Wednesday 7 October 2015

Vol IV - Chapter VIII




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VIII  THE SOUTH WESTERN OPTION

1. THE NATURE OF THE OPTION

1.1 A Division Between Government Departments

A number of Government Departments made submissions
to the Inquiry. They did not speak with one voice.
The Department of Main Roads favoured the South-
Western Option. The planning and Environment
Commission and URTAC (45) advocated the Cooks
River Option.

This division was seen by some as a sign of weakness.
They openly scoffed at the disparity between views.
It suggested, they said, that the Government could
not even make up its mind.

Such criticism is entirely unfounded. It is
inappropriate to draw an analogy between political
parties and Government Departments. Political
parties place a premium upon uniformity. They
seek to present the public with one view (the
party platform). Departures from that view are
regarded with disfavour. They undermine 'party'
solidarity.

Government Departments are differently placed. Each
is entrusted with a particular area of public affairs.
The Inquiry will be better served if each Department
provides an independent view. The Inquiry believes
that its appreciation of each option has been
significantly increased by the variety of views
presented.

1.2 The Cost of the South-Western Freeway

The concept of the South-Western Freeway dramatises
the gulf between the planner's dream and present day
realities (46). The County of Cumberland Plan in 1951

45. Now known as TRANSAC.
46. The Freeway is depicted in Figure 19 (page 153)
    and see Figure 24 (page 244).

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established the South-Western corridor. It proposed
a high quality freeway extending from the periphery
of Sydney to Tempe, where it would link up with the
Southern Freeway.

That dream has been costed. The cost estimate,
expressed in 1978 dollars, was as follows:

  • The section between the Cross Roads,
    Prestons and Fairford Road, Padstow
    was estimated to be $72 million
  • The section between Fairford Road,
    Padstow and King Georges Road,
    Beverly Hills, $16 million (47).
  • One carriageway between King Georges
    Road and General Holmes Drive (a
    deviation from the original concept)
    $56.6 million.

The cost (in 1978), therefore, was almost $150 million.
That is almost three times the entire road construc-
tion budget for the entire Sydney Metropolitan Area
for the same year (48).

The Department of Main Roads accepts that it is
simply not feasible to contemplate the completion
of a South-Western Freeway in the foreseeable future.
At best it may be completed in part. The selection
of that part must be made with some care. Funds
must be concentrated where they are needed. They
must yield regional benefits rather than benefits
which are purely local.

1.3 The Study Area and the Terms of Reference

A distinction must be made between the Study Area
and the area embraced by the Terms of Reference.
The distinction is important in the context of the
South-Western Option.

47. South-Western Freeway Study for DMR, De Leuw
    Cather (September, 1978), page 6.
48. See Volume II, TransportCriteria, page 214.

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In September 1978 the Government commissioned the
present Inquiry. At that time the Planning and
Environment Commission and the Department of Main
Roads were in the process of producing (for their
respective Ministers) a joint report. The report
was to examine a number of road options. These
coincided with options which were to be considered
by the Inquiry. The view was taken, therefore,
that the Joint Report would furnish a convenient
reference document for the Inquiry. It would
assist members of the public in making submissions.

The Inquiry began upon completion of that document
(June, 1979).

The Joint Report, however, examined options which
terminated either in Chullora (the Cooks River Option)
or at King Georges Road (the 'South-Western Option’).
The Terms of Reference, on the other hand, permitted
the Inquiry to consider a road (or series of roads)
extending beyond this area, linking with Western or
South-Western Regions of Sydney with the Central
Industrial Area (and the Port/Airport).

Public participation has been an important aspect
of this Inquiry. It presupposes that persons
affected by an option will be given notice. Notice
ought to be something more than an obscure advert-
isement hidden somewhere in a Government Gazette.
Advertisements were inserted in metropolitan daily
newspapers and in local newspapers. An area to the
east of King Georges Road (between Beverly Hills
and the Central Industrial Area), and within the
visual catchment of each option, was circulated
with a pamphlet. The pamphlet outlined certain
options. It invited submissions.

A public participation programme of this intensity
was not conducted to the West of King Georges Road.
Few submissions were received from that area. Although

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the entire South-Western Freeway between Tempe and
the Crossroads, Prestons is within the Terms of
Reference (being a link between the Central
Industrial Area and the South-Western Region of
Sydney) any conclusion which the Inquiry may reach
touching the area to the west of King Georges Road
must be regarded as tentative, and must be regarded
as subject to the public, at some stage, having its
say.

Having said that, we should repeat one matter, lest
there be misapprehension. We are asked to consider
whether a major road is 'needed’. The concept of
'need' presupposes a regional perspective. Although
our sharp focus must be upon the area which has been
the subject of public participation (the study Area
to the east of King Georges Road), our field of
vision must necessarily embrace the entire metropo-
litan area. Problems are discerned by examining
the Study Area. Relativities can only be determined
by examining the entire metropolitan area.

1.4 Is the South-Western Option Inevitable?

A number of options were placed before the public.
Some were influenced in their view by the suggestion
that the South Western Option would be built anyway.

The Crown Lands Office expressed the dilemma in
these words (49):

"..One of these options (the South-
Western) is designed as one carriage-
way of a planned freeway which may or
may not be constructed irrespective
of the outcome of this Inquiry. The
freeway itself is regarded as a
separate issue and is presented as
almost inevitable
.
It follows that if the South-Western
Freeway corridor is to be used for
the construction of a freeway in any

49. S.K/C 751 Submission by Crown Lands Office, page 5.

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event, then much of the evaluation..
is misleading. If the Cooks River
corridor is not to be also used for
major road construction (with the
same probability) then the relative
evaluations are based on conflicting
premises. Cooks River effects are
avoidable and the South-Western
effects are inevitable, making the
choice obvious."

The Inquiry does not regard the South-Western Option
as inevitable. The South-Western Option (and any
other road option) must prove its worth before it is
constructed. It is, at the moment, simply a line
upon the map. That line may not correspond with
present day needs or future needs. If it does not,
the corridor should be released.

2. VARIATIONS UPON THE SOUTH-WESTERN THEME

2.1 Introduction

It is not possible to speak of the South-Western
Option. Analysis has been made the more complicated
by there being a variety of options designed to
service the 'South-Western Corridor'. Broadly the
options involve:

  • Work to the east of King Georges
    Road (i.e., between Beverly Hills
    and Tempe, and within the Study
    Area)
  • Work to the west of King Georges
    Road (i.e. between Beverly Hills
    and Campbelltown, within the Terms
    of Reference but not the subject of
    an intensive public participation
    programme).

The nature of each variation will be briefly
outlined. They differ (in some cases markedly)
in their environmental and social impact. They
also differ in cost. These differences will be
more fully described when we consider (later in

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this Chapter) the environmental and social
impacts of each sub-option.

2.2 Work to the East of King Georges Road

2.2.1 The Original Conception of the South-Western
      Freeway

The Sydney Area Transportation Study recommended
the construction of the South-Western Freeway from
Casula (in the South-West) to Tempe. It was to be
a divided road. The width of road would vary
between 6 and 8 lanes (50).

The matter was looked at again by consultants to the
Department of Main Roads, De Leuw Cather Australia
Pty. Limited, in a Report of September, 1978.
Changes were suggested. The Report says (51):

"The ultimate level of development
proposed in this Study ..is more
modest than previously nominated
in the SATS work, and by others.
This is a reflection of assumed
lower population growth, and assumed
relatively high public transport
usage.

  • South-Western Freeway - The
    Crossroads to Casula: 4 lanes
    proposed now, was 6
  • South-Western Freeway - Casula
    to (King Georges Road): 6 lanes
    proposed now, was 8.”

The report does not deal with the section between
King Georges Road and Tempe. Presumably the Depart-
ment would still advocate (in the long term) two
carriageways, each of 3 lanes.

2.2.2 The South-Western Option in the Joint Study
      Report

One option proposed at this Inquiry was termed ‘The
South-Western Option'. It was developed in the

50. SATS Volume 3, Chapter II, page 17.
51. DMR Submission S.K/C 340 De Leuw Cather Report
    September, 1978, page 6.


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Joint Study Report and described by that report in
these terms (52):

"Within the South-Western Freeway
corridor, from the Cooks River
corridor at Undercliffe to King
Georges Road at Beverly Hills,
this option has been designed
as a first-stage one-carriageway
development of an ultimate two-
carriageway freeway..This option
has therefore been constrained
(in location and geometry) to be
part of the planned South-Western
Freeway which is planned ultimately
to consist of two divided carriage-
ways."

One carriageway would be built now, and used, for
the time being, for two-way traffic, which would
be separated by means of a centre line.

The carriageway to be developed first was, curiously,
the most expensive of the two; the one which would
involve the greatest number of resumptions, and the
one which occasioned greatest environmental damage.
The Inquiry found this puzzling. We will return to
the matter later.

2.2.3 The South-Western Freeway Option

The genesis of the 'South-Western Option' in the
Joint Study Report is described by the Department
of Main Roads (53):

"The design standards developed by
the Department for the Joint Study
Report are in accordance with the
government's request that a lower
standard of road alignment and its
geometric layout should be considered.”

One of the cost savings suggested by the Joint Study
Report
was the omission of a median strip, separating
opposing traffic. The Department, for its part,

52. Joint Study Report, DMR/PEC, page 17.
53. S.K/C 340 Submission DMR July, 1979, page 16.

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thought such a saving inappropriate. The nature
of the road made a median desirable. The additional
cost would be approximately $4 million. The total
cost of the South-Western Freeway Option (preferred
by the Department of Main Roads) would be $56.6
million (as opposed to $52.1 million for the option
suggested by the Joint Study Report) (54).

2.2.4 A Revised Alignment Suggested by this Inquiry

In the United Kingdom it is commonplace to prepare
an elaborate model of the proposed road. The models
are expensive to make. They take time to construct.
The advantages, nonetheless, are considerable

There was no model available to the public. The
Inquiry, for its part, having diligently read the
Joint Study Report, did not have an adequate appre-
ciation of the impact of the South-Western Option
(or the South-Western Freeway Option). We rather
doubt that the public (even those who intimately
knew the Wolli Creek area) was any better placed.

To acquaint itself with each proposal the Inquiry
suggested a number of walks. Each route was traversed
in turn. An officer from the Department of Main Roads,
familiar with the precise alignment, accompanied each
inspection. Only in this way were we able to know
exactly what was proposed. The walks were invaluable.
Indeed it is difficult to imagine how the task could
adequately be performed without them. We strenuously
recommend this course to any subsequent road inquiry.

It became obvious from the walk that the alignment
chosen by the Department of Main Roads (or the Joint
Study team) was not the only alternative. The road
had been placed on one side of the valley. There was
the other side. Could the road be more advantageously

54. See DMR Submission (De Leuw Cather, September 1979)
    page 33, and see transcript 23/10/79, pages 30-31.

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placed alongside the railway line? Was it possible,
for instance, to develop the other carriageway in
preference to the one selected?

The Inquiry suggested that an alignment as close
as possible to the railway should be tested for its
feasibility and desirability. Revised drawings
were prepared (Exhibits 59 and 60) (55).

2.2.5 Advantages of the Revised Alignment

The Planning and Environment Commission described
the revised alignment as being 'only marginally
better than the original design' (56). We disagree.
The advantages of the revised alignment are
considerable. The following bare statistics begin
the story (which we will complete in the course of
this chapter):

  • The cost comparison is as follows: 
    • Freeway option $56.6 million (57)
    • Revised alignment $50.2 million (58)
  • The comparison between the number of
    houses resumed is as follows:
    • original alignment 158 houses
      affected
    • revised "alignment 113 houses
      affected
    • the number of houses partially
      resumed remains almost the same
      (the revised alignment reducing
      the total by one, from 51 to 50) (59)
  • In terms of open space resumed, the
    comparison is:
    • original alignment 36 hectares
    • revised alignment 26.4 hectares

55. Exhibits 59 & 60 identified as maps rolls 1 & 2 P409B(M1).
56. Planning and Environment Submission S.K/C 947
    letter to the Inquiry 4/3/80.
57. DMR Submission De Leuw Cather September 1979, page 33.
58. DMR transcript 14/12/79, page 3.
59. DMR transcript 13/12/79, page 25.

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  • under the original alignment the
    parkland in the area between Bexley
    North and Beverly Hills would have
    been isolated. The road would have
    prevented access on one side. The
    railway line would effectively cut
    off access by residents on the other
    side of the valley. The revised
    alignment ensures the park is
    accessible to the residents who
    may take advantage of it.

The statistics do not begin to tell the full story.
The revised alignment would preserve the important
sandstone cliffs in Undercliffe. It would not
intrude as extensively upon Girrahween Park, an
important local recreational area of significant
beauty and charm.

The cost difference between the original alignment
and the revised alignment is likely to exceed $6
million. We will later comment upon the cost
estimates for the South-Western Freeway. We regard
the acquisition costs as being understated. Since
the original alignment involves greater property
acquisition, the cost differential is likely to
rise.

The comparison between the original alignment and
the revised alignment emerges from Figure 22.

2.2.6 Why Was the Original Alignment Chosen?

Given the clear advantages (financially and environ-
mentally) of the revised alignment, why was the
original alignment chosen? The answer we found
startling. It emerges from the following passage,
taken from the transcript (60):

60. Transcript DMR 13/11/79, page 30.



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FIGURE 22.
COMPARISON BETWEEN THE ORIGINAL ALIGNMENT AND THE
REVISED ALIGNMENT FOR THE SOUTH-WESTERN OPTION



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"From the point of view of ease of
constructing the second carriage-
way in the future, it is easier
now to build the western carriage-
way because it must be accepted
that when we need to build a
second carriageway, and if we
have to construct through environ-
mentally significant features,
that in the future this is going
to be harder than at present."

Later the following was said (61):

"..It is possibly better to grasp
the nettle and build the carriage-
way which has the most significant
environmental impact first so that
the job in the future is made easier,
bearing in mind that there appears
to be (a) continuing increase in
reaction of people to large public
works programmes."

The approach seemed to the Inquiry to be odd. The
second carriageway may never be needed. The
following exchange took place (62):

"COMMISSIONER: On the one hand you
have a second carriageway which may
or may not be needed in the future,
depending upon the growth of Sydney
and the demand, and factors of that
sort, right?

DMR: Yes.

COMMISSIONER: The second thing is
that you have two alternatives, one
which caters for present demand, and
which causes (less) disruption and
which costs less.

DMR: Yes.

COMMISSIONER: The other is an
alternative which causes great
disruption to residents, in the
sense that it takes (more) dwellings,
and great disruption to the environ-
ment, in the sense that it demolishes
cliffs and various parks.

61. Transcript 14/12/79, page 5.
62. Transcript DMR 14/12/79, page 18.

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DMR: (We) would say perhaps those
statements are rather extreme. The
number of additional dwellings are not
extremely significant..Secondly,..the
severance effects (are not greatly
different). Thirdly, the environmental
effects..there would still be a remnant
area north of the freeway which could
be used by the public."

The matter was further explored in the same transcript.
If we may be forgiven self advertisement, the
benefits of an inquiry emerge from the following
exchange (63):

"COMMISSIONER: I am just trying to
(understand) what seems to me (to be)
something of a paradox. It is one
thing if you know you are definitely
going to need something in the future.
I can well understand in that situation
why one may perhaps grasp the nettle
now; but in a situation where the future
is very much unknown, and whether you
will actually ever need the second
carriageway is unknown, it becomes a
little less easy to understand (why the
western carriageway was chosen). Where
the environmental impacts of the two
alternatives are different, the cost of
the two is different, and the amount of
disruption in terms of people being
displaced is different, and the difference
in each case favours the route which was
not selected by the Department, that
prima facie seems to me to be odd.

DMR: Much of what you have just
described has only become known subse-
to participation in the Inquiry."

We do not favour the South-Western Freeway. If the
Government takes a contrary view, we would urge the
construction of the eastern carriageway rather than
its companion on the western side of the valley.

The eastern carriageway (depicted in exhibits 59 and
60) should be capable of further refinement. Its
alignment does not intrude upon the railway reserva-
tiorr. The reservation for much of its length is

63. Transcript DMR 14/12/79, page 19.

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broad and flat and unused. It can be used without
compromising its capacity to cater for quadruplica-
tion of the East Hills Line if that is required in
the future. In the interests of preserving as much
of the valley as possible it ought to be used.

Secondly, it may be possible to ameliorate the impact
of the road by lowering its standard. The Planning
and Environment Commission, for instance, said this (64):

"It is RECOMMENDED that design
standard chosen for the (South-
Western Freeway) be for an Inner
Urban Freeway rather than a Suburban
Freeway as set out in the NAASRA
Road Design Standards."

Whether it is possible to design the road as a major
arterial road, rather than a freeway, and whether,
if that were done, the impact upon the valley would
be significantly less, is a technical matter of
engineering design upon which we would prefer not
to comment. It is a matter, nonetheless, which
ought to be investigated if consideration is being
given to this route.

2.2.7 The Use of the Railway Easement

A suggestion of great originality was made by certain
consultants to the Rockdale Council, Environmental
Impact Statements Pty. Limited. They drew attention
to the width of the railway easement. It is a
lavish two chain easement. Would it be possible to
place a carriageway on either side of the railway?
Could that be done without compromising the capacity
of the easement to cope with quadruplication if that
were thought necessary in the future?
A diagram was furnished by these consultants. It
is reproduced here (Figure 23).

64. PEC Submission S.K/C 947 letter 4/3/80 and
    Attachment page 5.

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FIGURE 23.
THE USE OF THE RAILWAY EASEMENT FOR THE SOUTH-WESTERN OPTION.




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The Rockdale Council subsequently disowned this
suggestion. It would, they said, impose great
hardship (in terms of additional noise and pollution
etc) upon residents whose houses were near the
eastern side of the valley.

The Department of Main Roads was invited to comment
upon the proposal. It said this (65):

"BUNTON: It could be done..I think
we assessed in the field when we
did the walk (with the Inquiry) in
the South-Western Corridor, that it
might be feasible (as a matter of
engineering) to put one carriageway
each side of the railway track..It
would obviously have to be done in
conjunction with the PTC. At this
stage we preferred not to undertake
an investigation of our own."

A number of difficulties were obvious from the
Inquiry's inspection of the easement. First, the
railway lines have not been placed in the centre
of the easement on all occasions. The track, to
some extent, meanders from one side of the easement
to the other. Secondly, houses encroach upon the
reservation in certain areas. It appeared to be
less than two chains. Thirdly, there would be
obvious difficulties at each railway station where
the reservation has been fully used. Resumptions
would be necessary. In many cases they would be
expensive because of an adjacent shopping centre.
Fourthly, it would be difficult to transfer the
road from one side of the reservation to the other.
Either it would be necessary to take the road over
the railway line on structure (which would be
cumbersome and expensive) or in some way under
the railway line.

The concept is interesting and is worthy of further
investigation. It should certainly not be dismissed
as frivolous.

65. Transcript 18/3/80, pages 31-32.

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2.3 Works to the West of King Georges Road

2.3.1 The Picnic Point Connection

The Department of Main Roads was confronted with a
capacity deficiency in the South-Western Corridor
(demonstrated by reference to the four-step model
to which we will refer shortly). The South-Western
Freeway did not furnish a solution because it was
financially out of reach. An alternative had to be
found. The Picnic Point connection (so-called) was
suggested. It is depicted in Figure 24.

The Department of Main Roads described this
alternative in these terms (66):

"An alternative proposal to overcome
the traffic and financial problems
outlined is to provide as an interim
measure a link from the new Georges
River bridge at Moorebank via Anzac
Road and Heathcote Road, with a new
connection from that road to Henry
Lawson Drive near Picnic Point, and
from there to Stoney Creek Road...
This relatively low cost alternative..
would use a substantial length of
existing, under-utilised roads. It
would..provide interim relief to
traffic on Newbridge, Milperra and
Canterbury Road pending construction
of the Freeway route."

2.3.2 A Connection Between Fairford Road and King
      Georges Road

The South-Western Freeway performed badly in the
application of the economic criterion, cost/benefit
analysis. The Department of Main Roads surmised
that this may be attributable (at least in part) to
congestion at the junction of the Freeway with King
Georges Road. They thought the problem may be over-
come if the route were extended as far as Fairford
Road. The possibility was tested. There were two
alternatives:

66. DMR Submission S.K/C 340 (July, 1979), page 10.

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FIGURE 24.
(This is Figure 3.1 in the De Leuw
Cather September, 1979 Report)




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  • the high scale extension which
    was a four-lane divided freeway
    (see Figure 24)
  • or a low scale extension which was
    simply a four-lane, undivided road,
    (similar in concept to the original
    South-Western Option proposed by
    the Joint Study Report).

2.4 The Problem of the Eastern Terminus

The Kingsford Smith Airport occupies a substantial
area. In terms of road planning, it is difficult
to know whether a major road coming from the West
or South-West should circumnavigate the airport on
the southern side (terminating at General Holmes
Drive) or to the North (terminating somewhere in
the Central Industrial Area, and giving easy access
to the Port). The proposal put before the public
for its scrutiny and comment suggested a southern
alignment, following the Cooks River, terminating
at the junction of Tancred Avenue and General
Holmes Drive, Kyeemagh.

The alternatives will be examined when we consider
the Cooks River Option (67).

These were the possibilities. How did they perform?
They will be examined against the following criteria:

  • land-use/transportation implications
  • economic implications
  • social implications
  • environmental implications

67. See page 339.
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3. TRANSPORT AND PLANNING IMPLICATIONS

3.1 A Sequence of Questions

It is important that we repeat at every relevant
turn the questions which must be addressed. They
are:

  • First, where in the network is
    there a discrepancy between likely
    demand and road capacity, such that
    congestion can be anticipated?
  • Secondly, is it desirable that
    congestion should be eliminated?
    Will its elimination simply encourage
    further traffic to travel in a direc-
    tion in which it ought to be
    discouraged? Is there an accessibility
    problem (especially for trucks) which
    requires correction?
  • Thirdly, where it is desirable that
    congestion should be eliminated, can
    the discrepancy between road space
    and traffic demand be answered by:
  • a transport solution (i.e., the
    provision of more road space,
    spot improvements, traffic
    management techniques etc)
  • a public transport solution
  • a land-use solution.

The submissions to the Inquiry (including that from
the Department of Main Roads) concentrated upon the
first issue (congestion) almost to the exclusion of
the other issues. To neglect the other issues is
to overlook the interaction between land-use and
transportation planning (69).

68. See page 32 of this Report (Volume IV) and
    see Volume II Transport Criteria, page 13

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3.2 The Effect Upon Network Congestion

3.2.1 The Work to the West of King Georges Road

The Department of Main Roads emphasised the need
to look beyond the Study Area. Its view can be
summarised in three propositions. First, the
corridor served by the Cooks River route was a
'low demand' corridor. It said this (69):

"Its orientation..is in the direction
of lower traffic demand corridors..
It does not serve well the heavy and
growing South-Western Corridor..
The high cost of the work, therefore,
when considered in relation to the
Metropolitan Area which would benefit,
is of particular concern to this
Department."

The South-Western corridor, on the other hand,
better served regional (as opposed to local) needs.
The Department said this (70):

"The South-Western Option has been
shown to offer the greatest overall
benefits to the region as a whole
as well as the local communities in
the Study Area. Considered in the
context of the Department’s overall
planning for the Sydney Region, its
commitment to meet the needs of the
high demand South-Western Corridor
by the staged development of the
South-Western Freeway and the limited
funds likely to be available for major
works, the South-Western Option would
be superior to the Cooks River Option."

Secondly, the Department did not recommend construc-
tion of that section of the South-Western Freeway
within the Study Area (i.e., 'the South-Western
Option' between General Holmes Drive and King
Georges Road). It saw the needs of this area as
far less pressing (71).

69. DMR Submission S.K/C 340 July, 1979, page l-2.
70. ibid., page 1.
71. DMR Submission (De Leuw Cather Australia Pty. Limited)
    September 1979, page 80, and see transcript (DMR)
    23/10/79 page 23, and see transcript (DMR) 10/12/79,
    pages 13-14.

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Thirdly, the needs of the area to the west of King
Georges Road were far greater. That was where
construction was needed. Repeatedly, this corridor
was characterised as a ‘high demand corridor'.
Traffic was expected to grow by 32% between 1976 and
1991. (See Table 5). The Department says this (72):

"De Leuw Cather completed a study
of stage construction of the South-
Western Freeway west of (King Georges
Road) in September, 1978. The report
to the DMR..confirmed the urgent need
for major road work between Liverpool
and (King Georges Road)."

Later in the same submission the following is said (73):

"The DMR has accepted that growth
pressures between Liverpool and (King
Georges Road), as quantified in the
September, 1978 South-Western Freeway
Report, are such as to justify early
construction of new road works in this
sector. These road works west of (King
Georges Road) are likely to be constructed
in advance of any Kyeemagh/Chullora Road
works.”

The same impression of desperate urgency is created
elsewhere in the submission (74):

"The South-Western Freeway Report
quantified the high traffic growth
pressures..which will result from
population growth in the South-Western
Suburbs and in Campbelltown. Construc-
tion of road works was recommended and
is about to be commenced in the
Liverpool area."

The rate of traffic growth (32%) is a product of
the traffic model. The traffic model has been
constructed by making certain assumptions (75).
One assumption concerned population growth in the

72. DMR Submission S.K/C 340 September 1979, page 1.
73. ibid., page 3.
74. ibid., page 23.
75. See page 92 of this Report and see VolumeII    Transport Criteria, page 125.

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South-West. Predictions used in the model have
since been revised. A lower rate of growth is now
forecast. The contrast emerges from the following
predictions (for the year 2000):

  • the low estimate made in 1976 for
    the South-Western Region was 422,000
    people
  • the low estimate made in 1979 was
    254,000 people
  • the medium estimate made in 1979
    was 315,500 people

The discrepancy in the year 1991 (being the year used
in the traffic model) is not as great. It remains,
nonetheless, substantial, and it does undermine the
basic premise upon which the Department of Main
Roads formed its view.

Population estimates are notoriously unreliable,
especially in the long-term. Corroboration for the
lower growth expectations, however, can be found in
the growth of traffic in the South-Western corridor.

Traffic has been growing at less than l% every two
years since 1973 (76). It seems highly unlikely,
therefore, that the growth expectations of 32% will
be realised. The case for the South-Western Option,
on more recent information, is less compelling.

It is undermined further by the disclosure of plans
to widen Canterbury Road (between Chapel Road and
Fairford Road, Bankstown). The following question
was put to the Department of Main Roads and received
an affirmative response (77):

"MIDDLETON: ..Would you agree that
the undertaking of the Canterbury
Road widening could, to that extent,
mitigate against the construction

76. See page 142, Table 13.
77. Transcript DMR 25/10/79, page 9.

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of the South-Western Freeway works
within the area (i.e., to the west
of King Georges Road)?

ANDERSON: (DMR) Oh yes, it must of
course, it could, yes."

In short, the discrepancy between supply and demand,
thrown up by the modelling procedure, must be
adjusted to take account of lower growth in the
South-Western corridor (which is likely to be
closer to 10 or 15% than the 32% predicted). It
must be further adjusted because of the addition
to road supply, occasioned by the widening of
Canterbury Road.

Having made those adjustments, we are not persuaded
that congestion, (either at present or in the
future), creates the urgency, west of King Georges
Road, which has conditioned the Department’s response
to this Inquiry. We acknowledge that there are
problem areas between King Georges Road and
Liverpool. We witnessed time and again the
congestion in Canterbury Road between Chapel Road
and Punchbowl Road. But this is the very area
which the Department plans to widen. That seems
to us a far better option than the commencement
(at this stage) of a parallel section of the South-
Western Freeway.

Two other locations were identified in the Transport
Systems Management Report
as suffering either
moderate or severe congestion at the present time.
They were:

1. The bridge at Liverpool. The
Inquiry witnessed the many traffic
hold-ups in that area.

2. The junction between Henry Lawson
Drive, Milperra Road and Newbridge
Road (near Bankstown Airport).

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A by-pass at Liverpool (utilising a section of the
South-Western Freeway) will soon be constructed.
It will deal with the first problem. The second
problem is rather more difficult to solve. The
proximity of the flight path to this intersection
would seem to rule out the possibility of elevating
part of the road. The adjacent river (Salt Pan
Creek) makes the construction of a tunnel expensive,
and its annual maintenance very costly. That
problem, standing alone, does not seem to the
Inquiry to be of sufficient moment to justify an
alternative so drastic and so costly as the constr-
uction of the South-Western Freeway.

These are our comments on the proposals west of
King Georges Road. The remainder of our analysis,
will concentrate upon the area which came under
intensive scrutiny (the Study Area to the east of
King Georges Road). This is where the public had
its say.

3.2.2 Congestion Within the Study Area

We judged the Bexley Road Option according to its
ability to deal with a number of problem areas.
Would it draw traffic away from them? Would it add
to their problems by inducing traffic to travel
towards them? Was it geographically so remote that
it would have no effect one way or the other? The
same bench mark should be used for the South-Western
Option.

First, the Joint Study Report identified eleven areas
which it termed 'critical locations' (78). What
effect does the South Western Option have upon these
locations? It is difficult to furnish an answer
by resorting to the traffic model because we are
convinced (as we have said) that the model overstates
the traffic growth from the South-West. Even using

78. Joint Study Report, pages 3-4.

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the model, however, the performance of the South-
Western Option is mixed. It is accurately described
by the Joint Study Report in these terms (79):

"The reductions in traffic levels
would be mainly on roads which
are generally parallel to this
option such as Canterbury Road,
Moorefields Road, William Street,
Homer Street, Fore Street and
Permanent Avenue to the north
west and Morgan Street, Shaw Street,
Slade Road, Stoney Creek Road,
Forest Road, Wollongong Road and
back routes between Bardwell Park
and Arncliffe and Bestic Street
to the south east of this option.”

Traffic conditions are made worse in those areas
giving access to the route. Again the Joint Study
Report
furnishes a concise description (79):

"Increases in traffic levels are
expected mainly on roads providing
access to the new route, notably
King Georges Road, Wickham Street,
and roads in the Marrickville area
connecting to the route via the
Bayview Avenue-Carrington Road link."

The provision of one road will obviously not eradi-
cate congestion from the entire network. The Joint
Study Report
says this (79):

"With this option, congested
travelling conditions could still
be expected along many routes in
the area including punchbowl Road,
Canterbury Road west of Ring Road
3, King Georges Road between
Canterbury Road and Beverly Hills,
Princes Highway in the Tempe-St.
Peters area, and General Holmes
Drive. "

Returning to the critical locations the performance
was as follows:

79. Joint Study Report, page 32.

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  • for approximately half the locations
    there would be no effect one way or the
    other. These include:
  • anything to the west of King
    Georges Road including
    Canterbury Road between River
    Road and Punchbowl Road.
  • Beamish Street, Campsie.
  • Ashfield Shopping Centre on the
    Hume Highway.
  • The Hume Highway between Greenacre
    and Yagoona.

  • For certain locations the option would
    make conditions worse:
  • Wickham Street, Arncliffe will
    experience a significant increase
    in traffic. This street (at either
    end) joins with locations identified
    as critical namely West Botany
    Street and Princes Highway, Rockdale.
  • Unwins Bridge Road is identified
    as a critical location. The model
    does not suggest it will get worse.
    We think that it will. We are
    supported by the observations of the
    Study Group given in a previous
    investigation (80).
  • Certain areas would certainly benefit.
    Whether that benefit is likely to prove
    evanescent is another matter. We will
    address that issue separately below when
    we consider the land-use implications
    of this option. The areas which benefit:
    are:
  • Forest Road, Bexley Road, Stoney
    Creek Road (the Bexley Shopping
    Centre)

80. See Volume II Transport Criteria, page 208.

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  • Homer Street, and William Street.
  • Canterbury Road between King
    Georges Road and the Cooks River.

The reduction of traffic in the Bexley Shopping
Centre is a significant advantage. That centre
has already been identified in this Report as
suffering substantial disamenity. The Hurstville
Shopping Centre is, to some extent, insulated from
heavy traffic (and especially trucks) by the twists
and turns in Forest Road, as it makes its way through
the shopping complex, and by the presence of Stoney
Creek Road which effectively provides a by-pass
(especially for trucks). The Rockdale Shoppinq
Centre, likewise, has a makeshift by-pass in West
Botany Street/Bay Street or West Botany Street,/
President Avenue, Rockdale. The Bexley Shopping
Centre has no such advantage.

Yet surprisingly the benefits to the Bexley Shopping
Centre from the South-Western Freeway are slight,
when quantified by the traffic model. Though we
have reservations about the quantification, it is
interesting to observe that the reduction in traffic
for the Bexley Shopping Centre is significantly less
(according to the model) than elsewhere, where relief
may be needed less. The model predicts a 9% reduction
in traffic (in the morning peak). We rather doubt
that the people of Bexley would notice. The varia-
tions between traffic from one day to the next,
and from one month to the next, would exceed a
margin of 10%. On Fridays the traffic is usually
heavier. In the month of December it is usually
greater than in other months of the year. Unless
the reduction in traffic (and especially truck traffic)
is substantial, traffic will remain a problem within
the shopping centre. People may find it difficult
to appreciate there has been an improvement.

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A fortiori if the improvement is ephemeral, and
serves simply to attract traffic which takes advan-
tage of the spare capacity offered by the construc-
tion of a parallel route, the people of Bexley may
see their parks disappear with no permanent traffic
advantage in return. This is an important matter.
We will return to it.

The second bench mark, previously used, was the
publication ‘Transport System Management’ (June,
1978). We reproduced in this Report a number of
diagrams from that study (figures 8 to 13) (81). The
diagrams collectively furnish an invaluable guide
to congestion region-wide. They allow the Study
Area to be placed in a regional context. The
problem areas are not greatly different from those
identified by the Joint Study Report. Unlike that
report, however, the diagrams identify congestion
in the off-peak period. Two locations suffer signi-
ficant off-peak congestion (figure 10). They are:

  • Canterbury Road between the Cooks
    River and Belmore Road.
  • The Bexley Shopping Centre (at the
    confluence of Harrow Road, Forest
    Road, Bexley Road and Stoney Creek
    Road).

The South-Western Option is parallel to the Canterbury
Road. The distance between the two is not great.
The two can be expected to share the traffic load.
It would provide relief to off-peak congestion.
This is a significant advantage in terms of the
first criterion (congestion). Its land-use impli-
cations are another matter.

The advantage to the Bexley Shopping Centre is
likely to be rather less. Some traffic which
presently uses Forest Road can be expected to use
the South-Western Freeway. But there is only one

81. See pages 63 to 71.

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point of entry (or exit) to the Freeway between
Undercliffe and Beverly Hills (a distance of
approximately 7 kilometres). It is the Bexley
Road. The Bexley Road leads directly to the
Bexley Shopping Centre.

Many commercial (and commuter) journeys are short.
A significant traffic stream can be expected to use
Bexley Road (and hence pass through the Bexley
Shopping Centre) to take advantage of the Freeway.

3.2.3 The Effect Upon Marrickville

We have not 'chopped and changed’ from triptable C
to triptable D when describing the effects of the
South-Western Option. Indeed, we have shied away
from the quantification offered by the traffic
model because of our doubts concerning the pace of
growth assumed in the South-Western region when the
model was constructed (82).

It is interesting, nonetheless, to examine the figures
in the context of Marrickville. Marrickville is
already disadvantaged. It has few parks. It has
significant industry. The industry is often mixed-in
with residential development. Much of it is drab.
It suffers from pollution. It lies in the path of
traffic making its way to or from the Central
Industrial Area.

URTAC was moved to recommend the Kyeemagh/Chullora
Route (termed the Cooks River Option in this Report)
because it offered significant relief to Marrickville
(amongst other suburbs) (83). Whether it did relieve
Marrickville is another matter. Whatever its
performance (and it will be examined when we assess

82. In broad terms the effect of the South-Western
    Option whether judged by triptable D or triptable
    D is the same. The traffic model suggests that
    it will reduce traffic in parallel routes within
    a few kilometres on either side.
83. URTAC Report 1976, page 33.

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the Cooks River Option) the intention was clear.
Marrickville should not be further disadvantaged.

We have no doubt that the South-Western Option in
its present form (with the Carrington Road spur)
(see Figure 25) would significantly disadvantage
Marrickville. A careful reading of the submission
by the Department of Main Roads does not suggest
otherwise. The Department said (84):

"The distribution of traffic from
the South-Western Freeway across
the Cooks River to the North-East
using the Carrington Road bridge,
Princes Highway, Marsh Street and
General Holmes Drive indicates a
heavy demand for this movement.
The loadings on the Carrington
Road bridge are high and would
lead to similar problems in
Marrickville
and Tempe as described
in the Cooks River Option Assignment."
                      (emphasis added)

In the context of the Cooks River Option Assignment,
the same report makes the following comment (85):

"The new road connecting Bayview
Avenue and Carrington Road across
the Cooks River is very heavily
loaded...The heavy loading on
Carrington Road indicates severe
congestion in Marrickville
as those
vehicles cross the railway line
to join the Princes Highway."
                       (emphasis added)

Later the following appears (86):

"It should be noted that both
schemes (the South-Western Scheme
and the Cooks River Scheme) have
the same magnitude of traffic
dispersion problem at their
eastern terminals near Undercliffe,

84. DMR Submission S.K/C 340 (De Leuw Cather)
    September, 1979, page 51.
85. ibid., page 46.
86. ibid., page 57.

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with heavy traffic loadings on
the Carrington Road bridge and
ultimately across the railway line.”

The traffic assignment figures produced by the model
are interesting. A screenline was drawn (known as
C-Cl) extending along the Cooks River from Canterbury
Road past the Carrington Spur (see Figure 25). It
is instructive to examine the traffic expected to
cross the screenline (in either direction) with
and without the various options. The comparison
is as follows (87):

  • If nothing is done (the base case)
    the increase in traffic between 1976
    and 1991 would be:

  • 7% in an easterly direction
  • 17% in a westerly direction

  • If the Cooks River Scheme is built
    (which is the Cooks River Option plus
    certain work in the South-Western
    Corridor west of King Georges Road)
    the figures are:
  • 38% increase in traffic in an
    easterly direction
  • 54% increase in traffic in a
    westerly direction


  • If the South-Western Scheme is built
    (the South-Western Option plus works
    west of King Georges Road) the traffic
    increases are:
  • 27% increase in an easterly
    direction
  • 56% increase in a westerly
    direction

These matters were put to the Department of Main
Roads in the public hearings (88):

87. DMR Submission De Leuw Cather September 1979,
    Figures 47, 4.3 and 4.4 - a.m. peak figures.
88. Transcript DMR 14/1/80, page 81.

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"BUNTON: ..While these assignments,
probably from a technical assignment
point of view, may be indicating what
would happen in the Marrickville area
if those design elements were in fact
built with those kind of connections
up Bayview Avenue...and Carrington
Road if in fact they were implemented,
then perhaps you would see those kind
of growths in traffic through
Marrickville. I’m not satisfied that
that’s what we ought to be trying to
develop. I’m not satisfied that we
would want to see that kind of traffic
attracted into the Marrickville area
.
We would want to try and resolve that
in looking at the eastern terminal
problem."
                    (emphasis added)

After further debate the following was put to the
Department of Main Roads (89):

"COMMISSIONER: Now I understand you
to say that it now appears to you
that, from a design point of view,
the inclusion of those two separate
spurs (Carrington Road and Riverview
Road) makes Marrickville, as an exit
point or entry point, too attractive.
More traffic than is desirable, having
regard to the level of traffic and the
amenity of the Marrickville area, is
being attracted to or from that area.
Some further design should be developed,
tied up with the resolution of the eastern
terminus problem. Is that a fair
summary?

BUNTON: Yes I think so."

The Department of Main Roads subsequently retracted
that admission (90). We are inclined to think,
nonetheless, that the earlier exchange (which we
have extracted) represents the better view. The
Riverview Road extension of the South-Western
Freeway and the Carrington Road spur will add to
the burdens of Marrickville (as they will to the
residents of Earlwood). The problem may or may

89. ibid., page 82.
90. Transcript 18/3/80, pages 76-87.

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not be capable of resolution by re-designing the
eastern terminus of the road, so that it crosses
the Princes Highway and terminates somewhere in
Alexandria, or to the north of the airport.

What did the Marrickville Council have to say?
It firmly opposed the Cooks River Option. It was
likewise concerned that the Carrington Road spur
(which is a feature of both the Cooks River Option
and the South-Western Option) would channel traffic
through Marrickville. It said this (91):

"One major concern to the Council is
if there is, as part of the road
system, construction of a link between
Carrington Road, Marrickville and
Bayview Avenue, Earlwood...this
traffic (using the Carrington Road
spur) would tend to aggravate the
already serious traffic problems in
the Carrington Road area and particu-
larly in the Victoria Road/Enmore Road
sections of the municipality and force
such traffic into the King Street/
Enmore Road bridge crossing in Newtown
which is saturated."

Later in the same submission it said (92):


"It is also considered that the
crossing of the river at this loca-
tion..will have the effect that (a)
significant volumes of industrial
and commuter traffic will desire to
use the road system within the muni-
cipality of Marrickville, to proceed
to the City and beyond, that is now
making its way onto princes Highway
and Unwins Bridge Road.. (which) would
encourage traffic in the municipality
into locations that now are not being
detrimentally affected to a significant
extent by large volumes of through-
traffic.

                        (emphasis added)

91. Submission S.K/C 1297 Marrickville Council
    3/8/79, pages 2 and 3.
92. ibid., page 4.

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3.2.4 The Effects Upon Congestion

The South-Western Option will not eliminate conges-
tion. It will not even reduce it materially in a
great many locations. It will draw traffic away
from parallel routes. These routes include
Canterbury Road and Forest Road. Its effect upon
Canterbury Road must be counted a substantial
advantage. Its effect upon Forest Road is less
significant. The marginal improvement in the
Bexley Shopping Centre (a 9% reduction) is unlikely
to impress those who complain about traffic in that
centre.

These are the advantages which must be placed in
the balance with the marked disadvantages to the
roads giving access to the route, especially at the
Marrickville end.

We will now address the land-use implications of
constructing the South-Western Freeway. They tell
strongly against that option in our judgement.

3.3 The Land-Use Implications of Constructing the South-
    Western Option

3.3.1 Introduction

The South-Western Option is essentially radial in
its orientation. The corridor extends from the
periphery of Sydney, in the South-West, towards the
very centre. Certainly it stops short of the centre.
But not far short. The following exchange took place
at a hearing involving the Department of Main Roads (93):

"COMMISSIONER: But if in fact there
is this eastern terminus skirting
around the north of the airport and
ending somewhere around Huntley Road
(Alexandria) one's getting dangerously
close (to the city centre).

93. Transcript DMR 14/1/80, page 42.

-262-

BUNTON: Certainly, I accept your
getting within just a few kilometres
of the city itself..."

The Department thought the route would also serve
a cross-regional function. We are not persuaded.
We are reinforced in our view by the description
which appears in the Joint Study Report (prepared
jointly by the Department of Main Roads and the
Planning and Environment Commission) which alludes to
"the radial nature of the route". (94)

It seems to us that the South Western Option, if
completed, will have the following undesirable
land-use implications:

  • it would accentuate the Central
    Business District rather than
    regional shopping centres.
  • It would accentuate the attraction
    of the Central Industrial Area
    both to commuters and to industry.
  • If completed from the South-West
    to Alexandria, it would add to the
    problems of urban sprawl. It would
    make it more likely that Campbelltown
    (and the Macarthur growth centre)
    would develop as a dormitory suburb
    serving industry located elsewhere.
  • Such a road would encourage long
    journeys. That would have unfortunate
    consequences for noise, pollution and
    fuel consumption.
  • The option is cheek by jowl with the
    East Hills Railway Line. Competition
    between the two is inevitable. The
    competition is wasteful. It should
    not be encouraged.

94. Joint Study Report, page 36.

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3.3.2 It Would Accentuate the Attraction of the
      City Centre

URTAC formulated the strategy in its report of
March, 1976. It said (95):

"So far as the roads network is
concerned, the Committee feels
that the long-term objectives
should be:
(b) the development of routes
which re-direct the growth
of traffic from the Central
Business District to major
regional centres, for example
Parramatta."

The option brings about the opposite result. The
Joint Study Report says this (96):

"No major centre would benefit
although the radial nature of the
route could consolidate the city
centre’s attraction for special
services relative to competing
regional centres, such as
Hurstville and Bankstown."

 

3.3.3 It Would Accentuate the Central Industrial
      Area’s Attraction

The Central Industrial Area has more jobs than people
to fill them. People must journey each day to that
area to take up their employment. A traffic burden
for the suburbs in between is created.

Industry is needed in the West and South-West. The
trend is towards its re-location in those areas.
That trend should not be disturbed. It is our view
that the South-Western Option will make the Central
Industrial Area that much more attractive. Whereas
people in the West and South-West areas may now be
inhibited from seeking employment in the Central
Industrial Area because they must fight the traffic

95. URTAC Report, page 11.
96. Joint Study Report, page 36.

-264-

to reach it, the inhibition would be removed if
accessibility were markedly improved, as it would
be by the construction of a high quality, high speed
route from the South-West. Putting a workforce at
the disposal of industry in the Central Industrial
Area may be the very thing which inhibits industry
leaving that area.

We will take up this matter once more when we
examine the Cooks River Option.

3.3.4 It Would Compromise the Aim of Self-Containment

Earlier in this exposition we stated what we conceived
to be the aims of the land-use/transportation planning
process. They included:

  • the system should aim at inducing
    less travel rather than more
  • the system should aim at reducing
    the length of the journey to work
  • the system, in short, should aim at
    reasonable self-sufficiency within
    regions. People should have at
    their disposal a reasonable range
    of opportunities.

If by some magic the South-Western Freeway between
Campbelltown and Alexandria were suddenly completed,
journey times could be expected to dramatically fall.
A person in Campbelltown may contemplate a job to
the east of King Georges Road (say in the Central
Industrial Area). Is that a good thing? Is that
not likely to induce more travel rather than less,
and increase the length of the journey to work? Is
it not better to concentrate upon improving accessibility
within each geographical region? It may not be a
bad thing for people living in the South-West, or
the West, to regard traffic on the other side of
King Georges Road as being congested and nightmarish,

-265-

such that a job in that area is looked upon less
favourably than a job within their own area, where
the battle against congestion is not so strenuous.

The South-Western Freeway Option runs counter to
the land-use/transportation aims. That is not to
say that part of that freeway (for instance to the
west of King Georges Road) may not be a good thing.
It may be. It may be desirable to improve accessi-
bility up to a point but no further.

3.3.5 It Would Encourage Long Journeys

The same conclusion can be demonstrated in another
way. In the submission from the Department of Main
Roads the following statement appears (97):

"Total vehicle miles and total
vehicle hours of travel over the
Sydney road network are useful
measures of system efficiency."

In another document (also forming part of the
Department submission) it emerges that upon construc-
tion of a series of roads from the South-West,
including the freeway between Fairford Road and
Tempe (termed the South-Western Scheme) (98), the
total vehicle kilometres would be greater than if the
road terminated at King Georges Road. People are being
induced to travel further by the presence of a road.

3.3.6 The Road Will Generate Further Traffic

The traffic model has been used to identify areas
from which traffic will be withdrawn as a result of
the construction of a facility. Canterbury Road, and
Forest Road are two prominent examples. The model,
however, does not take account of the acknowledged
tendency of a road to generate further traffic.
The following was put to a consultant of the

97. DMR Submission Transport and Economic Analysis
    page 31.
98. DMR Submission (De Leuw Cather) September, 1979,
    page 52.

-266-

Department of Main Roads (Mr. Carlisle from De
Leuw Cather Australia Pty. Limited) (99):

"MIDDLETON: May not the construction
of a new facility itself generate
additional traffic? That is, you are
not simply coping with an existing or
even a projected traffic problem, but
in fact you are giving rise, by the
construction of a new facility, to
totally new traffic generation?

CARLISLE: That is true; normally
in the transportation planning process
we don’t take that into account very
often."

The concept is encapsulated within the following
precept (100):

"Private motoring expands to fill
the road space made available."

Stephen Plowden expressed the principle in this way (1):

"..Providing more road space itself
generates more traffic..very broadly
speaking, the amount of traffic is
governed by what is regarded as a
tolerable level of congestion. If
the capacity of the road network is
increased, whether by a road construc-
tion or by traffic management measures,
the mileage will increase until the
same conditions obtain."

The provision of greater capacity within the South-
Western corridor (confining our focus for the time
being on that section between King Georges Road and
Tempe) will, in our opinion, simply encourage commuter
traffic to travel in a direction in which it ought
to be discouraged. Very soon the congestion eliminated
by the route will reappear, as traffic seeks to take
advantage of the spare capacity within the system.
There will be more traffic, more pollution, more

99.  DMR Transcript 12/5/80, page 69.
100. The Cost of Economic Growth E.J. Misham 1969, page 127.
1.   Towns Against Traffic, Stephen Plowden, page 15.


-267-

noise and less parks, and all for a short reprieve
from congestion which will quickly reappear.

Accessibility by trucks is a rather more troublesome
problem. Trucks ought to have a reasonable road
network available. However, a number of things must
be said. First, the truck traffic in 1991, according
to the evidence, will not be much worse than it is
today. The Department of Main Roads say this (2):

"Truck traffic numbers are not
expected to increase greatly
but
their nuisance value, safety impacts
and pavement damage on unsuitable
streets is disproportionately high."

Secondly, one road (and more especially a limited
access road) will not banish trucks from all streets.
Many truck journeys are quite short. The road may
not be conveniently placed, in terms of its orientation,
the point of entry, or the point of exit.

Thirdly, to the extent that the South-Western Freeway
enhances the Central Industrial Area, and inhibits
the move of industry to the West or South-West, it
may remove certain trucks from certain streets, whilst
adding to the nett number of trucks travelling back
and forth.

Fourthly, we should draw attention again to the
scheme recommended by the Inquiry for the movement
of containers. Containers would be a significant
traffic and environmental problem but for that scheme.
If the scheme is adopted, and on the assumption that
truck traffic in 1991 is not likely to get much worse,
there may even be a nett reduction in the number of
trucks using the road network in this area.

One cannot dismiss so easily the claim made by trucks
for the construction of the South-Western Freeway. The

2. DMR Submission (De Leuw Cather) September 1979,
   page 23.

-268-

Inquiry, nonetheless, is inclined to think that
the other disadvantages which attend the construc-
tion of the South-Western Freeway significantly
outweigh any advantage to trucks which may flow
from its construction. The Planning and Environment
Commission, it might be noted, had this to say on
this issue (3):

"The relative attraction of the road
options for truck movements is shown
by the traffic assignments for 1991.
Although the South-Western Option
would partly relieve traffic conges-
tion on existing roads in the same
corridor, it would be far more
attractive to cars than to trucks
.
The proportion of trucks on this
option is only a quarter of the
proportion on Canterbury Road, which
is in the same corridor. The propor-
tion of trucks on Canterbury Road would
be increased from Punchbowl right
through to the Cooks River by the
South-Western Option."

The quantification is provided by the Traffic
Authority. The maximum number of trucks on new road
work for each option was described as follows (4):

  • On the Cooks River Option between
    Canterbury Road and Permanent Avenue
    there would be:
  • 345 trucks Port bound
  • 222 trucks out bound
  • For the South-Western Option the
    number of trucks between King Georges
    Road and Undercliffe would be:
  • 191 in bound
  • nil out bound

3. PEC Submission S.K/C 947 July, 1979, page 10.
4. Traffic Authority Submission S.K/C 1289,
   Table 1, page 13 - a.m. peak figures.

-269-

3.3.7 The Option Would Be in Competition With Rail

New roads attract motorists through reducing travel
time. They may attract them away from public
transport. Public transport must still be provided
at more or less the same cost even though the
patronage may fall. The Commonwealth Bureau of
Roads (as it then was) made the following comment (5):

"Although road authorities have a
prime responsibility to provide the
facilities for road transport, their
task is only one contribution towards
meeting the community's whole transpor-
tation objectives. The impact of
roads on other transport modes therefore
should not be ignored
.”

It added the following comment, of specific application
the South-Western Freeway (5):

"If a new freeway substantially diverts
traffic from a suburban rail line, there
could in some cases, be some concomitant
costs of reduced efficiency of the rail
operations that are a relevant change
against the freeway."

The joint aims of land-use/transportation planning
(announced earlier in this Report) included the
following (6):
  • Roads and public transport should
    work in combination to handle the
    transport task of the region, rather
    than in competition.

The same principle is implicit in one of the other
long-term objectives enunciated by URTAC in its
Report of 1976 (7):

5. Australian Road Systems Volume II Paper No. 20,
   page 12.
6. See page 33.
7. URTAC Report 1976, page 11.

-270-

"(a) The development of cross-regional
routes where it is unrealistic
to expect major public transport
facilities
other than buses to
be provided, even in the long term."
                   (emphasis added)

In the South-Western Corridor there is a major
transport facility, the East Hills railway line.
There is even talk of extending that line to Glenfield
on the other side of the Georges River. The South-
Western Freeway, for much of its length, would be
parallel to that line. The effect of one upon the
other was not investigated. It should have been.
The effect does not find its way into the cost/benefit
analysis, even though some of the benefits derived
by the South-Western Freeway may be at the expense
of the railway (8):

"The South-Western Option would run
alongside the East Hills railway
line from Turrella to Beverly Hills.
The East Hills line has already
suffered a far worse decline in patronage
than other lines in the sub-region.
The major reason is the increase in car
ownership in the corridor. Construction
of the South-Western Option would
accelerate this trend."

The Inquiry agrees.

3.3.8 Other Implications Adverse to the South-
      Western Option

There are two further principles to which reference
should be made. The principles are linked. They
emerge from the following paragraph extracted from
the URTAC Report of 1976 (9):

"Priority (should) be given to
improving the existing..road systems
rather than expanding them, concentra-
ting, where appropriate, on those major
capital works which, while providing

8. PEC Submission S.K/C 947 July 1979, page 9.
9. URTAC Report 1976, page 4.

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for longer-term needs, will also
produce benefits within the next
five to ten years."

From this statement the following precepts can be
distilled:

1. The road maker, and the land-use
planner, should concentrate
'on existing problems of immediate
rather than long-term benefits'. (10)

2. Where a major project is in
contemplation, it should be judged
according to its ability to deliver
early benefits (by permitting one
stage to be opened before the entire
project has been completed).

According to either measure, the South-Western
Option performs badly. The Department of Main Roads
has been prompted to lend its weight to the South-
Western Option (especially West of King Georges Road)
because of the considerable growth predicted in that
corridor (32%). The following was said by the
Department of Main Roads (11):

"BUNTON: I think if we were faced
with a situation where we were told,
for whatever reason, that there would
be no further growth in the South-
Western sector of the Sydney region,
we would have to look again at the
priorities and standards design for
the South-Western corridor. I think
we'd certainly accept that. At the
same time I think (we) could establish
that there is still (a) need for improve-
ment in that corridor, based on simply
what is there now."

No one could suggest there will be no growth in the
South-Western corridor. The growth between 1976 and
1991 is likely to lie between 10% and 15%. Reading
the signs at the moment, it seems most improbable
that it will be 32%, or anything like it.

10. DMR Submission July 1979, page 3.
11. DMR Transcript 14/1/80, page 46.


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Digressing for a moment, and returning to the present
conditions, do they bear out the observation of the
Department that there is a demonstrable need for
improvement now? It is our view that they do not.
While screenline 10 shows a ‘Y’ value of 0.94 (12)
(which suggests that conditions are already saturated)
that screenline suffers from the very deficiency which
the Department of Main Roads identified in the course
of the commentary which accompanied the diagram. It
transects a road which is especially constricted,
namely Canterbury Road between Fairford Road and
Punchbowl Road. This is the area which the Department
is planning to widen. The capacity of the corridor
will be increased. There was even a suggestion that
the Department was planning to widen Henry Lawson
Drive (located on the other side of screenline 10) (13).

We now turn to the second principle. The South-
Western Freeway is less amenable than the other
options to construction in stages. The summary
which accompanies the Joint Study Report provides
the following data in respect of each option:

  • For the Cooks River Option the
    following is said:
"Possible to construct indepen-
dent and usable stages."

  • In respect of the South-Western Option:
"Limited opportunity to construct
independent and usable stages."

  • For the Bexley Road Option the assess-
    ment is:
"Construction could be staged with
benefits derived from each stage.”

The community must understand, therefore, that
problems which they perceive, and which they feel
may be solved by the South-Western Option, would not

12. See Figure 3.5 in the DMR Transport and Economic
    Analysis and see Figure 15 of this Report.
13. See exhibit 80 and the Discussion DMR Transcript
    14/1/80, pages 25-26. See also Figures 8 to 13
    which reinforce this conclusion.

-273-

begin to diminish until it is more or less complete.
It is not suggested that it can be completed before
1991. In our assessment it is likely to be completed
well after that date, because there are problems of
a fundamental kind (concerned with the eastern
terminus of the route) which have yet to be resolved.
The community, on any view, even if this were the
preferred option, would have to suffer present traffic
conditions for at least ten years and probably
fifteen. That bleak outlook may suggest that other
alternatives are preferable. The possibility of
road widening and spot improvements, directly
tackling ‘the sore spots', may yield early benefits.


4. THE ECONOMIC CRITERIA

4.1 Cost/Benefit Analysis

4.1.1 The Construction Costs for the South-      Western Option are Understated

The economic criteria suggested by the Joint Study
Report
included the following (14):

"Economic efficiency as measured by
the benefit/cost ratio, net present
worth and internal rate of return."

The cost estimates of a project are the bed-rock
upon which the edifice of cost/benefit analysis is
erected. It is important that they should be
accurate.

The Inquiry is convinced that the costs are not
accurate. They are understated in certain important
respects. The following adjustments should be made:

1. A number of businesses are
affected by the South-Western
Option. We rather doubt that the
cost estimates include any, or any
sufficient allowance, for the cost
of relocation, and loss of profits,
both of which will be recoverable
from the Department of Main Roads

14. Joint Study Report page 8 and see also Volume II
    of this Report, Economic Criteria, page 260.

-274-

in a forced resumption. One
illustration will suffice. One
unprepossessing factory in the
South-Western Corridor was valued
by the DMR Study Team at $50,000.
For the same property the Planning
and Environment Commission provided
an estimate of $260,000.
Approximately eighteen months
separates the estimates. Making
an adjustment for this period, the
discrepancy remains substantial.

2. The value of properties is deter-
mined by reference to comparable
sales. The principle was not
followed when valuing properties
within the South-Western corridor.
The value was calculated by reference
to the value of similar properties in
the Cooks River Corridor. Such
properties are not "comparable". (15)

3.  The property estimates for the South-
Western Freeway were made as of
February, 1978. The construction
estimates were made nine months
later (December, 1978). The
Department of Main Roads suggested
an adjustment so that both costs
share the same date of valuation.
The property costs should be increased
by 10% (16). The property acquisition
costs for the South-Western Freeway
were $10.74 million. The costs would
exceed that sum (for the reasons given).
Conservatively $2 million should be
added.

4. The Environmental Planning and
Assessment Act 1980 has altered the
basis upon which compensation is
assessed. By Section 116 of the Act,
a ‘solatium’ is payable. It is
additional compensation designed to
cushion the blow of relocation. Some
suggest that the cost estimates should
be revised by adding 20 to 25%. If
that formula were followed an additional
$2 or $3 million would be payable.

5. We have drawn attention earlier in this
chapter (17) to a principle suggested
by the Commonwealth Bureau of Roads
where a road facility is in competition
with an adjacent rail facility (18).


15. See Volume II Economic Criteria, page 304.
16. DMR Transcript 13/12/79, page 20.
17. See page 269.
18. Australian Road Systems, Volume II Paper No. 20,
    page 12.

-275-

The effect of the South-Western
Freeway upon the adjacent East
Hi1ls railway Iine was not assessed.
The cost/benefit analysis does not
discount the freeway benefits by an
amount equivalent to the extent to
which it saps Lhe strength of the rail
line.

6. Finally there is the question of open
space. It is apparent that the open
space has not been valued according
to the correct principles. This is a
matter of great importance to the
South-Western Freeway. Its appetite
for open space vastly exceeds that of
the other options. The comparison is
between: -
  • The South-Western Freeway 36
    hectares (89 acres)
  • The Cooks River Option between
    4 ha. and 6.6 ha.
  • The Bexley Road Option between
    0.9 ha. and 2 ha.
The matter is complex. We will deal
with it separately below.

4.1.2 The Valuation of Open Space

The principle by which open space should be valued
was expressed in the following terms by the Commonwealth
Bureau of Roads (19):

"In urban areas where parklands are
often used for road construction,
the relevant economic value of the
parkland is the valuation it would
have if it were made available for
other activities, such as manufac-
turing or residential
."
                 (emphasis added)

What happened in the present Inquiry? plainly the
acquisition costs and not the opportunity costs (i.e.,
the cost if the land were used in some other way)
has been used. The facts are these:

19. Australian Road System Volume II, Paper No. 20,
    page 12.

-276-

  • The Study Group (STSG) made an
    assessment of the Cooks River
    Route in February, 1977. The
    option then being studied (a
    freeway) absorbed 20 ha. of open
    space. The cost was assessed at
    $ 11 million.
  • The cost per hectare (to take a
    rudimentary guide) was assessed
    to be $550,000 in February, 1977.

In the Cooks River Option being considered by this
Inquiry the comparable statistics are:
  • hectares of open space would be
    resumed (minimum property effect option)
  • The total value attributed to this
    land in the cost estimates is
    $717,550 (20)
  • The value per hectare has reduced
    to approximately $109,000 even
    though the valuation was made

    eighteen months later.

When one comes to the South-Western Option the
contrast is even more stark. The facts are:

  • 36 hectares of open space would be
    resumed
  • The valuation was $3,349,700
  • The cost per hectare was
    approximately $93,000.

We have already drawn attention to the use of
comparable sales to value land. We acknowledge
that open space located in Randwick could not be
considered comparable. It is too far away. It is
nonetheless instructive (as a very general guide)
to examine the valuation of a significant tract of
open space held by a private entrepreneur . The
valuation was made in 1978 (the same time as the
Joint Study Team made its assessment). In 1978 the
Glebe Gully in Randwick was valued. The figures are:

20. Exhibit 62.

  • 4.5 ha. valued at $3.5 million
  • equivalent to $778,000 per ha.

The discrepancy between the valuation assigned to open
space in the South-Western Corridor, and the value
which ought to have been assigned for the purposes
of the cost/benefit analysis, is significant. If
the benefit/cost ratio were robust, that may not
matter. It is not. It is plain that the project,
even on the cost estimates (understated as they are)
is a shaky investment. When the adjustments are made,
the South-Western Option is singularly unimpressive
when measured by this yardstick.

4.1.3 Marginal Cost/Benefit Analysis

We opened this Chapter by describing the ways in
which traffic using the South-Western Corridor can
be accommodated. There are a number of distinct
possibilities including:

  • The completion of the South-Western
    Freeway between Campbelltown and
    Tempe.
  • A short term expedient known as the
    'Picnic Point Connection'.
  • Completing works in the South-Western
    Corridor between Fairford Road and
    King Georges Road.
  • Constructing the South-Western Option
    (as it was termed in this Inquiry)
    i.e., the road east of King Georges
    Road between Beverly Hills and Tempe.

The Department of Main Roads carried out the cost/
benefit analysis incorporating the 'Picnic Point
connection' and the works between Fairford Road and
King Georges Road (21). This was termed ‘The Extended
Base'. Now, the combination of these works yielded a

21. S.K/C 340 Department of Main Roads Submission
   (De Leuw Cather), September, 1979, page 58 and
   following.

-278-

very high benefit/cost ratio (namely 9.6) (22).
That ratio was used as a spring-board to artifi-
cially inflate the benefits for the South-Western
Scheme, as it was termed, being a series of roads
between Tempe and Campbelltown. If each of these
works was independent of the other (as they were),
they should have been considered one by one. It is
first necessary to choose which is best of the
possible works. Having made the choice, the issue
then becomes whether one should commit the additional
expenditure required for the next most impressive
work. One by one they are assessed on their own
merits (23).

The application of this principle is of the utmost
importance, as the following figures reveal (24):

  • ·         The cost/benefit ratio for the extended
    base (i.e. the Picnic Point Connection
    and a road between Fairford Road and
    King Georges Road) is 9.6 (Triptable D).
  • If the South-Western Option (i.e., work
    between Kyeemagh and King Georges Road)
    is added to the extended base, and an
    assessment made of the overall scheme,
    the ratio drops to 4.9 (Triptable D).
    That is still a high ratio.
  • If the South-Western Option is looked
    at in isolation (i.e., without the
    spring-board which the very high 9.6
    ratio provides) the cost/benefit figure
    is 1.7 (Triptable D). That is the
    marginal benefit. It is the way in
    which the matter should be viewed.

4.1.4 The Benefit/Cost Ratios Produced for the South-
      Western Freeway

The analysis is complicated. Some figures include
the extended base (work to the west of King Georges
Road). Others excluded that work. Some assumed work
to the east of King Georges Road was constructed

22. Table 5.8 page 72.
23. Volume II Annexure 2, M.E. Beesley, paragraph 16.
24. Submission S.K/C 340 Department of Main Roads
    De Leuw Cather, September 1979, page 72.

-279-

first, and then gauged the effect of further
construction to the west. Some approached the
question from the opposite direction. Triptable C
is employed in some analyses. Use is made of Trip-
table D in others.

We shall begin with the Joint Study Report. To be
economically worthwhile, according to this criterion,
the benefit/cost ratio must exceed one. In theory,
any project with a benefit greater than one will
'pay for itself’. Employing Triptable C the figures
produced were as follows (25):

  • The Cooks River Option 1.41
  • The South-Western Option 1.16

A small adjustment was made to these figures in the
Transport and Economic Analysis produced by the
Department of Main Roads. The adjustment was
occasioned by a minor error when calculating
accident ‘benefits'. The adjusted figures were (26):

  • 1.39 the Cooks River Option
  • 1.14 South-Western Option 
  • 1.78 the Bexley Road Option
    (Harrow Road)
  • 1.83 the Bexley Road Option
    (Bestic Street)

The South-Western Option barely exceeds one. It is
a poor result. It is especially poor since a number
of the assumptions made in the course of the analysis
overstate the benefits. We have referred to them
already. First, the costs are significantly understated.
If a margin of 20% is added to the construction costs
the South-Western Option ceases to be viable on this
criterion. The figures are (27):

25. The Joint Study Report, Summary page ii.
26. DMR Submission S.K/C 340 Transport and Economic
    Analysis, page 34.
27. ibid., page 35.

-280-

  • 1.16 Cooks River Option
  • 0.95 South-Western Option
  • 1.51 Bexley Road Option (Harrow Road)
  • 1.54 Bexley Road Option (Bestic Street)

Secondly, population estimates for the South-West
and the West) have been revised. They are now lower
than they were when the traffic model was constructed.
The traffic model is employed for the purposes of
calculating the benefits arising from the construc-
tion. Since the traffic model presupposes more
people in the South-West (and the West) who may
conceivably have taken advantage of the facility,
(and therefore derived benefits) it is likely the
benefits have been exaggerated.

Thirdly, an expansion factor is used for the purposes
of calculating annual benefits. The traffic model
simply indicates the number of trips in the morning
peak. A formula must be employed (known as expansion
factors) to convert those benefits to daily (24 hour)
benefits and thereafter convert that figure to annual
benefits. If the expansion factor is too high the
benefits are artificially pumped-up. If it is too low,
the community may be robbed of a facility which is
economically viable on this criterion. It was the
Inquiry's view that the expansion factor was too high.
A lower factor was employed in later analysis. The
Inquiry preferred that approach (28).

Fourthly, these road projects are competing with other
road projects for scarce funds. There was a time when
any project with a benefit/cost ratio exceeding one
may have been undertaken. That time has passed. Many
projects can be undertaken which will yield a very
high economic return. The 'picnic Point Connection',
after all, demonstrated a benefit/cost ratio of 9.6.
That is not to say that the 'picnic Point Connection'
is worthwhile. It simply demonstrates that it has

28. See Volume II Economic Criteria, page 277.

-281-

effortlessly cleared the cost/benefit hurdle. The
same cannot be said of the South-Western Option
(i.e., the work east of King Georges Road).

Professor M.E. Beesley is an economist of considerable
standing. During the Inquiry he was a Visiting
Fellow at the Macquarie University. The Inquiry
was fortunate in having his services as a
Consultant. He provided a valuable paper which we
have reproduced in Volume II (29).

He drew attention to certain research in South
Australia. The marginal benefit/cost ratios for
projects selected by that State have been documented.

The lowest benefit/cost ratio in 1978 in South
Australia for an urban arterial road was 2.0.
Professor Beesley said this (30):

"..There is no reason to suppose that
New South Wales has a more generous
attitude towards roads, or less
opportunities to use the resources
productively, than South Australia."

Professor Beesley then specifically considered the
cost/benefit figures for the options of the present
Inquiry. He said (30):

"If this is a fair interpretation, the
eastern part of, the South-Western
Freeway and Cooks River Options would
each be highly doubtful investments
,
in (cost/benefit analysis) terms, when
measured correctly, that is as additions
to investments further west.”

Professor Beesley suspected that the costs had been
understated. We have amply demonstrated the degree
to which they are inaccurate. Their inaccuracy
reinforces the conclusion that the South-Western


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Freeway east of King Georges Road is a 'highly
doubtful investment' when measured by this criterion.

The matter does not end there. The economic analysis,
by chance, casts doubt upon one theory which had
currency during the Inquiry. There are repeated
references to a problem of access 'at the western
end'. In the Joint Study Report the summary contains
the following words (31):

"Constraint on King Georges Road section."

The same is said in the body of the Report (32). That
constraint is advanced as an 'excuse’ for the poor
performance of the South-Western Freeway on this
criterion. The Joint Study Report said this (32):

"The lower benefits for this option
appear to be due, in part at least,
to the capacity restraint on King
Georges Road. This restricts access
to the route, limiting its effective-
ness. Further analysis is being
undertaken to test the sensitivity
of the results to an extension of the
route along the South-Western Freeway
Corridor between Beverly Hills and
Revesby. It is considered likely
that significantly higher benefits
would be found with such an extension
."
                     (emphasis added)

The State Transport Study Group was responsible for
the further analysis. Its conclusion was in the
following terms (33):

"The extension of the South-Western
Freeway to Revesby could not be
justified. The marginal benefit/cost
ratio of this section of the route
being only 0.6. Consequently, the
inclusion of this section lowered
the benefit/cost ratio of the entire
project to less than unity."

31. Joint Study, Report Summary, page i.
32. ibid., page 32.
    Joint Study Report, page 34.
33. Exhibit 57 STSG Economic Evaluation, September 1979,
    Summary ii, and see page 8.

-283-

An economic analysis was carried out using Triptable
D. The South-Western Option fared rather better. It
was sti1l, on any view, a lack-lustre performance.

The marginal benefits using Triptable D are (34):

  • 1.5 for the Cooks River Option
  • 1.7 for the South Western Freeway
    Option (i.e., freeway standard
    between King Georges Road and
    Turrella)

When an adjustment is made to the capital cost (by
adding 20%) the benefit/cost ratios fall to the
following level:

  • for the Cooks River Option
  • for the South-Western Freeway
Even these figures may be overstated for the reasons
we have given. The expansion factors were lower
than those employed with triptable C. In the case
of private vehicles, however, the figure (335) was
still too high. A figure of 300 would have been
more appropriate. To this must be added the 'charge'
on benefits where they are derived at the expense of
rail. The calculation of benefits further assumed
that the South-Western Freeway would deliver early
benefits, whereas it is unlikely to do so since it
cannot easily be built in stages (35):

We now turn to the comments upon these figures by
various people who gave evidence before this Inquiry.

4.1.5 Commentary Upon Cost/Benefit Performance

The condemnation of the South-Western Freeway, in
cost/benefit terms, was all but universal. We have
referred to the epithet of Professor Beesley that

34. DMR Submission (De Leuw Cather) September 1979,
    Table 5.8, page 72.
35. See Volume II Economic Criteria, page 312.

-284-

it was a 'highly doubtful investment'. That tag was
applied with full knowledge of the material used in
Triptable C and Triptable D.

Mr. Peterson was the expert economist with the State
Transport Study Group. He had been responsible, in
part, for the economic analyses used in the Inquiry.
He was asked for his views. He agreed the figures
were not impressive. His evidence is in the following
terms (36):

"COMMISSIONER: But the particular figures
thrown up by each of these projects (in
the economic analysis), is it fair to
say, are not very impressive. Even
though they may be justified in other
areas, in other ways, in economic terms..?"

PETERSON: In a broad sense, no, they
are not very impressive at all."

This material was put to a Transportation Planner for
the Planning and Environment Commission, Mr. Michael
Conroy. The exchange is reproduced below (37):

"COMMISSIONER: "What do you say (about)
the suggestion which was made by the
Urban Transport Study Group, Mr.
Peterson (being their economic expert)
that the benefit/cost figures for both
options are not impressive? Would you
agree with this?

CONROY: They are certainly not impressive
for the South-Western Option
. I mean
if the Commonwealth Bureau of Roads was
using those figures for assessing the
application of Commonwealth Grants for
road construction, I don’t think the
South-Western Option would get into
their road programme because it has such
a low benefit/cost ratio. I can't remember
what sort of cut-off they used exactly.
But I think the Cooks River Option
probably would qualify but it would be
fairly low down in priority when you
compare it with things like the section
of the South-Western Freeway out at
Liverpool.."

36. Transcript UTSG (now STSG) 12/12/79, page 81.
37. Transcript Planning and Environment Commission,
    16/1/80, pages 7-8.

-285-

4.1.6 The High Economic Return Required

We must jump ahead. We will shortly deal with the
environmental consequences of constructing the South-
Western Freeway (between King Georges Road and
Kyeemagh or Tempe). A community already impoverished
in open space will be called upon to sacrifice
considerable parkland. The parkland is unique in
character. It is, in part, irreplaceable. That
which remains will be degraded by the presence of
the road.

In these circumstances it is appropriate that we once
more draw attention to the test we formulated when we
began this report (38). A scheme which significantly
affects the environment must yield "high economic
or other benefits".

By this stringent measure the performance of the
South-Western Option is simply not adequate.

4.2 Equity

The concept of equity raises the question 'who benefits
and who pays?' (39). The issue was not adequately
examined by submissions to this Inquiry. We simply
do not know whether the South-Western Option (or any
option) fairly distributes cost and benefits through-
out the community, or whether one group is called
upon to shoulder a disproportionate burden for the
benefit of another.

The concept does not require that a road option which
is inequitable should be rejected. Where those who
benefit are not co-extensive with those who pay the
price, measures should be incorporated in the ‘road
package’ which ameliorate the adverse effects of the
road, or compensate the community for the disadvantage
it suffers.

38. See page 23.
39. See Volume II Economic Criteria, page 316.

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If, contrary to our recommendation, the Government
takes the view that the South-Western Option should
be constructed, it will be of the utmost importance
that the Department of Main Roads (and the Planning
and Environment Commission) should address this issue


5. THE SOCIAL CRITERIA

5.1 Displacement of People and Property

First, there is the comparison between the South-
Western and the other options. The statistics are:

  • 158 dwellings demolished by
    the South-Western
  • 212 homes demolished for the
    Cooks River Option (maximum
    open space)
  • Between 49 and 91 dwellings
    displaced for the Bexley Road
    Option (depending upon the sub-
    option selected)

On this reckoning the South-Western Option is rather
better than the Cooks River Option.

There is then the comparison between various alignments
of the South-Western Option. The facts are these:

  • 158 dwellings demolished under the
    original alignment (the western
    side of the valley)
  • 113 homes demolished if the revised
    alignment is adopted (the eastern
    side of the valley)

These statistics conceal other important advantages
of the revised alignment. There is, on the western
side of the valley, a charming row of stone houses
in Jackson Place, Earlwood. One submission identified
this settlement, and contained the following lament (40):

40. Submission S.K/C 805, Mrs. Simpson.


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"Also the old settlement at Turrella
is of great character and historical
interest, which would be disrupted
forever if a six-lane highway were
built alongside (sic). This village
is mentioned in a Rockdale history
book (at Arncliffe Library) as being
like an old English village.”

Some of these homes would in fact be demolished.
They would be spared by the revised alignment. Their
tranquility, nonetheless, would be invaded by noise
and pollution, because of their proximity to the road.

There is a further modification which affects the
number of houses displaced. The submission from the
Rockdale council contains the following suggestion (41):

"..The South-Western Option..has included
a length of roadworks from Wolli Creek
to Macquarie Rodd (along Riverview Road,
Earlwood) ..This length of road is not on
the South-Western Route but instead forms
part of the Cooks River Route. No reason
has been given... "

The spur along Riverview Road to Macquarie Road is
identified in the following diagram:

FIGURE 25.
MACQUARIE AND CARRINGTON SPURS TO THE SOUTH WESTERN OPTION




41. S.K/C 343 Submission Rockdale Council, page 15.

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The explanation for the Macquarie Road (Undercliffe)
spur was furnished by the Department of Main Roads (42):

"SHEPHERD: The decision for including
(the Riverview Road, Undercliffe spur)
was not based on the assignments (of
the traffic model) but was based on
access considerations."

To adequately feed the South-Western Option a number
of tentacles, stretching into Earlwood and
Marrickville, were thought necessary. The Inquiry
takes a different view. To explain the view we take
we must retrace our steps briefly. The Inquiry,
fundamentally, was not impressed by the claims for
a road made by commuter traffic (cars). The provision
of a road is likely to be self-defeating. It is
likely to encourage traffic to travel in a direction
in which it ought to be discouraged. The more
troublesome claim was that made by trucks. Their
accessibility needs are far greater. If a road were
thought necessary, its justification would lie in
the provision of adequate access for trucks.

A spur into Undercliffe may be convenient for
commuters. That is not the primary aim of the road.
The spur will channel traffic, including truck traffic,
into Earlwood, where it would be tempted to filter
through back streets, making its way to Canterbury
Road. That would defeat the very purpose of the
road. It is better that trucks destined for the
Western Region or the South-Western Region are
confined to the South-Western Freeway to Ring
Road 3 (King Georges Road). If a few trucks are
lost to the route, because access from western
Marrickville is rather more difficult, so be it.

There are other reasons for rejecting this extension
of the South-Western Freeway. Undercliffe is a most
attractive part of the Cooks River Valley. It has

42. Transcript 13/12/79, page 3.

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the potential to be made even more attractive. The
presence of a road would severely degrade the area.

The extension would also be expensive in human terms.
Although short, it would involve the acquisition of
forty-nine properties (including four commercial
properties). It would involve the partial acquisi-
tion of twenty-nine properties.

If the Macquarie Road spur is abandoned, the number
of persons displaced by the South-Western Freeway
(adopting the altered alignment on the eastern side
of the valley) is reduced to seventy-three. That
is a significantly better tally (although bad enough)
than the 158 properties envisaged by the original
design.

There is one important factor which does differentiate
this option from the Cooks River Option. In the
Joint Study Report the following appears (43):

"A high proportion of dwellings in the
vicinity of this route have brick external
walls, possibly indicating higher
income levels than along the Cooks River
Route."

The poor are especially vulnerable to displacement.
Their plight is captured in the following spirited
exchange, taken from the transcript of the hearing
involving the Community Resources Centre, Bardwell
Park (44):

MIDDLETON: But you’re not saying one
group would be less resilient to the
upheaval than another group are you?

MS. EWIN: I would tend from experience
in community welfare to say that money
makes a tremendous difference in terms
of resilience to upheaval. That the
more money you have, the more options
you have, and the more you can cushion
the blow. So I would say definitely yes."

43. Joint Study Report, page 35.
44. Transcript 25/9/79, page 59.

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Again, on this criterion, the South-Western Option
performs rather better than the Cooks River Option.

A number of businesses would be displaced by the
South-Western Option. The statistics refer to the
original alignment. The comparison emerges from the
following estimates provided by the Joint Study Report (45):

  • 90 persons displaced by Cooks
    River Option
  • 79 by the South-Western Option
  • 32 by the Bexley Road (Harrow
    Road) Option
  • 65 by the Bexley Road (Bestic
    Street) Option.

There are two remaining matters for which the facts
should be recited. The South-Western Option involves
less partial acquisitions than the other options
(approximately half the number involved for the Cooks
River Option). Because much of the Option passes
through a valley, there are less homes immediately
adjacent to the route. The Joint Study Report recites
the following statistics relating to the 'dwellings
with amenity of adjacent land affected’:

  • 346 homes affected by the Cooks
    River Option (maximum open space)
  • Between 440 and 535 affected by
    the Bexley Road Option
  • 64 affected by the South-Western
    Option

Displacement is an important criterion. The suffering
involved is considerable. If the matter rested there,
the South-Western Option would clearly be the
preferred option. The matter does not rest there.
Its poor performance according to the economic
criterion, its inability to meet the transportation
aims, and its significant environmental impact, make
the option insupportable in the Inquiry's judgement.

45. Joint Study Report, Appendix 6.6, page A11.

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5.2 Accidents

The Team responsible for the Joint Study Report was
enjoined by Government to design a lower standard
road which would cost less than a freeway. They
did so. A median strip was omitted. Its provision
would entail a slightly wider road (and consequently
greater resumption) and a higher construction cost.
The Department of Main Roads and the Traffic Authority
both reject that compromise. The Department of Main
Roads said this (46):

"SHEPHERD: The Department, on considera-
tion of the design prepared by the Study
Team felt that because the alignment of
the route is to freeway standard, and
not to a standard appropriate for a
surface arterial road, that (such an)
alignment is of too high a standard to
be without a median...The Department..
does not accept the design (of the
Joint Study Team)."

In a later hearing Mr. Shepherd returned to the subject.
He expressed the view of the Department forcefully (47):

"SHEPHERD: The Department feels quite
strongly that because one would expect
relatively high traffic speeds on that
section (between Turrella and King
Georges Road) (and because) traffic
speeds..cause most damage and most
severe injury (in) head-on accidents,
any form of separator is desirable.
This section must be regarded differently
to say a normal arterial road, where
traffic speeds are lower, and where
drivers generally are expecting to
stop far more frequently and perhaps
are more alert to road hazards."

We agree. If the Government, contrary to our recom-
mendation, favours the South-Western Freeway Option,
a median strip should be included, at least in the
section between Turrella and King Georges Road. The

46. Transcript DMR 26/10/79, page 18.
47. Transcript DMR 14/12/79, page 40.

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cost of that alteration (together with a small
addition at the Turrella end) has been assessed
by the Department at $4.5 million.

The economic analysis (or at least that carried out
with Triptable C) suggested that the community would
be worse off in terms of accidents if the South-
Western Option were built than if nothing were done.
Traffic would be diverted onto roads with a higher
accident rate than under the base case. The Study
Group made this comment upon that curious result (48):

"The calculation of accident costs is
based on a simplistic model which
assumes that a specific accident rate
per million vehicle miles and for
various types of road will be
maintained. The model may be
criticised as being too simplistic.
It may be argued that accident rates
are more a function of traffic condi-
tions at particular locations rather
than vehicle miles per se."

They went on (48):

"The use of this model has led to the
perverse result that every option
tested has increased the total accident
cost by diverting traffic onto roads
with a higher accident rate. While
this might in fact prove to be the
caser the results appear counter intuitive.”
                       (emphasis added)

The Department of Main Roads insisted that the
freeway would reduce the accident rate. URTAC
in its submission took the same view. It thought
the South-Western Option would be the safest of
all options.

We are inclined to agree. The differences between
one option and the next are not so startling that
one could use accidents as an argument in favour of
any one option over another.

48. Exhibit 57, UTSG "Economic Evaluation of Optional
    Routes Between Kyeemagh and Chullora”, September,
    1979, page 8.

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Carrington Road is a back street in Marrickville.
The landscape was described in these terms by the
Department of Main Roads (49):

"SHEPHERD: It will be clear proceeding
northwards along Carrington Road that
the standard of the road has fallen;
one proceeds approximately 500 metres
from Richardson's Crescent along
Carrington Road before turning left
into Myrtle Street, an obvious sharp
left-turn from the view of the approaching
driver. It is the first sharp radius
curve, and once that curve has been
negotiated, one is virtually immediately
faced again with another right-hand
curve into Charlotte Street to get
beneath the railway line. The first
turn would be a right turn and this
could be indicated quite clearly by
directional hazard markers..”

The matter was discussed elsewhere. The following
exchange took place (50):

"COMMISSIONER: As a matter of philosophy
would you agree that it is undesirable
to create, as a feeder road onto a high
standard road, a road which is in fact
sub-standard?

BLISS (DMR): As a feeder road onto a
high standard road, yes. I would argue
that, off is a different case.

COMMISSIONER: It will act as both..
Would you see that as something which
would cause you to hesitate in creating
the spur in the first place?

BLISS: If there was a viable alternative,
I would perhaps hesitate. If there was
no viable alternative I would be looking
very hard at what action I could take to
improve the accident rate that I would
expect to increase from that sort of
situation."

In the same session Mr. Alexander Dimitric, an Engineer
with the Department of Main Roads, added this (51):

49. Transcript 13/12/79, page 9.
50. Transcript 8/11/79, page 39.
51. Transcript ibid., pages 39-40.

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"DIMITRIC: I am pretty sure that the
Department would take care in trying
to rectify the geometry...What is very
dangerous is the change in standard.
If you are coming off a freeway and
suddenly (you are) faced with sub-
standard curves that are not so
apparent to the driver, you are
exposed to great danger.

COMMISSIONER: That is precisely what
is happening here isn't it?

DIMITRIC: Right. In general terms I
am saying that if such a route is to be
associated with the freeway, I assume
strongly that we would rectify the
geometry as much as possible."

We can see no allowance in the cost estimates for
any such rectification.

We have elsewhere advanced reasons for rejecting the
Carrington Road spur. The Marrickville Council has
expressed its implacable opposition to a road which
will feed traffic through one of the few areas of
Marrickville not exposed to a heavy traffic stream.
The likelihood of accidents, through a contrast
between this section of road and the freeway, is a
further reason for rejecting the Carrington Road spur.

5.3 Severance

5.3.1 The Areas of Severance

There are three distinct areas in which severance is
an issue. They are:
  • Tancred Avenue, Kyeemagh in the
    section between General Holmes
    Drive and Undercliffe
  • Between Turrella and Kingsgrove
    Road (the Wolli Creek Valley)
  • The section between Kingsgrove
    Road, Kingsgrove and King Georges
    Road and especially in the vicinity
    of Coolangatta Road, Beverly Hills.

We will deal with each in turn (52).

52. The areas can be seen in Figure 19 page 153.

-295-

5.3.2 The Kyeemagh Community

We have referred already to the 'problem of the eastern
terminus'. If the road were constructed should it
circumnavigate the airport to the north or to the south?
The option before the Inquiry suggests a southern
alignment. The Department of Main Roads, and many
others (including the NRMA), have indicated a
preference for the north. The matter has not been
resolved. Its resolution will require further
intensive study.

The Inquiry considers the southern alignment inappro-
priate (53). It does not conform to the direction in
which most vehicles wish to travel. Cars tend to
desert the route before reaching Kyeemagh. Marrick-
ville suffers in the process. We will deal with the
matter in the context of the Cooks River Option.
That Option comes nearest, in the Inquiry's judgement,
to a satisfactory road, although it is still unaccep-
table. If a road were built it should follow a
northern alignment. The southern alignment (involving
Tancred Avenue) should be abandoned.

But we are jumping ahead. The option proposed will
sever a community of 91 houses in Kyeemagh from the
remainder of that suburb (and from Rockdale).

No survey has been carried out to establish precisely
what that means for that community. It ought to have
been. We do not know the extent to which the severance
can be repaired by the installation of pedestrian
crossings, overhead bridges, or underpasses. Clearly
something should be done. A land-locked community
must penetrate the barrier created by a road at
whatever cost and inconvenience.

5.3.3 The Wolli Creek Valley

The Wolli Creek Valley is used as a municipal boundary.
On one side (the western side) you have Canterbury
Council. On the other side, there are the munici-
palities of Rockdale, Kogarah and Hurstville.

53. See page 341.

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The Department of Main Roads has suggested that the
proposed road will not materially add to the severance
which comes about naturally from the presence of the
valley (and the railway line). It is supported in
that view by the Arncliffe progress Association
which said this (54):

"Socially the South-West Option would
have much less impact than the
alternative road options. It passes
through the Wolli Creek Valley which
already forms an effective social
barrier between Rockdale and Canterbury
Municipalities. Little regular
intercourse takes place between the
communities on both sides of the valley.
The Hartill-Law Underpass will retain
satisfactory access at Bardwell Park.
At Turrella.. (there should be) an
underpass."

It appears that the Cooks River and the Wolli Creek
are recognised by the Department of Education as
‘barriers’. School boundaries have been drawn
accordingly. The Department said this (55):

"..The proposals known as the "Cooks
River Routes" and the “South-Western
Route" were accepted as causing the
least amount of interference at schools
located enroute in terms of the school
sites involved and their pupil drawing
areas.”

The Inquiry accepts the broad proposition that the
Wolli Creek Valley, at least between Turrella and
Kingsgrove, already operates as a barrier between
communities. One would, therefore, expect severance
created by the road to be less.

It is, nonetheless, clear that there is some inter-
action between one side of the valley and the other.
There are trails near the Turrella railway station
which are well used, linking Earlwood with the East

54. S.K/C 686 Arncliffe Progress Association, page 6.
55. Submission S.K/C 356 Department of Education,
    page 1.

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Hills Line. There are bridges (and a network of
trails leading to them) in the section between Bexley
Road and Kingsgrove Road. Much of this communication
would cease. Pedestrians would be barred from the
road. Access between one side of the Valley and the
other will be prevented except via a limited number
of crossings (Hartill-Law Avenue, Bexley, Turrella
Railway Station, Bexley Road and Kingsgrove). The
road would be fenced. The fencing was described by
the Department of Main Roads in these terms (56):

"SHEPHERD: If a standard design is
followed this will be man-proof or
person-proof fencing of the chain-wire
type, ten to twelve feet high, with
steel posts and some kind of provision
at the top, such as a few strands of
barb wire, to prevent people from
crossing."

The embankment, upon which much of the road would be
built, would also operate as an inhibition. At the
same time that embankment may create the opportunity
to repair the severance, by permitting a tunnel or
two, under the road itself. We will recommend that
consideration be given to strategically placed tunnels
to the section between Bexley Road and Kingsgrove Road.

At Turrella Railway Station an overbridge was proposed.
Some facility is obviously necessary. An over-bridge,
however, is less than satisfactory. One resident said
this (57):

TAYLOR: I believe the height of the
embankment at that point would make a
bridge, one might say, useless. If
you take into account that the road
itself is going to be on an embankment
ten metres (that’s forty feet) high,
allow adequate clearance for heavy
transport, you are looking at probably
another fifteen to twenty feet. That
is about sixty feet. That is the
equivalent of climbing a six-storey

56. Transcript DMR 13/12/79, page 54.
57. Transcript 26/9/79, page 26.


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building.. How many people - particu-
larly old people are in (good enough)
condition to climb the steps of a six-
storey building?"

The Arncliffe Progress Association said the same
thing. It proposed an underpass (58). In many ways
an underpass is undesirable. On the other side there
is a lonely valley. In the words of Mr. Taylor it
will become "the lair of thugs". The carriageway is
almost sixty feet wide. The embankment may add to
the length of the tunnel.

The Planning and Environment Commission suggested that
the risk of vandalism and violence within the tunnel
can be kept to a minimum by maintaining visual contact
between one side of the valley and the other. The
tunnel should be so designed. Such a design may be
slightly more expensive. The expense must be suffered.

5.3.4 The Route at Beverly Hills

Moving to the other end of the South-Western Freeway,
many residents complained about the closure of
Coolangatta Road, Beverly Hills. A member of the
Beverly Hills Progress Association, Mr. A. Delaney,
calculated the number of additional kilometres he
would be required to travel to maintain the activi-
ties which cause him to cross from one side of the
road reservation to the other. He said this (59):

"DELANEY: And when you add up all these
trips, and you sit down and see the
effect of it, you find that the total
number of kilometres, additional
kilometres I would have to travel per
year will be 3,600 kilometres if the
expressway were in existence today.
A two car family, we have, last year,
travelled.. (24,000 kilometres). So
you are looking at 3,600 over a total
of 24,000."

58. S.K/C 686, page 6.
59. Transcript of Beverly Hills Progress Association
    22/10/79, page 5.

-299-

The possibility of keeping Coolangatta Road open
(by a tunnel under the freeway) was explored with
the Department of Main Roads. It conceded it may
be necessary (60):

"SHEPHERD: The most significant area
of severance appears to be between the
Canterbury Golf course and King Georges
Road..In addition, it is apparent that
Coolangatta Road carries a fair amount
of vehicular and pedestrian traffic
for local purposes. It appears that it
could be desirable for an underpass for
both vehicular and pedestrian traffic
to be provided..."

It would add approximately $200,000 or $300,000 to
the cost of the Freeway.

There may be another side. Mr. Bliss, a Traffic
Engineer with the Department of Main Roads, gave
this evidence (61):

"COMMISSIONER: Residents have complained
that the closure of (Coolangatta Road)
will occasion them additional travel
time and additional travelling. Added
up over a year, it amounts to quite a
sizeable figure.

BLISS: Hurstville Council, I think it is,
would dearly love to close Coolangatta
Road, regardless of any South-Western
Freeway..In fact, we have indicated to
them that following the widening of King
Georges Road, with consequent improvements
to the capacity of King Georges Road/
Moorefields Road intersection, we would
raise no objection to such closure...
Canterbury Council may well have a
different opinion. "

Pedestrian access must certainly be maintained
between one side of the Freeway and the other at
Coolangatta Road. Whether, in addition, a road
link should be provided is a matter to be carefully
resolved by consultation with the community (including

60. Transcript DMR 14/14/79, page 8.
61. Transcript DMR 30/11/79, page 10.

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the Beverly Hills Progress Association) and the
Local Councils concerned.

Our view finally, on the issue of severance, is that
the South-Western Option is certainly better than
the Bexley Road Option. It is also better than the
Cooks River Option. It can be improved even further
by adding the links which we have suggested.


6. ENVIRONMENTAL IMPLICATIONS

6.1 The Noise Induced by the South-Western Freeway

It is convenient to separate the noise effects on
areas immediately adjacent to the route, and the
contribution which the South-Western Freeway is
likely to make to the objective of 'reducing noise’,
region-wide. We will deal first with the effects on
the surrounding community. We will then consider
the wider context.

The effect of the South-Western Freeway upon noise
varies from section to section. At the eastern end,
in Tancred Avenue, Kyeemagh, there is, on one side,
a residential area, and on the other a cluster of
schools and clubs. At present, Tancred Avenue is a
lonely back street. It carries little traffic. The
conversion to a major road will be dramatic. The
residents are likely to resent the noise, more
especially since it will be accompanied by pollution,
severance, and the risk of accidents. We have already
expressed misgivings about the road terminating on the
southern side of the airport rather than the north.
The noise effects (and other environmental consequences)
furnish a further reason for that view.

Between the Princes Highway, Arncliffe and Wolli
Creek the road begins to climb. It is placed upon
a structure in order to pass over the Illawarra and
East Hills Railway lines. The noise from an elevated




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road will be spread more widely. The land-uses
underneath are industrial. They are not as
sensitive to noise as residential areas. Noise
could not be counted a significant effect in this
area

The South-Western Route then passes down the Wolli
Creek Valley. The valley is narrow. One resident
said this (62):

"As I live on one of these hills over-
looking the valley where this route
will go through, local knowledge of
this area prompts me to bring to your
attention what ‘experts’ may be unaware
of.

The valley is a natural amphitheatre.
From my place I can, very clearly and
distinctly, hear the children's voices
as they play in the creek, bush and
park. I assume it would also magnify
all traffic noises."

It is our view, nonetheless, that the noise effects
of this option, upon the areas immediately adjacent,
are less substantial than other options. First,
there is already the East Hills Railway line running
through the valley. It is already a source of noise.
We have suggested an alignment of the road as close
as possible to the railway easement. Indeed we have
gone further. It is our view that part of the railway
easement should be used. Secondly, though the valley
is narrow, the distance which separates people from
the source of noise is (in relative terms) still quite
considerable. The noise will attenuate over that
distance. That attenuation will be aided by the
nature of the ground surface. Surfaces which are
soft and absorbent (foliage as opposed to bitumen
or concrete) muffle the noise more readily.

Thirdly, the road itself is designed for free flowing
traffic. The grades are relatively gentle, although

62. Submission S.K/C 346 Ms. A.M. Colwill, page 3.

-302-

the price for that is a number of embankments which
are visually unattractive, and add to the severance
between communities on either side.

The original alignment, between Bexley Road and
Coolangatta Road, was on the Western side of the
valley. The valley at this point is relatively
flat and treeless. It was apparent on the walk we
made with personnel from the Department of Main
Roads that the alignment was unsatisfactory. It
was too close to the houses. It would isolate the
people of Canterbury from the open space. It would
create noise which would intrude upon the amenity
of the residential area.

We suggested the route be moved to the other side of
the valley. The revised alignment effects that
change. On the eastern side of the valley, close
to the storm water channel, the noise effects are
reduced. In the section beyond Kingsgrove Road
(opposite the Canterbury Golf course) the adjacent
land uses on the eastern side of the valley are
industrial. They make their own noise. They are
less sensitive to additional noise.

Later in this chapter we will deal with the question
of open space. The South-Western Option absorbs an
enormous quantity of community open space (36 hectares).
But it does more than that. It seriously degrades
that which remains. The tranquility of a park
immediately adjacent to a busy highway is necessarily
destroyed.

At the western end of the South-Western Freeway the
route begins to climb gradually to reach the level
of King Georges Road. One resident said this (63):

63. S.K/C 097 Colin and Sascha Taylor, page 5.


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"This intersection (the junction of
the South-Western Freeway with King
Georges Road, Beverly Hills) will be
at the bottom of the valley between
two relatively steep hills, with the
result that traffic on King Georges
Road will be obstructed by these heavy
trucks often starting from a standstill..
and grinding their way up the hill
towards Moorefields Road."

In the near vicinity of this intersection there
is a cluster of schools. The submission from the
Beverly Hills North Parents and Citizens' Association
is typical. They said (64):

"The staff of the school already complain
at the level of noise experienced in
classrooms close to King Georges Road.
Traffic projections indicate that this
section of road will be heavily
congested if the South-Western Option
is built. More importantly, the rela-
tive number of trucks will increase,
and as these are responsible for the
disruptive noise, the level of noise
pollution will increase dramatically.
This will reduce the effectiveness of
teaching."

Noise at the western end is more likely to be a
problem than elsewhere along the South-Western
Route. However, the traffic flow must increase
fairly dramatically before there is a perceptible
deterioration in the level of noise. Nonetheless,
the hilly nature of the environment, the stopping
and starting, and the contribution made by trucks,
may bring about a marginal deterioration.

These are the effects upon the immediate area. The
South-Western Option compares favourably to the
other options. However, if the objective is the
minimisation of noise, region-wide, the South-Western
Option is probably the worst. This paradox is the
consequence of a high-quality facility, which signifi-
ficantly improves journey times, and which will make

64. Submission S.K/C 787 The Beverly Hi1Is North
    Parents and Citizens’ Association, page 1.


-304-

car travel more attractive. The completion of the
South-Western Freeway is likely to induce more
people to use their cars rather than public
transport. Its success will, to some extent, be
at the expense of the East Hills Railway line.
Secondly, the phenomenon of a ‘travel budget' (65)
tends to ensure that people use the journey time
they may save by a high quality facility in
'purchasing more travel'. Journeys are likely to
lengthen. There will be more cars on the road,
they will be travelling further. Thirdly, the
compulsion to own a car, and to use it for the
journey to work, would become that much greater.
In our judgement, the South-Western Freeway,
especially because of its radial orientation, is
likely to induce more travel than less, more cars
than less, and the nett effect will be more noise.

6.2 Air Pollution

The same paradox is repeated. The South-Western
option compares favourably to the Cooks River Option
(and especially the Bexley Road Option) in terms of
the immediate area through which it passes. It
compares unfavourably to the other options when the
comparison is region-wide, and the measure is a
contribution which each makes to the stated objective
of ‘improving air quality' (66).

The reasons for the paradox are similar. The route
by and large, passes through a valley. Pollutants are
likely to disperse (subject to our comments below)
before they seriously intrude upon the communities
on either side of the valley. Certainly they will
degrade the open space which remains after the road
has been constructed. A parkland invaded by fumes
and noise is less than enticing.

65. See Volume II Transport Criteria, page 36.
66. Joint Study Report, page 7 (objectives).


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Air pollution is essentially the product of the
number of people using cars, and length of car
journeys. The South-Western Freeway, as we have
said, is likely to induce more car travel and longer
journeys. The travel, moreover, is headed in a
direction already severely affected by pollution.
(Marrickville etc.). Some of the travel will be
at the expense of the electric railway line.

There are certain features of the Cooks River Valley
and the Wolli Creek Valley which may interfere with
dispersion. The Community Resources Centre at
Bardwell Park, in its submission, made a comment
which is typical of many submissions (67):

"The Wolli Creek and the Cooks River
act as funnels for pollution which
is moved about by wind. On calm
days, the smog will build up in the
valley, increasing asthma attacks
and respiratory ailments."

Mr. Arnett on behalf of the Marrickville Municipal
Council made the following observation (68):

"ARNETT: I would like to draw attention
 to... the particular nature of the Cooks
River Valley itself. It is a basin and
is an unusual basin...Most river systems
widen as (they) proceed towards (their)
conclusion. The Cooks River system is
constricted into two quite distinct
systems or two quite distinct hills or
cliff systems. Undercliffe gets its
name from the location. It was a very..
narrow constricting of the valley forma-
tion between Illawarra Road and Bayview
Avenue. This (particularly with) the
westerly winds system which prevails in
the area in the wintertime, would have
the effect of (creating) an air pollution
reservoir, in that the pollution, if it
was a relatively still day with only
gentle breezes, will be forced into this
location and could have lengthy periods
(with inversion) of one day or two days.
You would have quite a high concentration
of air pollution at the eastern end of
the valley and I would submit that that


67. Community Resources Centre Submission S.K/C 950.
68. Transcript 3/10/79, page 42.


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is a factor which should be closely
looked at in the consideration of a
road proposal because (the road)
itself will be a concentrator of
traffic in that location."

Mr. Colin Taylor, a resident of Turrella, gave the
following evidence (69):

"TAYLOR: The valley tends to run
generally east-west. In winter , when
there is not a great deal of wind, one
always finds a smoke pall hanging in
the valley from domestic fires. Not
an objectionable one. Just a wood-
smoke pall. Not a strong one. When
there are fogs, I have known it to take
to well after mid-day for the fog to
clear, when the surrounding area has
been cleared by 8.30, 9.00."

In our judgement these matters are more likely to
affect the valley itself (and the open space within
the valley) than the residential areas in the
immediate vicinity.

6.3 Ecological Consequences

6.3.1 What is Ecology

Ecology is the study of the way in which organisms
relate to each other and to their environment. It
has become a fashionable word. If, by that fashion,
people are made more aware of the delicate balance
established in nature, and are made more aware of
the dependency of animals and birds upon the
continuance of that balance, then the fashion is
not to be sneered at; it is to be encouraged.

A road superimposed upon an area already re-fashioned
by man may have environmental consequences. It is
unlikely to have ecological consequences. The trans-
formation of the landscape by man destroys nature's
balance. Another balance is established. The
further disruption of that balance by the superimposi-
tion of a road will be considered elsewhere in this

69. Transcript 26/11/79, page 22.


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Report. We will confine our focus here to the
threatened disturbance of an area of the Wolli
Creek (between Turrella and Bexley North) which
is largely in its original state.

We will consider the following:

  • the nature of the area threatened
  • its value to the community
  • what would happen if a road were
    constructed?
  • what would be left of the area after
    the construction had been completed?


6.3.2 The Nature of the Area Threatened

Some were not impressed by the Wolli Creek Valley.
The Arncliffe Progress Association said this (70):

"We are very familiar with the open
space between Turrella and Bexley North..
much of the land is of questionable
value from an environmental viewpoint.
Wolli Creek itself is heavily polluted
and will always remain so because of the
street run-off it is required to carry
and the sewerage discharge points which
exist along its length."

The submission continued (70):

"Much of the 'bushland' affected is in
fact lantana. The only really valuable
stand of trees is at Girrahween park,
Earlwood and this has already been
destroyed in part by the creation of
the parking area at Earlwood Shopping
Centre. At ‘Nannygoat Hill' the scrub
affected by the substantial cutting has
been largely destroyed by trail bikes.
The best sections of the hill will not
be affected."

That view is very different from the view formed
by the Inquiry. The Inquiry was most impressed by
this section of the Wolli Creek Valley. The

70. Submission S.K/C 686, page 6.


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sandstone cliffs, the rocky outcrops, the bush
trails are a precious heritage that we dare not
squander. We do not suggest the area is without
blemish. The presence of the road corridor has
left its mark. Much of the valley needs care and
money. Its potential as a community resource is,
in the Inquiry's judgement, vast.

We are not alone in this view. The opinion of the
National Trust emerges from a passage in the Joint
Study Report (71):

"The National Trust of Australia noted
that the South-Western Freeway route
would pass through the only significant
natural bushland left in the area. The
Trust also noted that the intrinsic
qualities of bushland give it high
educational, scenic and recreational
value. The Trust felt it could not
support any encroachment into this area."

Time and again submissions disclose the community’s
anxiety at the threat to this area of bushland. The
following submission is typical (72):

"The Wolli Creek Valley is one of the
great assets of our area a place of
recreation for our children, a place
where we can retreat from the noise
and bustle of the city, a place of
quiet solitude, a source of fresh air
and sanity for us all.
It is too important to be paved by a
freeway. "

Quite apart from its intrinsic beauty, the vegetation
is significant. The Joint Study says this (73):

"The vegetation is particularly signifi-
cant being the major remnant of Cooks
River Valley vegetation. The scarcity
of such bushland in densely populated
areas increases its value to the local
community. "

71. Joint Study Report, page 35.
72. Submission S.K/C 794 Keith Sewell.
73. Joint Study Report, page 37.


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On the many inspections made by the Inquiry a great
deal of birdlife was evident. Again the Joint
Study
provides valuable information (74):

"This bushland provides a habitat
to over 90 species of native birds
plus introduced species."

6.3.3 How Valuable is the Area?

We have, in a sense, already answered the question.
To descr ibe the area is to identify its value. It
is a place of beauty, and a place of recreation.
The St. George Young Labor Group had this to say (75):

"Specifically, Girrahween Park contains
the only local examples of naturally
occurring flora and fauna. The educa-
tional value of this park is demonstrated
by the extensive use by community groups
and institutions, such as boy scouts
and girl guide troops and schools. The
educational value of this park is fully
recognised by a community which uses it
regularly and in large numbers."

Mrs. Elaine O'Connell gave the following evidence
to the Inquiry (on behalf of the Riverview Road,
Earlwood, Community Action Committee) (76):

O’CONNELL: In the Wolli Creek
Valley there is a beautiful, natural
Girrahween Park. Over the last few
years an effort has been made by the
Canterbury Council to improve this
natural bush area. They have planted
more native bushes and provided play
equipment areas and safe barbecue spots.
The Lady of Lourdes School, which my
two children attend, take the children
to this area regularly. The children
experience nature, which is a very
important part of their education...
This is a most precious and rare local
recreational area. It should be
encouraged back to its original,
natural, unpolluted state."

74. Joint Study Report, page 37.
75. Submission S.K/C 1309.
76. Transcript 25/9/79, page 5.


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The Valley is useful to the residents of surrounding
areas. Many have little open space of their own.
Ms. Finlason spoke of the way in which children from
Marrickville have been taken to the area to enjoy
what it has to offer. She said (77):

"FINLASON: I am associated personally
with a group called Kids Activities,
Newtown which runs a variety of services.
I also work as a co-ordinator with
Community Activities Centres Network
which is a network of community activity
centres throughout New South Wales, and
we are very conscious of the needs of
children and the need to have bushland
somewhere in the immediate vicinity.
We see both (the) Cooks River and the
Wolli Creek as very valuable areas.
Without the Cooks River and Wolli Creek,
Marrickville has virtually no open space.

COMMISSIONER: The children of Marrickville,
in fact, cross the Cooks River to use it?

FINLASON: Yes they do."

Another witness, Ms. Simpson emphasised the rugged
bushland nature of the reserve. It is not a carefully
manicured park but an area where children and adults
can experience nature without their being confronted
by the fingerprints of man. She says (78):

"SIMPSON: To have such a natural resource
(i.e., the Wolli Creek Valley) surviving
so close to the city, and among heavily
developed suburbs, is indeed a miracle;
surely one (which) must be kept for
future generations of children. It
is the very least we should be doing
to support the International Year of
the Child.

I have worked with many groups of
children in Surry Hills, Mascot,
Waterloo and Hillsdale on holiday
activity programmes. Many of these
children from congested inner-city
areas or stark home-unit developments
have reputations of potential delinquents.
To shout, to leap and run and hurl balls
about may seem anti-social activities

77. Transcript 18/10/79, page 5.
78. Transcript 18/10/79, page 2.


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in a closely packed suburb. We
arrange excursions for the children
to such areas as the Wolli Creek, so
they can climb trees, dig holes,
scramble up rocks, laugh and chase
and be free children. No one was ever
naughty or bored. It was their city
environment planned by people who had
either forgotten childhood or didn't
care; this seemed the cause."

6.3.4 What Would Happen to the Wolli Creek?

We must distinguish the alignment suggested by the
Joint Study Report and the revised alignment, on
the other side of the valley (near the railway line).
Both will dramatically transform the valley. Both
will destroy much that is valuable and beautiful.
We are left in no doubt, however, that the original
alignment would cause devastation on a significantly
greater scale than the altered alignment. We will
consider each in turn.

The preservation of the Wolli Creek Valley has
little to do with the foresight of planners. The
rugged nature of the landscape defied its utilisa-
tion in the service of man.

The concept of land capability is the concept of
harmonising development with nature. It presupposes
that certain forms of development are rather less
disruptive, and rather more suitable to particular
land formations, than others (79).

A description of the valley and its soils makes it
clear that it is hostile to development, whether for
a road or for any other purpose. The Joint Study
says this (80):

"The creek has a winding course within
this narrow valley. This section of
the route would have a freeway standard
of alignment and grade...which would

79. See Volume III Environmental Criteria, page 201.
80. Joint Study Report, page 36.

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require extensive cut and fill in
order to minimise the length of road
on structure. This would have a
significant effect on the topography
of the valley."

The Report continues by describi.ng the prospects
for the creek itself (81):

"Much of this part of the route would
be on alluvial flats and on poor
bearing soils and would have a signifi-
cant effect on Wolli Creek. The creek
would require realignment in several
places, causing the natural features
to be lost. "

We are not sure that the community appreciated that
much of the sandstone cliff area within the valley
would disappear. Certainly it was not clear to us
until we walked through the valley with a guide who
was able to point out precisely where the route
would be positioned. The massive earth works
required by the original alignment cannot really
be appreciated from the following description (81):

"Extensive earth works would be required.,
there would be three major and five
minor cuttings..they would range between
18 metres and 25 metres deep and 400 to
600 metres long. The embankment to be
constructed across the valley floor
near Turrella Railway Station would be
approximately 10 metres high and 900
metres long. This embankment would
require a new channel to be dug for
the Wolli Creek in two places."

Road builders are not able to tiptoe through the
undergrowth to avoid environmentally sensitive areas.
The fears of one resident were expressed in these
words (82):

"TAYLOR: Now the base of this embank-
ment (at Turrella) is going to be
extremely wide and will take up a

81. Joint Study Report, page 36.
82. Transcript Mr. Colin Taylor 26/9/79, page 19.


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large - I would say, the majority
of the width of the valley. Add
to that the necessity to re-direct
Wolli Creek - by the time the earth
moving equipment is finished in the
area there will not be a skerric of
natural vegetation left. Nor will
there be any of the wildlife...We
would lose 90% of the (90 species
of native birds)...We can't afford
to lose any (of the bushland)."

The nature of the earth-moving equipment is described
by the Department of Main Roads (83):

"SHEPHERD: Because of the nature of
the terrain a lot of the equipment
would be tracked. Because there is
a need for surface fill to be supplied,
material would be hauled in by truck.
The equipment used would be tractor
dragline to excavate the new creek
channels, dozers to excavate and
prepare the natural surface for the
road formation; there would be graders
used for trimming; there would be
compaction equipment such as vibrating
smooth-wheel rollers and vibrating
sheeps-foot rollers. These are large
items of equipment."

The ecological effects will obviously exceed the
land space which the road will ultimately occupy.
Access to the road must be gained. The access needs
are described in this passage (83):

"SHEPHERD: Access tracks would need
to be two-lanes wide or one-lane with
bays - a minimum of twelve feet for one
lane for large equipment and perhaps
twenty-four feet at the parking bays
to allow vehicle to pass.”

It is difficult, as the Department of Main Roads
has found on the Foreshore Road at Botany, to
preserve the environment adjacent to a major road
project.

84. Joint Study Report, Page 35.
85. Joint Study Report, Page 37.

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The Joint Study Report adequately describes the
effects of this work. The following description
gives the 'before and after’ for Girrahween Park (94):

"Girrahween Park is a densely vegetated
park that has been developed with walk-
ways, toilets, seats and an adventure
playground. The focus (in) the park
is a flat cleared area near the valley
floor where there is the playground,
barbecues, seats and an open grassed
area. The road would cut through this
area, leaving only the steep forested
area at the top of the park.”

The cliffs, as we have said, would be demolished.
So would much of Nannygoat Hill. The effect upon
the bushland is described in these words (85):

"(A table in the Joint Study Report)
shows that nearly 60% of the route’s
length between Undercliffe and Bexley
North would pass through the important
vegetation communities, namely the two
bushland types, the reed beds and
wetlands.
This intrusion would also disturb
nearby vegetation. Where native bush
is disturbed and bare earth exposed,
exotic (i.e., non-native) vegetation
is usually first to re-vegetate the
area."
                 (parentheses added)

The prospect for the wildlife is even worse. The
Report says (85):

"Wild1ife could suffer more than the
plant communities...Only regeneration
would provide the landscape diversity
and complexity required by wildlife
for their habitat."

It is plain that the original alignment would
devastate the valley. The extensive cuts and fills
would transform the landscape. If there were very
high economic returns perhaps that loss could be

84. Joint Study Report, page 35.
85. Joint Study Report, page 37.


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suffered. There are not. If the route could effect
dramatic and important transportation improvements,
again the loss may be seen as justifiable in the
eyes of some. The improvements are not dramatic,
and, worse, they are likely to be ephemeral. The
devastation therefore cannot be supported.

What of the altered alignment? It is vastly
superior although the effects are still grave. The
differences emerge from the following evidence given
by the Department of Main Roads (86):

"BUNTON: You would avoid some of
the impact on the rocky outcrops,
Nannygoat Hill and other areas in
the Wolli Creek vicinity.

MIDDLETON: They are significant
environmental or topographical
features in the Wolli Creek Valley
aren’t they?

BUNTON: Yes. You would reduce the
cuts and impact on those features by
adopting the (east) bound carriageway."

The disadvantage in transferring the alignment to
the other side of the valley (near the railway line)
is that you disturb the important marshlands and
wetlands. The Planning and Environment Commission
says this (87):

"The relocation of the freeway offers
an alignment where ground surface
grades are better. The need for the
three major cuttings through sandstone
has therefore been removed. The grades
on the (altered alignment) are, however,
steeper than for (the original alignment).
The changes to the grades of the freeway
have reduced the sizes of the embankments
required.

From a hydrological viewpoint (the
altered alignment) is worse than (the
original). An additional 520 m of
existing concrete channel will have
to be relocated; 220 m of existing
natural water course will have to be

86. Transcript DMR 14/1/80, page 58.
87. Submission S.K/C 947 letter 4/3/80, and
    Attachment page 2.

-316-

relocated, with bank treatment
proposed and in addition approxi-
mately 1,000 m of natural water
course will have to be relocated."

Girrahween Park is more or less spared by the
altered alignment. That is a significant advantage.

The ecological and open space consequences of the
South-Western Option are telling arguments against
its adoption.

6.4 Visual Intrusion

In describing the ecological effects we have suffi-
ciently drawn attention to the visual consequences
of the South-Western route, especially in the area
between Turrella and Bexley North. The Joint Study
Report, itself, concedes that visually the South-
Western Option is the worst of the three. It says
this (88):

"The South-Western Option would pass
through 8.5 km of landscape of rela-
tively high quality which is a slightly
shorter total than with the Cooks River
Option (9 km). The natural landscape
between the Cooks River corridor and
Bexley Road is of very high quality,
however, and the visual impact of this
option on the natural landscape would
be major and the worst of the three
options
."
                    (emphasis added)

Certain homes would have their views spoiled.
Though important to the individuals concerned, it
is of rather less moment than the other effects
which we have described.

The structure between the princes Highway, Arncliffe
and the mouth of the Wolli Creek (Undercliffe) would
be a large affair. It is required to clear the
stanchions used to support the electricity cables
used for the Illawarra line and the East Hills line.

88. Joint Study Report, page 38.


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The railway lines themselves are elevated upon
an embankment. The structure would be visible
far and wide.

Some people would find this offensive. Others
would find it visually attractive. It is not
regarded by the Inquiry as a serious impediment to
the South-Western Route.

6.5 The Effect Upon Open Space

The statistics have been given already. They bear
repeating. The comparison between options, in
terms of open space consumed, is as follows (89):


  • 36 ha (89 acres) for the South-
    Western Option
  • 6.6 ha (16 acres) for the Cooks
    River Option (minimum property effect)
  • 2 ha Bexley Road Option (Harrow
    Road sub-option)

  •  0.9 ha Bexley Road Option (Bestic
    Street sub-option)


It is not simply a question of quantity. The
quality must be judged, as well as the capacity of
the community to pay the price.

The Wolli Creek Valley between Bexley North and
King Georges Road is markedly different in character
from the remnant of natural vegetation which we have
described. The area to the west of Bexley Road is,
for the most part, treeless and sometimes forlorn.
We should emphasise at once that its growth has been
stunted by the presence of the corridor. It has
enormous potential. Its loss or despoliation would
be significant to the communities on either side.

89. Joint Study Report, page iii.


-318-

The altered alignment of the South-Western Freeway
has marked advantages in this area. The community
would not be cut off from the open space which
remained. In the vicinity of Kingsgrove that is an
important advantage. The road would, nonetheless,
intrude (by means of noise and fumes) upon the quality
of the adjacent parklands.

Certain submissions advocated compensation to the
community for the loss of open space. The Crown
Lands Office made a painstaking investigation of
both these routes. Their contribution to the Inquiry
was invaluable. Their submission contains the
following suggestion (90):

"There is the opportunity..for the
addition to reserves, as open space,
of some separate areas, which will
reduce minimally the impact of the
Cooks River and Wolli Creek options.
The Inquiry should serve the public
interest and call upon the Department
of Main Roads to adopt the ‘reinstate-
ment' principle for the balance of the
open space area to be lost, requiring
the DMR to purchase and make available
equivalent areas within each municipa-
lity not necessarily adjacent to the
reserves affected under the proposal.."

The Cooks River Advisory Committee (being a joint
government and community body) pressed the same view (91).

The matter was put to the Department of Main Roads.
It responded in these terms (92):

"SHEPHERD: The Department will be
reluctant to undertake schemes where
people are displaced from their homes
for purposes other than directly
attributed to road construction.
Other authorities might be prepared
to purchase properties as they come
on the market within an area that is

90. Submission S.K/C 751, Crown Lands Office, page 14 & 15.
91. Submission S.K/C 967, Cooks River Advisory
    Committee.
92. Transcript DMR 13/12/79, page 50.



-319-

to be reserved for open space, with
the long-term view of accomplishing
(restoration)."

It is a finely balanced argument. We have said
elsewhere that the hardship occasioned by resumption
is always severe. People, inevitably, invest a
great deal of their personalities in their homes.

Any loss of open space is important. However, the
loss is more important in some areas than in others.
Where it is important, because the community is
disadvantaged in open space, additional resumption
may have to be undertaken.

A compromise has been suggested. The Planning and
Environment Commission, in the context of the Cooks
River Option, suggested a particular area was
appropriate for conversion to open space. It is
an area which would otherwise suffer severance as
a result of its being located between the Cooks
River and the road. The houses within this area
could be gradually acquired as they came on the
market.

Instead of an instant resumption, the community
affected would have to suffer the presence of a
planning 'corridor'. Planning blight is likely
to be the consequence.

In view of our conclusion (in which we recommend
against the South-Western Option) we would prefer
to address this issue in our evaluation of the
Cooks River Option.

6.6 The Environmental Consequences of the South-Western
    Option

What should be done? We began this Report by reciting
a number of questions (93). When answering the
final question – What is to be done? - we said

93. See page 23.


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that we would be guided by the following principles:

  • First, is the environment (whether
    natural or man-made) which is being
    sacrificed to construct the road,
    such a precious part of our national
    heritage that the option should be
    excluded from further consideration?
    In the nature of things few environ-
    mental assets will meet this rigorous
    standard.
  • Secondly, if the environmental
    sacrifice is considerable (as it
    will be in many cases) has it been
    demonstrated that there is no prudent
    or feasible alternative?
  • Thirdly, where there is no prudent
    or feasible alternative, and where,
    despite the best efforts of engineering
    design, schemes will still have a
    damaging effect upon the community
    or upon the environment, do they
    demonstrate 'high economic or other
    benefits’?

We have been charmed by the Wolli Creek Valley and
especially that part between Undercliffe and Bexley
North. Much of it (and especially the sandstone
cliffs) must be counted a precious part of our
national heritage. In our judgement, the considera-
tion of any option involving the destruction of these
cliffs should be excluded.

The fact that this area is the last remnant of
natural vegetation in an area of intensive urban-
ization makes it the more imperative that it should
be preserved.

-321-

We then come to the second principle. When
answering that question we have no hesitation in
saying that the environmental sacrifice will be
enormous. It has not been established that there
is no prudent or feasible alternative. We are not
persuaded that a series of rather more specific
projects, aimed at particular problems (such as the
Bexley Shopping Centre) may not be far more effective.
Such a programme would not carry with it the
unfortunate land-use consequences which rule out
the South-Western Freeway. The benefits of the
Freeway option are likely to be essentially short-
term. It will encourage traffic, and congestion,
in our judgement, will be quickly restored.

Further, the Freeway does not meet the conditions
imposed by the final principle. The Option (in that
section between King Georges Road and Kyeemagh)
manifestly fails to demonstrate 'high economic or
other benefits’. By any measure the Option's
performance is unimpressive. It is, in the words
of Professor Beesley, "a highly doubtful investment".


7. THE RETENTION OF THE SOUTH-WESTERN CORRIDOR

7.1 The Wolli Creek Afflicted by Planning Blight

This Inquiry, therefore, will recommend against
the South-Western Freeway (in that section to the
east of King Georges Road between Beverly Hills and
Kyeemagh or Alexandria). Where does that leave the
corridor reservation? Should it be retained?

The price for its retention should not be under-
estimated. The area is already afflicted by planning
blight. It has been largely ignored and neglected
by Local Councils. They can hardly be blamed for
that. Their budgets are tight. Why, in these
circumstances, spend money upon improvements which
may be demolished tomorrow to make way for the road?

-322-

The corridor effectively sterilises a valuable
community asset. It was obvious to the Inquiry
that many people are oblivious to the real merits
of the Wolli Creek. Its vast potential has never
been recognised. It may come to life if the shroud
created by the corridor is lifted.

7.2 Submissions to the Inquiry

The view put to the Inquiry by various Government
Departments was unanimous. The corridor should be
retained. The Department of Main Roads says this (94):

"Irrespective of which of these two
routes is favoured by the Inquiry
(whether the South-Western Freeway
or the Cooks River Route), the
Department considers that both
planned Corridors should be retained
in planning schemes."

The Planning and Environment Commission advocated
the Cooks River Option. Its recommendation concerning
the South-Western Freeway Corridor was less dogmatic.

It said (95):

"The wider role of the South-Western
Option as part of the Sydney Region
freeway network has not been fully
assessed for the purposes of this
Inquiry, for the very long-term
(beyond 1991), and therefore the
County Road reservation should be
retained at this stage."

The Urban Transport Advisory Committee (now known
as TRANSAC) was rather more definite. It likewise
recommended the Cooks River Route. It said this,
in respect of the South-Western Corridor (96):

"In respect of the eastern section
of the Freeway, present indications
suggest that this work should not

94. DMR Submission S.K/C 340 July, 1979, page 18.
95. Planning and Environment Commission Submission
    S.K/C 947 July, 1979, page 11.
96. URTAC Submission S.K/C 1019, page 27.

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proceed before 1991. Although it
is not conclusive that a need for
the South-Western Option would
exist after 1991, URTAC supports
retention of the reservation in
local planning schemes for the
option, pending the outcome of
the Major Airport Needs of Sydney
Study and further analysis of
population and employment trends,
and a possible, long-term regional
need for the road. Retention of
the reservation will have a low
impact in terms of developed
property affected."

A number of issues must be addressed:
  • First, are the works to the east of
    King Georges Road (between Beverly
    Hills and Alexandria or Kyeemagh)
    independent of works which may be
    carried out within the South-Western
    Corridor to the west (between Prestons
    and King Georges Road)? Would the
    release of the corridor prejudice
    the completion of works to the west
    of King Georges Road?
  • Secondly, when, on present indications,
    is it likely that the corridor may be
    needed? In answering that question
    we are forced to ignore the effect of
    this Inquiry and its recommendations.
  • Thirdly, what is to be lost by
    releasing the corridor?
  • Fourthly, what are the options and what
    should be done?

7.3 Will the Release of the Corridor Prejudice Work to
    the West of King Georges Road?

The Department of Main Roads said (97):

97. DMR Submission S.K/C 340 (De Leuw Cather)
    September 1979, page 3.

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"Construction of the South-Western
Option for the Kyeemagh-Chullora
Road is seen by the DMR as logically
extending the regional road system."

It was rather more forceful in the following
paragraph (98):

"It would be a serious omission in
transportation planning not to
consider the consequences of termin-
ating the South-Western Freeway system
at Ring Road 3 (King Georges Road) and
not to consider extending the system
east of Ring Road No. 3 as a means of
accommodating projected growth in east-
west movements. There is no evidence
that public transport, pipelines, car
pooling or scarcity of petrol will have
such an effect upon peak period travel
in the Study Area as to obviate the
need for new roadwords to provide for
the safe and efficient movement of
people and goods."


The premise, implicit in this passage, is that all
commuter demand for road space should be met. It
is not possible, with the limited funds available,
to implement that philosophy. We take the view,
moreover, that it is emphatically not desirable to
do so.

It would simply encourage traffic in a direction in
which it ought to be discouraged. The community within
the Study Area would be no better off, and the city,
in its structure, would be far worse off.

The following evidence was given by the Department
of Main Roads (99):

"COMMISSIONER: There is nothing to stop
the Department simply terminating a route,
even a major route, at a particular point
which doesn’t happen to be the centre of
the city?


SHEPHERD: That’s right.

98. ibid., page 23.
99. DMR Transcript 14/12/79, page 34.

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COMMISSIONER: Indeed this is what is
happening with the western distributor?
SHEPHERD: Yes, coming in westwards the
planning at the moment is to terminate
it in the vicinity of Concord Road."

Consultants to the Department of Main Roads made
certain recommendations concerning the sequence in
which the South-Western Freeway should be
constructed (100):

"It is further recommended that the
following sequence of construction
be adopted..
  • a four-lane divided, grade
    separated freeway from Fairford
    Road to (King Georges Road)
  • a two to four-lane undivided road
    from Moorebank Avenue to Alfords
    Point Road forming the Picnic
    Point connection
  • roadworks in the Southern Freeway
    Corridor from Princes Highway at
    Tempe North towards Alexandria
  • a four-lane divided, grade
    separated freeway following the
    South-Western Freeway Corridor
    from (King Georges Road) to
    Princes Highway at Tempe."
On the most optimistic assessment, the gap between
the completion of stage one, and the completion of
stage four, would be considerable. In the meantime,
a major road (built to freeway standard) would
terminate on the western side of King Georges Road.
It is plain that the release of the corridor will
not prejudice work to the west of King Georges Road.

7.4 When is the Corridor Likely to be Needed?

A potentially valuable resource is in limbo because
one day it may be needed for a road. If the road is
to be built next year that is one thing. If it is
to be built in ten years time, that is another. If

100. DMR Submission S.K/C 340 (De Leuw Cather)
     September 1979, page 8.

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it is to be used 'sometime, never' that is an
entirely different matter.

The South-Western Freeway between King Georges Road
and Undercliffe does not figure prominently in the
priorities of the Department of Main Roads. Its
attention (and we think correctly) has been diverted
west and to the south-west. That is where it sees
the greatest urgency (1):

"COMMISSIONER: In terms of your examin-
ation of the priorities of the Southern
Metropolitan Area..you say the works
west of Ring Road 3 (King Georges Road)
are seen as far more pressing, and the
problems in far greater need of a solution?
HAYNES: Yes."

The Department’s attitude in the present Inquiry is
accurately summarised by Professor M.E. Beesley (2):

"..(There was) misunderstanding which
is perhaps best epitomised by the
Commissioner's comment on the last day
of the DMR’s oral submissions: .."It
takes a fairly careful reading of the
Department’s (July 1979) submission to
work out that the Department is not
advocating the building of the study
option (South-West)." (page 96, 18th
March, 1980) ...Because all the options
were of low priority in the DMR’s
estimation, all that was required for
the Inquiry in its view was some kind
of holding operation, not a detailed
justification of specific routes
."
                       (emphasis added)

The submissions from the Planning and Environment
Commission and URTAC (now TRANSAC) strongly suggest
that the South-Western Freeway (to the east of King
Georges Road) is unlikely to be built this century.
They create the impression that the matter is to be
looked at again within the next decade. The construc-
tion of the road would take a minimum of seven years.
It probably would take much more.

1. DMR Transcript 10/12/79, page 14.
2. See Volume II Annexure 2, M.E. Beesley (para. 30).

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That is a long time for the community to be denied
a valuable asset. Attitudes may change dramatically
in that time. So may technology.

The only solid argument advanced for the retention
of the corridor is the uncertainty surrounding the
future of Kingsford Smith Airport. If the decision
were taken to construct a second airport, and if it
were in the South-West, it is conceivable (without
prejudging the issue) that the South-Western Freeway
between King Georges Road and Alexandria may be
needed. On the other hand it may be enough for the
road to terminate at King Georges Road. It is
commonplace overseas (and elsewhere in Australia)
for a high quality road, providing access to an
airport on the periphery of the city, to terminate
well short of the city centre. Having said that,
there is nonetheless, uncertainty. It is a matter
which would require careful investigation.

To this may be added the uncertainty which surrounds
the container issue. The Inquiry has recommended a
scheme. In its judgement, the scheme has significant
advantages over the construction of a road. It offers
a solution available in the short-term (unlike the
road solution). It is less expensive to implement,
although there is a cost. It takes advantage of
public transport. It spares the environment, inclu-
ding the important Wolli and Cooks River Valleys.
It may be thought precipitous in these circumstances
to release the corridor before the scheme has been
seen to operate successfully. It is, after all, the
first of its kind (so tar as we are aware) in the
world.

7.5 The Effect of Releasing the Corridor

The question was debated in the public hearings. It
is clear that very little is lost by releasing the
corridor, so long as it remains open space (3):

3. Transcript DMR 13/12/79, page 43.

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"MIDDLETON: There is a distinction,
is there not, between releasing a road
corridor reservation, or part of it,
and changing its use so that, in fact,
large buildings may be constructed and
so on. Obviously in the future (in
the latter example) the option is lost
forever because of the enormous cost
that would be involved in re-acquisition
of the development. As opposed (to this)
is a situation where the land is not in
private hands, where it could be returned
to open space, utilised by the public and
if the need were seen in the future, the
competing needs of transport or recreation
could then be balanced. The cost, in
fact, of returning that land to a
transport corridor would be very little.
It would only be the cost of the improve-
ments that had gone into the open space
to provide passive or active recreational
facilities, isn’t that right?
SHEPHERD: Yes, the cost would be small..
One does not know how soon in the future
construction may be necessary, and the
Department maintains that all the corri-
dors which have been planned should be
retained as planned road corridors."

The Department wants to construct roads with a
minimum of fuss. There will be less fuss if there
is a corridor than if there is not. The reaction
of the public to the Bestic Street option amply
demonstrated that.

The acrimony will be less if the community is not
attached to land being absorbed by the road. The
community is less likely to be attached where the
land is sterilised and under-utilised by the presence
of a corridor. This was put to the Department (4):

"COMMISSIONER: In a nut-shell, is this
the position – that, as a matter of
commonsense, it is obviously desirable
that land be used to its full capacity,
pending its use for other reasons in
the future. However, insofar as people
may become emotionally attached to a
resource once it is fully utilised, then
that may make the subsequent conversion
to a road reservation that much more


4. Transcript DMR 13/12/79, page 43.

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difficult. The Department, therefore,
holds fears that, in a practical
sense, it will not be able to obtain
that conversion if in fact there is,
in the interim, full utilisation?
SHEPHERD: Yes, that is correct."

Whilst that view is reasonable from the perspective
of the Department, as a road maker, it is less than
persuasive to an Inquiry which is concerned with
wider community interests.

7.6 What are the Options and What Should be Done?
There are three options. They are:

  • The corridor may be preserved as it is.
  • The width of the corridor may be
    reduced to correspond with the altered
    alignment on the eastern side of the
    valley (near the railway line). The
    residue may then be returned to the
    public.
  • The corridor (i.e. to the east of King
    Georges Road, and at least as far as
    Princes Highway, may be released).

We reject the first alternative. The corridor is
lavish. It absorbs practically the whole valley.
It is designed to accommodate a two carriageway divided
freeway.

A divided freeway to the east of King Georges Road is
unnecessary and undesirable. If there is a case for
the South-Western Freeway, it is to accommodate truck
traffic mainly in the off-peak period. It is wrong
in principle, in our judgement, to design the road
with peak-period commuter traffic in mind. Commuter
traffic should not be encouraged (by the provision
of spare capacity in a lavish freeway network) to
travel towards the city centre and towards the Central
Industrial Area.

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There is a second reason. It emerges from the
following extract from the transcript of the
Department of Main Roads (5):

"COMMISSIONER: The first carriageway
is unlikely ..to be completed inside a
period of 15 years, which necessarily
implies that the second carriageway,
if it were ever undertaken, is going
to be (constructed) in a period well
in excess of that?
SHEPHERD: If one carriageway were
built now, it would be up to say 50
years before any further construction
is completed there."

On any view that is too long to deny the community
access to this important asset.

The second alternative requires modification. It is
plain that the corridor should be trimmed to conform
with the altered alignment of the freeway (6). We
would go further. If there is a case for retaining
any corridor it arises from the uncertainty surroun-
ding the container Scheme suggested by this Inquiry,
and the uncertain position of the airport. A
judgement on both those matters should be possible
within four years. If the Inquiry's Scheme is
adopted by Government, and is seen to work, and
assuming that a second airport is not located in the
South-West, the corridor should be released.

Our preference, however, is for the third alternative.
We think a bold judgement is required. The corridor
should be released. First, we will make it clear
in the following chapter that, if a road is to be
constructed, then it should be the Cooks River Route
rather than the South-Western Option. Clearly both
will not be constructed. There is not sufficient
money nor, (on any view) sufficient need (7). We

5. Transcript DMR 13/12/79, pages 45-46.
6. See page 234.
7. See Appendix 2 (Table 3) to URTAC Submission, giving
   benefit/cost ratio for South-Western Option where
   Cooks River Option is first constructed. It is 0.36.

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are opposed to the construction of any option. But
we are more troubled in our rejection of the Cooks
River Option than the South-Western. If there is a
case for preserving a corridor, the case, in our
view, is one for preserving the Cooks River corridor
for a limited period.

Secondly, we judge the prospects of constructing the
South-Western Freeway (to the east of King Georges
Road) this century to be remote. Whatever the
reception this Inquiry's recommendations may have
with Government, the submissions and transcript make
it clear that the South-Western Freeway to the east
of King Georges Road does not figure highly in the
priorities of Government.

Thirdly, on the airport issue, it is instructive to
examine the response of the New South Wales Government
to the MANS Committee suggestion that Kingsford Smith
Airport should be extended. It rejected that
suggestion (8). It thought a second airport was
preferable. It should be located “somewhere in the
west of Sydney" (9).

The Commonwealth Members’ of the MANS Committee did
suggest a site 'in the south-west’. The precise
location is described by the Planning and Environment
Commission (10):

"BOSS: ..It (will) be found that the
location of the South-Western site of
a second Sydney airport is such that
it's half-way between the South-Western
sector and the far Western sector and
would be equally well served by either
alternative."

This fact, and the declared preference by the New
South Wales Government for a second airport ‘in the
west' makes it less than imperative that the South-
Western Corridor should be retained purely for airport
needs.

8.  See this Report page 108.
9.  PEC transcript 16/1/80, page 34.
10. Ibid., page 35.

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The release of the corridor must be subject to a
proviso. It must be retained as open space. If,
for any reason, including the airport, there is
an urgent need to use this land in the future for
the purposes of a transport link, it can be
reclaimed. Little money (in relative terms)
would have been lost through its early release.
A great deal may have been gained.


8. RECOMMENDATIONS

The Inquiry makes the following recommendations:


1. THE SOUTH-WESTERN OPTION

The South-Western Option was suggested as a link
between the Central Industrial Area (Port and Airport)
and the Western and South-Western Regions of Sydney.

RECOMMENDATION: The Inquiry recommends
                against the adoption of
                this option.


2. ROADWORKS WITHIN THE STUDY AREA

The evidence identified a number of specific problems
created by traffic within the Study Area. The Inquiry
has taken the view that the Options are rather less
efficient in dealing with these problems than
measures which are tailored to the needs of the
particular locations.

RECOMMENDATION: We recommend that rather than
                concentrate a huge sum on a
                large project within the Study
                Area, the following strategy
                should be adopted, since it is
                likely to yield far more striking
                and immediate benefits:


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  • spot improvements at specific
    locations identified as suffering
    congestion or loss of amenity
    (including intersection widening,
    right-hand turning bays, road
    widening and re-constructing
    shopping centres away from the
    main road).
  • a concerted effort should be made
    to ensure that a road hierarchy
    can be introduced at the same time
    as SCAT (Co-ordinated Signals)
    comes into operation.
  • a network of truck routes should
    be developed as part of that
    hierarchy, after consultation
    with local councils and trucking
    bodies.

3. IF THE SOUTH-WESTERN OPTION IS ADOPTED

It is appropriate that we consider a number of
alternatives:

RECOMMENDATION: If, contrary to our primary
                recommendation, the Government
                were to decide to construct the
                South-Western Option, we would
                suggest the road should include
                the following features:


  • the southern alignment (terminating
    in General Holmes Drive, Kyeemagh)
    is unsatisfactory. It should not
    be pursued.
  • The route should proceed to the
    north of the Airport. The precise

    alignment will require extensive

    study. Access to the Port will

    obviously be important.

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  • The spur into Carrington Road,
    Marrickville should be abandoned.
  • The spur along Riverview Road,
    Earlwood (as far as Macquarie Road,
    Earlwood) should be abandoned.
  • There should be a pedestrian
    underpass at Turrella Station
    and not an overpass.
  • The underpass must be constructed
    with care to ensure that visual
    contact is maintained from one
    side of the valley to the other.
  • The route should follow the
    altered alignment depicted in
    Department of Main Roads maps
    (Reference P 4098 (M1) Rolls 1
    and 2).
  • The possibility of further amending
    that alignment in order to ameliorate
    the environmental impact should be
    investigated. In particular, a
    lower standard of road, and one which
    takes advantage of the railway easement, should be considered.
  • Consideration should be given to
    a pedestrian tunnel through the
    embankment in the section between
    Bexley Road and Kingsgrove Road,
    so that contact between one side
    of the valley and the other can be
    maintained.
  •  A tunnel at Coolangatta Road should
    be constructed. It should at least
    permit pedestrian access. Whether
    it is also desirable to maintain

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vehicular access should be
investigated with the community,
the local councils and the Beverly
Hills Progress Association. Any
other association which wishes to
participate in that investigation
should be encouraged to do so.

  • The road should be constructed with
    a median.
  • There should be a landscape plan.
    It should be the joint responsibility
    of the Department of Main Roads and
    the Department of Environment and P1anning
    Local councils (and community groups)
    should be consulted.
  • The issue of equity has never been
    addressed. It should be. It
    requires a consideration of any
    particular hardship occasioned to
    residents through the completion of
    the road. A number of measures may
    be necessary including:
  • earthberms
  • noise insulation
  • bridges and underpasses
    and pedestrian crossings
  • the conversion of remnant
    areas of open space to
    parks and gardens.

4. THE RETENTION OF THE SOUTH-WESTERN CORRIDOR

The enormous potential of the Wolli Creek Valley
has never been realised because of the corridor.

RECOMMENDATION: The Inquiry recommends the
                release of that section of the
                South-Western Corridor between
                the Princes Highway, Tempe and


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King Georges Road, Beverly
Hills. The recommendation is
subject to the land being re-
turned to the public as open
space. The land must not be
used (either now or in the
future) for residential  comm-
ercial or industrial development.


5. AN ALTERNATIVE VIEW ON THE CORRIDOR

It is appropriate that we should consider a number
of alternatives:

RECOMMENDATION:

1. If, contrary to our primary recommenda-
tion, the Government were to decide to
retain the South-Western Corridor, we
recommend that the boundary of the
corridor should be re-drawn, and should
not exceed the requirements of the
altered alignment as depicted in the
Department of Main Roads plan,
reference P 4098 (M1), Rolls 1 and 2.

2. Further, that the corridor should be
released after the expiration of four
years if the scheme suggested by the
Inquiry for the transportation of con-
tainers is adopted by the Government, and
is seen to work, and if the Airport issue
is resolved in such a way that the case
for the road is made no more compelling.

3. In the meantime it is imperative that
work begin to develop the Wolli Creek
Valley for recreational purposes. Money
has already been made available by Govern-
ment for that purpose. Consideration
should be given to allotting further money,
having regard to the enormous potential
of the Valley, and to the poverty of the
surrounding areas in open space.


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