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VII THE BEXLEY ROAD OPTION
1. THE NATURE OF THE OPTION
1.1 A Low Cost Option
The Bexley Road Option was selected as a low cost
option. Certainly it is less expensive than the
other major options (the Cooks River Option and
the South-Western Option). If constructed it would
be approximately one-third of their cost.
option. Certainly it is less expensive than the
other major options (the Cooks River Option and
the South-Western Option). If constructed it would
be approximately one-third of their cost.
Those assembling the options obviously thought it
desirable that there should be a range of alterna-
tives from which a choice could be made. The
approach is to be commended. However, the range
ought to have extended beyond road options as such.
It ought to have included a number of small projects
designed to tackle specific problems in particular
areas. Would a number of specific improvements have
been more effective than one large project? Could
the traffic problems be solved by public transport
or land-use alternatives?
desirable that there should be a range of alterna-
tives from which a choice could be made. The
approach is to be commended. However, the range
ought to have extended beyond road options as such.
It ought to have included a number of small projects
designed to tackle specific problems in particular
areas. Would a number of specific improvements have
been more effective than one large project? Could
the traffic problems be solved by public transport
or land-use alternatives?
1.2 The Bexley Road Option Described
The Bexley Road Option (57) uses the existing road
network (Bexley Road), and tacks on a by-pass at
either end. The Option can be broken down into
three elements:
network (Bexley Road), and tacks on a by-pass at
either end. The Option can be broken down into
three elements:
- First, a by-pass proposal at the
Rockdale end. There were two sub-
options proposed:
- the Bestic Street/Villiers
Street sub-option
- the Bay Street/Harrow Road
sub-option
- The traffic would then be channelled
into Bexley Road as it passes through
the Bardwell Valley and the Wolli Creek
Valley (Bexley North Shopping Centre)
until shortly before Canterbury Road.
77. See
Figure 19, page 153.
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- The option would then deviate along
Viking Street, Campsie. Via a
series of back streets (which would
be upgraded) it would make its way
to the Cooks River, which it would
then follow for a short distance
until Coronation Parade, Strathfield.
1.3 The Issues to be Considered
We will not mince words. We find the Bexley Option
quite unacceptable. It will achieve little in
transportation terms. What it does achieve is
undesirable, and the human cost is disproportionately
high. We seriously wonder whether the corridor
reservations should be retained. For reasons which
will emerge in the course of this exposition we
have drawn back from the brink of recommending
their release. We will nonetheless urge the
appropriate bodies to reconsider the utility of
retaining the corridor reservations.
To appreciate why we take this view it is necessary
consider the following:
consider the following:
- The nature of Bexley Road
- The composition of traffic
which may be encouraged to
use Bexley Road if it were
upgraded
- The effect upon the rest of
the network of that upgrading.
- The social and environmental
costs
Our analysis will concentrate on the option taken as
a whole. Inevitably it is a commentary upon the by-
pass proposals at either end. We will conclude our
analysis with an examination of the corridor issue.
a whole. Inevitably it is a commentary upon the by-
pass proposals at either end. We will conclude our
analysis with an examination of the corridor issue.
2. THE TRANSPORTATION IMPLICATIONS OF THE BEXLEY ROAD OPTION
2.1 Network Congestion
It will be remembered from our exposition in
Chapter II (78) that there are two issues:
- Where is there a shortfall between
supply (the road space available)
and demand (the level of traffic
expected) such that congestion is
already being experienced or can
be anticipated?
- Is it desirable that congestion
should be eliminated? Will its
elimination simply encourage
further traffic to travel in a
direction in which it ought to
be discouraged?
The second question does not arise. It is plain
that the Bexley Road Option does not materially
reduce congestion. It does not tackle ‘the sore
spots’. Indeed, it materially aggravates one of
the worst areas, the Bexley Shopping Centre, in
which disamenity from traffic is already evident.
that the Bexley Road Option does not materially
reduce congestion. It does not tackle ‘the sore
spots’. Indeed, it materially aggravates one of
the worst areas, the Bexley Shopping Centre, in
which disamenity from traffic is already evident.
2.2 The Nature of Bexley Road
Leaving aside for the moment the by-pass proposals
and concentrating upon Bexley Road, it is manifestly
unsuitable as a major traffic artery. Its unsuita-
bility can be traced to three things. First, the
topography is more appropriate, in the words of one
witness, to a ‘roller coaster’ than a major traffic
artery. It is a series of hills and vales. The
hills are quite steep and the valleys shallow. An
appreciation of the gradients emerges from the
following passage (79):
78. Page 39
and see also Volume II Transport
Criteria.
79. PEC Submission S.K/C 947 letter 19/3/80,
‘Planning for Cyclists', page 12.
79. PEC Submission S.K/C 947 letter 19/3/80,
‘Planning for Cyclists', page 12.
"The section of Bexley Road
which
crosses the Bardwell Valley has a
grade of 10% on the south side and
a grade of 15% on the north side.
Wolli Creek Valley is not quite so
steep sided where Bexley Road crosses
it. The maximum gradient is between
5 and 6% on both sides of the valley.
The rest of the route would be
comparatively flat."
crosses the Bardwell Valley has a
grade of 10% on the south side and
a grade of 15% on the north side.
Wolli Creek Valley is not quite so
steep sided where Bexley Road crosses
it. The maximum gradient is between
5 and 6% on both sides of the valley.
The rest of the route would be
comparatively flat."
The problems which this topography create for heavy
transport emerge graphically from the following
submission (made by residents of Bexley Road) (80):
"Numerous vehicles have caused
damage
to our and neighbouring fences,
contributed to by excessive speed
and descent towards the bridge, the
nature of which has caused the
Transport Department to affix a
notice at the bus stop commencing
the decline, 'all buses to engage
third gear downhill'."
to our and neighbouring fences,
contributed to by excessive speed
and descent towards the bridge, the
nature of which has caused the
Transport Department to affix a
notice at the bus stop commencing
the decline, 'all buses to engage
third gear downhill'."
Later in the same submission the following is said:
"On the other side of the road the
steep rise of a grade one in twelve
presents such problems that it is a
well known fact that many drivers
of transports heavily loaded
deliberately essay the assent if
they are at all in doubt of the
ability of their engines to cope
with the task of completing their
journey. In light of the sharp road
bend past the tennis courts, vehicles
are able to muster a certain speed to
get a run at the hill.. it is common
for heavy vehicles which fail to
complete the climb, and are stranded
half way uphill, to attempt backing
downhill to escape, creating untoward
obstructions which fuel the already
chaotic conditions."
The area has a bad accident history. We will refer
to it shortly.
Secondly, the alignment of the road itself is poor.
It is described in the Joint Study Report in these
80. S .K/C
577 Mr. and Mr S. Bingham.
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terms (81):
"The geometric standard (of
the
Bexley Road Option) would be
consistent with the standard of
the existing Bexley Road, which
is, along with many other existing
urban roads, below recommended
NAASRA standards.. Bexley Road has
curves with radii as low as 60 m
and grades up to 8%. On improved
sections the minimum radius would
be 85 m. Curves of these radii are
below the NAASRA standard for even
60 km/h design speed and it is there-
fore doubtful whether they would
provide a reasonable level of safety
for the traffic conditions likely
to prevail."
Bexley Road Option) would be
consistent with the standard of
the existing Bexley Road, which
is, along with many other existing
urban roads, below recommended
NAASRA standards.. Bexley Road has
curves with radii as low as 60 m
and grades up to 8%. On improved
sections the minimum radius would
be 85 m. Curves of these radii are
below the NAASRA standard for even
60 km/h design speed and it is there-
fore doubtful whether they would
provide a reasonable level of safety
for the traffic conditions likely
to prevail."
Bexley Road is a four-lane road. It is 12.8 metres
wide between curbs with 3.7 metre footways. It has
no median. It is not sufficiently wide to enable a
median to be added. It has almost unlimited
vehicular and pedestrian access.
wide between curbs with 3.7 metre footways. It has
no median. It is not sufficiently wide to enable a
median to be added. It has almost unlimited
vehicular and pedestrian access.
Thirdly, the land use on either side of Bexley Road
is residential, with a heavy sprinkling of schools.
Many are infant and primary schools.
is residential, with a heavy sprinkling of schools.
Many are infant and primary schools.
It sometimes happens that residential and school
activities are concentrated upon major arterial
roads. Inevitably, in that circumstance, they are
subjected to the effects of a heavy traffic stream.
These effects are the product of planning decisions
made before the post-war avalanche of motor vehicle
travel. We now have the advantage of hindsight.
Today we would not consciously subject these land-
uses to traffic, unless there were no feasible
alternative, and unless there were substantial
transport benefits to be derived.
activities are concentrated upon major arterial
roads. Inevitably, in that circumstance, they are
subjected to the effects of a heavy traffic stream.
These effects are the product of planning decisions
made before the post-war avalanche of motor vehicle
travel. We now have the advantage of hindsight.
Today we would not consciously subject these land-
uses to traffic, unless there were no feasible
alternative, and unless there were substantial
transport benefits to be derived.
Submissions protesting against the Bexley Road
Option included:
Option included:
81. Joint
Study Report, page 20.
- St. Josephs Primary School,
Rockdale (S.K/C 281)
- Athelstane Public School,
Arncliffe (S.K/C 111)
- Bexley North Parents and
Citizens’ Association (S.K/C 1233)
- The Clempton Park Parents and
Citizens’ Association (S.K/C 200)
- Principal (Mr. A. J. Smith) of
the Harcourt Public School
- The Infants’ Mistress (Mrs. M.
Davitt) of the Harcourt Public
School
- Various teachers from the Harcourt
Public School as well as the Parents
and Citizens' Association.
The Department of Education made a submission to the
Inquiry (82). It opposed the Bexley Road Option.
It said this:
Inquiry (82). It opposed the Bexley Road Option.
It said this:
"The proposed route known as
the
‘Bexley Road alternative' is not
acceptable to the Department for
the following reasons -
‘Bexley Road alternative' is not
acceptable to the Department for
the following reasons -
1. The increase in traffic will
endanger approximately 50% of the
school population who cross the
proposed route to and from schools
each day. Any alteration to the
existing feeder boundaries is not
practical.
endanger approximately 50% of the
school population who cross the
proposed route to and from schools
each day. Any alteration to the
existing feeder boundaries is not
practical.
2. The noise generated by heavy
vehicles is already causing concern
and any increase in traffic will
exacerbate the problem particularly
at Bexley and Clempton Park School.
vehicles is already causing concern
and any increase in traffic will
exacerbate the problem particularly
at Bexley and Clempton Park School.
3. Some of the existing school
buildings are oriented to the present
road system, and to alter or re-locate
the access points would seriously
affect the traffic movement within
the school site and create management
and supervision problems."
buildings are oriented to the present
road system, and to alter or re-locate
the access points would seriously
affect the traffic movement within
the school site and create management
and supervision problems."
82. S.K/C 356
dated 10/8/79.
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The Department provided attendance figures. They
are as follows:
"Bexley Primary 928 Pupils 3.056 ha
Bexley North Primary 212 Pupils 2.03 ha
Clempton Park Primary 671 Pupils 2.68 ha
Harcourt Primary 671 Pupils 2.318 ha."
2.3 The Increase in Traffic on Bexley Road
According to the transport model, the traffic (in 1991)
on Bexley Road would significantly increase if
this option were implemented. The figures are (83):
- with the Bay Street/Harrow Road
sub-option the increase in Bexley
Road would be:
- 20% between Forest Road and
Bexley North- 58% between Bexley North and
Canterbury Road
- with the Bestic Street/Villiers
Street sub-option the correspon-
ding increases in Bexley Road
would be:
- a 36% increase between Forest
Road and Bexley North- a 48% increase between Bexley
North and Canterbury Road
The traffic passing through the Bexley North Shopping
Centre would increase as follows (83):
Centre would increase as follows (83):
- by 58% under the Bay Street/
Harrow Road Alternative
- by 78% under the Bestic Street/
Villiers Street Alternative
83. DMR
Submission S.K/C 340 ‘Transport and Economic
Analysis’, pages 20 and 22.
Analysis’, pages 20 and 22.
-183-
A proportion of this increase in traffic would be
trucks. Our description of Bexley Road makes it
plain that it is unsuitable as a major traffic
artery for trucks. Trucks will inevitably use it.
It is part of the secondary road network. The issue
is whether they should be encouraged to use it by
upgrading Bexley Road and by the addition of by-
passes improving the level of accessibility. It is
the Inquiry's clear view that they should not.
The Department of Main Roads takes the same view (84).
It maintains, nonetheless, that the by-pass proposal
should be preserved for later use. That is a
separate issue which we will address below.
should be preserved for later use. That is a
separate issue which we will address below.
2.4 The Effect Upon Congestion Throughout the Study Area
Although the increase in traffic in Bexley Road is
substantial, the effect upon the rest of the Study
Area is slight. The Urban Transport Study Group
(now STSG) described the effects in these terms in
‘The Central Industrial Area Study' (85):
"..Upgrading of the route
would not
cause substantial changes in exis-
ting traffic patterns and would
not reduce traffic in existing
problem areas such as Marrickville."
cause substantial changes in exis-
ting traffic patterns and would
not reduce traffic in existing
problem areas such as Marrickville."
Describing the Bay Street/Harrow Road sub-option the
Department of Main Roads say this (86):
Department of Main Roads say this (86):
"Between the Hume Highway and
Wolli
Creek the changes are almost exactly
the same as for the Bestic Street
option with four minor routes between
Ashbury and Belmore being relieved.
Between Wolli Creek and Botany Bay,
there are few significant improvements
to traffic levels."
Creek the changes are almost exactly
the same as for the Bestic Street
option with four minor routes between
Ashbury and Belmore being relieved.
Between Wolli Creek and Botany Bay,
there are few significant improvements
to traffic levels."
Widespread congestion would remain. The Department says (86):
84. See
transcript 14/7/80 page 37 (Mr. Bunton).
85. Cited in the URTAC submission S.K/C 1019 page 23.
86. DMR Submission Transport and Economic Analysis
page 22.
85. Cited in the URTAC submission S.K/C 1019 page 23.
86. DMR Submission Transport and Economic Analysis
page 22.
"Congested travelling
conditions
could be expected along lengths
of Punchbowl Road, Canterbury
Road, King Georges Road, Stoney
Creek Road, Forest Road, Marsh
Street and General Holmes Drive.”
could be expected along lengths
of Punchbowl Road, Canterbury
Road, King Georges Road, Stoney
Creek Road, Forest Road, Marsh
Street and General Holmes Drive.”
We identified (in ChapterIII of this Report) the
problem areas within the Sydney Metropolitan Area.
It is instructive to examine the extent to which
the Bexley Road Option draws traffic away from areas
which are overworked, and gives relief to the ‘sore
spots’. Two illustrations will suffice. The Joint
Study Report it will be remembered (87) identified
certain locations which it characterised as 'the
more critical’. There were eleven in all. The
performance of the Harrow Road sub-option can be
gauged from the following:
problem areas within the Sydney Metropolitan Area.
It is instructive to examine the extent to which
the Bexley Road Option draws traffic away from areas
which are overworked, and gives relief to the ‘sore
spots’. Two illustrations will suffice. The Joint
Study Report it will be remembered (87) identified
certain locations which it characterised as 'the
more critical’. There were eleven in all. The
performance of the Harrow Road sub-option can be
gauged from the following:
- it made no difference whatever to
eight of those locations - it made conditions worse in two
of the locations namely (88):
Rockdale-Arncliffe area
Bexley Road at Bexley (i.e.,
the Bexley Shopping Centre)
- it effected an improvement in
Beamish Street, Campsie (which
after all is the object of the
Campsie by-pass).
The Bestic Street sub-option performed somewhat
better:
better:
- the same eight locations identified
as critical were neither made worse
nor better by the option
87. Joint Study
Report pages 3 and 4 and see page
of this Report.
88. See DMR Submission Economic & Transport Analysis,
Figure 6.2.
of this Report.
88. See DMR Submission Economic & Transport Analysis,
Figure 6.2.
- traffic conditions were improved
in the remaining three locations
namely:
- the Rockdale Shopping Centre
- the Bexley Shopping Centre
- the Campsie Shopping Centre (89).
Congested locations were identified by traffic
engineers in the Transport System Management Study
to which reference has been made (90). In the
morning peak the following areas were identified as
suffering severe congestion within the Study Area:
engineers in the Transport System Management Study
to which reference has been made (90). In the
morning peak the following areas were identified as
suffering severe congestion within the Study Area:
- the junction of Forest Road,
Princes Highway, Wickham Street
and Marsh Street
- Hume Highway at Pemberton Street
- Canterbury Road in the vicinity
of Bankstown.
There were areas of moderate congestion as well:
- The Grand Parade from President
Avenue through to General Holmes
Drive and the Cooks River
- Forest Road in the Bexley
Shopping Centre
The same faces re-appear when the p.m. peak congestion
is plotted on a map (91). In the off-peak the areas
of severe congestion were:
is plotted on a map (91). In the off-peak the areas
of severe congestion were:
- Canterbury Road between the
Cooks River and Bankstown
- The Bexley Shopping Centre
89. See DMR
Submission Economic and Transport Analysis,
Figure 6.1.
90. See page 61 of this Report. (Figures 8 to 13).
91. See Figure 9.
Figure 6.1.
90. See page 61 of this Report. (Figures 8 to 13).
91. See Figure 9.
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Both sub-options terminate in the Hume Highway. Both
are expected to significantly increase congestion
in that area. Yet that is the very area, according
to this measure, which suffers severe congestion in
the a.m. peak (Figure 8) and moderate congestion in
the p.m. peak. Both routes terminate in General
Holmes Drive. Their traffic load will either join
or leave the option in an area characterised by
moderate congestion in the a.m. and p.m. peaks (see
Figures 8 and 9).
are expected to significantly increase congestion
in that area. Yet that is the very area, according
to this measure, which suffers severe congestion in
the a.m. peak (Figure 8) and moderate congestion in
the p.m. peak. Both routes terminate in General
Holmes Drive. Their traffic load will either join
or leave the option in an area characterised by
moderate congestion in the a.m. and p.m. peaks (see
Figures 8 and 9).
In the off-peak the traffic will be required to
cross Canterbury Road a short distance from the
major intersection between that road and the Bexley
Road. Co-ordination of signals may minimise the
impact. A further intersection may exacerbate the
off-peak congestion already experienced in this area.
cross Canterbury Road a short distance from the
major intersection between that road and the Bexley
Road. Co-ordination of signals may minimise the
impact. A further intersection may exacerbate the
off-peak congestion already experienced in this area.
By any measure the Harrow Road/Bay Street alternative
performs badly. It effects no significant reduction
elsewhere in the network. It does not relieve that
part of the network which is under strain. It
materially aggravates the plight of the Bexley
Shopping Centre, and even the Rockdale Shopping
Centre which it is designed to relieve.
performs badly. It effects no significant reduction
elsewhere in the network. It does not relieve that
part of the network which is under strain. It
materially aggravates the plight of the Bexley
Shopping Centre, and even the Rockdale Shopping
Centre which it is designed to relieve.
The amenity in the Bexley Shopping Centre is already
poor. It has been the subject of comment elsewhere
in this Report. The Bexley chamber of commerce said
this (92):
poor. It has been the subject of comment elsewhere
in this Report. The Bexley chamber of commerce said
this (92):
"Bexley, as you are no doubt
aware,
has enormous traffic problems at the
moment, with the heavy commercial
and industrial vehicles that pass
through the town every moment of
the day.
has enormous traffic problems at the
moment, with the heavy commercial
and industrial vehicles that pass
through the town every moment of
the day.
The noise at times is unbearable,
and you may have imagined the kind
of congestion that exists with this
kind of traffic problem."
and you may have imagined the kind
of congestion that exists with this
kind of traffic problem."
92. S.K/C
496 Bexley Chamber of Commerce.
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A shop proprietor within the Bexley Shopping Centre,
Cruisafe Enterprises Pty. Limited, also drew
attention to the noise (93):
Cruisafe Enterprises Pty. Limited, also drew
attention to the noise (93):
"I am operating a business in
Bexley Road which is within a
few metres of the junction with
Forest Road. As it is, the volume
of traffic, including heavy trucks
which use the Bexley Road, prevent
us from keeping our doors open,
since the noise created by such
traffic prevents any normal
conversation with customers, either
in person or on the telephone, from
taking place. As you may realise,
a closed door does not encourage
people to enter the shop, and an
increase in traffic congestion will
destroy any future potential in
progress."
Bexley Road which is within a
few metres of the junction with
Forest Road. As it is, the volume
of traffic, including heavy trucks
which use the Bexley Road, prevent
us from keeping our doors open,
since the noise created by such
traffic prevents any normal
conversation with customers, either
in person or on the telephone, from
taking place. As you may realise,
a closed door does not encourage
people to enter the shop, and an
increase in traffic congestion will
destroy any future potential in
progress."
The Bestic Street/Villiers Street sub-option has
the merit of withdrawing traffic from the Bexley and
Rockdale Shopping Centres. This small transport
advantage, however, is swamped by the social and
environmental disadvantages which attend that
option. They will be described below.
the merit of withdrawing traffic from the Bexley and
Rockdale Shopping Centres. This small transport
advantage, however, is swamped by the social and
environmental disadvantages which attend that
option. They will be described below.
2.5 The Land Use Implications of the Bexley Option
The Bexley option does not clear the first hurdle.
It does not materially affect congestion region-
wide. It does not address the problem areas. In
some cases, it materially aggravates the problems
which exist. It does not materially improve
accessibility between the Central Industrial Area,
the Airport and Port area and the West or South-West.
The land-use implications are minimal. Cross
regional commuting may become marginally more
attractive. We agree with the judgement of the
Traffic Authority of New South Wales when it says (94):
regional commuting may become marginally more
attractive. We agree with the judgement of the
Traffic Authority of New South Wales when it says (94):
93. S.K/C
590 Cruisafe Enterprises Pty. Limited,
Bexley Road, Bexley.
94. S.K/C 1289 Submission Traffic Authority of New
South Wales, page 3.
Bexley Road, Bexley.
94. S.K/C 1289 Submission Traffic Authority of New
South Wales, page 3.
-188-
"..The total effect of these
measures
(i.e., the Bexley Road Route) is not
of strategic significance. This
proposal will not be a sufficiently
attractive route to provide relief
from the traffic problem of the
corridor as a whole, yet it will
concentrate significant levels of
traffic onto a road with poor align-
ment, no median and almost unlimited
direct vehicular and pedestrian access."
(i.e., the Bexley Road Route) is not
of strategic significance. This
proposal will not be a sufficiently
attractive route to provide relief
from the traffic problem of the
corridor as a whole, yet it will
concentrate significant levels of
traffic onto a road with poor align-
ment, no median and almost unlimited
direct vehicular and pedestrian access."
3. THE ECONOMIC CRITERIA
3.1 Cost/Benefit Analysis
The technique of cost/benefit analysis has many
limitations (95). It is, for all that, the tradi-
tional tool by which public investments are judged.
It was the measure by which the Department of Main
Roads suggested that the economic efficiency of
the various options should be gauged (96).
Having reviewed the evidence, the Inquiry is
convinced that the costs of construction are under-
stated. In respect of the Bexley Road Option the
following adjustments should be made:
convinced that the costs of construction are under-
stated. In respect of the Bexley Road Option the
following adjustments should be made:
1. A number of businesses are affected
by the Bexley Road options. We
rather doubt that the cost estimates
include any, or any sufficient allow-
ance, for the cost of relocation and
loss of profits, both of which would be
recoverable from the Department of
Main Roads in a forced resumption (97).2. The value of properties is determined
by reference to comparable sales. That
principle was not followed when valuing
properties within the Bexley Road
corridor. The value was calculated by
95. See
Economic Criteria Volume II of this
Report,
page 260.
96. DMR Submission S.K/C 340 Transport and Economic
Analysis, page 29-37.
97. See Volume II Economic Criteria, page 303.
page 260.
96. DMR Submission S.K/C 340 Transport and Economic
Analysis, page 29-37.
97. See Volume II Economic Criteria, page 303.
-189-
reference to the value of
similar properties in the Cooks
River corridor. Such properties
are not 'comparable' (98).
similar properties in the Cooks
River corridor. Such properties
are not 'comparable' (98).
3. Open space resumed for the purposes
of a road should be valued by refer-
ence to its 'opportunity cost'. The
'opportunity cost' is determined by
asking what value the land would have
if it were made available for other
activities (such as manufacturing or
residential) (99). The principle was
not followed.
4. The construction costs are preliminary
estimates only. They do not pretend to
be otherwise. Ultimately investigations
will be undertaken by means of boreholes
to determine the suitability of the
material to carry the weight of the road
and the traffic which will use it. The
Rockdale area is difficult terrain.
Evidence before the Inquiry suggests part
of it may well be unsuitable for road
construction (100). It may have to be
replaced by suitable material. This
may add considerably to the costs. We
regard the construction cost estimates
as conservative.5. The property estimates were made as of
February, 1978. The construction esti-
mates were made 9 months later (December,
1978). The Department of Main Roads
suggests that the cost of acquiring
property should be increased by 10% to
take account of this 9 month period (1).
The property acquisition costs of the
Bexley Road option are as follows:
98. ibid., Volume
II, page 304.
99. ibid., Volume II, page 305.
100. Transcript Shopping centres Pty. Limited (south
Side Plaza) 29/10/79, page 15.
1. DMR Transcript 13/12/79, page 20.
99. ibid., Volume II, page 305.
100. Transcript Shopping centres Pty. Limited (south
Side Plaza) 29/10/79, page 15.
1. DMR Transcript 13/12/79, page 20.
- $3.17 million Bexley Road option
(via Harrow Road)- $5,09 million Bexley Road option
(via Bestic Street)
6. The Bexley Road option terminates in
Punchbowl Road at the junction of
Coronation Parade, Strathfield.
Certain roadworks are contemplated
in Coronation Parade (which would be
widened), in Hill Street, Strathfield
and the Hume Highway (2). The cost
estimates do not make any allowance
for the widening of the Hume Highway.
A number of shops would be demolished.7. Since the cost estimates were made the
New South Wales Government has introduced
the Environmental, Planning and Assessment
Act 1980. That Act, by section 116,
effects a change to the principles of
compensation. A new element has been
added. Where a person's place of
residence is resumed a ‘solatium’ is
payable. It is additional compensation
designed to cushion the blow of having
to relocate. The Courts have yet to
determine the basis upon which the
solatium can be quantified. Suggestions
of 20-25% of the purchase price have been
made. (3)
The traffic model is used to calculate the costs and
benefits of a road proposal and the 'benefit/cost
ratio'. The calculation was made by using triptable
C. It was not repeated for triptable D (even though
triptable D came into existence because C was found
to be defective). The Bexley Road option, surprisingly,
performed rather better under triptable C than the
benefits of a road proposal and the 'benefit/cost
ratio'. The calculation was made by using triptable
C. It was not repeated for triptable D (even though
triptable D came into existence because C was found
to be defective). The Bexley Road option, surprisingly,
performed rather better under triptable C than the
2. Joint
Study Report, page 24.
3. Volume II of this Report, page 311.
3. Volume II of this Report, page 311.
-191-
other options. The relativities emerge from the
following table of benefit/cost ratios (4):
following table of benefit/cost ratios (4):
- Cooks River Option benefit/cost
ratio 1.39 - South-Western Option 1.14
- Bexley Road Option (Harrow Road) 1.78
- Bexley Road Option (Bestic Street) 1.83
We have drawn attention to certain deficiencies in
the cost estimates for the Bexley Road Option. The
deficiencies also afflict the other options. In
all cases, the benefit/cost ratios are overstated.
Certain sensitivity tests were carried out. One
judged the effect of increasing the capital cost by
20%. That may provide a ratio closer to the truth.
The effect of such a variation was as follows (5):
the cost estimates for the Bexley Road Option. The
deficiencies also afflict the other options. In
all cases, the benefit/cost ratios are overstated.
Certain sensitivity tests were carried out. One
judged the effect of increasing the capital cost by
20%. That may provide a ratio closer to the truth.
The effect of such a variation was as follows (5):
- Cooks River Option 1.16
- South-Western Option 0.95
- Bexley Road Option (Harrow
Road) 1.51 - Bexley Road Option (Bestic
Street) 1.54
Even these figures are overstated for other reasons.
In calculating these benefits certain expansion
factors have been used (6). The expansion factor
in our view was too high. The benefits are likely
to be exaggerated.
In calculating these benefits certain expansion
factors have been used (6). The expansion factor
in our view was too high. The benefits are likely
to be exaggerated.
The benefit/cost figures in all cases are not
impressive. Professor M.E. Beesley drew attention
to comparable figures in South Australia (7). For
urban arterial roads the benefit/cost ratio for any
project selected was at least 2.0. He says:
impressive. Professor M.E. Beesley drew attention
to comparable figures in South Australia (7). For
urban arterial roads the benefit/cost ratio for any
project selected was at least 2.0. He says:
4. DMR
Submission S.K/C 340 Transport and Economic
Analysis, page 34.
5. DMR Submission ibid., page 35.
6. See Volume II, page 275 where the concept is
defined and the methodology described.
7. Annexure 2 in Volume II of this Report page 359.
(paragraph 18).
Analysis, page 34.
5. DMR Submission ibid., page 35.
6. See Volume II, page 275 where the concept is
defined and the methodology described.
7. Annexure 2 in Volume II of this Report page 359.
(paragraph 18).
-192-
"There is no reason to suppose
that
New South Wales has a more generous
attitude towards roads, or less
opportunities to use resources
productively, than South Australia."
New South Wales has a more generous
attitude towards roads, or less
opportunities to use resources
productively, than South Australia."
In short, by this measure of economic efficiency,
even on a charitable view (without discounting for
the high expansion factor, etc) the Bexley Road
options fail to perform adequately.
even on a charitable view (without discounting for
the high expansion factor, etc) the Bexley Road
options fail to perform adequately.
3.2 The Concept of Equity
Equity means fairness. A road is equitable if it
fairly distributes costs and benefits throughout
the community so that one group ls not called upon
to shoulder a disproportionate burden for the
benefit of another.
The Inquiry does not know who will benefit from
the road. It does not know the extent to which
costs and benefits coincide. The issue was not
adequately explored.
the road. It does not know the extent to which
costs and benefits coincide. The issue was not
adequately explored.
The concept of equity requires that where those who
benefit are not co-extensive with those who suffer
a disadvantage, measures will be incorporated in
the road design (and its alignment) which will
ameliorate the adverse effects of the road, and
will compensate a community for the disadvantage
it suffers.
benefit are not co-extensive with those who suffer
a disadvantage, measures will be incorporated in
the road design (and its alignment) which will
ameliorate the adverse effects of the road, and
will compensate a community for the disadvantage
it suffers.
We are left in a position where we really do not
know the extent to which noise, loss of open space
and matters of that sort, can be averted or minimised
by a package of measures directed at the residents
who will suffer the disadvantage. In view of our
conclusion that the Bexley Road option is unacceptable,
we will not further dwell on the matter.
know the extent to which noise, loss of open space
and matters of that sort, can be averted or minimised
by a package of measures directed at the residents
who will suffer the disadvantage. In view of our
conclusion that the Bexley Road option is unacceptable,
we will not further dwell on the matter.
-193-
4. THE SOCIAL EFFECTS
4.1 Displacement of People and Property
The following are the bare statistics (8):
- Harrow Road Sub-option: 49 dwellings
displaced - Bestic Street Sub-option: 91 dwellings
displaced
The following statistics disclose the number of
partial acquisitions (8):
partial acquisitions (8):
- Harrow Road Sub-option: 80 partial
acquisitions - Bestic Street Sub-option: 86 partial
acquisitions
The number of properties partially acquired is high.
It is not far short of the far more substantial
project, the Cooks River Option (115 partial
acquisitions). There is some truth in the following
claim by the Arncliffe Progress Association (9):
It is not far short of the far more substantial
project, the Cooks River Option (115 partial
acquisitions). There is some truth in the following
claim by the Arncliffe Progress Association (9):
"Many people whose homes would
need
to be acquired have lived in the
area for many years and are vehemently
opposed to the demolition of their
homes to which they are greatly
attached. But at least these people
would be the lucky ones. The real
unfortunates would be those whose
property was not acquired but who
found their home environment
completely destroyed by the impact
of the road."
(emphasis added)
to be acquired have lived in the
area for many years and are vehemently
opposed to the demolition of their
homes to which they are greatly
attached. But at least these people
would be the lucky ones. The real
unfortunates would be those whose
property was not acquired but who
found their home environment
completely destroyed by the impact
of the road."
(emphasis added)
The human cost in acquisition is always substantial.
It reinforces the belief of this Inquiry that the
option must disclose significant benefits before
that cost is incurred. One resident of Bestic
Street had this to say (10):
It reinforces the belief of this Inquiry that the
option must disclose significant benefits before
that cost is incurred. One resident of Bestic
Street had this to say (10):
8. Appendix 6.3 Joint Study Report.
9. S.K/C 686 Arncliffe Progress Association, page 3,
paragraph 3.5.
10. S.K/C 299 Mr. Hancock.
9. S.K/C 686 Arncliffe Progress Association, page 3,
paragraph 3.5.
10. S.K/C 299 Mr. Hancock.
-194-
"My wife and I have lived in our
house for over fifty years and
now at the age of 84 I don’t feel
I could cope with having to move
or having a continuous stream of
loaded trucks right outside my
front door."
A resident of Villiers Street, Rockdale said this (11):
"I understand this house would be
demolished if the proposed Bestic
Street option..were adopted..
My family has lived in the neigh-
bourhood for the past 120 years,
this road having been known
previously as 'Lauffs Road’, and I
am the third generation descendent
to be still living on Lauf’s estate
of vacant crown land. My father
gave all the Villiers Street and
Arlington Lanes ground for nothing
to Council, and they still have the
free use of it.
I am completely devastated by this
proposal and I can think of nothing
worse than to be now evicted from
my home. Where would I go? All my
associations are in this neighbour-
hood and moving would destroy my
whole mode of living."
4.2 Properties Injuriously Affected
If a property is acquired (either wholly or in part)
the owner is entitled to compensation. If no land
is acquired no compensation is payable even though
the property may suffer considerably through the
presence of the road. That loss of amenity
(without compensation) is referred to as 'injurious
affectation' (12).
the owner is entitled to compensation. If no land
is acquired no compensation is payable even though
the property may suffer considerably through the
presence of the road. That loss of amenity
(without compensation) is referred to as 'injurious
affectation' (12).
The Bexley Road option injuriously affects more
properties than either the Cooks River Option or the
South-Western Option. The comparison is as follows (13):
properties than either the Cooks River Option or the
South-Western Option. The comparison is as follows (13):
11. S.K/C
392 Mr. N. Lauff.
12. See Volume III Social Criteria, page 23.
13. Appendix 6.3 Joint Study Report.
12. See Volume III Social Criteria, page 23.
13. Appendix 6.3 Joint Study Report.
- Cooks River Option (Maximum Open
Space) 480 properties.
- South-Western Option 115 properties.
- Bexley Road Option (via Harrow Road)
520 properties.
- Bexley Road Option (via Bestic Street)
620 properties.
4.3 Effect Upon Community Properties and Facilities
The following community services would be affected (14):
- A Church of England church on the
corner of Bexley Road and Homer
Street where a strip of land
would be required to widen the
intersection.
- In the Bestic Street Sub-option two
other churches would be affected:
- A Jehovah’s Witness church in
Villiers Street, Rockdale
which would be wholly acquired
- A Salvation Army church on the
corner of Forest Road and Princes
Street, Bexley where a strip of
land would be required.
The Harrow Road Sub-option would pass by a hospital
and the ‘Lucy Gullet Village' being a retirement
village. The following was said in one submission (15):
and the ‘Lucy Gullet Village' being a retirement
village. The following was said in one submission (15):
"A hospital was recently built
on the
corner of Harrow Road and Lindwood
Avenue and it is most unlikely that
the constant din of high speed traffic
would contribute to the recuperation
of the sick. Next door to the hospital
is the Senior Citizens Lucy Gullet
Village.. Crossing Harrow Road for the
Old Folks at Home will be more dangerous
if things get livelier traffic-wise in
the future."
corner of Harrow Road and Lindwood
Avenue and it is most unlikely that
the constant din of high speed traffic
would contribute to the recuperation
of the sick. Next door to the hospital
is the Senior Citizens Lucy Gullet
Village.. Crossing Harrow Road for the
Old Folks at Home will be more dangerous
if things get livelier traffic-wise in
the future."
14. Joint
Study Report, page 41.
15. S.K/C 083 Donald H. Robertson, page 2.
15. S.K/C 083 Donald H. Robertson, page 2.
-196-
The St. George Bowling and Recreation Club is also
located in Harrow Road. In a submission from the
club the following is said (16):
located in Harrow Road. In a submission from the
club the following is said (16):
"General concern is felt that
should
Harrow Road-Bexley Road option be
accepted as the road link, the
amenities of these people as well
as the other members of the Club
will be grossly affected...That
widening of the road due to increased
traffic will require widening to a
minimum of 80 feet and if this were
to take place in the northern side
of Harrow Road the Club would lose
two of its playing greens in which
case it would no longer be a viable
proposition."
Harrow Road-Bexley Road option be
accepted as the road link, the
amenities of these people as well
as the other members of the Club
will be grossly affected...That
widening of the road due to increased
traffic will require widening to a
minimum of 80 feet and if this were
to take place in the northern side
of Harrow Road the Club would lose
two of its playing greens in which
case it would no longer be a viable
proposition."
4.4 Effects on Business and Employment
The Bexley Road Option would displace the following
employees (according to estimates made by the Joint
Study Team) (17):
- Harrow Road Sub-option would
displace 32 persons - The Bestic Street Sub-option
would displace 65 persons.
The numbers are high considering the short length
of construction. Nor can it be argued that there
will be a corresponding increase in employment
created by road construction. The Department of
Main Roads has a budget. If the money is not spent
here, it will be spent somewhere else. If employment
is not created in constructing this road link, it
will be created elsewhere in constructing some other
road link. There will not be a net gain to employ-
ment as a result of constructing any of the options.
of construction. Nor can it be argued that there
will be a corresponding increase in employment
created by road construction. The Department of
Main Roads has a budget. If the money is not spent
here, it will be spent somewhere else. If employment
is not created in constructing this road link, it
will be created elsewhere in constructing some other
road link. There will not be a net gain to employ-
ment as a result of constructing any of the options.
4.5 The Effect on Accidents
Certain situations lend themselves to accidents.
Cross intersections are more accident-prone than
Cross intersections are more accident-prone than
16. S.K/C
576 St. George Bowling and Recreation
Club Limited.
17. See Appendix 6.6, page A-11, Joint Study Report.
Club Limited.
17. See Appendix 6.6, page A-11, Joint Study Report.
T-intersections. The risk of accidents is minimised
if the conflict between through traffic and traffic
seeking access is eliminated. The accident rate is
likely to be reduced where pedestrians and vehicles
are separated.
A number of statistics are given in the Joint Study
Report. They would suggest that all of the options,
including the Bexley Road Option, are rather better
than the base case (18).
Report. They would suggest that all of the options,
including the Bexley Road Option, are rather better
than the base case (18).
The economic analysis, on the other hand, suggests
the contrary. One of the 'benefits' which road
construction is supposed to bring is an improvement
of the accident rate. A calculation is made, by
means of the computer traffic model, of the re-
distribution of traffic after the road is built.
Each link in the network (which represents a road
or part of a road) is given a rating according to
the type of road and the traffic volume. Applying
this criteria the result was curious. There was
disbenefit (i.e., a loss) for each one of the
options. The comparison was between (19):
the contrary. One of the 'benefits' which road
construction is supposed to bring is an improvement
of the accident rate. A calculation is made, by
means of the computer traffic model, of the re-
distribution of traffic after the road is built.
Each link in the network (which represents a road
or part of a road) is given a rating according to
the type of road and the traffic volume. Applying
this criteria the result was curious. There was
disbenefit (i.e., a loss) for each one of the
options. The comparison was between (19):
- The Cooks River Option recorded
-$91,000 loss p.a.
- The South-Western was assessed at
-$160,000 loss p.a.
- The Harrow Road Sub-option was
-$63,000 loss p. a.
- The Bestic Street Sub-option was
-$99,000 loss p.a.
The cost/benefit technique used to produce these
figures involves a number of simplifications. It
may or may not be a good guide. We are inclined
to think that the accident position may be rather
worse under the Bexley Road Option than if nothing
were done. We take this view for a number of reasons.
figures involves a number of simplifications. It
may or may not be a good guide. We are inclined
to think that the accident position may be rather
worse under the Bexley Road Option than if nothing
were done. We take this view for a number of reasons.
18. Joint
Study Report Appendix 6.2 Tables 1 and 2,
pages A-5 and A-6.
19. DMR Submission S.K/C 340 Table 7.2.
pages A-5 and A-6.
19. DMR Submission S.K/C 340 Table 7.2.
-198-
First, Bexley Road itself twists and turns in the
way described. It has a poor accident history.
That history emerges in many submissions (19):
way described. It has a poor accident history.
That history emerges in many submissions (19):
"In the 6 years we have been
living
at Chamberlain Road (Bexley) we
have seen the result of many car
and truck smashes on Bexley Road
Hill between Reginald Street and
the Council tennis court. Also
in that time four telegraph poles
have been replaced after being
smashed by accidents. About 7
years ago a chloride tanker over-
turned near the junction of
Kingsland Road and Bexley Road
causing the evacuation of houses
within ¼ mile radius. There have
been a couple of timber jinkers
lose their loads owing to reverse
camber of the road and excessive
speed necessary for the trucks to
reach the top of the hill between
the Bardwell Valley and North Bexley."
at Chamberlain Road (Bexley) we
have seen the result of many car
and truck smashes on Bexley Road
Hill between Reginald Street and
the Council tennis court. Also
in that time four telegraph poles
have been replaced after being
smashed by accidents. About 7
years ago a chloride tanker over-
turned near the junction of
Kingsland Road and Bexley Road
causing the evacuation of houses
within ¼ mile radius. There have
been a couple of timber jinkers
lose their loads owing to reverse
camber of the road and excessive
speed necessary for the trucks to
reach the top of the hill between
the Bardwell Valley and North Bexley."
Corroboration for these claims is provided by many
other submissions. The Holy Trinity Church of England
at Bexley North made this submission (20):
other submissions. The Holy Trinity Church of England
at Bexley North made this submission (20):
"Serious accidents involving
heavy
haulage vehicles have taken place
on the road in the Bexley-Bexley
North area. Recent times have
witnessed the over-turn of semi-
trailers and tankers carrying such
dangerous products as petroleum
and chlorine gas."
haulage vehicles have taken place
on the road in the Bexley-Bexley
North area. Recent times have
witnessed the over-turn of semi-
trailers and tankers carrying such
dangerous products as petroleum
and chlorine gas."
Secondly, the schools which line the route are
attended by young children. Many will have to cross
the road. The greater the traffic stream, and the
greater the proportion of heavy vehicles, the greater
the risk.
attended by young children. Many will have to cross
the road. The greater the traffic stream, and the
greater the proportion of heavy vehicles, the greater
the risk.
Thirdly, the Bestic Street Option would involve the
introduction of significant traffic (including trucks)
into an area which presently has a very light traffic
introduction of significant traffic (including trucks)
into an area which presently has a very light traffic
19. S.K/C
581 Mr. and Mrs. Griffiths.
20. S.K/C 823 Holy Trinity Church of England, Bexley
North, page 2.
20. S.K/C 823 Holy Trinity Church of England, Bexley
North, page 2.
-199-
loading. There are ties between people on either
side of the road, including children. They cannot
be expected to cease simply because the road is
upgraded and traffic begins to push its way through.
They will continue. Accidents (especially involving
children) can be expected. This inevitably attends
the conversion of a back street into an arterial road.
4.6 Severance
A road may operate as a barrier to movement. If it
does, the communities on either side will be severed
from each other. The severance may be physical or
it may be ‘psychological'. It will be physical when
the barrier is impassable or where it operates to
inhibit trips. It will be psychological where people
feel cut off.
The severance may be rather worse in some cases than
in others. It is necessary to distinguish between:
in others. It is necessary to distinguish between:
- The Bay Street/Harrow Road by-pass
of Rockdale
- The Bestic Street by-pass of Rockdale
- Bexley Road itself
- The Campsie by-pass
The Bay Street/Harrow Road alternative crosses
industrial land close to a storm water channel
between West Botany Street and Princes Highway,
Rockdale. It takes part of the car park of the
South Side Plaza (supermarket). It then cuts through
a residential area before reaching the Illawarra
Railway Line where it lines up with Harrow Road on
the other side. A substantial bridge across the
railway line is contemplated.
industrial land close to a storm water channel
between West Botany Street and Princes Highway,
Rockdale. It takes part of the car park of the
South Side Plaza (supermarket). It then cuts through
a residential area before reaching the Illawarra
Railway Line where it lines up with Harrow Road on
the other side. A substantial bridge across the
railway line is contemplated.
The severance effects of the Bay Street/Harrow
Road option are not substantial.
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The same cannot be said for the Bestic Street/
Villiers Street Sub-option. Both Bestic Street
and Villiers Street are obscure local roads. They
presently carry a light traffic loading. They are
relatively narrow. The houses in many cases
(especially in Bestic Street) are insubstantial
and built quite close to the carriageway. The
area is residential. There are no large undeveloped
areas or areas with adjacent industrial development.
The severance induced by superimposing a major
arterial road upon that landscape is likely to be
severe. In the judgement of this Inquiry it should
not be countenanced.
Bexley Road, no doubt, already operates as a barrier
to movement, severing the residents on one side from
those on the other (and the communities on either
side from each other). The more substantial the
traffic stream the harder it is, and the more
dangerous it is, to cross the road. The severance
is likely to grow worse. The transformation,
nonetheless, would neither be as dramatic nor as
severe as that induced in Bestic Street or Villiers
Street, were that sub-option adopted. It is a
question of contrast. The difference between a heavy
traffic load and one which is even heavier is less
dramatic than the difference between a local street
and an arterial road.
to movement, severing the residents on one side from
those on the other (and the communities on either
side from each other). The more substantial the
traffic stream the harder it is, and the more
dangerous it is, to cross the road. The severance
is likely to grow worse. The transformation,
nonetheless, would neither be as dramatic nor as
severe as that induced in Bestic Street or Villiers
Street, were that sub-option adopted. It is a
question of contrast. The difference between a heavy
traffic load and one which is even heavier is less
dramatic than the difference between a local street
and an arterial road.
Severance will be a severe consequence of constructing
the Campsie by-pass.
the Campsie by-pass.
Viking Street is a cul-de-sac which stops short of
Bexley Road (to which it would be extended under
this option). It runs through to Canterbury Road.
It is a small hilly back street carrying practically
no traffic. To convert that road into a major
arterial road carrying a heavy stream of traffic,
including a number of trucks, is to dramatically
transform the area, and to alter irreparably the
Bexley Road (to which it would be extended under
this option). It runs through to Canterbury Road.
It is a small hilly back street carrying practically
no traffic. To convert that road into a major
arterial road carrying a heavy stream of traffic,
including a number of trucks, is to dramatically
transform the area, and to alter irreparably the
-201-
FIGURE 20.
CAMPSIE
BY-PASS
lives of people on either side. For the greater
good of the community that may be necessary. It
may be a good thing. Whatever view is taken, the
severance induced by that transformation is a
marked disadvantage which must be weighed in the
balance with the supposed transportation advantages.
good of the community that may be necessary. It
may be a good thing. Whatever view is taken, the
severance induced by that transformation is a
marked disadvantage which must be weighed in the
balance with the supposed transportation advantages.
The Campsie by-pass would take advantage of certain
existing roads including Loch Street (Campsie)
and Second Avenue. During the peak hours traffic
already uses these roads as a means of avoiding the
congestion in the Campsie Shopping Centre (Beamish
Street, Campsie). Even so, the traffic under the
by-pass proposal will be substantially greater than
that presently using these roads as a makeshift
by-pass. Inevitably there will be severance. The
by-pass route will operate as a barrier to movement
from one side to the other.
existing roads including Loch Street (Campsie)
and Second Avenue. During the peak hours traffic
already uses these roads as a means of avoiding the
congestion in the Campsie Shopping Centre (Beamish
Street, Campsie). Even so, the traffic under the
by-pass proposal will be substantially greater than
that presently using these roads as a makeshift
by-pass. Inevitably there will be severance. The
by-pass route will operate as a barrier to movement
from one side to the other.
-202-
The presence of Harcourt Public School in First
Avenue, Campsie is an important consideration. It
occupies a block bounded by First Avenue, Second
Avenue and Ninth Avenue, Campsie. There is a dog-
leg corner between Second Avenue and Loch Street,
Campsie (where it crosses Ninth Avenue). The
by-pass proposal contemplates the 'straightening'
of the ‘dog-leg’. The straightening will require
a portion of the school playground. The traffic
will flow more smoothly. The route will be that
much more attractive in consequence. The traffic
stream can be expected to increase. The Harcourt
School Committee greeted this prospect with outrage.
They said (21):
Avenue, Campsie is an important consideration. It
occupies a block bounded by First Avenue, Second
Avenue and Ninth Avenue, Campsie. There is a dog-
leg corner between Second Avenue and Loch Street,
Campsie (where it crosses Ninth Avenue). The
by-pass proposal contemplates the 'straightening'
of the ‘dog-leg’. The straightening will require
a portion of the school playground. The traffic
will flow more smoothly. The route will be that
much more attractive in consequence. The traffic
stream can be expected to increase. The Harcourt
School Committee greeted this prospect with outrage.
They said (21):
"For many years our school has
had
problems with the traffic around
the school making it dangerous for
the children to cross the streets.
We have even had petitions to the
DMR and the local Campsie traffic
Police about the need for traffic
lights at Ninth and Loch Streets.
We managed to obtain a traffic
warden and crossing for Ninth Avenue.
Second Avenue has also been a very
busy street and the idea of any
more heavy traffic adding to the
danger is totally unthinkable.
problems with the traffic around
the school making it dangerous for
the children to cross the streets.
We have even had petitions to the
DMR and the local Campsie traffic
Police about the need for traffic
lights at Ninth and Loch Streets.
We managed to obtain a traffic
warden and crossing for Ninth Avenue.
Second Avenue has also been a very
busy street and the idea of any
more heavy traffic adding to the
danger is totally unthinkable.
Loch Street is not a suitable
street
for heavy traffic. It is impossible
to cross one side to the other now,
especially near the overbridge, and
heavy trucks or increased traffic
would greatly add to the danger.
for heavy traffic. It is impossible
to cross one side to the other now,
especially near the overbridge, and
heavy trucks or increased traffic
would greatly add to the danger.
As concerned parents we do not wish
any possible danger of traffic
accidents happening to any of the
750 children (infants and primary)
attending our school.”
any possible danger of traffic
accidents happening to any of the
750 children (infants and primary)
attending our school.”
It is obvious from submissions that there is a good
deal of interaction between the residents on either
side of Second Avenue. That interaction would be
jeopardised by the by-pass proposal, and severance
effects it would induce. The submission continues:
21. Submission
S.K/C 610 Harcourt School Committee.
"Campsie-Harcourt is not a
factory
area or heavy industrial area. We
object to the proposed Bexley Option
...(it) would alter the residential
atmosphere of the area and would
affect the peaceful nature of the
area. There are many home units
whose children play in Second
Avenue after school. They would
not be able to do this if heavy
trucks used Second Avenue.”
area or heavy industrial area. We
object to the proposed Bexley Option
...(it) would alter the residential
atmosphere of the area and would
affect the peaceful nature of the
area. There are many home units
whose children play in Second
Avenue after school. They would
not be able to do this if heavy
trucks used Second Avenue.”
5. ENVIRONMENTAL CONSEQUENCES
5.1 Noise
5.1.1 Effects of Traffic Noise
The level of noise generated by traffic will depend
upon:
- the total traffic flow
- the proportion of heavy vehicles
- the 'vehicle operating environment’
i.e. road width, nature of the road
surface etc.
There is one concept which needs to be underlined.
It is encapsulated in the following paragraph taken
from a publication by NAASRA (22):
It is encapsulated in the following paragraph taken
from a publication by NAASRA (22):
"The graphs (i.e., graphs of traffic
noise) show that noise levels do not
increase greatly when traffic volumes
exceed l,000 vehicles per hour.”
Unless the number of vehicles (especially trucks)
using the roads changes fairly dramatically, the
differences in noise are not likely to be great.
Traffic may be reduced in an area and yet make no
perceptible difference in the noise level.
using the roads changes fairly dramatically, the
differences in noise are not likely to be great.
Traffic may be reduced in an area and yet make no
perceptible difference in the noise level.
5.1.2 The Bestic Street/Villiers Street Sub-Option
The conditions at present are accurately described
in the following excerpt from the submission by the
Arncliffe Progress Association (23):
22. Roads and
Traffic Noise, NAASRA, page 4.
23. S.K/C 686 Arncliffe progress Association, page 4.
23. S.K/C 686 Arncliffe progress Association, page 4.
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"At present the section of
Bestic Street
between West Botany Street and Princes
Highway carries only moderate volumes of
traffic. Living conditions are reasonable
and this is reflected in the good standard
of home care which exists at present.
Villiers Street for its full length is a
quiet residential street which carries
virtually no through traffic. At night,
traffic volumes are negligible. In the
lower end of the street several large
blocks of new home units have been built
containing 190 units in all."
between West Botany Street and Princes
Highway carries only moderate volumes of
traffic. Living conditions are reasonable
and this is reflected in the good standard
of home care which exists at present.
Villiers Street for its full length is a
quiet residential street which carries
virtually no through traffic. At night,
traffic volumes are negligible. In the
lower end of the street several large
blocks of new home units have been built
containing 190 units in all."
It is not possible for traffic to pass from Bestic
Street to Villiers Street. There is a railway line in
between. Bestic Street terminates at the Princes Highway
(which is one block from the railway line). Villiers
Street terminates at a road parallel to the railway
line (Railway Street, Rockdale). The sub-option
involves a bridge. The bridge will furnish a direct
link between Villiers Street and Bestic Street. It
will pass over both the railway line and the Princes
Highway. The bridge structure will begin in Bestic
Street at the junction of George Street and Bestic
Street, Rockdale (See Figure 21).
Street to Villiers Street. There is a railway line in
between. Bestic Street terminates at the Princes Highway
(which is one block from the railway line). Villiers
Street terminates at a road parallel to the railway
line (Railway Street, Rockdale). The sub-option
involves a bridge. The bridge will furnish a direct
link between Villiers Street and Bestic Street. It
will pass over both the railway line and the Princes
Highway. The bridge structure will begin in Bestic
Street at the junction of George Street and Bestic
Street, Rockdale (See Figure 21).
FIGURE 21.
BESTIC
STREET/VILLIERS STREET SUB-OPTION
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George Street is two blocks from Princes Highway.
The bridge will extend an equivalent distance into
Villiers Street. It will therefore be a substantial
structure. We are not told the gradients of the
approaches. The noise of trucks using the bridge is
likely to be considerable.
The bridge will extend an equivalent distance into
Villiers Street. It will therefore be a substantial
structure. We are not told the gradients of the
approaches. The noise of trucks using the bridge is
likely to be considerable.
The topography of this area adds to the problem.
Villiers Street is steep. One submission says this (24):
Villiers Street is steep. One submission says this (24):
"I think that the route Bestic
Street/
Villiers Street and Bexley Road is
totally unsuited. Villiers Street
between Arlington Street and Oswell
Street is a two level street which is
a steep incline. From my experience
of more than 25 years in the carrying
industry I have found that with a
G.V.W. of 14 tonne it is a second gear
pull with a speed of approximately
5 m.p.h."
Villiers Street and Bexley Road is
totally unsuited. Villiers Street
between Arlington Street and Oswell
Street is a two level street which is
a steep incline. From my experience
of more than 25 years in the carrying
industry I have found that with a
G.V.W. of 14 tonne it is a second gear
pull with a speed of approximately
5 m.p.h."
Another submission says this (25):
"Heavy vehicle noise in
Villiers Street
will be worse than aircraft noise.
The vehicles will cross the railway
overpass at maximum speed and will
endeavour to maintain speed up the
steep incline of Villiers Street.
will be worse than aircraft noise.
The vehicles will cross the railway
overpass at maximum speed and will
endeavour to maintain speed up the
steep incline of Villiers Street.
The subject address and other
houses
(in Villiers Street) are located in
a disused quarry. This is also the
steepest section of Villiers Street.
The residents will be subject to the
additional noise rebounding from the
quarry wall behind the houses."
(in Villiers Street) are located in
a disused quarry. This is also the
steepest section of Villiers Street.
The residents will be subject to the
additional noise rebounding from the
quarry wall behind the houses."
This area already suffers considerably from aircraft
noise. One submission puts it in this way (26):
noise. One submission puts it in this way (26):
"Our property is presently in
the
direct flight path of all air traffic
to the international airport as well
as being adjacent to the main
Illawarra Railway Line."
direct flight path of all air traffic
to the international airport as well
as being adjacent to the main
Illawarra Railway Line."
24. S.K/C
497 Submission Mr. A. McMaster.
25. Submission S.K/C 418 R.M. Collin, page 3.
26. Submission S.K/C 563 John N. Hatton, page 2.
25. Submission S.K/C 418 R.M. Collin, page 3.
26. Submission S.K/C 563 John N. Hatton, page 2.
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All these factors combine to render this sub-option
undesirable from the viewpoint of noise. The hilly
topography, the need for a substantial bridge
structure (creating artificial hills), the residential-
nature of the land use, the present low level of
traffic (to be contrasted with the level of traffic
contemplated) and the disamenity already suffered
through aircraft noise, are compelling reasons why
some other option should be preferred.
5.1.3 The Harrow Road/Bay Street Sub-Option
The noise induced by this sub-option is likely to be
less, and felt less keenly, than the noise effects
of the Bestic Street/Villiers Street sub-option. We
have described this sub-option already. We have
identified the areas through which it would pass.
The topography is not as steep. The land uses are
not as sensitive. In some cases the option would
pass through industrial land. In other cases it
would run alongside vacant land or through a car park.
Harrow Road itself already suffers from severe (traffic)
noise. The consequences are brought home forcefully
by the following submission (made by a resident who
occupies a home on the corner of Watkin Street and
Harrow Road) (27):
noise. The consequences are brought home forcefully
by the following submission (made by a resident who
occupies a home on the corner of Watkin Street and
Harrow Road) (27):
"Noise creates the following problems:
1. It places greater strain on
people's nerves and sleep is
often disrupted, therefore
leaving one frequently in an
irritable and aggravated
state of mind.
people's nerves and sleep is
often disrupted, therefore
leaving one frequently in an
irritable and aggravated
state of mind.
2. Windows and doors cannot be
left open because noise, dust
and pollution is too intense.
During hot summer nights this
is particularly uncomfortable,
especially whilst trying to sleep.
left open because noise, dust
and pollution is too intense.
During hot summer nights this
is particularly uncomfortable,
especially whilst trying to sleep.
27.
Submission S.K/C 210 page 1, Mrs. J. K. Byrne.
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3. Outdoor entertaining is an
impossibility because of the
heavy concentrations of noise.
This is a big sacrifice as most
Australians (and we are no
exception) really enjoy outdoor
barbecues and entertaining."
However, curiously, for the reasons already given,
traffic noise in Harrow Road is not likely to be
much worse. In saying this we are not suggesting
that it is not already bad. It is. The difference
between the noise from traffic presently using
Harrow Road, and the stream which would use that
road if this sub-option were adopted, is not likely
to be so substantial that the human ear could
perceive that difference.
traffic noise in Harrow Road is not likely to be
much worse. In saying this we are not suggesting
that it is not already bad. It is. The difference
between the noise from traffic presently using
Harrow Road, and the stream which would use that
road if this sub-option were adopted, is not likely
to be so substantial that the human ear could
perceive that difference.
5.1.4 Bexley Road
The noise in Bexley Road may increase as a result of
the increase in traffic (especially truck traffic).
Because the level is already high, again the
difference is not likely to be substantial. Similarly,
insofar as the Bexley Road Option (and the various
sub-options) draw traffic away from other areas
(which they do to a very limited extent), the
improvement in the noise environment of those
areas is not likely to be sufficiently large to be
perceived by the people who supposedly benefit
from that 'improvement'.
the increase in traffic (especially truck traffic).
Because the level is already high, again the
difference is not likely to be substantial. Similarly,
insofar as the Bexley Road Option (and the various
sub-options) draw traffic away from other areas
(which they do to a very limited extent), the
improvement in the noise environment of those
areas is not likely to be sufficiently large to be
perceived by the people who supposedly benefit
from that 'improvement'.
5.1.5 The Campsie By-Pass
The Campsie Shopping Centre is built around Beamish
Street, Campsie. Beamish street is a four-lane road.
Two lanes are used for parking. Clearways have not
yet been introduced though Beamish Street is
designated a priority road (29). During the day
there is a constant traffic stream, including trucks.
The traffic (in both directions) usually moves fairly
slowly. Traffic is never welcome in any shopping
centre. The noise, the fumes, and the risk of
28. Exhibit
64.
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accidents as shoppers pass from one side to the
other, are in conflict with the atmosphere of
enticement which the shopkeepers are seeking to
engender.
Some shopping centres are worse than others. The
Inquiry judged the Campsie Shopping Centre to be
less severely affected than some (the Bexley
Shopping Centre, for example).
Inquiry judged the Campsie Shopping Centre to be
less severely affected than some (the Bexley
Shopping Centre, for example).
The Campsie by-pass is intended to remove a substan-
tial portion of the traffic (but not all) from
Beamish Street. The traffic would then be shared
between the by-pass and the shopping centre. The
shopping centre is likely to be improved though the
improvement will be only marginal. There will still
be traffic. It will still be dangerous to cross the
road. There is the danger that the traffic may move
more quickly because the area is less congested.
The sluggish pace at the moment creates more fumes,
and perhaps more noise. The risk of accidents to
shoppers and children may be somewhat less than if
the traffic stream were to move rather more quickly.
tial portion of the traffic (but not all) from
Beamish Street. The traffic would then be shared
between the by-pass and the shopping centre. The
shopping centre is likely to be improved though the
improvement will be only marginal. There will still
be traffic. It will still be dangerous to cross the
road. There is the danger that the traffic may move
more quickly because the area is less congested.
The sluggish pace at the moment creates more fumes,
and perhaps more noise. The risk of accidents to
shoppers and children may be somewhat less than if
the traffic stream were to move rather more quickly.
On the by-pass route itself the effect will be
considerable. We have drawn attention to the nature
of Viking Street, Campsie. It is a cul-de-sac. The
muffled sound of distant traffic can be heard. It
is otherwise quiet. Upon completion of the by-pass
it will be transformed into a major road carrying a
substantial number of trucks. It is hilly. There
will be traffic lights at the top (at the junction
with Canterbury Road). The transformation, in
consequence, will be dramatic, accentuating the
severance of which we have already spoken.
considerable. We have drawn attention to the nature
of Viking Street, Campsie. It is a cul-de-sac. The
muffled sound of distant traffic can be heard. It
is otherwise quiet. Upon completion of the by-pass
it will be transformed into a major road carrying a
substantial number of trucks. It is hilly. There
will be traffic lights at the top (at the junction
with Canterbury Road). The transformation, in
consequence, will be dramatic, accentuating the
severance of which we have already spoken.
The remaining streets in the by-pass are already used
(to a greater or lesser degree) by peak hour traffic.
The volume of traffic would increase considerably
with the completion of the by-pass. The noise
(to a greater or lesser degree) by peak hour traffic.
The volume of traffic would increase considerably
with the completion of the by-pass. The noise
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environment must deteriorate. That is unfortunate
since the area is substantially residential. There
is also the Harcourt primary School to which we
have drawn attention.
5.2 Air Pollution
The Rockdale area already suffers from pollution.
It is attributed by some submissions to both aircraft
and traffic. The following was said by one resident: (29)
"(Pollution) is very much in
existence. I find it necessary
to wash my window sills weekly
(inside and out) to remove a very
heavy concentration of black soot
that collects from traffic and
planes. Curtains and other
furnishings are also affected.
If this black soot is so noticeable
gathering in our homes and furnish-
ings we mush be breathing it in
large quantities and this must
surely be a health hazard."
existence. I find it necessary
to wash my window sills weekly
(inside and out) to remove a very
heavy concentration of black soot
that collects from traffic and
planes. Curtains and other
furnishings are also affected.
If this black soot is so noticeable
gathering in our homes and furnish-
ings we mush be breathing it in
large quantities and this must
surely be a health hazard."
People are already conscious of fumes and foul-
smelling air. It would, nonetheless, be difficult
to discern the difference between the 'air quality'
of a road which already carries a heavy stream of
traffic and the air quality of the same road where
the load was marginally increased.
smelling air. It would, nonetheless, be difficult
to discern the difference between the 'air quality'
of a road which already carries a heavy stream of
traffic and the air quality of the same road where
the load was marginally increased.
Where a local street, which does not carry a substan-
tial traffic volume, is converted into a major artery
the position is quite different. People ordinarily
can discern a difference in air quality between a
major traffic artery and a back street. Pollution,
therefore, is a further reason for the rejection by
this Inquiry of the Bestic Street/Villiers Street
sub-option.
tial traffic volume, is converted into a major artery
the position is quite different. People ordinarily
can discern a difference in air quality between a
major traffic artery and a back street. Pollution,
therefore, is a further reason for the rejection by
this Inquiry of the Bestic Street/Villiers Street
sub-option.
The Campsie by-pass will, as we have said, reduce
traffic in Beamish Street, Campsie. A substantial
traffic in Beamish Street, Campsie. A substantial
29. S.K/C 210
Mrs. J.K. Byrne (Corner of Harrow Road
and Watkin Street, Rockdale).
and Watkin Street, Rockdale).
traffic volume will nonetheless use that road. we
venture to suggest that even the most delicate nose
would find it difficult to discern a difference
between the air quality in Beamish Street, Campsie
after the by-pass had been built (and the traffic
reduced) than before.
venture to suggest that even the most delicate nose
would find it difficult to discern a difference
between the air quality in Beamish Street, Campsie
after the by-pass had been built (and the traffic
reduced) than before.
The same cannot be said for the roads which make up
the by-pass. Some of them are now back streets,
substantially unpolluted. They would become important
links in a major by-pass, and would suffer from
pollution.
the by-pass. Some of them are now back streets,
substantially unpolluted. They would become important
links in a major by-pass, and would suffer from
pollution.
5.3 Vibrations
It is unlikely that any of the road options would
give rise to serious vibration. Vibrations, or at
least ground-borne vibrations, can most often be
traced to imperfections in the road surface. All
options presuppose a high quality surface.
One cannot say with such confidence that air-borne
vibrations will be totally absent. The diesel engine
is said to be a potent source of this form of vibra-
tion. The high quality of the road surface will not
protect residents. If the road is to be used by a
high proportion of trucks, and if the houses are
located reasonably close to the carriageway, and
especially where the houses are insubstantial, air-
borne vibrations may be a source of irritation.
Only in the Bestic street/Villiers street option
(and in certain sections of the Campsie by-pass
option) do these conditions obtain.
vibrations will be totally absent. The diesel engine
is said to be a potent source of this form of vibra-
tion. The high quality of the road surface will not
protect residents. If the road is to be used by a
high proportion of trucks, and if the houses are
located reasonably close to the carriageway, and
especially where the houses are insubstantial, air-
borne vibrations may be a source of irritation.
Only in the Bestic street/Villiers street option
(and in certain sections of the Campsie by-pass
option) do these conditions obtain.
5.4 Ecological Consequences
The Joint Study Report makes the following statement (30):
"The major ecological changes
have already
occurred throughout this route. Any
ecological effects of this option will
be minimal."
occurred throughout this route. Any
ecological effects of this option will
be minimal."
30. Joint
Study Report, page 42.
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One cannot disagree. The route will, for part of
its length, follow the Cooks River Valley (between
Second Avenue, Campsie and Coronation parade,
Strathfield). The valley in this area is narrow.
Most trees have been removed. Large steel structures
have been erected to carry electricity cables. The
area has potential for recreation. In its present
state it is unprepossessing. The Cooks River itself
hardly adds to the beauty. It has been captured
within a concrete stormwater drain.
5.5 Open Space Consequences
The Bexley Road Option affects less open space than
the major road options. The contrast is as follows:
- the Cooks River Option affects
between 4 ha. and 6.6 ha. - the South-Western Option affects
36 ha. - the Bexley Road Option affects:
- 2 ha. (Harrow Road sub-option)
- 0.9 ha. (Bestic Street/Villiers
Street sub-option)
Every scrap of greenery in an urban area is important.
The loss of open space caused by the Bexley Road
Option is not, however, a matter of great moment,
compared to other matters.
The loss of open space caused by the Bexley Road
Option is not, however, a matter of great moment,
compared to other matters.
5.6 The Visual Effects
The visual effects of the Bexley Road option are
slight compared to the Cooks River and the South-
Western Options. They are substantially confined
to the houses which would line the route. It is the
contrast between several hundred houses whose views
would be affected by the presence of a road, and
several thousand in the case of the other options.
The visual consequences of building the Bexley Road
option would nonetheless be important to a number of
option would nonetheless be important to a number of
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individuals. The Bestic Street/Villiers Street
sub-option contemplates a bridge across Princes
Highway and the railway. It would be a substantial
affair. The houses on one side of Bestic Street for
two blocks face the prospect of staring at the bridge
abutments. They may be robbed of their sunlight and
their privacy. The noise is likely to be considerable.
Particulate pollution in the immediate vicinity of
the bridge would be substantial.
sub-option contemplates a bridge across Princes
Highway and the railway. It would be a substantial
affair. The houses on one side of Bestic Street for
two blocks face the prospect of staring at the bridge
abutments. They may be robbed of their sunlight and
their privacy. The noise is likely to be considerable.
Particulate pollution in the immediate vicinity of
the bridge would be substantial.
Similar effects would be experienced on the other
side of the railway line in Villiers Street.
side of the railway line in Villiers Street.
6. OPPOSITION TO THE BEXLEY ROAD OPTION
6.1 The Rockdale Council
The Rockdale Council was implacable in its opposition
to the Bexley Road Option (whether the Harrow Road
or the Bestic Street alternatives). It passed the
following resolution (31):
“Council reaffirmed its total and
absolute rejection of the Bexley
Road Option as a possible solution
to the transport problems from the
Port/Airport/Central Industrial Area
to the Western and South Western
Sub-Regions of Sydney.”
absolute rejection of the Bexley
Road Option as a possible solution
to the transport problems from the
Port/Airport/Central Industrial Area
to the Western and South Western
Sub-Regions of Sydney.”
The Council advocated the South-Western Option.
6.2 The Canterbury Municipal Council
We have referred already to the stand taken by the
Canterbury Municipal Council. Its resolution was
in the following terms (32):
Canterbury Municipal Council. Its resolution was
in the following terms (32):
"Canterbury Council is opposed
to
all of the major road proposals as
presently stated in the Kyeemagh/
Chullora Report and suggests the
upgrading of existing routes,
improved traffic management and
all of the major road proposals as
presently stated in the Kyeemagh/
Chullora Report and suggests the
upgrading of existing routes,
improved traffic management and
31. S.K/C
343 Submission Council of the Municipality
of Rockdale dated 22/10/79 (Attachment J).
32. Submission S.K/C 341 page 1.
of Rockdale dated 22/10/79 (Attachment J).
32. Submission S.K/C 341 page 1.
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further development of alternative
modal forms as a solution to the
regional transport problem."
6.3 The Council of the Municipality of Kogarah
The Kogarah Council was moved to express its
opposition to the Bexley Road options even though
it acknowl-edged that they did not directly impinge
upon the Kogarah Municipality. It said (33):
"Council has deliberately
avoided
expressing a point of view as to
which particular road option should
be favoured because none of the routes
directly affect the municipality and
because Council would not presume to
have full knowledge of the impact of
each option. Notwithstanding this
comment Council has expressed a very
real concern at aspects of the various
Bexley Road Options. It is noted (from
the Joint Study Report) that even on
improved sections of the Bexley Road
Option it is 'doubtful whether they
would provide a reasonable level of
safety for the traffic conditions
likely to prevail'. Whilst it is
recognised that the Bexley Road Option
is deliberately being considered as a
low cost alternative, Council strongly
considers that the safety of road
users and adjoining residents should
not be traded-off against the increased
capital cost of other alternatives.
Council considers that if the Bexley
Road Option is given further considera-
tion, it should be based on the same
design standards applicable to the
other alternatives and at least in
accordance with the minimum NAASRA
standards."
(emphasis added)
expressing a point of view as to
which particular road option should
be favoured because none of the routes
directly affect the municipality and
because Council would not presume to
have full knowledge of the impact of
each option. Notwithstanding this
comment Council has expressed a very
real concern at aspects of the various
Bexley Road Options. It is noted (from
the Joint Study Report) that even on
improved sections of the Bexley Road
Option it is 'doubtful whether they
would provide a reasonable level of
safety for the traffic conditions
likely to prevail'. Whilst it is
recognised that the Bexley Road Option
is deliberately being considered as a
low cost alternative, Council strongly
considers that the safety of road
users and adjoining residents should
not be traded-off against the increased
capital cost of other alternatives.
Council considers that if the Bexley
Road Option is given further considera-
tion, it should be based on the same
design standards applicable to the
other alternatives and at least in
accordance with the minimum NAASRA
standards."
(emphasis added)
6.4 The Hurstville Municipal Council
The Hurstville Municipal Council specifically voicedits
opposition to the Bestic Street alternative. It
said (34):
said (34):
33. S.K/C
1258 Kogarah Municipal Council, page 2.
34. S.K/C 1086 Hurstville Municipal Council, page 1.
34. S.K/C 1086 Hurstville Municipal Council, page 1.
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"..The Bestic Street-Bexley
Road
option, to which objection was
raised on the basis of unsuitability
due to use of a road which was
aligned and constructed in the
horse and wagon era, together
with the unsatisfactory grades
and a completely developed
residential area."
option, to which objection was
raised on the basis of unsuitability
due to use of a road which was
aligned and constructed in the
horse and wagon era, together
with the unsatisfactory grades
and a completely developed
residential area."
The Council did not address the other aspects of the
Bexley Road Option.
Bexley Road Option.
6.5 Submissions Concerning Bestic Street/Villiers Street
The Bestic Street alternative to the Bexley Road
Option aroused enormous opposition. Public meetings
were held. They were attended by a substantial
number of people. A deluge of submissions was
received by the Inquiry. The view was unanimous.
The Bestic Street/Villiers Street alternative was
insupportable.
Elsewhere in this Report we have questioned whether
planning corridors are desirable. The matter cannot
be considered, at this remove, as though the slate
were clean. Rightly or wrongly, a lavish network of
corridors has been established in Sydney. In these
circumstances the road builder must establish a
strong case for departing from a corridor. The onus
was not discharged. Although the Bestic Street
alternative is in some respects better in transport
terms than the Harrow Road/Bay Street option, it is
environmentally and socially quite unacceptable. It
should not be considered further. The Department of
Main Roads, for its part, and the Planning and
Environment Commission, do not contend otherwise.
The following is an excerpt from the transcript of
the Department of Main Roads (35):
planning corridors are desirable. The matter cannot
be considered, at this remove, as though the slate
were clean. Rightly or wrongly, a lavish network of
corridors has been established in Sydney. In these
circumstances the road builder must establish a
strong case for departing from a corridor. The onus
was not discharged. Although the Bestic Street
alternative is in some respects better in transport
terms than the Harrow Road/Bay Street option, it is
environmentally and socially quite unacceptable. It
should not be considered further. The Department of
Main Roads, for its part, and the Planning and
Environment Commission, do not contend otherwise.
The following is an excerpt from the transcript of
the Department of Main Roads (35):
35. Transcript
DMR 14/1/80, page 37.
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"COMMISSIONER: Is the
Department
suggesting that the Bestic Street
Option, Villiers Street Option,
be put out of consideration and
dropped forever?
suggesting that the Bestic Street
Option, Villiers Street Option,
be put out of consideration and
dropped forever?
BUNTON: That's the view we would
take, yes. "
7. THE RETENTION OF CORRIDORS
7.1 The Rockdale By-Pass Corridor
We have made it clear that we do not favour the
Bexley Road Option. We have given our reasons.
Those reasons are inevitably a commentary upon the
by-pass proposals.
It is necessary that we now confront the corridor
issue. Having rejected the Bexley Road Option, is
it appropriate that we should recommend the removal
of the by-pass proposals from the planning schemes?
The Department of Main Roads is firmly of the view
that the corridors should be retained. The Planning
and Environment Commission takes the same view.
URTAC supports that view when it says (36):
issue. Having rejected the Bexley Road Option, is
it appropriate that we should recommend the removal
of the by-pass proposals from the planning schemes?
The Department of Main Roads is firmly of the view
that the corridors should be retained. The Planning
and Environment Commission takes the same view.
URTAC supports that view when it says (36):
"URTAC considered the (Bexley
Road)
Option to be significantly inferior
in transport terms than the other
two construction options, due to its
inability to attract traffic away
from existing problem areas. Never-
theless, URTAC recommends that the
existing reservations in planning
schemes for the option be retained
to facilitate local traffic improve-
ment works as funds become available."
Option to be significantly inferior
in transport terms than the other
two construction options, due to its
inability to attract traffic away
from existing problem areas. Never-
theless, URTAC recommends that the
existing reservations in planning
schemes for the option be retained
to facilitate local traffic improve-
ment works as funds become available."
We wonder whether there is contradiction in rejecting
the Bexley Road Option and yet seeking to retain the
by-pass proposals for ‘local' reasons?
the Bexley Road Option and yet seeking to retain the
by-pass proposals for ‘local' reasons?
The Bestic Street alternative is unacceptable for
environmental and social reasons. It was not selected,
however, to make life more difficult or the Inquiry
environmental and social reasons. It was not selected,
however, to make life more difficult or the Inquiry
36. S.K/C
1019 URTAC Submission, page 24.
-216-
more exciting. It was selected because the Bay
Street/Harrow Road alternative was thought inadequate.
It was inadequate in a number of respects. First,
because it was circuitous, traffic tended to desert
the route (according to the transport model) in
the vicinity of the Princes Highway. As a by-pass,
therefore, it could not deliver the goods. It would
not keep traffic away from the Rockdale Shopping
Centre. Traffic would increase in the Princes
Highway, Rockdale notwithstanding the by-pass.
Secondly, it would induce more traffic (and especially
truck traffic) to use Bay Street, Rockdale. That
would adversely affect the amenity of the Brighton
Shopping Centre. That centre already suffers from
considerable hardship caused through traffic.
truck traffic) to use Bay Street, Rockdale. That
would adversely affect the amenity of the Brighton
Shopping Centre. That centre already suffers from
considerable hardship caused through traffic.
Thirdly, traffic using the Harrow Road sub-option
would be channelled into the Bexley Shopping Centre.
That shopping centre is already under siege. The
junction of Harrow Road, Bexley Road, Forest Road
(and nearby Stoney Creek Road) is severely over-taxed.
The amenity of the Bexley Shopping Centre would
deteriorate further.
would be channelled into the Bexley Shopping Centre.
That shopping centre is already under siege. The
junction of Harrow Road, Bexley Road, Forest Road
(and nearby Stoney Creek Road) is severely over-taxed.
The amenity of the Bexley Shopping Centre would
deteriorate further.
The Bestic Street sub-option avoided all these
problems. It created other problems which in some
ways were even worse.
problems. It created other problems which in some
ways were even worse.
The case against the Harrow Road/Bay Street alterna-
tive does not end there. Everyone agrees that
by-passes are a good idea. They separate through
traffic from local traffic. They improve the amenity
of the shopping centre. But is the amenity of the
Rockdale Shopping Centre severely degraded by traffic
from Bay Street, Rockdale or the Seven Ways? If there
is a problem in that centre, surely it is created by
through traffic along the Princes Highway. The bulk
of the shopping centre is affected by that traffic
not cross traffic.
tive does not end there. Everyone agrees that
by-passes are a good idea. They separate through
traffic from local traffic. They improve the amenity
of the shopping centre. But is the amenity of the
Rockdale Shopping Centre severely degraded by traffic
from Bay Street, Rockdale or the Seven Ways? If there
is a problem in that centre, surely it is created by
through traffic along the Princes Highway. The bulk
of the shopping centre is affected by that traffic
not cross traffic.
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That is not to deny that Rockdale may benefit from
a by-pass which removed cross-traffic. It may.
But how pressing is the problem? Given the shortage
of funds, and given the elaborate nature of the
structure required to take traffic across the
Illawarra Railway line, how likely is it that this
by-pass proposal will be built in the foreseeable
future? It seems plain from the evidence that
the Department of Main Roads does not contemplate
construction (subject to the outcome of this Inquiry)
inside 15 years (37). We rather doubt that it would
even be constructed then.
And there are other reasons. It was suggested by
consultants to the South Side Plaza (the supermarket
through which the road would pass) that a by-pass
is hardly worthy of the name if it bisects (rather
than by-passes) the shopping centre which it is
intended to relieve. The planning and Environment
Commission, on the other hand, said this (38):
consultants to the South Side Plaza (the supermarket
through which the road would pass) that a by-pass
is hardly worthy of the name if it bisects (rather
than by-passes) the shopping centre which it is
intended to relieve. The planning and Environment
Commission, on the other hand, said this (38):
"South Side Plaza is well
removed
from the main Rockdale town centre
and is car-user oriented as it is
not convenient to the railway or
bus terminus. It is therefore
not appropriate to argue, as the
consultant to the owner does, that
the Harrow Road proposal will sever
South Side Plaza from the main
shopping centre."
from the main Rockdale town centre
and is car-user oriented as it is
not convenient to the railway or
bus terminus. It is therefore
not appropriate to argue, as the
consultant to the owner does, that
the Harrow Road proposal will sever
South Side Plaza from the main
shopping centre."
The truth is somewhere in between. The South Side
Plaza is removed from the main shopping centre. But
the distances are not great and people, if asked,
would probably say they looked upon the South Side
Plaza as part of the Rockdale Shopping Complex.
Plaza is removed from the main shopping centre. But
the distances are not great and people, if asked,
would probably say they looked upon the South Side
Plaza as part of the Rockdale Shopping Complex.
There are other reasons of a more fundamental kind.
They arise from the nature of Bexley Road itself.
The Department of Main Roads, the Planning and
Environment Commission, and URTAC reject the Bexley
They arise from the nature of Bexley Road itself.
The Department of Main Roads, the Planning and
Environment Commission, and URTAC reject the Bexley
37. Transcript
Shopping Centres Pty. Limited (South
Side Plaza) 29/19/79, page 11 ff.
38. S.K/C 947 Planning and Environment Commission
letter 10/3/80, page 6.
Side Plaza) 29/19/79, page 11 ff.
38. S.K/C 947 Planning and Environment Commission
letter 10/3/80, page 6.
-218-
Road Option as a feasible or desirable route for
more traffic. It is too hilly. It suffers from
poor alignment. It is residential in character.
The by-pass proposals should be retained, however,
for ‘local’ needs. But what was the Bexley Road
Option beyond the two by-pass proposals? Once the
by-passes are built it follows that accessibility
in that corridor will be improved. More traffic,
including more truck traffic, will then use the
Bexley Road. If the Bexley Road Option is
unacceptable now because Bexley Road itself is
unsuitable, the Inquiry finds it difficult to see
how it can be made the more acceptable in the future.
for ‘local’ needs. But what was the Bexley Road
Option beyond the two by-pass proposals? Once the
by-passes are built it follows that accessibility
in that corridor will be improved. More traffic,
including more truck traffic, will then use the
Bexley Road. If the Bexley Road Option is
unacceptable now because Bexley Road itself is
unsuitable, the Inquiry finds it difficult to see
how it can be made the more acceptable in the future.
The Harrow Road/Bay Street corridor has been
incorporated in the Rockdale planning scheme. ft
existed before that scheme was prescribed. The
following was said in evidence (39):
incorporated in the Rockdale planning scheme. ft
existed before that scheme was prescribed. The
following was said in evidence (39):
"McINNES: ..It seems to me
that the
particular reservation has been, in
the scheme since the 1950s. Its
been a prescribed road reservation
which to the best of my knowledge
has certainly never been done with
the co-operation of the Rockdale
Council. That’s not suggesting it
(has been incorporated) against the
will of the Rockdale Council, but in
fact appears to be an initiative
taken by the Department of Main
Roads through the Cumberland County
Planning Scheme. And of course that
was the time when the reservations
were extremely lavish and at that
time this particular centre (South
Side Plaza) didn’t exist."
particular reservation has been, in
the scheme since the 1950s. Its
been a prescribed road reservation
which to the best of my knowledge
has certainly never been done with
the co-operation of the Rockdale
Council. That’s not suggesting it
(has been incorporated) against the
will of the Rockdale Council, but in
fact appears to be an initiative
taken by the Department of Main
Roads through the Cumberland County
Planning Scheme. And of course that
was the time when the reservations
were extremely lavish and at that
time this particular centre (South
Side Plaza) didn’t exist."
There were suggestions that the Rockdale Council
advocated the removal of the corridor. The Planning
and Environment Commission however said this (40):
advocated the removal of the corridor. The Planning
and Environment Commission however said this (40):
"Current Council opposition
may
therefore be related to anxiety
that the route would become the
therefore be related to anxiety
that the route would become the
39. Transcript
Shopping Centres Pty. Limited
29/10/79, page 32.
40. S.K/C 947 Planning and Environment Commission
Submission 10/3/80, page 5.
29/10/79, page 32.
40. S.K/C 947 Planning and Environment Commission
Submission 10/3/80, page 5.
-219-
only cross-regional route and
could be a short term view based
on the fear of increased truck
traffic."
could be a short term view based
on the fear of increased truck
traffic."
The Rockdale Council advocated the South-Western
Option. We have taken a different view. In view
of our rejection of that option, Council's attitude
on the by-pass proposal is a matter about which we
can only speculate. Whether in these circumstances
it would favour the retention of the corridor we
cannot say.
Option. We have taken a different view. In view
of our rejection of that option, Council's attitude
on the by-pass proposal is a matter about which we
can only speculate. Whether in these circumstances
it would favour the retention of the corridor we
cannot say.
We may not be in the best position to make a judge-
ment on the corridor issue. We are not familiar
with the road hierarchy planned by Council. We do
not know the extent to which the criticism we have
made of the Harrow Road/Bay Street proposal can be
answered. These matters were not debated. Before
a decision is made they should be debated by the
council and by the Planning and Environment Commission.
We urge this matter be reconsidered in the light of
this exposition. The human cost of needlessly
retaining corridors should not be underestimated (41).
ment on the corridor issue. We are not familiar
with the road hierarchy planned by Council. We do
not know the extent to which the criticism we have
made of the Harrow Road/Bay Street proposal can be
answered. These matters were not debated. Before
a decision is made they should be debated by the
council and by the Planning and Environment Commission.
We urge this matter be reconsidered in the light of
this exposition. The human cost of needlessly
retaining corridors should not be underestimated (41).
7.2 The Campsie By-Pass Corridor
There are a number of persuasive arguments against
the Campsie by-pass proposal. We have referred to
some of them already.
the Campsie by-pass proposal. We have referred to
some of them already.
First, is it necessary? Does traffic seriously
intrude upon the Campsie Shopping Centre? There can
be no doubt that the presence of traffic in the
Campsie Shopping Centre (as in any shopping centre)
is undesirable. Its complete removal (and the
creation of a shopping mall similar to Bankstown
or Bondi Junction) is not contemplated. The by-pass
proposal would reduce traffic. No doubt this would
intrude upon the Campsie Shopping Centre? There can
be no doubt that the presence of traffic in the
Campsie Shopping Centre (as in any shopping centre)
is undesirable. Its complete removal (and the
creation of a shopping mall similar to Bankstown
or Bondi Junction) is not contemplated. The by-pass
proposal would reduce traffic. No doubt this would
41. See Volume II Planning Criteria page 230
and 249
see the submission of Mr. N.P. Oswald S.K/C 824
and his evidence (transcript 9/10/79). Mr. Oswald
has been substantially robbed of the enjoyment of
his property by the existence of the corridor.
see the submission of Mr. N.P. Oswald S.K/C 824
and his evidence (transcript 9/10/79). Mr. Oswald
has been substantially robbed of the enjoyment of
his property by the existence of the corridor.
-220-
improve the amenity to some degree. Whether that
improvement would adequately compensate for the
disadvantages, is open to doubt. On our many
excursions to Campsie we found the shopping centre
to be a pleasant place to shop. It does not suffer
to the same degree as the Bexley Shopping Centre.
Secondly, the traffic in Beamish Street has been
stable for some time, although curiously the most
recent count (1979) revealed a sharp increase. The
annual average daily traffic figures (AADT’s) for
Beamish Street are as follows:
stable for some time, although curiously the most
recent count (1979) revealed a sharp increase. The
annual average daily traffic figures (AADT’s) for
Beamish Street are as follows:
TABLE 15.
AADT’s BEAMISH
STREET, CAMPSIE
Year North of South North of Fletcher
Parade Street
Parade Street
1965 2l,140 21,830
1968 23,350 20,020
1971 25,360 22,100
1973 25,090 20,400
1975 24,040 19,130
1977 24,040 ---
1979 28,680 ---
1968 23,350 20,020
1971 25,360 22,100
1973 25,090 20,400
1975 24,040 19,130
1977 24,040 ---
1979 28,680 ---
The traffic model predicts a 15% growth in the Campsie
Shopping Centre between 1976 and 1991 (triptable D) (42).
Shopping Centre between 1976 and 1991 (triptable D) (42).
Thirdly, we have already described the severance,
noise and pollution effects which the by-pass will
induce. The amenity of Beamish Street may be
improved. The side effects make one question
whether the cure is worse than the disease.
noise and pollution effects which the by-pass will
induce. The amenity of Beamish Street may be
improved. The side effects make one question
whether the cure is worse than the disease.
Fourthly, the Harcourt Public School (being an
infants’ and primary school with 750 children) would
suffer considerably. The disadvantages arise in
four distinct ways. First, it would lose part of
infants’ and primary school with 750 children) would
suffer considerably. The disadvantages arise in
four distinct ways. First, it would lose part of
42. Exhibit
75 being revised version of Figure 6.5
of the Transport and Economic Analysis of the
DMR, S.K/C 340.
of the Transport and Economic Analysis of the
DMR, S.K/C 340.
-221-
its playground, and a considerable part. Secondly,
it would be surrounded by traffic on all sides. At
the present time a considerable stream of traffic
uses Ninth Avenue, Campsie. Ninth Avenue passes by
the school on one side. If the by-pass proposal
went ahead traffic would pass along another side
(Second Avenue). The noise environment is likely
to deteriorate. The traffic stream is brought
closer to the classroom by the loss of the playground.
The noise must intrude upon the fragile concentration
of young pupils. Thirdly, and worse, the rate of
accidents must increase. Fourthly, pollution, and
especially lead pollution, is likely to increase.
it would be surrounded by traffic on all sides. At
the present time a considerable stream of traffic
uses Ninth Avenue, Campsie. Ninth Avenue passes by
the school on one side. If the by-pass proposal
went ahead traffic would pass along another side
(Second Avenue). The noise environment is likely
to deteriorate. The traffic stream is brought
closer to the classroom by the loss of the playground.
The noise must intrude upon the fragile concentration
of young pupils. Thirdly, and worse, the rate of
accidents must increase. Fourthly, pollution, and
especially lead pollution, is likely to increase.
The Canterbury Council opposed the major road
options. It advocated the release of the corridor
for both the Cooks River option and the South-Western
option. It has assiduously developed a road hierarchy.
It is built around a precinct plan designed to improve
local amenity. The council maintained that such a
plan is better able to achieve its traffic and
planning objectives than the provision of a major
road.
options. It advocated the release of the corridor
for both the Cooks River option and the South-Western
option. It has assiduously developed a road hierarchy.
It is built around a precinct plan designed to improve
local amenity. The council maintained that such a
plan is better able to achieve its traffic and
planning objectives than the provision of a major
road.
The council was opposed to the release of the Campsie
by-pass corridor. The following appears in the
transcript (43):
by-pass corridor. The following appears in the
transcript (43):
"SHEFFIELD: ..The
Council has been
supporting, and actively campaigning
for the construction of short lengths
of by-pass roads...They’ve been
sponsoring the by-pass roads around
Campsie, Canterbury, Earlwood and
Punchbowl Shopping Centres and I
think they're all examples of this
policy.”
supporting, and actively campaigning
for the construction of short lengths
of by-pass roads...They’ve been
sponsoring the by-pass roads around
Campsie, Canterbury, Earlwood and
Punchbowl Shopping Centres and I
think they're all examples of this
policy.”
Later in the same transcript the following appears (44):
43. Transcript
2/11/79 Canterbury Municipal Council,
pages 30-31.
44. ibid., page 31.
pages 30-31.
44. ibid., page 31.
"COMMISSIONER: Council
therefore
advocates, I take it, the retention
of the planning corridor for the
Campsie (by-pass) whilst not advoca-
ting the Bexley Road Option?
advocates, I take it, the retention
of the planning corridor for the
Campsie (by-pass) whilst not advoca-
ting the Bexley Road Option?
SHEFFIELD: That’s
right. They can
see the Campsie by-pass as assisting
Canterbury's residents, but they
can't go along with the Bexley Road
Option in its entirety because of
the effects it will have on other
municipalities."
see the Campsie by-pass as assisting
Canterbury's residents, but they
can't go along with the Bexley Road
Option in its entirety because of
the effects it will have on other
municipalities."
Mr. Sheffield is the Chief Engineer and Town Planner
of the Canterbury Municipal Council.
of the Canterbury Municipal Council.
Although we have been told about the Council's
hierarchy plans, we have not studied them. We do
not know the extent to which the by-pass proposal
is important in the overall scheme. We do not know
the extent to which the Council's opposition to the
major options is conditional upon its being in a
position to implement the hierarchy, including the
Campsie by-pass. We have taken the view, in the
circumstances, that we should do no more in this
Report than urge a reconsideration of the matter
in the light of our findings.
hierarchy plans, we have not studied them. We do
not know the extent to which the by-pass proposal
is important in the overall scheme. We do not know
the extent to which the Council's opposition to the
major options is conditional upon its being in a
position to implement the hierarchy, including the
Campsie by-pass. We have taken the view, in the
circumstances, that we should do no more in this
Report than urge a reconsideration of the matter
in the light of our findings.
8. RECOMMENDATIONS
The Inquiry makes the following recommendations:
1. BEXLEY ROAD OPTION
The Bexley Road Option was put forward as a link
between the central Industrial Area and the Western
or South-Western Regions of Sydney.
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.
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2. THE BESTIC STREET/VILLIERS STREET SUB-OPTION
A route using Bestic Street and Villiers Street,
Rockdale was proposed as an alternative to a
corridor which exists in the Rockdale Planning
Scheme (Bay Street and Harrow Road, Rockdale).
RECOMMENDATION: The Inquiry recommends the
exclusion of this sub-option
from further consideration.
Specifically it recommends
against its inclusion as a
transport corridor in any
planning instrument.
exclusion of this sub-option
from further consideration.
Specifically it recommends
against its inclusion as a
transport corridor in any
planning instrument.
3. THE ROCKDALE BY-PASS CORRIDOR
Having recommended against the Bexley Road Option,
the Inquiry is obliged to consider the retention of
the Rockdale by-pass corridor.
the Inquiry is obliged to consider the retention of
the Rockdale by-pass corridor.
RECOMMENDATION: The Inquiry is not in a
position to recommend the
corridor’s removal. There
are strong arguments for its
deletion. The Inquiry urges
the Planning and Environment
Commission and the Rockdale
Council to re-consider the
matter in the light of the
findings made in this Report.
position to recommend the
corridor’s removal. There
are strong arguments for its
deletion. The Inquiry urges
the Planning and Environment
Commission and the Rockdale
Council to re-consider the
matter in the light of the
findings made in this Report.
4. THE CAMPSIE BY-PASS CORRIDOR
Should the corridor be deleted in view of the rejection
of the Bexley Road Option?
RECOMMENDATION: The Inquiry is not in a
position to recommend the
deletion of the corridor.
It urges a re-consideration
of the matter in the light
of this Report.
position to recommend the
deletion of the corridor.
It urges a re-consideration
of the matter in the light
of this Report.
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