated, the claim
by URTAC and by the Planning and Environment
Commission to be assisting Marrickville, is not made
out. Far from alleviating the traffic burden of
Marrickville, the route would appear to add to it.
It is hardly surprising that the Marrickville Council
has vehemently opposed the route's construction.
2.3.3 The Attitude of the Canterbury Council
When the route was resurrected (in 1976) there was
the further claim that it would assist the traffic
problems of the Canterbury Municipality (45). It
is significant, however, that the Canterbury Council
43.
Submission S.K/C 1297 Marrickville Council, page 4.
44. Joint Study Report, page 6.
45. URTAC Report 1976, page 33.
44. Joint Study Report, page 6.
45. URTAC Report 1976, page 33.
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in this Inquiry has voiced its opposition to the
construction. Its recommendation has been extracted
elsewhere. It bears repeating (46):
construction. Its recommendation has been extracted
elsewhere. It bears repeating (46):
"Canterbury Council is opposed
to
all of the major road proposals..
and suggests the upgrading of
existing routes, improved traffic
management and further development
of alternative modal forms as a
solution to the regional transport
problems."
all of the major road proposals..
and suggests the upgrading of
existing routes, improved traffic
management and further development
of alternative modal forms as a
solution to the regional transport
problems."
2.3.4 The Attitude of Other Local Councils
The Ashfield Council was also identified as a
beneficiary of the Cooks River route. The Council
was invited to place a submission before the Inquiry.
It did not do so. Whether that omission is a
reflection of the importance it places upon the
route, in resolving problems within its municipality,
we cannot say.
beneficiary of the Cooks River route. The Council
was invited to place a submission before the Inquiry.
It did not do so. Whether that omission is a
reflection of the importance it places upon the
route, in resolving problems within its municipality,
we cannot say.
The Burwood Council (47) questioned the need for a
route. It suggested the investigation of ‘alternative
transport modes' . The Strathfield Council appeared
to favour construction (48), provided the route did
not terminate at Coronation parade, Strathfield.
It should continue along the reservation as far
as the Hume Highway.
route. It suggested the investigation of ‘alternative
transport modes' . The Strathfield Council appeared
to favour construction (48), provided the route did
not terminate at Coronation parade, Strathfield.
It should continue along the reservation as far
as the Hume Highway.
Of the three municipalities identified as benefic-
iaries of the Cooks River route, towards whose
problems it was primarily directed, two (the
Marrickville Council and the Canterbury Council)
vehemently opposed its construction. The remaining
one (Ashfield) was not moved to make a submission
to the Inquiry.
iaries of the Cooks River route, towards whose
problems it was primarily directed, two (the
Marrickville Council and the Canterbury Council)
vehemently opposed its construction. The remaining
one (Ashfield) was not moved to make a submission
to the Inquiry.
46.
Submission S.K/C 341 Canterbury Council, page 1.
47. S.K/C 729 Burwood Council.
48. S.K/C 1479 Strathfield Council.
47. S.K/C 729 Burwood Council.
48. S.K/C 1479 Strathfield Council.
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2.4 It Addresses Existing Problems
The fallibility of forecasts has been all too clear
in the past. The Cumberland Plan seriously under-
estimated population growth. It failed to antici-
pate the post-war boom created by immigration.
The Sydney Region Outline Plan erred the other way.
It projected a continuation of growth at the pace
experienced before 1968. The growth did not
materialise.
In these circumstances, and in the context of a
smaller road budget, URTAC (now TRANSAC) has
formulated the strategy of concentrating on existing
problems, rather than those which may or may not
eventuate, depending upon whether forecasts come
true.
smaller road budget, URTAC (now TRANSAC) has
formulated the strategy of concentrating on existing
problems, rather than those which may or may not
eventuate, depending upon whether forecasts come
true.
The following claim was made by those who favour the
Cooks River Option (49):
Cooks River Option (49):
"The Cooks River Option
addressed
the existing transport problems in
Marrickville and Ashfield and adjacent
suburbs that have been identified in
successive studies.”
the existing transport problems in
Marrickville and Ashfield and adjacent
suburbs that have been identified in
successive studies.”
We have demonstrated that it certainly does not
assist Marrickville. To what extent are the benefits
of the Cooks River Option dependent upon future
traffic growth?
assist Marrickville. To what extent are the benefits
of the Cooks River Option dependent upon future
traffic growth?
The technique, cost/benefit analysis, provides one
useful measure (50). Benefits are calculated
according to the predicted level of traffic (in
the year 1991). It is possible to use present
traffic levels (the 1976 triptable) instead. The
following exchange took place with an economist
retained by consultants to the Department of Main
Roads (51):
useful measure (50). Benefits are calculated
according to the predicted level of traffic (in
the year 1991). It is possible to use present
traffic levels (the 1976 triptable) instead. The
following exchange took place with an economist
retained by consultants to the Department of Main
Roads (51):
49. URTAC
Submission S.K/C 1019, page 3.
50. See Volume II Economic Criteria.
51. Transcript 30/1/80, page 39.
50. See Volume II Economic Criteria.
51. Transcript 30/1/80, page 39.
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"COMMISSIONER: (The 1976 triptable) is
a useful bench-mark against which one
can compare present benefits against
benefits which will accrue if the
projected growth in fact comes to
pass. Is that right?
NIELSEN: It would
seem to do that,
that’s right; that's the idea of it..
that’s right; that's the idea of it..
COMMISSIONER: It tel1s
you the extent
to which...
to which...
NIELSEN: Benefits
are dependent on
growth in traffic."
growth in traffic."
The test was not carried out in the analysis
employing triptable C (52). It was performed in
the analysis based upon triptable D. The result
is surprising. The major options demonstrated the
following ratios (53):
employing triptable C (52). It was performed in
the analysis based upon triptable D. The result
is surprising. The major options demonstrated the
following ratios (53):
- the benefit/cost ratio for the
Cooks River Option was 0.4
- for the South-Western Freeway
it was 1.0
If the focus is upon existing traffic conditions,
the Cooks River Option is not viable. The ratio
is below 1.0. If these figures are accurate (54)
it is dependent to a far greater degree than the
South-Western Option upon forecasts coming true (55).
Although the growth rates in the South-West are
greater than the West, in absolute terms the growth
predicted in the Western Region is greater than that
predicted in the South-West (56). The figures would
suggest the Cooks River Option relies upon that growth.
the Cooks River Option is not viable. The ratio
is below 1.0. If these figures are accurate (54)
it is dependent to a far greater degree than the
South-Western Option upon forecasts coming true (55).
Although the growth rates in the South-West are
greater than the West, in absolute terms the growth
predicted in the Western Region is greater than that
predicted in the South-West (56). The figures would
suggest the Cooks River Option relies upon that growth.
52. DMR Transport
and Economic Analysis, page 29ff.
53. Table 5.9A accompanying letter DMR 8/4/80.
54. The Inquiry has some misgivings about the accuracy
of this calculation. If it is accurate it is a
telling argument against the Cooks River Route.
There are other arguments and we place no real
reliance upon it.
55. One should not be beguiled by the better showing
of the South-Western Option. The 1.0 does not
make allowance for the cost adjustments referred
to on pages 273-275.
56. See page 138.
53. Table 5.9A accompanying letter DMR 8/4/80.
54. The Inquiry has some misgivings about the accuracy
of this calculation. If it is accurate it is a
telling argument against the Cooks River Route.
There are other arguments and we place no real
reliance upon it.
55. One should not be beguiled by the better showing
of the South-Western Option. The 1.0 does not
make allowance for the cost adjustments referred
to on pages 273-275.
56. See page 138.
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2.5 The Route Best Caters for Future Growth
2.5.1 Introduction
It is convenient to separately examine the following
components of the traffic stream:
- Airport traffic
- Port traffic
- traffic from the Central Industrial Area
We will consider commuters making their way to work
separately when we examine the land-use implications
of this route.
separately when we examine the land-use implications
of this route.
2.5.2 Airport Traffic
We have examined this issue (57). First, the major
direction of travel from the airport is towards the
city, northern and eastern suburbs. Secondly, the
traffic is made up of cars not trucks. The
accessibility needs of cars are less than trucks.
We do not differ from the URTAC conclusion which
was in these terms (58):
"Both routes (the Cooks River
route
and the South-Western Route), however,
would carry some airport traffic but
the traffic will represent only a
minor proportion of total traffic
flows. They should, therefore, be
seen principally as 'regional’ routes,
with a significant airport function,
rather than as ‘airport access' routes."
and the South-Western Route), however,
would carry some airport traffic but
the traffic will represent only a
minor proportion of total traffic
flows. They should, therefore, be
seen principally as 'regional’ routes,
with a significant airport function,
rather than as ‘airport access' routes."
2.5.3 Port Traffic
One of the largest species of trucks is the vehicle
carrying a maritime container. It is hardly
surprising that containers have made a profound
impression upon the public.
We have drawn attention already to the scheme
suggested by the Inquiry (59). The scheme, if
suggested by the Inquiry (59). The scheme, if
57. See Chapter IV, page 106.
58. URTAC Submission S.K/C 1019, page 25.
59. See Volume I of this Report ‘Containers’,
October, 1980.
58. URTAC Submission S.K/C 1019, page 25.
59. See Volume I of this Report ‘Containers’,
October, 1980.
-358-
adopted, would substantially diminish the number
of container vehicles obliged to use the road
network of the Study Area. They would be carried
by rail instead.
The route may not be convenient for the remainder
of the Port traffic (including the petrol tankers)
because of the tunnel under Mascot Airport. If
a suitable northern alignment could be found, the
corridor would obviously be useful for large trucks
obliged to make long journeys to the West or South-
West. We do not know the number of trucks involved.
The press release relating to the oil installation
at Botany did suggest that some of the oil would be
transferred by pipeline (60).
of the Port traffic (including the petrol tankers)
because of the tunnel under Mascot Airport. If
a suitable northern alignment could be found, the
corridor would obviously be useful for large trucks
obliged to make long journeys to the West or South-
West. We do not know the number of trucks involved.
The press release relating to the oil installation
at Botany did suggest that some of the oil would be
transferred by pipeline (60).
2.5.4 Central Industrial Area Traffic
The better view is that the Central Industrial
Area is not growing significantly, although it is
changing in character (61). The change is said
by some (62) to have significant transport implica-
tions. Because warehousing and transport companies
will be concentrated in the Central Industrial Area
(replacing manufacturing), the number of heavy
vehicles is likely to multiply. It is the heavy
vehicles which make special demands upon the road
network.
The Cooks River route would conveniently serve part
of this traffic. The remainder of the network, to
that extent, would benefit. If the issue is growth
(and the problem becoming worse than it is already)
we are not persuaded that there will be significant
growth in the Central Industrial Area. We are
persuaded, however, (and we make this clear below)
that there are certain implications in meeting the
accessibility needs of the Central Industrial Area
traffic which are undesirable.
of this traffic. The remainder of the network, to
that extent, would benefit. If the issue is growth
(and the problem becoming worse than it is already)
we are not persuaded that there will be significant
growth in the Central Industrial Area. We are
persuaded, however, (and we make this clear below)
that there are certain implications in meeting the
accessibility needs of the Central Industrial Area
traffic which are undesirable.
60. Financial
Review 29/12/80, page 5.
61. See Chapter IV, page 123.
62. For instance the Rockdale Council.
61. See Chapter IV, page 123.
62. For instance the Rockdale Council.
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2.6 Is There a Missing Link?
There are a number of references in the Joint Study
Report, and elsewhere, to there being a 'missing link'
in the cross-regional road network in the Southern
metropolitan area. The only substantial road in
this area which serves a cross-regional function is
the King Georges Road. That is 15 kilometres from
the city centre. The Planning Report (1978) for the
Botany Bay Sub-Region describes the road network in
this way (63):
"With the exception of King
Georges
Road, the main roads in the sub-region
are predominantly radial in character.
Circumferential linkages are relatively
inferior in standard in the northern
part of the sub-region although they
carry substantial volumes of traffic."
Road, the main roads in the sub-region
are predominantly radial in character.
Circumferential linkages are relatively
inferior in standard in the northern
part of the sub-region although they
carry substantial volumes of traffic."
Specifically addressing the problem of trucks, the
Joint Study Report had this to say (64):
Joint Study Report had this to say (64):
"Other circumferential routes
(apart
from King Georges Road) in the study
area, such as Bay Street-Bexley Road-
Beamish Street, are less continuous
and use roads not originally designed
to be arterial roads. The discontinuity
is made worse by the radial orientation
of the topography and the need to cross
railway lines. These routes often
present problems to truck operators,
with sharp turns and the need for
frequent gear changing."
from King Georges Road) in the study
area, such as Bay Street-Bexley Road-
Beamish Street, are less continuous
and use roads not originally designed
to be arterial roads. The discontinuity
is made worse by the radial orientation
of the topography and the need to cross
railway lines. These routes often
present problems to truck operators,
with sharp turns and the need for
frequent gear changing."
The point is forcefully made by the Planning and
Environment Commission in its submission (65):
"The Traffic Authority
discussion paper
on 'The Functional Classification of
Roads' recommends that the spacing
between arterial roads should be about
2 km...Seven arterial roads cross this
(radial) corridor in a length of 11 km.
on 'The Functional Classification of
Roads' recommends that the spacing
between arterial roads should be about
2 km...Seven arterial roads cross this
(radial) corridor in a length of 11 km.
The South-Western Option is a
radial-
route which would create another
crossing of this corridor.
route which would create another
crossing of this corridor.
63. Planning
Report for the Botany Bay Sub-Region
(1978) PEC, page 42.
64. Joint Study Report, page 3.
65. S.K/C 947 Submission July, 1979, pages 8-9.
(1978) PEC, page 42.
64. Joint Study Report, page 3.
65. S.K/C 947 Submission July, 1979, pages 8-9.
-360-
Circumferential arterial roads fail
to meet the Traffic Authority's
recommendation. There are only three
arterial roads which cross the railway
line between Beverly Hills station and
Sydenham station, a length of 10 km.
The three roads are King Georges Road,
Bexley Road and Sydenham Road."
The spacing is then given between the circumferen-
tial roads. The submission reads (66):
tial roads. The submission reads (66):
"The distance between Bexley
Road and
King Georges Road is 4 km, so Kingsgrove
Road functions as an arterial. It is
6 km from Bexley Road to Sydenham Road,
and there is no existing road between
them which could adequately function as
a circumferential arterial. The Cooks
River option, however, would fill this
role and achieve an average arterial
spacing of 2.5 km (including Kingsgrove
Road)."
(emphasis added)
King Georges Road is 4 km, so Kingsgrove
Road functions as an arterial. It is
6 km from Bexley Road to Sydenham Road,
and there is no existing road between
them which could adequately function as
a circumferential arterial. The Cooks
River option, however, would fill this
role and achieve an average arterial
spacing of 2.5 km (including Kingsgrove
Road)."
(emphasis added)
The argument is persuasive. There is a gap in the
arterial road network. That does not answer the
question whether the Cooks River route is desirable.
The city has functioned without that road. It will
continue to do so in the future. The issue is
whether the provision of such a link at this point
in time will yield striking benefits to compensate
for the considerable environmental and social
disruption occasioned by its construction.
arterial road network. That does not answer the
question whether the Cooks River route is desirable.
The city has functioned without that road. It will
continue to do so in the future. The issue is
whether the provision of such a link at this point
in time will yield striking benefits to compensate
for the considerable environmental and social
disruption occasioned by its construction.
2.7 The Route Would be Attractive to Trucks
The Planning and Environment Commission make the
following claim on behalf of the Cooks River Option (67).
"The Cooks River Option would
be more
effective in attracting truck traffic
than the South-Western Option. Through-
out the length of the Cooks River route
the truck:car ratio would be higher
than 11%. Even on the Undercfliffe-
Kyeemagh section, which is common to
both options, the number of trucks would
effective in attracting truck traffic
than the South-Western Option. Through-
out the length of the Cooks River route
the truck:car ratio would be higher
than 11%. Even on the Undercfliffe-
Kyeemagh section, which is common to
both options, the number of trucks would
66. ibid.,
pages 8-9.
67. PEC Submission S.K/C 947 July, 1979, page 10.
67. PEC Submission S.K/C 947 July, 1979, page 10.
-361-
be greater to the Cooks River Option
in both absolute and relative terms. "
Corroboration for that claim emerges from figures
furnished by the Traffic Authority which we have
extracted already (68).
furnished by the Traffic Authority which we have
extracted already (68).
Cost/benefit analysis purports to measure certain
economic benefits arising from a facility. Time
savings and operating costs savings are differently
valued for cars and trucks. One way of testing the
claim made by the Planning and Environment Commission
(and the Traffic Authority), that the route is more
attractive to trucks, is to examine its performance
according to this technique. The technique does
not tell the entire story (by any means). However,
what it does say does not sit comfortably with a
claim that the Cooks River Option is strikingly
better than the South-Western Option. The Joint
Study Report says this (69):
economic benefits arising from a facility. Time
savings and operating costs savings are differently
valued for cars and trucks. One way of testing the
claim made by the Planning and Environment Commission
(and the Traffic Authority), that the route is more
attractive to trucks, is to examine its performance
according to this technique. The technique does
not tell the entire story (by any means). However,
what it does say does not sit comfortably with a
claim that the Cooks River Option is strikingly
better than the South-Western Option. The Joint
Study Report says this (69):
"It is estimated that truck
movements
would contribute to 30% of the operating
cost and time savings of this option,
which is slightly lower than for the South-
Western Option.
(emphasis added)
would contribute to 30% of the operating
cost and time savings of this option,
which is slightly lower than for the South-
Western Option.
(emphasis added)
In the economic evaluation performed by consultants
to the Department of Main Roads (using triptable D)
there is one table (table 5.5) (70) which provides
the marginal benefits for each option, assuming
that work in the South-Western Corridor to the West
of King Georges Road had already been completed.
The total annual benefits (in 1991) from trucks for
each option were stated to be:
to the Department of Main Roads (using triptable D)
there is one table (table 5.5) (70) which provides
the marginal benefits for each option, assuming
that work in the South-Western Corridor to the West
of King Georges Road had already been completed.
The total annual benefits (in 1991) from trucks for
each option were stated to be:
- $1.7 million Cooks River Option
- $3.4 million South-Western Option
(not designed to freeway standard)
- $2.6 million South-Western Option
(to freeway standard)
68. See
page 268 and see Traffic Authority Submission
S.K/C 1289, Table 1.
69. Joint Study Report, page 28.
70. DMR Submission (De Leuw Cather) September 1979, page 68.
S.K/C 1289, Table 1.
69. Joint Study Report, page 28.
70. DMR Submission (De Leuw Cather) September 1979, page 68.
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The Cooks River route would certainly provide a
far more satisfactory right of way for trucks than
exists at present. Again it is important that the
matter be kept in perspective. First, we have
already drawn attention to the relatively short
nature of many truck journeys. In many cases the
route would not be conveniently placed in respect
of those journeys. Trucks would continue to be a
problem with or without the Cooks River Option.
Secondly, the corridor along the Cooks River Valley
was characterised by Rimmer as catering for ‘smaller
commercial traffic volumes'. It is to be contrasted
with other corridors within the Sydney Metropolitan
Area which were classified as carrying 'high
commercial traffic volumes’. Thirdly, the Inquiry
has recommended a scheme relating to container
vehicles. The need for the corridor will substan-
tially diminish, in the Inquiry's judgement, if the
scheme is adopted. Fourthly, there is an oil
pipeline along the Cooks River corridor. The
provision of a pipeline has created significant
environmental benefits. The number of road tankers
has diminished by its construction.
far more satisfactory right of way for trucks than
exists at present. Again it is important that the
matter be kept in perspective. First, we have
already drawn attention to the relatively short
nature of many truck journeys. In many cases the
route would not be conveniently placed in respect
of those journeys. Trucks would continue to be a
problem with or without the Cooks River Option.
Secondly, the corridor along the Cooks River Valley
was characterised by Rimmer as catering for ‘smaller
commercial traffic volumes'. It is to be contrasted
with other corridors within the Sydney Metropolitan
Area which were classified as carrying 'high
commercial traffic volumes’. Thirdly, the Inquiry
has recommended a scheme relating to container
vehicles. The need for the corridor will substan-
tially diminish, in the Inquiry's judgement, if the
scheme is adopted. Fourthly, there is an oil
pipeline along the Cooks River corridor. The
provision of a pipeline has created significant
environmental benefits. The number of road tankers
has diminished by its construction.
2.8 The Land-use Implications of the Cooks River Route
2.8.1 The URTAC Policy Directives
In 1976 URTAC (71) established certain policy guide-
lines for the further development of the arterial
road network (72). The principles included (73):
"The development of
cross-regional routes
where it is unrealistic to expect major
public transport facilities other than
buses to be provided, even in the long-
term.”
where it is unrealistic to expect major
public transport facilities other than
buses to be provided, even in the long-
term.”
The Cooks River Route conforms to this principle.
It is a cross-regional or circumferential route.
It is (unlike the South-Western Freeway) not in
It is a cross-regional or circumferential route.
It is (unlike the South-Western Freeway) not in
71. Now
known as TRANSAC.
72. See Volume II Planning Criteria, page 243.
73. URTAC Report 1976, page 11.
72. See Volume II Planning Criteria, page 243.
73. URTAC Report 1976, page 11.
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direct competition with existing rail facilities.
The Planning and Environment Commission makes the
contrast between the two in the following passage (74):
"..Construction of the
South-Western
Option would tend to accelerate the
decline in rail usage in the radial
corridor between Campbelltown and
the City. This is a corridor where
rail facilities are already good,
and may be further improved if the
East Hills line is extended to
Glenfield. In the Cooks River circum-
ferential corridor, on the other hand,
public transport services are rather
poor, and usage is low. Construction
of the Cooks River Road Option would
enable improved bus services to be
provided."
Option would tend to accelerate the
decline in rail usage in the radial
corridor between Campbelltown and
the City. This is a corridor where
rail facilities are already good,
and may be further improved if the
East Hills line is extended to
Glenfield. In the Cooks River circum-
ferential corridor, on the other hand,
public transport services are rather
poor, and usage is low. Construction
of the Cooks River Road Option would
enable improved bus services to be
provided."
2.8.2 The Route Would Encourage Cross-Regional
Commuting
Elsewhere in this Report (75) we have stated the aims
of the land-use/transportation planning process.
They include:
of the land-use/transportation planning process.
They include:
- the system should aim at inducing
less travel rather than more
- the system should aim at reducing
the length of the journey to work
- opportunities within a region should
be reasonably accessible to the
population of that region
- the system, in short, should aim
at reasonable self-sufficiency
within regions
The Cooks River Option violates these principles.
There are repeated references in the Department of
Main Road’s submission to the Cooks River corridor
Main Road’s submission to the Cooks River corridor
74. PEC
Submission S.K/C 947 Attachment A, page 15.
75. See Volume II Transport Criteria page 15 and
see page 32 of this Volume.
75. See Volume II Transport Criteria page 15 and
see page 32 of this Volume.
-364-
being a ‘lower traffic demand corridor' (76). The
following is said (77):
"..It is evident that the
dominant
movements are from the West and South
West to the North-East, and from the
South to the North-East. The (diagrams)
do not show a significant 'through
traffic’ demand across the Study Area
between Kyeemagh and Chullora.” (78)
movements are from the West and South
West to the North-East, and from the
South to the North-East. The (diagrams)
do not show a significant 'through
traffic’ demand across the Study Area
between Kyeemagh and Chullora.” (78)
It is instructive to ask why? The absence of the
Cooks River route or, if you like, the fact that
there is a missing link, and poor accessibility in
the corridor, serve to deter people from journeying
to work between the western region and the Central
Industrial Area.
Cooks River route or, if you like, the fact that
there is a missing link, and poor accessibility in
the corridor, serve to deter people from journeying
to work between the western region and the Central
Industrial Area.
Should that be reversed? Should people from the
west be encouraged to journey towards the East?
If there is a high quality road linking the West
with the Eastern region of Sydney, lowering journey
times, and providing attractive congestion-free
driving, people will be encouraged to make that
journey. That seems to us undesirable.
west be encouraged to journey towards the East?
If there is a high quality road linking the West
with the Eastern region of Sydney, lowering journey
times, and providing attractive congestion-free
driving, people will be encouraged to make that
journey. That seems to us undesirable.
We are supported in our view by professor B.
Hutchinson who said this (79):
Hutchinson who said this (79):
"..The provision of more
cross-regional
capacity will tend to reinforce existing
circumferential commuting patterns rather
than foster the aims of the Sydney Region
Outline Plan. If the activity interaction
patterns suggested in the Sydney Region
Outline Plan are to be achieved then
capacity additions to the transport network
must be timed so as to encourage particular
activity linkages rather than simply
propagate and extend existing linkages."
capacity will tend to reinforce existing
circumferential commuting patterns rather
than foster the aims of the Sydney Region
Outline Plan. If the activity interaction
patterns suggested in the Sydney Region
Outline Plan are to be achieved then
capacity additions to the transport network
must be timed so as to encourage particular
activity linkages rather than simply
propagate and extend existing linkages."
He thought that attention should rather be directed
to the Western Region. He said (79):
to the Western Region. He said (79):
76. DMR
Submission S.K/C 340, July 1979, page 12.
77. ibid., page 6.
78. See also DMR Submission (De Leuw Cather)
September 1979, page 79.
79. A Framework for Urban Policy Formulation B.G.
Hutchinson, page 13.
77. ibid., page 6.
78. See also DMR Submission (De Leuw Cather)
September 1979, page 79.
79. A Framework for Urban Policy Formulation B.G.
Hutchinson, page 13.
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"Rather than allocating resources to
the developed areas of Sydney, these
resources should be diverted to say,
the Penrith-Blacktown area in order
to foster particular activity linkages
in that rapidly growing area."
Another commentator, Ian Manning, draws attention
to the benefits which may arise, accidentally, from
restrictions on accessibility. He says this (80):
to the benefits which may arise, accidentally, from
restrictions on accessibility. He says this (80):
"Though continued
decentralisation of
employment should reduce the average
length of the journey to work, there
will still be people (mostly men) who
insist on driving a long way across
town to their jobs. Collectively these
gentry make considerable demands upon
the road system. Should expensive
arterial roads and orbital freeways be
built to meet their requirements? The
extra journeying range provided by such
roads will be something of a luxury once
employment has been dispersed to all
suburbs. Again it may not be a wholly
bad thing for a district to have its
road access restricted. In Sutherland
and Manly/Warringah journeys to work are
shorter than elsewhere, without any
vociferous complaints that the residents
are being denied their due choice of jobs.
The example of these two regions would
recommend a policy of traffic restraint
rather than road building."
(emphasis added)
employment should reduce the average
length of the journey to work, there
will still be people (mostly men) who
insist on driving a long way across
town to their jobs. Collectively these
gentry make considerable demands upon
the road system. Should expensive
arterial roads and orbital freeways be
built to meet their requirements? The
extra journeying range provided by such
roads will be something of a luxury once
employment has been dispersed to all
suburbs. Again it may not be a wholly
bad thing for a district to have its
road access restricted. In Sutherland
and Manly/Warringah journeys to work are
shorter than elsewhere, without any
vociferous complaints that the residents
are being denied their due choice of jobs.
The example of these two regions would
recommend a policy of traffic restraint
rather than road building."
(emphasis added)
2.8.3 The Facility Will Strengthen the Attraction
of the Central Industrial Area
of the Central Industrial Area
The Central Industrial Area has more jobs than people
to fill them. It is second only to the Central
Business District, though its prominence may be
declining. The major options (the Cooks River
Option and the South-Western Option) are unashamedly
designed to cater for Central Industrial Area traffic.
Would that aid or hinder the policy of self-contain-
ment? Would that intensify the attractiveness of
the Central Industrial Area, making it less likely
that industry would migrate to the Western and
South-Western Regions, to occupy the vacant
to fill them. It is second only to the Central
Business District, though its prominence may be
declining. The major options (the Cooks River
Option and the South-Western Option) are unashamedly
designed to cater for Central Industrial Area traffic.
Would that aid or hinder the policy of self-contain-
ment? Would that intensify the attractiveness of
the Central Industrial Area, making it less likely
that industry would migrate to the Western and
South-Western Regions, to occupy the vacant
80. The
Journey to Work, Ian Manning, page 186.
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industrial estates? Would the provision of a
high-speed road encourage commuters from the West
and South-West to look further afield for jobs,
rather than searching out employment in their own
regions?
These are difficult questions. They were not
adequately addressed by submissions to the Inquiry.
The Planning and Environment Commission had this
to say in the course of its submission (81):
to say in the course of its submission (81):
"..a shortage of skilled
tradesmen
in the inner areas (in the Central
Industrial Area) is contributing to
decisions by some manufacturing
firms to move out of the inner area.”
in the inner areas (in the Central
Industrial Area) is contributing to
decisions by some manufacturing
firms to move out of the inner area.”
Is that not something to be encouraged? It is likely
to reduce the imbalance between resident population
and jobs in the Western and South-Western regions.
It is that imbalance which creates a traffic burden,
as people are forced to leave their region in
search of a job.
to reduce the imbalance between resident population
and jobs in the Western and South-Western regions.
It is that imbalance which creates a traffic burden,
as people are forced to leave their region in
search of a job.
Skilled tradesmen are not enticed by jobs in the
Central Industrial Area because of the relative
difficulty in getting to them. Inaccessibility,
created by congestion or the absence of continuous
road links, contribute to a decision to work
elsewhere.
Central Industrial Area because of the relative
difficulty in getting to them. Inaccessibility,
created by congestion or the absence of continuous
road links, contribute to a decision to work
elsewhere.
The following exchange took place with a member of
the State Transport Study Group (82):
the State Transport Study Group (82):
"FIELD: ..But as
congestion occurs
people will change, or tend to change
their travel patterns or their location
decision, people and the economy.
people will change, or tend to change
their travel patterns or their location
decision, people and the economy.
COMMISSIONER: In some cases that is
desirable.
81. PEC
Submission S.K/C 947 Appendix A, page 17.
82. Transcript UTSG (now STSG) 4/12/79, page 14.
82. Transcript UTSG (now STSG) 4/12/79, page 14.
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FIELD: Oh yes, absolutely. It is
suggested it's happening all the time
in Sydney. That’s because Sydney isn't
building heavily in a road system. It
means the system just doesn’t grind to
a halt. Things must change. So one
can say that the development of the
West and outer fringe areas is a direct
response to the congestion of the inner
area. And certainly, possibly, the job
shift out of the (Central Industrial
Area) could be possibly due to conges-
tion in that area. It’s one of the many
effects."
So where does that leave us? There is a ‘missing
link' in the road network. Accessibility in the
Cooks River corridor is poor. That has inhibited
commuters from travelling in that direction. That
inhibition has, accidentally, aided a policy of
regional self-containment. It ought not to be put
in jeopardy. The only claim for the corridor,
therefore, is in catering for the accessibility
needs of trucks. That is a significant argument.
The problem is that no sooner is a link provided to
service the needs of trucks, than it becomes
cluttered with cars.
link' in the road network. Accessibility in the
Cooks River corridor is poor. That has inhibited
commuters from travelling in that direction. That
inhibition has, accidentally, aided a policy of
regional self-containment. It ought not to be put
in jeopardy. The only claim for the corridor,
therefore, is in catering for the accessibility
needs of trucks. That is a significant argument.
The problem is that no sooner is a link provided to
service the needs of trucks, than it becomes
cluttered with cars.
It is timely to ask the question: can the problems
of the corridor be solved by some other means? Has
it been demonstrated that there is 'no prudent or
feasible alternative?' (83)
of the corridor be solved by some other means? Has
it been demonstrated that there is 'no prudent or
feasible alternative?' (83)
2.9 Can the Problem be Solved by Some Other Means?
2.9.7 The Need for a Range of Alternatives
We do not have before this Inquiry a range of
alternatives. We only have a selection of major
roads. We have demonstrated that each option suffers
from a number of shortcomings. We will shortly
demonstrate that not one option yields an impressive
economic return.
83. See Chapter I of this Report, page 23.
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Are there other, rather more specific and immediate
ways, of addressing the problems of the Study Area?
We have formed the view that the following programme
is likely to yield benefits in the short-term (in
contrast to the road). The benefits will not be
accompanied by the environmental and social disrup-
tion occasioned by the major options. The measures,
moreover, will not jeopardise certain land-use trends
(promoting regional self-containment) which may
otherwise suffer. The measures we suggest are these:
- containers should be transported
by rail (84).
- a concerted effort should be made to
formulate a road hierarchy so that
its implementation coincides with
the implementation of SCAT.
- truck routes should be established
as part of the hierarchy.
- spot improvements (in the nature of
intersection widenings, adding right-
hand turning bays and road widenings)
should be undertaken.
- consideration should be given to
measures which can be implemented
to improve the amenity of shopping
centres (by the introduction of
by-passes, or by planning controls,
or by re-constructing the shopping
centre).
Quite apart from the environmental, social and
transport advantages of such a programme, it would
not throw out of kilter the equitable distribution
of road construction funds. It would not divert a
large sum to a major project with local, rather than
regional benefits.
transport advantages of such a programme, it would
not throw out of kilter the equitable distribution
of road construction funds. It would not divert a
large sum to a major project with local, rather than
regional benefits.
84. See Volume I of this Report ‘Containers'
October, 1980.
October, 1980.
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2.9.2 A Road Hierarchy
The completion of a road hierarchy will deal with
many of the problems towards which the major options
were directed. The Chief Engineer and Town Planner
of the Canterbury Municipal Council said this (85):
"COMMISSIONER: So what's being put to
this Inquiry is this, that whereas
those who propose the road put it
forward as something which will draw
traffic away from those residential
areas, Council takes the view that
this object can be achieved in other
ways.
SHEFFIELD: Yes.
COMMISSIONER: By the institution of
residential precincts) and a road
hierarchy and by cutting off access
to through traffic.
SHEFFIELD: Right."
Sydney is in the process of introducing co-ordinated
traffic lights (known as SCAT). It is important that
the introduction of SCAT should coincide with the
development of a road hierarchy. SCAT will ensure
that journey times are reduced and traffic flows
more smoothly. The benefits of SCAT emerge from the
following comment (86):
traffic lights (known as SCAT). It is important that
the introduction of SCAT should coincide with the
development of a road hierarchy. SCAT will ensure
that journey times are reduced and traffic flows
more smoothly. The benefits of SCAT emerge from the
following comment (86):
"DOBINSON (DMR): In
fact what will
happen is that almost immediately
traffic will find and this has
happened already - it is better to
stay on the arterial system than to
use all those back by-passes that it
was using and thinking it was getting
somewhere but wasn't. It becomes too
apparent. So they come off the side
streets."
happen is that almost immediately
traffic will find and this has
happened already - it is better to
stay on the arterial system than to
use all those back by-passes that it
was using and thinking it was getting
somewhere but wasn't. It becomes too
apparent. So they come off the side
streets."
The relevance of the hierarchy to SCAT emerges from
the following exchange (87):
the following exchange (87):
85. Transcript
Canterbury Municipal Council, page 30.
86. DMR Transcript 12/5/80, page 60.
87. Transcript ibid., page 61.
86. DMR Transcript 12/5/80, page 60.
87. Transcript ibid., page 61.
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"COMMISSIONER: And
doesn't this offer
an opportunity, in conjunction with
the hierarchy, to take advantage of
the fact that traffic should be
removed from residential streets
(which should then be) redeclared,
if you like, as residential streets?
an opportunity, in conjunction with
the hierarchy, to take advantage of
the fact that traffic should be
removed from residential streets
(which should then be) redeclared,
if you like, as residential streets?
DOBINSON: Most definitely,
COMMISSIONER: So it is very important
that SCAT does proceed hand-in-hand
with the development of the hierarchy?
DOBINSON: Yes. SCAT reinforces the
top level of a hierarchy, and offers
the opportunity to do something about
the low level by relieving the street
system."
2.9.3 A Network of Truck Routes
There is a companion concept known as truck routeing.
It seeks to confine trucks to a particular designated
road system. A member of the State Transport Study
Group made this observation upon the possibility of
introducing truck routeing in Sydney (88):
It seeks to confine trucks to a particular designated
road system. A member of the State Transport Study
Group made this observation upon the possibility of
introducing truck routeing in Sydney (88):
"Truck routeing is only one
solution
to the conflict between trucks and
the environment. It is comparatively
inexpensive to undertake and has
currency in the Sydney situation. "
to the conflict between trucks and
the environment. It is comparatively
inexpensive to undertake and has
currency in the Sydney situation. "
We have recommended the development of a truck network
as part of the solution to problems created by the
road transportation of containers (89). The concept
is of a special relevance to containers (because of
their size) but has obvious benefits if more widely
applied.
as part of the solution to problems created by the
road transportation of containers (89). The concept
is of a special relevance to containers (because of
their size) but has obvious benefits if more widely
applied.
These measures, if adopted, have certain important
advantages which a road solution cannot offer.
They offer benefits in the short-term. People
do not have to wait 10 or 15 years before relief
is forthcoming. They offer benefits, moreover,
without the serious environmental and social
disruption occasioned by the major options. And
they are not costly.
advantages which a road solution cannot offer.
They offer benefits in the short-term. People
do not have to wait 10 or 15 years before relief
is forthcoming. They offer benefits, moreover,
without the serious environmental and social
disruption occasioned by the major options. And
they are not costly.
88. R.
Leavens ‘Inner Sydney Truck Route Study’
5th ATRF Forum Papers, page 60.
89. Volume I of this Report, page 335.
5th ATRF Forum Papers, page 60.
89. Volume I of this Report, page 335.
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2.9.4 Spot Improvements
The focus upon the Study Area has certainly under-
lined certain problems. They are not underestimated.
With the possible exception of Canterbury Road in the
off-peak, the problem locations are scattered (see
Figures 8 to 13) (90). Curiously no option efficiently
relieves the 'sore spots'. They each provide
additional road capacity. They will each draw
traffic away from parallel routes. However, we
have demonstrated that the capacity is not provided
precisely where it is needed. This is hardly
surprising. A major road is a fairly blunt instru-
ment. It draws traffic away from this street and
that. Whilst that may be welcome, it is rather
less efficient than a remedy which isolates the
problem, and provides a specific solution to it.
It is significant that the State Transport Study
Group when investigation the same option (the Cooks
River Option designed as a freeway) had this to
say (91):
Group when investigation the same option (the Cooks
River Option designed as a freeway) had this to
say (91):
"If anything, the analysis of
critical
intersections showed the need for a
large number of small, localised
improvements within and immediately
surrounding the industrial area, rather
than a small number of large roads."
intersections showed the need for a
large number of small, localised
improvements within and immediately
surrounding the industrial area, rather
than a small number of large roads."
Since the intersection is the critical element in
the street system limiting road capacity, and since
the problem areas are scattered, the question arises
whether the community would be better off with a
series of small projects rather than one large
project. The question was put to the Department
of Main Roads (92):
the street system limiting road capacity, and since
the problem areas are scattered, the question arises
whether the community would be better off with a
series of small projects rather than one large
project. The question was put to the Department
of Main Roads (92):
"COMMISSIONER: In terms of
priorities
does the Department feel that it would
be better off spending money on all
those intersections which are demonstrated
does the Department feel that it would
be better off spending money on all
those intersections which are demonstrated
90. Pages
63 to 71.
91. UTSG (now STSG) Central Industrial Area Study
June 1977, Chapter IV, page 26.
92. Transcript DMR 25/10/79, page 48.
91. UTSG (now STSG) Central Industrial Area Study
June 1977, Chapter IV, page 26.
92. Transcript DMR 25/10/79, page 48.
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to have a 'Y’ value nearing satur-
ation than in a larger project..I
am concerned about the relative
merits of improving intersections,
if intersections are the weak link
in the chain, on the one hand, and
the building of major roads on the
other.
ANDERSON: It worries us too."
The National Association of Australian State Road
Authorities (NAASRA) made an observation that the
public tends to accept projects 'up to a certain
size' objecting only (or most ferociously) to the
very large projects (93). There is a lesson in
that. Smaller projects should be considered,
including:
Authorities (NAASRA) made an observation that the
public tends to accept projects 'up to a certain
size' objecting only (or most ferociously) to the
very large projects (93). There is a lesson in
that. Smaller projects should be considered,
including:
- road widening
- intersection widening
- the adding of right-hand
turning bays at intersections
Canterbury Road was identified as suffering signi-
ficant off-peak congestion (Figure 10). We witnessed
it many times ourselves. The road carries a
significant volume of trucks. The South-Western
Option had the merit of providing relief to this
road. But is there an alternative? The following
was put to the Department of Main Roads (94):
ficant off-peak congestion (Figure 10). We witnessed
it many times ourselves. The road carries a
significant volume of trucks. The South-Western
Option had the merit of providing relief to this
road. But is there an alternative? The following
was put to the Department of Main Roads (94):
"COMMISSIONER: Do you
see merit your-
self in proposals that have been put
forward here as ways in which capacity
could be increased by, for instance,
adding right-hand turning bays at
Canterbury Road?
self in proposals that have been put
forward here as ways in which capacity
could be increased by, for instance,
adding right-hand turning bays at
Canterbury Road?
DOBINSON: Yes. There is real merit
in that sort of move."
The additional capacity yielded by the project may
not compare, dollar for dollar, with the capacity
created by the South-Western Option (95). In many
not compare, dollar for dollar, with the capacity
created by the South-Western Option (95). In many
93. NAASRA 'Community
and Environmental Aspects of
Urban Highway Proposals’, page 4.
94. DMR Transcript 12/5/80, page 41.
95. See Volume II, Transport Criteria page 226 and
DMR Transcript 14/1/80, page 73.
Urban Highway Proposals’, page 4.
94. DMR Transcript 12/5/80, page 41.
95. See Volume II, Transport Criteria page 226 and
DMR Transcript 14/1/80, page 73.
-373-
ways that is beside the point. The widening of
intersections within Canterbury Road (to create
right-hand turning bays) will not have the undesirable
social and environmental consequences which attend
the construction of the South-Western Option. It
will create more capacity and yet not compromise
(in the way that the South-Western or the Cooks
River Options would) the policy aims of regional
self-containment. Such a programme may cater more
effectively for the accessibility needs of trucks.
By this means they are encouraged to use the arterial
road network, rather than divert into residential
areas to avoid congestion.
Our preference is for a series of smaller projects
directed, like the surgeons knife, to the specific
problems, rather than a major road, which will deliver
benefits accompanied by many disadvantages, and which
will cost a great deal in financial and human terms.
directed, like the surgeons knife, to the specific
problems, rather than a major road, which will deliver
benefits accompanied by many disadvantages, and which
will cost a great deal in financial and human terms.
3. THE ECONOMIC CRITERIA
3.1 Cost/Benefit Analysis
3.1.1 The Construction Costs for the Cooks River
Option Are Understated
The costs of each option were understated.
The following adjustments should be made to the
costs of the Cooks River Option:
costs of the Cooks River Option:
1. An amount of 20 to 25% of the
property acquisition costs should
be added to take account of the
change in the law effected by the
Environmental Planning and Assessment
Act 1980 (Section 116). People are
now entitled to a 'solatium' to
cushion the blow of having to re-
locate. Between $2 million and
$3 million must be added in respect
of this item.
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2. The open space has apparently
not been valued according to its
opportunity cost. We will shortly
disclose that we favour the maximum
open space sub-option. Some 4.0 ha
of open space would be lost if that
option were constructed. The
discrepancy is not as important as
in the case of the South-Western
Option (36 ha.).3. The property estimates (having been
made in February, 1978) should be
increased by 10% to bring them in
line with the construction estimates
(December, 1978). An additional $1.5
million to $2 million must be added
in respect of this item (being 10%
of $11.42 million, plus the solatium
etc).4. The cost of widening the Hume Highway
was accidentally omitted (96).
However, in our view the road should
continue from Coronation Parade along
the corridor reservation. That would
add to the cost. The appropriate
adjustment, therefore, is the constru-
ction costs of completing the road in
this way (including an amount for
additional open space acquired).
There was evidence (which had certain plausibility)
which suggested that the construction costs estimated
by the Department of Main Roads may prove inaccurate.
Mr. Arthur Smith (of Campsie) provided this intelli-
gence (97):
which suggested that the construction costs estimated
by the Department of Main Roads may prove inaccurate.
Mr. Arthur Smith (of Campsie) provided this intelli-
gence (97):
96.
Transcript DMR 26/10/79, page 47.
97. S.K/C 786 Mr. Arthur Smith, 19/7/79.
97. S.K/C 786 Mr. Arthur Smith, 19/7/79.
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"This road is proposed to be built over
what is described as an alluvial flood
plain, which, in actual fact, was and
still is an alluvial flood swamp plain,
built up by innumerable tips operated
by suburban councils over many years.
This was added to by depositing the
soil from the river bed during dredging
operations by the Main Roads Department
and Water Sewerage and Drainage Board..
my own allotment was filled up to ten
feet. When I applied for the sewerage
plan I was informed that the sewer head
was three feet down. It was actually
nine feet below ground level before we
started filling. It is now twelve feet
below this point."
The Canterbury Council said much the same thing (98):
"The estimates are based on
preliminary
designs at this stage and may not take
into account poor foundation conditions
along much of the Cooks River and part
of the South-Western Freeway route. For
example Canterbury Council has carried
out some sub-surface testing at Water-
worth Park, Undercliffe which is an
area affected by both of these routes.
Laboratory testing by consultant geo-
technical engineers of samples indicates
that there is up to 25 m of highly
compressible estuarine sediments at
the site and the construction of any
sort of surface structure could prove
extremely costly. There are other
areas particularly along the Cooks River
which were used in the past for garbage
dumps."
designs at this stage and may not take
into account poor foundation conditions
along much of the Cooks River and part
of the South-Western Freeway route. For
example Canterbury Council has carried
out some sub-surface testing at Water-
worth Park, Undercliffe which is an
area affected by both of these routes.
Laboratory testing by consultant geo-
technical engineers of samples indicates
that there is up to 25 m of highly
compressible estuarine sediments at
the site and the construction of any
sort of surface structure could prove
extremely costly. There are other
areas particularly along the Cooks River
which were used in the past for garbage
dumps."
3.1.2 The Benefit/Cost Ratios Produced by the Cooks
River Option
Our earlier chapter on the South Western Freeway (99)
contrasted that option with the Cooks River Option.
We will not repeat that analysis.
We take the view that the addition of 20% to the
construction costs may be rather more realistic.
With that addition the benefit/cost ratios were
(employing triptable C) (100):
construction costs may be rather more realistic.
With that addition the benefit/cost ratios were
(employing triptable C) (100):
98. S.K/C 341 Submission Canterbury Council, page
25.
99. See page 276.
100. DMR Submission S.K/C 340 Transport and Economic
Analysis, page 34.
99. See page 276.
100. DMR Submission S.K/C 340 Transport and Economic
Analysis, page 34.
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- 1.16 Cooks River Option
- 0.95 South-Western Option
- 1.51 Bexley Road Option (Harrow Road)
- 1.54 Bexley Road Option (Bestic Street).
We regard even these figures as overstated (1).
Employing triptable D, and concentrating upon the
marginal benefits (as Professor Beesley thought
appropriate) (2), the benefit/cost ratios for
each of the major options were:
marginal benefits (as Professor Beesley thought
appropriate) (2), the benefit/cost ratios for
each of the major options were:
- 1.5 for the Cooks River Option
- 1.7 for the South-Western Freeway
When an adjustment was made to the capital cost by
adding 20%, the benefit/cost ratios fell to the
following level:
adding 20%, the benefit/cost ratios fell to the
following level:
- 1.2 for the Cooks River Option
- 1.5 for the South-Western Freeway
Certain other analyses yield different (and somewhat
higher) figures. It rather depended upon whether
the analysis assumed that work had been completed in
the South-Western corridor to the west of King
Georges Road.
higher) figures. It rather depended upon whether
the analysis assumed that work had been completed in
the South-Western corridor to the west of King
Georges Road.
Leaving the mathematics aside, the commentary upon
the performance of the Cooks River Option was
unanimous. It was unimpressive.
the performance of the Cooks River Option was
unanimous. It was unimpressive.
3.1.3 Commentary Upon the Cost/Benefit Performance
The evidence has been identified already (3).
Professor Beesley drew attention to the South
Australian experience. The lowest project selected
had a benefit/cost ratio of 2. Professor Beesley
characterised the Cooks River Option as "a highly
1. See page
279.
2. See Volume II Annexure 2, M.E. Beesley para 16.
3. See page 283.
2. See Volume II Annexure 2, M.E. Beesley para 16.
3. See page 283.
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doubtful investment" in cost/benefit terms (4).
Mr. Peterson from the State Transport Study Group
expressed a similar view. He said (5):
expressed a similar view. He said (5):
"But the particular figures
thrown up
by each of these projects (in the
economic analysis), it is fair to say,
are not impressive. Even though they
may be justified in other areas, in
other ways, in economic terms...?
by each of these projects (in the
economic analysis), it is fair to say,
are not impressive. Even though they
may be justified in other areas, in
other ways, in economic terms...?
PETERSON: In a broad sense, no, they
are not very impressive at all.”
Mr. Michael Conroy, a transport planner attached to
the Planning and Environment Commission said (6):
the Planning and Environment Commission said (6):
"CONROY: ..If the
Commonwealth Bureau
of Roads was using those figures for
assessing the application of Commonwealth
Grants for road construction, I don’t
think the South-Western Option would
get into the road programme because it
has such a low benefit/cost ratio. I
can’t remember what sort of cut-off
they used exactly. But I think the
Cooks River Option probably would qualify
but it would be fairly low down in
priority when you compare it with things
like the section of the South-Western
Freeway out at Liverpool."
(emphasis added)
of Roads was using those figures for
assessing the application of Commonwealth
Grants for road construction, I don’t
think the South-Western Option would
get into the road programme because it
has such a low benefit/cost ratio. I
can’t remember what sort of cut-off
they used exactly. But I think the
Cooks River Option probably would qualify
but it would be fairly low down in
priority when you compare it with things
like the section of the South-Western
Freeway out at Liverpool."
(emphasis added)
3.1.4 A High Economic Return Required
We regret the repetition. We must state the
principle once more. It is of the utmost importance.
Where a scheme significantly affects the environment
(and we will shortly demonstrate that the Cooks
River Option does precisely that) it must, to be
acceptable, yield ‘high economic or other benefits’(7).
The Cooks River Option fails to meet this
standard. The benefits, whilst not derisory, do
not compensate for the disruption to the environment
occasioned by the option.
4. Volume II, Annexure 2, paragraph 18.
5. Transcript UTSG (now STSG) 12/12/79, page 81.
6. PEC Transcript 16/1/80, pages 7-8.
7. See page 23.
5. Transcript UTSG (now STSG) 12/12/79, page 81.
6. PEC Transcript 16/1/80, pages 7-8.
7. See page 23.
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3.2 Equity
We have said before that the issue was not
adequately addressed. We do not know the extent
to which local disadvantages could be overcome
by a package of measures designed to ameliorate
adverse impacts, and compensate those likely to
suffer.
If, contrary to our recommendation, the Government
decides to construct this Option, it will be
essential to examine this issue. The measures
(which may or may not be appropriate) will include:
decides to construct this Option, it will be
essential to examine this issue. The measures
(which may or may not be appropriate) will include:
- open space to replace that
taken by the road - noise barriers
- measures designed to repair the
severance created by the road
(bridges, underpasses, pedestrian
crossings, traffic lights)
4. THE SOCIAL CRITERIA
4.1 Displacement of People and Property
4.1.1 Properties Fully Acquired
The facts have been recited already. When we
reviewed the South-Western Option we compared it
to the Cooks River Option. We concluded that the
Cooks River Option would occasion greater social
disruption than the South-Western.
The short facts are these:
- 212 homes demolished for the Cooks
River Option (maximum open space)
- 190 homes demolished for the Cooks
River Option (minimum propertyeffect)
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- 158 dwellings demolished by the
South-Western Option (original
alignment)
- 113 dwellings demolished for the
South-Western Option (revised
alignment)
The human suffering occasioned by demolition is
obviously considerable. One submission (relating
to a section common to both options) was in these
terms (8):
obviously considerable. One submission (relating
to a section common to both options) was in these
terms (8):
"My wife is disabled and I am
paraplegic
confined to a wheelchair, from which I
have worked for 27 years. We reside in
a rented property which will be affected
by the proposed roadway. The building
was specifically designed for disabled
people."
confined to a wheelchair, from which I
have worked for 27 years. We reside in
a rented property which will be affected
by the proposed roadway. The building
was specifically designed for disabled
people."
The poor are especially vulnerable to displacement (9).
Assuming the external appearance of a home
is a reliable guide to the wealth of its occupants,
the Joint Study Report says this (10):
Assuming the external appearance of a home
is a reliable guide to the wealth of its occupants,
the Joint Study Report says this (10):
"A lower proportion of the
houses in
the vicinity of (the Cooks River Route)
are of brick than in the case of
other options, which reflects the
lower average income of residents
along this route and possibly greater
hardship in being displaced. More
public housing would be displaced by
this option than any other."
the vicinity of (the Cooks River Route)
are of brick than in the case of
other options, which reflects the
lower average income of residents
along this route and possibly greater
hardship in being displaced. More
public housing would be displaced by
this option than any other."
There are amendments to the road design which
should be made, and which may affect the number of
resumptions. First, the road is designed as a six
lane arterial road between Marsh Street, Arncliffe
and Canterbury Road, Canterbury. The traffic model
suggested that six lanes would be necessary to cope
with the demand. Indeed the following was said (11):
should be made, and which may affect the number of
resumptions. First, the road is designed as a six
lane arterial road between Marsh Street, Arncliffe
and Canterbury Road, Canterbury. The traffic model
suggested that six lanes would be necessary to cope
with the demand. Indeed the following was said (11):
8. S.K/C 069 Edward C. Miners.
9. See Volume III Social Criteria, page 9.
10. Joint Study Report, page 29.
11. URTAC REPORT 1976, page 33.
9. See Volume III Social Criteria, page 9.
10. Joint Study Report, page 29.
11. URTAC REPORT 1976, page 33.
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"The traffic demand forecasts for
1985 indicate that a Cooks River
Route, for six lanes, if constructed,
would be fully utilised by that time."
We have diagnosed the problem differently. The
problem is not one of commuter demand. The road
should not aim to satisfy that demand. It should
certainly not encourage commuters to travel long
distances from the Western Suburbs towards the
Central Industrial Area. The provision of spare
capacity may do just that. The problem, rather,
is one of accessibility for trucks between the
Port/Airport/Central Industrial Area complex and
the Western (and South-Western) industrial region.
The peak period demand (or potential demand) is
an unreliable guide. The aim is rather to provide
a right of way, capable of handling truck volumes,
especially in the off-peak. In our judgement four
lanes would be adequate.
problem is not one of commuter demand. The road
should not aim to satisfy that demand. It should
certainly not encourage commuters to travel long
distances from the Western Suburbs towards the
Central Industrial Area. The provision of spare
capacity may do just that. The problem, rather,
is one of accessibility for trucks between the
Port/Airport/Central Industrial Area complex and
the Western (and South-Western) industrial region.
The peak period demand (or potential demand) is
an unreliable guide. The aim is rather to provide
a right of way, capable of handling truck volumes,
especially in the off-peak. In our judgement four
lanes would be adequate.
Secondly, the road should have a median for its
entire length. This may involve a marginal increase
in the number of resumptions. We will return to
this matter when we consider the accident potential
of this road.
entire length. This may involve a marginal increase
in the number of resumptions. We will return to
this matter when we consider the accident potential
of this road.
Thirdly, the route should follow the corridor reserva-
tion from coronation parade to the Hume Highway. The
present design terminates at the junction of Punchbowl
Road and Coronation Parade, Strathfield. Traffic
would then make its way via Coronation Parade and
Hill Street, Strathfield to the Hume Highway.
tion from coronation parade to the Hume Highway. The
present design terminates at the junction of Punchbowl
Road and Coronation Parade, Strathfield. Traffic
would then make its way via Coronation Parade and
Hill Street, Strathfield to the Hume Highway.
The prospects for Coronation Parade are bleak. The
Department of Main Roads submission says this (12):
Department of Main Roads submission says this (12):
"Traffic on Coronation Parade
is
significantly increased as this is
the principal loading street and
intersection congestion would occur.”
significantly increased as this is
the principal loading street and
intersection congestion would occur.”
12. DMR
Submission S.K/C 340 (De Leuw Cather)
September 1979, page 46.
September 1979, page 46.
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Coronation Parade would be widened. Part of an
adjacent park would be taken.
The suggestion excited great opposition from the
community. Strathfield Council utterly rejected
the idea (13). It was unacceptable to the Burwood
Council nearby (14). The Bankstown Council also
expressed its opposition.
community. Strathfield Council utterly rejected
the idea (13). It was unacceptable to the Burwood
Council nearby (14). The Bankstown Council also
expressed its opposition.
It is clearly desirable to continue the route to
the Hume Highway. The desirability of that alignment
springs as much from the need to avoid disruption to
Strathfield, as from the positive benefits which
would arise through the route locking-in with the
Pemberton Road route (now under construction). The
Pemberton Road route leads to the Western Distributor.
the Hume Highway. The desirability of that alignment
springs as much from the need to avoid disruption to
Strathfield, as from the positive benefits which
would arise through the route locking-in with the
Pemberton Road route (now under construction). The
Pemberton Road route leads to the Western Distributor.
4.1.2 Properties Partially Acquired
Where the test is the number of properties partially
acquired, the Cooks River route fares less well than
the South-Western Option. The statistics are:
- 115 partial acquisitions for the
minimum property sub-option of
the Cooks River Option
- 134 for the Cooks River Option
(maximum open space)
- 51 partial acquisitions for the
South-Western Option.
The Australian Law Reform Commission makes an
important suggestion in a recent publication dealing
with property acquisition. It said (15):
important suggestion in a recent publication dealing
with property acquisition. It said (15):
"The present Act (the
Commonwealth Act)
provides for the payment as the sole
form of compensation. In some cases
this is unsatisfactory, from the view-
point of the former owner. Cases do
provides for the payment as the sole
form of compensation. In some cases
this is unsatisfactory, from the view-
point of the former owner. Cases do
13. S.K/C
1419 Strathfield Council.
14. S.K/C 7 29 Burwood Council.
15. Land Acquisition and Compensation ALRC (report
No. 14), pages 138-143.
14. S.K/C 7 29 Burwood Council.
15. Land Acquisition and Compensation ALRC (report
No. 14), pages 138-143.
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arise where an acquiring authority
would be able to offer alternative
land in full or part satisfaction of
a compensation claim. It is not
realistic to require that the
Commonwealth offer re-settlement in
all cases but the Law should require
the Minister to endeavour to make an
offer of re-settlement where this is
requested by the owner. It should
allow re-settlement in satisfaction
of a claim."
People whose land is partially acquired are
compensated for the land which is taken. But they
must suffer the presence of a highway facility on
their doorstep. They may prefer not to do so.
They may prefer their homes to be wholly acquired.
At present, they are unable to compel acquisition
unless the land acquired makes the balance 'unviable’,
i.e., unlivable. A mechanism should exist whereby
such people are allowed to leave, and are adequately
compensated for doing so. A stock of houses within
the area would then be available to those people who
are displaced, and who are most reluctant to leave
the area. Compensation in the form of a ‘home for
a home' could then be offered in many cases (16).
4.1.3 Properties Injuriously Affected
We must now compare the Cooks River Option with the
other options to determine the number of properties
adversely affected by the road. The bare facts are
these:
- 346 homes injuriously affected by
the Cooks River Option (maximum open
space)
- 305 homes affected by the Cooks River
Option (minimum property effect)
- 64 homes affected by the South-
Western Option.
16. See Volume III, Social Criteria, Chapter
II.
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No compensation is payable where no land is
acquired, even though the property is adversely
affected by the adjacent road facility. The Joint
Study Report states the obvious when it says (17):
acquired, even though the property is adversely
affected by the adjacent road facility. The Joint
Study Report states the obvious when it says (17):
"This option (i.e., the Cooks
River
Option) is the least desirable in
these terms, with the exception that
the Bexley Road route would affect
land adjoining more residential
properties."
Option) is the least desirable in
these terms, with the exception that
the Bexley Road route would affect
land adjoining more residential
properties."
4.2 Accidents
We have drawn attention to the calculations made
for the purposes of cost/benefit analysis. The
analysis is applied as a measure of economic
efficiency. One of the 'benefits' it measures is
the improvement in the accident rate as a result
of constructing a new facility. Curiously, the
analysis suggested the community would be worse
off (and that there would be negative 'benefits’)
if construction were undertaken. The comparison
emerges from the following figures (18):
for the purposes of cost/benefit analysis. The
analysis is applied as a measure of economic
efficiency. One of the 'benefits' it measures is
the improvement in the accident rate as a result
of constructing a new facility. Curiously, the
analysis suggested the community would be worse
off (and that there would be negative 'benefits’)
if construction were undertaken. The comparison
emerges from the following figures (18):
- $911000 per annum for the Cooks
River route.
- $160,000 per annum for the South-
Western Option
- $63,000 for the Bexley Road (Harrow
Road) Option
- $99,000 for the Bexley Road (Bestic
Street) Option.
The result was characterised by the Study Group as
'perverse’. Their instinctive reaction was that
the community would be better off (in terms of
accidents) if the options were constructed.
'perverse’. Their instinctive reaction was that
the community would be better off (in terms of
accidents) if the options were constructed.
We are inclined to the view that the differences
between options (and between the base case) in terms
between options (and between the base case) in terms
17. Joint
Study Report, page 29.
18. DMR Submission Transport and Economic Analysis
Table 7.2 (page 33).
18. DMR Submission Transport and Economic Analysis
Table 7.2 (page 33).
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of accidents are not substantial. If a choice is
to be made, it should be made on other grounds.
There are features of the Cooks River Option,
nonetheless, which cause disquiet. First, a median
strip was omitted at either end, as a cost saving
measure. The Traffic Authority (19) and the
Planning and Environment Commission (20) both take
the view that a median is desirable. The Inquiry
takes the same view. If the route were constructed,
a median should be included for its entire length.
nonetheless, which cause disquiet. First, a median
strip was omitted at either end, as a cost saving
measure. The Traffic Authority (19) and the
Planning and Environment Commission (20) both take
the view that a median is desirable. The Inquiry
takes the same view. If the route were constructed,
a median should be included for its entire length.
Secondly, we have referred already to certain
unsatisfactory features of the Carrington Road
(Marrickville) spur (21). This road is a feature
common to both the South-Western and the Cooks River
Options. It is rejected by this Inquiry. It would
adversely affect the amenity of Marrickville. It
would, in our view, significantly add to the prospects
of accidents.
unsatisfactory features of the Carrington Road
(Marrickville) spur (21). This road is a feature
common to both the South-Western and the Cooks River
Options. It is rejected by this Inquiry. It would
adversely affect the amenity of Marrickville. It
would, in our view, significantly add to the prospects
of accidents.
Thirdly, the Cooks River route is adjacent to open
space for much of its length. The band of open
space in many cases would be narrow. The proximity
of a playing area to the road may create hazards
for children. The Traffic Authority, indeed, makes
this suggestion (22):
space for much of its length. The band of open
space in many cases would be narrow. The proximity
of a playing area to the road may create hazards
for children. The Traffic Authority, indeed, makes
this suggestion (22):
"The Authority considers it
desirable
that...the following features be
incorporated..
that...the following features be
incorporated..
* no pedestrian access to the roadway:o no footpath adjacent to the
carriagewayo fences erected along the boundaries
for the length of the roadway,
particularly where parklands-are
adjacent to the roadway;"
19.
Submission S.K/C 1289 Traffic Authority, page 8-9.
20. S.K/C 947 PEC Submission July 1979, pages 17-18.
21. See page 257.
22. Submission S.K/C 1289 Traffic Authority, page 10.
20. S.K/C 947 PEC Submission July 1979, pages 17-18.
21. See page 257.
22. Submission S.K/C 1289 Traffic Authority, page 10.
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Fourthly, there is the problem of access to the
parks which are adjacent to the carriageway.
People, and especially children, must cross the
road to reach the parks. In the absence of fencing
(which may be hideous, visually) and pedestrian
subways or bridges, accidents can be expected.
parks which are adjacent to the carriageway.
People, and especially children, must cross the
road to reach the parks. In the absence of fencing
(which may be hideous, visually) and pedestrian
subways or bridges, accidents can be expected.
Finally, the route would introduce a measure of
severance. The movement of pedestrians would be
disrupted. An increase in the number of accidents,
at least in the short term, can be expected. The
Joint Study Report says this (23).
severance. The movement of pedestrians would be
disrupted. An increase in the number of accidents,
at least in the short term, can be expected. The
Joint Study Report says this (23).
"Exposure of pedestrians to
accidents
would be increased in the short term,
until patterns of movement have adjusted,
by the route passing through existing
residential areas for 3 km. It would
separate people from former neighbours,
a school, open space facilities and a
leagues club."
would be increased in the short term,
until patterns of movement have adjusted,
by the route passing through existing
residential areas for 3 km. It would
separate people from former neighbours,
a school, open space facilities and a
leagues club."
The Cooks River Option cannot be counted a boon
to the cause of preventing road accidents.
to the cause of preventing road accidents.
4.3 Severance
The Cooks River is a municipal boundary. The number
of points at which it may be crossed is limited.
There is already a degree of severance between one
side of the river and the other.
of points at which it may be crossed is limited.
There is already a degree of severance between one
side of the river and the other.
The option, however, does not follow the river for
its entire length. The river twists and turns.
The option maintains a more or less direct path.
A number of communities are severed in the process.
its entire length. The river twists and turns.
The option maintains a more or less direct path.
A number of communities are severed in the process.
The areas of severance are as follows:
- Tancred Avenue, Kyeemagh in the
section between General Holmes
Drive and Undercliffe.
23. Joint
Study Report, page 28.
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- An area already badly afflicted
by traffic at Arncliffe, in the
vicinity of Marsh Street, West
Botany Street and Princes Highway.
- An area in Undercliffe bounded by
the river, the proposed road and
Bayview Avenue.
- The area in the vicinity of Wardell
Road (including Beaman Park)
- An area opposite the Canterbury
Racecourse (Nowra Street and
Bellombi Street, Campsie)
- Small pockets located between the
proposed route and the river, in
Belfield and Campsie
- An area in Strathfield near the
junction of Hill Street and
Coronation Parade (if the route
were to stop at the junction of
Coronation Parade, Strathfield
and Punchbowl Road)
The severance effects of the Cooks River Option
are worse than the South-Western Option, although
better than the Bexley Road Options. People are
isolated from their neighbours. Children are
isolated from parks.
are worse than the South-Western Option, although
better than the Bexley Road Options. People are
isolated from their neighbours. Children are
isolated from parks.
If the route were constructed every effort should
be made to repair the severance where it is judged
to be severe. Underpasses or overpasses should be
constructed. Traffic control lights should be
installed.
be made to repair the severance where it is judged
to be severe. Underpasses or overpasses should be
constructed. Traffic control lights should be
installed.
There was some discussion of these matters during
the Inquiry (24). However, the precise needs of the
the Inquiry (24). However, the precise needs of the
24. See the
commentary by the DMR and PEC upon a
folder (referred to in the Inquiry as the ‘cut-
up') which collected the various suggestions
made by submissions in respect of each route.
folder (referred to in the Inquiry as the ‘cut-
up') which collected the various suggestions
made by submissions in respect of each route.
-387-
community have not been surveyed. We do not know
the pattern of pedestrian movements. There has
been no expression of community preference for
subways or bridges or traffic lights. All these
matters must be monitored before a 'solution' is
foisted upon the community.
The Planning and Environment Commission made a
number of suggestions, directed at both severance
and open space. Certain properties would be so
isolated by the construction of the route that they
should be acquired, and the land used for open space.
They are properties located between the route and
the Cooks River. The Commission said this (25):
number of suggestions, directed at both severance
and open space. Certain properties would be so
isolated by the construction of the route that they
should be acquired, and the land used for open space.
They are properties located between the route and
the Cooks River. The Commission said this (25):
"(Certain) properties would
otherwise
be very adversely affected and left in
an isolated unsatisfactory position.
A total of 17 properties would be
involved, all in the Campsie and Belfield
area. Their acquisition would enable
a continuous open space to be created
along that section of the Cooks River."
be very adversely affected and left in
an isolated unsatisfactory position.
A total of 17 properties would be
involved, all in the Campsie and Belfield
area. Their acquisition would enable
a continuous open space to be created
along that section of the Cooks River."
In a further passage the Commission said this (25):
"..The Commission also draws
attention
to a group of 21 properties on Nowra
Street and Bellombi Street, Campsie
between the river and the proposed
road. It is suggested that these
properties should also be acquired
for open space purposes. The constru-
ction of the new road would have a
detrimental effect on the character
of this area. It is possible that
owners, if given the opportunity,
would wish to accept the chance to
sell their properties now at a fair
market price, rather than remain and
accept the changes resulting from the
road.”
to a group of 21 properties on Nowra
Street and Bellombi Street, Campsie
between the river and the proposed
road. It is suggested that these
properties should also be acquired
for open space purposes. The constru-
ction of the new road would have a
detrimental effect on the character
of this area. It is possible that
owners, if given the opportunity,
would wish to accept the chance to
sell their properties now at a fair
market price, rather than remain and
accept the changes resulting from the
road.”
A judgement on this issue could be given with greater
confidence if a survey had been carried out. Some
people, no doubt, may wish to move. It would be
surprising if there were not others who wished to
confidence if a survey had been carried out. Some
people, no doubt, may wish to move. It would be
surprising if there were not others who wished to
25. PEC
Submission S.K/C 947 July 1979, page 15.
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remain where they were. However, the suggestions
of the Planning and Environment Commission
(especially in respect of the houses at Belfield
and Campsie) do have merit.
5. ENVIRONMENTAL IMPLICATIONS
5.1 The Noise Induced by the Cooks River Option
We must again distinguish between the effects of
an option upon the immediate area, and its effect
in promoting the regional objective of 'reducing
noise’.
The South-Western Option and the Cooks River Option
share a common section between General Holmes Drive
and Wolli Creek (as far as Macquarie Road, Earlwood)
we have already described the effects which these
roadworks would have upon the surrounding area (26).
share a common section between General Holmes Drive
and Wolli Creek (as far as Macquarie Road, Earlwood)
we have already described the effects which these
roadworks would have upon the surrounding area (26).
The remainder of the Cooks River route will induce
noise which is more severe than the noise engendered
by the South-Western Option. First, the noise would
be introduced into a valley which does not presently
suffer from noise. In the Wolli Creek Valley there
is the intermittent noise created by the East Hills
railway line. The tranquility of the cooks River
Valley would be destroyed, and the change would be
sudden rather than gradual.
noise which is more severe than the noise engendered
by the South-Western Option. First, the noise would
be introduced into a valley which does not presently
suffer from noise. In the Wolli Creek Valley there
is the intermittent noise created by the East Hills
railway line. The tranquility of the cooks River
Valley would be destroyed, and the change would be
sudden rather than gradual.
Secondly, the houses are located far closer to the
source of noise than is the case with the South-
Western Option. Much of the Cooks River Valley is
flat. There is not the protection which the cliffs
of the Wolli Creek provide to the surrounding
residential areas.
source of noise than is the case with the South-
Western Option. Much of the Cooks River Valley is
flat. There is not the protection which the cliffs
of the Wolli Creek provide to the surrounding
residential areas.
Thirdly, the noise created by free-flowing traffic
on a freeway is likely to be less than that on a
major arterial road, where there are interruptions
created by cross traffic.
on a freeway is likely to be less than that on a
major arterial road, where there are interruptions
created by cross traffic.
26. See
page 300.
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Fourthly, the design of the Cooks River route
contemplates an overpass across a railway line,
near Campsie. The railway sits upon an embankment.
The carriageway must clear the stanchions from
which the electric wires are suspended. The
gradient of the approaches would be 6%. Noise
may increase as trucks gather speed to clear the
overpass.
The overpass was the subject of comment by the
Planning and Environment Commission. It suggested
a tunnel instead. A tunnel would certainly have
advantages visually, and in terms of noise and
pollution (and especially dirt and grime which
constitute the fall-out from many overhead structures)
The Department of Main Roads rejected this suggestion.
The water table in the area is very close to the
surface. It says this (27):
Planning and Environment Commission. It suggested
a tunnel instead. A tunnel would certainly have
advantages visually, and in terms of noise and
pollution (and especially dirt and grime which
constitute the fall-out from many overhead structures)
The Department of Main Roads rejected this suggestion.
The water table in the area is very close to the
surface. It says this (27):
"Because of the proximity of
the Cooks
River, and the relatively large catch-
ment area extending towards Campsie on
the other side of the railway line, it
would not be practicable to create an
underpass which would not flood
frequently.
River, and the relatively large catch-
ment area extending towards Campsie on
the other side of the railway line, it
would not be practicable to create an
underpass which would not flood
frequently.
The Department of Main Roads would
regard as most unacceptable such a
feature on an Urban Arterial Road.
Not only would there be occasional
traffic disruption, but safety would
be compromised."
The embankment upon which the railway rests is
not sufficiently high to enable a tunnel to be
constructed at ground level. There would not be
sufficient clearance. We were not told the frequency
with which the area may flood. The Planning and
Environment Commission responded to the comments
from the Department of Main Roads with these words (28):
not sufficiently high to enable a tunnel to be
constructed at ground level. There would not be
sufficient clearance. We were not told the frequency
with which the area may flood. The Planning and
Environment Commission responded to the comments
from the Department of Main Roads with these words (28):
27. DMR
Submission commentary upon the Cooks
River 'cut-up', page 23.
28. PEC Submission - commentary upon the 'cut-up',
page 13.
River 'cut-up', page 23.
28. PEC Submission - commentary upon the 'cut-up',
page 13.
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"General Holmes Drive is a tunnel
under the main north-south runway..
well below the water table. The
practical problems with the tunnel
can be overcome.
Maintenance costs are high when
compared with an over-bridge. But
the environmental costs to the
community avoided by the underpass
justify the high annual costs in
the PEC’s opinion."
compared with an over-bridge. But
the environmental costs to the
community avoided by the underpass
justify the high annual costs in
the PEC’s opinion."
We agree. The feasibility of a tunnel should be
further investigated. It is visually less offensive,
it would create less noise, and it would not rob
people of their sunlight and privacy.
further investigated. It is visually less offensive,
it would create less noise, and it would not rob
people of their sunlight and privacy.
The level of noise from the Cooks River route
emerges from the following paragraph (29):
emerges from the following paragraph (29):
"A calculation was made of
noise levels
in the Cooks River Valley due to the
presence of the Cooks River Road. The
results of this calculation showed that
uncomfortably high levels would probably
be experienced by residents within 15
to 80 m of the traffic flow.”
in the Cooks River Valley due to the
presence of the Cooks River Road. The
results of this calculation showed that
uncomfortably high levels would probably
be experienced by residents within 15
to 80 m of the traffic flow.”
Is the suffering of the residents in the Cooks River
Valley matched by a benefit to other areas, where
traffic flows are reduced? It is unlikely that the
reduction in traffic elsewhere in the network,
brought about by the presence of the Cooks River
route, would cause appreciable differences in
noise levels. The difference in traffic numbers
must be fairly dramatic before there is a perceptible
change in noise levels. Some areas, no doubt, would
benefit. The benefits in most cases would hardly be
noticed. It would certainty not compensate for the
noise experienced by the valley itself.
Valley matched by a benefit to other areas, where
traffic flows are reduced? It is unlikely that the
reduction in traffic elsewhere in the network,
brought about by the presence of the Cooks River
route, would cause appreciable differences in
noise levels. The difference in traffic numbers
must be fairly dramatic before there is a perceptible
change in noise levels. Some areas, no doubt, would
benefit. The benefits in most cases would hardly be
noticed. It would certainty not compensate for the
noise experienced by the valley itself.
A suggestion was made by the Planning and Environment
Commission that earth berms (or some appropriate
Commission that earth berms (or some appropriate
29. Submission
S.K/C 192 The Cooks River Valley
Association, Attachment ‘Noise and Air Pollu-
tion Report', Dr. Mudford, page 39.
Association, Attachment ‘Noise and Air Pollu-
tion Report', Dr. Mudford, page 39.
-391-
noise barrier) should be constructed in various
locations where noise is a problem. It recognised
the need for consultation. It said this (30):
"The erection of barriers,
while it
would reduce noise problems, would
at the same time block views of the
river from houses adjoining the
southern side of the proposed road.
It is suggested that, if the road was
built, the opinion of residents should
be sought, as to whether or not such
barriers should be constructed."
would reduce noise problems, would
at the same time block views of the
river from houses adjoining the
southern side of the proposed road.
It is suggested that, if the road was
built, the opinion of residents should
be sought, as to whether or not such
barriers should be constructed."
Again we agree. The concept of equity requires that
the local community, which may be disadvantaged by a
road, should be consulted with a view to minimising
the disadvantage. That minimisation may involve
the construction of earth berms or even the insula-
tion of homes.
Noise insulation is provided as a matter of course
in the United Kingdom, the United States, much of
Europe and Japan. It is not yet available in New
South Wales. A start should be made. Should the
noise experienced along the Cooks River route (if
it were constructed) be unacceptable, noise insula-
tion or noise barriers should be installed.
in the United Kingdom, the United States, much of
Europe and Japan. It is not yet available in New
South Wales. A start should be made. Should the
noise experienced along the Cooks River route (if
it were constructed) be unacceptable, noise insula-
tion or noise barriers should be installed.
It should not be thought that this small step will
open the flood-gates. The installation of noise
barriers will not create an entitlement elsewhere
in the Sydney Metropolitan Area, where noise levels
exceed an acceptable level. In the legislation in
the United Kingdom, and elsewhere throughout the
world, a commencing date for the benefit was
nominated. Any public work commenced after that
date, which created unacceptable noise (as defined
by the legislation), carried with it a right to
compensation by way of noise barriers or insulation.
It is commonplace in social welfare legislation to
nominate a commencing date. In the nature of things
open the flood-gates. The installation of noise
barriers will not create an entitlement elsewhere
in the Sydney Metropolitan Area, where noise levels
exceed an acceptable level. In the legislation in
the United Kingdom, and elsewhere throughout the
world, a commencing date for the benefit was
nominated. Any public work commenced after that
date, which created unacceptable noise (as defined
by the legislation), carried with it a right to
compensation by way of noise barriers or insulation.
It is commonplace in social welfare legislation to
nominate a commencing date. In the nature of things
30. PEC Submission
S.K/C 947 July 1979, page 17.
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the commencing date must be arbitrary. It is
recognised that Government finances are not unlimited
It is better that an injustice, which is perceived,
is corrected for the future, than not addressed at
all.
In the broader context of regional (as opposed to
local) noise, the option is likely to be rather
better, in our judgement, than the South-Western
Option. The Cooks River Option is less likely to
encourage traffic, encourage long journeys, and
encourage people to desert public transport, than
the South-Western Option. Both options, however,
will tend to generate more car travel (and therefore
more noise) than if nothing were built at all.
local) noise, the option is likely to be rather
better, in our judgement, than the South-Western
Option. The Cooks River Option is less likely to
encourage traffic, encourage long journeys, and
encourage people to desert public transport, than
the South-Western Option. Both options, however,
will tend to generate more car travel (and therefore
more noise) than if nothing were built at all.
5.2 Air Pollution
The same factors which operate to disadvantage the
Cooks River Valley in the case of noise, also
influence air pollution. The flatness of the valley,
the proximity of the homes to the carriageway, and
the dramatic transformation which can be expected,
will all impose severe hardship upon the residents
who line the route.
There are other climatic features of the Cooks River
Valley which may further exacerbate the effects of
air pollution. We have already drawn attention to
the submission by the Community Resources Centre
at Bardwell Park (31). The Centre said (32):
Valley which may further exacerbate the effects of
air pollution. We have already drawn attention to
the submission by the Community Resources Centre
at Bardwell Park (31). The Centre said (32):
"On calm days, the smog will
build
up in the valley, increasing asthma
attacks and respiratory ailments."
up in the valley, increasing asthma
attacks and respiratory ailments."
Corroboration for this claim emerged from the
evidence of Mrs. Kortvelyesy (Earlwood Branch of
the Australian Labor Party). She said (32a):
evidence of Mrs. Kortvelyesy (Earlwood Branch of
the Australian Labor Party). She said (32a):
31. See page 305.
32. Community Resources Centre, Submission S.K/C 950.
32a. Transcript 5/10/79, page 30 (Earlwood ALP).
32. Community Resources Centre, Submission S.K/C 950.
32a. Transcript 5/10/79, page 30 (Earlwood ALP).
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"KORTVELYESY: Further, a local medical
pratitioner recently told my
colleague, Barbara O'Rourke, that in
the past, on days when there was a
temperature inversion, she and her
husband could be certain that they
would spend a long and arduous night
answering calls throughout the valley
(the Cooks River Valley) particularly
along Riverview Road, from patients
with asthma attacks. Since the advent
of drugs, such as Intal, which asthma
sufferers administer themselves, the
demand for this service has reduced,
but not the incidence of requiring
relief from symptoms. So possibly
remedies are required and the financial
costs to the individual, directly
attributable to air pollution, is a
further burden for residents."
Much of the open space which remains after the
construction of the route is narrow. Its proximity
to the route will make it less than appealing.
What little appeal it has will be further eroded
by the invasion of noise and fumes.
construction of the route is narrow. Its proximity
to the route will make it less than appealing.
What little appeal it has will be further eroded
by the invasion of noise and fumes.
In the broader regional context, the Cooks River
route (like the South-Western Option) would make
car travel and longer journeys more attractive.
It will therefore not aid the stated objective of
'improving air quality'.
route (like the South-Western Option) would make
car travel and longer journeys more attractive.
It will therefore not aid the stated objective of
'improving air quality'.
5.3 Ecological Consequences
The Joint Study Report makes the following comment,
which is probably accurate (33):
"The major ecological impacts
have
already occurred in the Cooks River
Valley catchment. The additional
ecological consequences of this
option would be minimal and limited
to short term effects at river and
creek crossings and near the river-
bank. Detailed landscape design
could overcome these problems."
already occurred in the Cooks River
Valley catchment. The additional
ecological consequences of this
option would be minimal and limited
to short term effects at river and
creek crossings and near the river-
bank. Detailed landscape design
could overcome these problems."
33. Joint
Study Report, page 31.
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The Planning and Environment Commission have
emphasised the need for a landscape plan. It
said this (34):
emphasised the need for a landscape plan. It
said this (34):
"Whether or not a road is
constructed,
a comprehensive landscape plan is
needed for the Cooks River Valley.
Considerable work has already been
done. The Cooks River Environment
Survey and Landscape Design, published
in 1976 by the Total Environment
Centre, suggested a possible approach,
and councils along the river have
prepared plans for individual parks.
The Cooks River Advisory Committee,
comprising representatives of State
Government departments and local
councils, has been established to
co-ordinate improvement work.”
a comprehensive landscape plan is
needed for the Cooks River Valley.
Considerable work has already been
done. The Cooks River Environment
Survey and Landscape Design, published
in 1976 by the Total Environment
Centre, suggested a possible approach,
and councils along the river have
prepared plans for individual parks.
The Cooks River Advisory Committee,
comprising representatives of State
Government departments and local
councils, has been established to
co-ordinate improvement work.”
The Department of Main Roads is willing to assume
responsibility for landscaping the area disturbed
by the roadworks. That is not good enough, The
local community, which must suffer the presence of
the road, is surely entitled (as a matter of equity;
to have the remainder of the valley (including the
river itself) landscaped. Responsibility should
not cease at the edge of the area disturbed for the
purposes of making the road. The Planning and
Environment Commission and local councils, as well
as other community bodies, should be involved.
responsibility for landscaping the area disturbed
by the roadworks. That is not good enough, The
local community, which must suffer the presence of
the road, is surely entitled (as a matter of equity;
to have the remainder of the valley (including the
river itself) landscaped. Responsibility should
not cease at the edge of the area disturbed for the
purposes of making the road. The Planning and
Environment Commission and local councils, as well
as other community bodies, should be involved.
5.4 Visual Intrusion
The Cooks River Valley is uneven in quality. In
some places (between Hume Highway and Coronation
Parade) it is fairly desolate. The trickle of
water in the bottom of a stormwater channel can
hardly be dignified by the word 'river’. The area
has been allowed to lie fallow because of the road
corridor.
some places (between Hume Highway and Coronation
Parade) it is fairly desolate. The trickle of
water in the bottom of a stormwater channel can
hardly be dignified by the word 'river’. The area
has been allowed to lie fallow because of the road
corridor.
In other areas the valley has enormous attraction.
In the Undercliffe area, and at Beaman park,
In the Undercliffe area, and at Beaman park,
34. PEC
Submission S.K/C 947 July, 1979, page 13.
-395-
one can begin to appreciate the enormous potential
the valley has as a recreational resource. Its
continuity, and its tranquility, are both important
features.
We have repeatedly emphasised that the strip of
land reserved for the route is fairly narrow. The
Planning and Environment Commission say this (35):
land reserved for the route is fairly narrow. The
Planning and Environment Commission say this (35):
"A decision to construct a
road along
the valley would obviously introduce
a major new landscape element, and one
which could easily overwhelm the visual
character of the valley unless every
effort was made to reduce the scale
and prominence of the road."
the valley would obviously introduce
a major new landscape element, and one
which could easily overwhelm the visual
character of the valley unless every
effort was made to reduce the scale
and prominence of the road."
We do not doubt that every effort would be made
to sensitively mould the road to the landscape.
However, we are left with the impression that
whatever steps were taken (and they certainly
should be taken) the road would visually overwhelm
the landscape. The tranquility would be lost. One
bank could never be much more than a strip of green
and the road. A strip of grass adjacent to the
road only faintly resembles the parkland which this
area could become.
to sensitively mould the road to the landscape.
However, we are left with the impression that
whatever steps were taken (and they certainly
should be taken) the road would visually overwhelm
the landscape. The tranquility would be lost. One
bank could never be much more than a strip of green
and the road. A strip of grass adjacent to the
road only faintly resembles the parkland which this
area could become.
The Joint Study Report, it might be noted,
characterised “9 km of the landscape (in the Cooks
River Valley)..to be of high quality" (36).
characterised “9 km of the landscape (in the Cooks
River Valley)..to be of high quality" (36).
5.5 Loss of Open Space
The attitude of the National Trust of Australia
emerges from the following passage, taken from
the Joint Study Report (37):
"The National Trust of
Australia
commented that this route would intrude
into a significant amount of open
space. The Trust considered it
remarkable that, it is still possible
to walk along Cooks River from its
mouth to Tasker Park, Canterbury."
(emphasis added)
commented that this route would intrude
into a significant amount of open
space. The Trust considered it
remarkable that, it is still possible
to walk along Cooks River from its
mouth to Tasker Park, Canterbury."
(emphasis added)
35. PEC Submission
July 1979, page 14.
36. Joint Study Report, page 31.
37. Joint Study Report, page 30.
36. Joint Study Report, page 31.
37. Joint Study Report, page 30.
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And so it is. Part of the enormous potential of
the Cooks River Valley is its continuity.
the Cooks River Valley is its continuity.
The loss to the people of Canterbury and
Marrickville is far greater than the statistics
would suggest. The statistics compare very
favourably, in fact, with the South-Western Option.
The relativities are:
Marrickville is far greater than the statistics
would suggest. The statistics compare very
favourably, in fact, with the South-Western Option.
The relativities are:
- 6.6 ha taken by the Cooks River
Option (minimum property effect)
- 4 ha for the Cooks River Option
(maximum open space)
- 36 ha taken by the South-Western
Option.
What is at stake is the potential to develop both
sides of the valley into a park which is peaceful,
a refuge from suburbia, and a place for recreation
and contemplation. The road will not only transform
one side of the river. It will transform the valley.
It would introduce noise, and replace trees and
greenery with bitumen.
sides of the valley into a park which is peaceful,
a refuge from suburbia, and a place for recreation
and contemplation. The road will not only transform
one side of the river. It will transform the valley.
It would introduce noise, and replace trees and
greenery with bitumen.
In 1975 a Joint Study was completed by the
Commonwealth Bureau of Roads and the Total
Environment Centre. The open space areas of
Sydney were surveyed. A supplement to that report
appeared in 1976. The factors affecting the demand
for open space were identified. The factors included:
Commonwealth Bureau of Roads and the Total
Environment Centre. The open space areas of
Sydney were surveyed. A supplement to that report
appeared in 1976. The factors affecting the demand
for open space were identified. The factors included:
- the proportion of local population
living in rented accommodation (38) - the proportion who are flat dwellers (38)
the proportion who had no car (38) - the open space within the municipality
per thousand head of population - the passive open space per thousand
head of population
38. The
more flat dwellers, persons who rent their
home and persons without a car, the lower the
rating.
home and persons without a car, the lower the
rating.
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The municipalities on either side of the Cooks
River Option are amongst the most impoverished in
Sydney. They can ill afford to lose a blade of
grass, let alone a valley with vast potential.
The poverty of these suburbs is accentuated by the
fact that they are clustered around each other.
They cannot seek out plentiful open space in an
adjacent area. The poverty is shared. The ranking
of suburbs, whose residents may use the Cooks River
Valley if it were developed to its potential,
emerges from the following figures:
fact that they are clustered around each other.
They cannot seek out plentiful open space in an
adjacent area. The poverty is shared. The ranking
of suburbs, whose residents may use the Cooks River
Valley if it were developed to its potential,
emerges from the following figures:
- In terms of rented accommodation
the suburbs are ranked as follows:
- 39th out of 40: South Sydney
- 35th out of 40: Marrickville
- 33rd our of 40: Ashfield
- 27th out of 40: Burwood
- 26th out of 40: Botany
- 25th out of 40: Canterbury
- In respect of the number of flat dwellers
the ranking was:
- 34th out of 40: Botany
- 33rd out of 40: Ashfield
- 30th out of 40: Canterbury
- 29th out of 40: Marrickville
- 28th out of 40: South Sydney
- 27th out of 40: Burwood
- 25th out of 40: Strathfield
- The ranking in respect of dwellings
without cars was as follows:
- 29th out of 40: South Sydney
- 38th out of 40: Marrickville
- 34th out of 40: Ashfield
- 33rd out of 40: Burwood
- 28th out of 40: Botany
- 24th out of 40: Canterbury
- 23rd out of 40: Rockdale
- 22nd out of 40: Strathfield
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- The most significant figure was the
open space per 1,000 head of population:
- 39th out of 40: South Sydney
- 38th out of 40: Ashfield
- 37th out of 40: Burwood
- 36th out of 40: Marrickville
- 30th out of 40: Canterbury
- 29th out of 40: Botany
- In respect of the passive open space
per 1,000 population, the same faces
appear:
- 39th out of 40: South Sydney
- 38th out of 40: Marrickville
- 37th out of 40: Burwood
- 35th out of 40: Ashfield
- 32nd out of 40: Botany
- 30th out of 40: Canterbury
If, contrary to our recommendation, the decision
is taken to construct the Cooks River Option, we
recommend the alignment should follow the maximum
open space sub-option, except in the vicinity of
the Mildura Reserve. That park can best be
preserved by adopting the alignment of the minimum
property effect option.
is taken to construct the Cooks River Option, we
recommend the alignment should follow the maximum
open space sub-option, except in the vicinity of
the Mildura Reserve. That park can best be
preserved by adopting the alignment of the minimum
property effect option.
Further, we accept the desirability of the concept
of 'compensatory open space’ strenuously advocated
by the Crown Lands Department (39) and the Cooks
River Advisory Committee (40).
of 'compensatory open space’ strenuously advocated
by the Crown Lands Department (39) and the Cooks
River Advisory Committee (40).
5.6 The Environmental Consequences of the Cooks River
Option
Option
What should be done? We return to the principles
we outlined in the beginning of this Report (41)
which we also applied to the South-Western Option.
we outlined in the beginning of this Report (41)
which we also applied to the South-Western Option.
39. Submission S.K/C 751 Crown Lands Department
and see transcript
40. Submission S.K/C 967 Cooks River Advisory
Committee.
41. See page 23.
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The environmental and social sacrifice occasioned
by the construction of the Cooks River Option is
enormous. The degradation of the Cooks River Valley,
which would inevitably accompany that construction,
and accompany the introduction of traffic into the
valley, will occasion a loss to municipalities which
can ill afford to pay the price. The Planning and
Environment Commission and others who advocate the
road must, in these circumstances, be in a position
to demonstrate that there is no practical
or feasible alternative.
We are not persuaded that there is no alternative.
Indeed, it seems to us that a series of smaller
projects directed at specific problems would be
far more efficient than one large project. We
repeat the important suggestions made by the Study
Group when it reviewed the very same option (42):
Indeed, it seems to us that a series of smaller
projects directed at specific problems would be
far more efficient than one large project. We
repeat the important suggestions made by the Study
Group when it reviewed the very same option (42):
"If anything, the analysis of
critical
intersections showed the need for a
large number of small, localised
improvements within, and immediately
surrounding the industrial area,
rather than a small number of large
new roads."
intersections showed the need for a
large number of small, localised
improvements within, and immediately
surrounding the industrial area,
rather than a small number of large
new roads."
The option also fails the other test. The test,
it will be remembered, was stated in these terms (43):
it will be remembered, was stated in these terms (43):
"..Where there is no prudent
or
feasible alternative, and where,
despite the best efforts of engin-
eering design, schemes still have
a damaging effect upon the community
or upon the environment, do they
demonstrate ‘high economic or
other benefits’?"
feasible alternative, and where,
despite the best efforts of engin-
eering design, schemes still have
a damaging effect upon the community
or upon the environment, do they
demonstrate ‘high economic or
other benefits’?"
The evidence is all one way. The Option failed to
demonstrate such benefits. It was characterized
by Professor Beesley as a ‘highly doubtful investment'
when measured by cost/benefit analysis. Cost/benefit
42. The
Central Industrial Area Study UTSG (now STSG)
Chapter IV, page 26.
43. See page 23.
Chapter IV, page 26.
43. See page 23.
-400-
analysis is the traditional tool by which public
investments are judged for their economic efficiency.
Mr. Peterson, from the Study Group, thought both
options (by the measure of cost/benefit analysis)
were ‘not very impressive at all'. Mr. Conroy,
from the Planning and Environment Commission,
thought the Cooks River Option may qualify for a
Commonwealth Road grant but would be 'fairly low
down in priority'.
That is not good enough. The sacrifice identified
in the course of this chapter is far too great. If
the benefits were overwhelming, the community may
have to suffer the loss which would attend the
construction of this option. In the Inquiry's
judgement the benefits are far from overwhelming.
in the course of this chapter is far too great. If
the benefits were overwhelming, the community may
have to suffer the loss which would attend the
construction of this option. In the Inquiry's
judgement the benefits are far from overwhelming.
6. THE RETENTION OF THE COOKS RIVER CORRIDOR
6.1 The Cooks River Valley Afflicted by Planning Blight
There is a striking difference between one side of
the Cooks River Valley and the other. One side (the
side of the road corridor) is afflicted by planning
blight. The other is not. One is landscaped with
trees. The other has a tree here and there, and
even some pleasant parks, but overall it is neglected.
The presence of a corridor imposes considerable
hardship upon the residents as well. It is desirable
that the corridor should be lifted if it will not be
needed.
hardship upon the residents as well. It is desirable
that the corridor should be lifted if it will not be
needed.
6.2 The Retention of the Corridor
Having come to the view that the Cooks River Option
does not adequately serve the transport needs of
the community (present and future) and would
occasion considerable environmental and social
disruption, it is with some reluctance that we
have come to the conclusion that the corridor should
e retained, at least far the time being.
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When examining the South-Western Option we recited
the arguments for and against retaining a corridor
in this area. There are two substantial arguments.
the arguments for and against retaining a corridor
in this area. There are two substantial arguments.
The first argument is that there is uncertainty
concerning the container issue. The Inquiry has
suggested a scheme. If the scheme is adopted, and
successfully deals with the environmental problems
occasioned by the transportation of containers to
the Western Suburbs, the case for releasing the
corridor is immeasurably strengthened. However,
the scheme should be seen to work. A period of
four years should demonstrate its success or failure.
concerning the container issue. The Inquiry has
suggested a scheme. If the scheme is adopted, and
successfully deals with the environmental problems
occasioned by the transportation of containers to
the Western Suburbs, the case for releasing the
corridor is immeasurably strengthened. However,
the scheme should be seen to work. A period of
four years should demonstrate its success or failure.
Secondly, the airport issue has yet to be resolved.
If a second airport is constructed, and is located
in the Western Suburbs (or even in the South-West),
the desirability of the Cooks River Option may need
to be reconsidered. We do not wish to prejudge that
issue. It may be that its benefits would still be
unimpressive, even with airport traffic. There may
be other alternatives. However, the uncertainty
surrounding this issue does persuade us that the
corridor should be retained for the time being. The
issue should also be resolved within the space of
four years.
If a second airport is constructed, and is located
in the Western Suburbs (or even in the South-West),
the desirability of the Cooks River Option may need
to be reconsidered. We do not wish to prejudge that
issue. It may be that its benefits would still be
unimpressive, even with airport traffic. There may
be other alternatives. However, the uncertainty
surrounding this issue does persuade us that the
corridor should be retained for the time being. The
issue should also be resolved within the space of
four years.
7. RECOMMENDATIONS
The Inquiry makes the following recommendations:
1. THE COOKS RIVER OPTION
The Cooks River Option was put forward as a link
between the Central Industrial Area and the Western
or South-Western Regions of Sydney.
RECOMMENDATION: The Inquiry recommends
against the adoption of
this option.
against the adoption of
this option.
2. ROADWORKS WITHIN THE STUDY AREA
The evidence identified a number of specific problems
created by traffic in the Study Area. The Inquiry
has taken the view that the options are rather less
efficient in dealing with those problems than
measures which are tailored to the needs of the
particular location.
RECOMMENDATION: We recommend that rather
than concentrate a huge
sum on a large project
within the Study Area, the
following strategy is more
likely to yield far more
striking and immediate
benefits :
than concentrate a huge
sum on a large project
within the Study Area, the
following strategy is more
likely to yield far more
striking and immediate
benefits :
- spot improvements at specific locations
identified as suffering congestion or
loss of amenity (including intersection
widening, adding right-hand turning bays,
road widening and reconstructing shopping
centres away from the main road)
- a concerted effort should be made to
ensure that a road hierarchy can be
introduced at the same time as SCAT
(Co-ordinated signals) comes into
operation
- a network of truck routes should be
developed as part of that hierarchy,
after consultation with local councils
and trucking bodies.
3. IF THE COOKS RIVER OPTION IS ADOPTED
It is appropriate that we consider a number of
alternatives:
RECOMMENDATION: If, contrary to our
primary
recommendation, the Government
were to decide to construct
the Cooks River Option, we
would suggest the road should
include the following
features:
recommendation, the Government
were to decide to construct
the Cooks River Option, we
would suggest the road should
include the following
features:
- the road should not include the section
between General Holmes Drive, Kyeemagh
and the Wolli Creek. An alignment to
the North of the Airport, providing
access to the Port, is preferable.
- the route should continue along the
corridor reservation beyond the
junction of Punchbowl Road and
Coronation Parade, Strathfield to
the Hume Highway.
- the route should be constructed as
a four-lane arterial road from
beginning to end.
- there are marked advantages in
proceeding by way of a tunnel under
the railway line at Campsie rather
than by an overpass. The cost and
feasibility of a tunnel should be
further investigated.
- the maximum open space sub-option is
preferable except in the vicinity of
Mildura Reserve (Campsie) where the
minimum property effect alignment is
preferred.
- the concept of compensatory open space
(to compensate the community for the
open space taken by the road) should
be adopted in respect of the Cooks
River Option.
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- it is desirable that houses in the
Belfield and Campsie area, between
the carriageway and the river, should
be acquired over a period and converted
to open space.
- there should be a landscape plan
covering the whole of the foreshore
of the Cooks River. It should not
simply relate to that part which may
be disturbed when constructing the
road. The plan should be the joint
responsibility of the Department
of Main Roads, the Planning and
Environment Commission, Local Councils,
and interested community bodies and
groups.
- the issue of equity has never been
addressed. It should be. It requires
consideration of any particular hardship
occasioned to residents through the
completion of the road. A number of
measures may be necessary including:
- earthberms
- noise insulation
- fencing of open space to
prevent accidents- restoration of the natural bank
of the river (or somethig better
than sheet piling or concrete
lining)- bridges and underpasses and
pedestrian crossings- the conversion of remnant areas
of open space to parks and
gardens
4. THE RETENTION OF THE COOKS RIVER CORRIDOR
The enormous potential of the Cooks River Valley
has never been realised because of the corridor.
has never been realised because of the corridor.
RECOMMENDATION:
1. The Inquiry recommends the
retention of the corridor
for a period of 4 years.2. It should be released after
that time if the scheme suggested
by the Inquiry for the transporta-
tion of containers is adopted by
the Government, and is seen to work,
and if the Airport issue is resolved
in such a way that the case for the
road is made no more compelling.3. In the meantime it is imperative
that work begin to develop the valley.
Money has already been made available
by Government for this purpose.
Consideration should be given to
allotting further money, having regard
to the enormous potential of the Valley,
and the poverty of surrounding areas
in open space.
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