Archive for February, 2010

In my last post I outlined the governance arrangements outlined in the interim report of the Independent Public Inquiry into Sydney’s public transport which I had a small role in developing. Now I’d like to summarise the Inquiry’s proposals for better public transport in Western Sydney contained in the report’s chapter on long-term development and expansion of the network. 

First, a brief summary of some of the underlying assumptions. The interim report incorporates the basic assumptions of the State Government’s Metropolitan Strategy but with a higher population growth, resulting in a “mid-range” Sydney population of 6 million by 2041. 

Based on this figure, the report outlines two specific scenarios to encourage debate regarding Sydney’s future – a “European” scenario, which is essentially a continuation of the Government’s Metropolitan Strategy, adapted to the higher growth levels but with additional greenfield development in Western Sydney and additional consolidation across most of the city. Employment would be similarly spread across major centres. 

The alternative “East Asian” scenario has the same population targets but focuses on more employment growth in the CBD and inner city, combined with high levels of residential development concentrated along the proposed metro lines radiating from the CBD. This scenario is major departure from the Metropolitan Strategy but is the logical outcome of the government’s current commitment to the development of a metro network. 

For the purposes of developing the scenarios, the Inquiry has assumed similar constraints in both options, based on the community’s willingness to pay and the economy’s capacity to afford public transport infrastructure over the next 30 years. This amounts to a total, in current dollars, of around $36 billion. 

Based on these constraints and a range of other assumptions, a range of infrastructure projects was assumed for each scenario, as summarised in the following table. I have added an indication of which projects are located in or directly benefit Greater Western Sydney. 

Y* counted as a Western Sydney project because it services part of the region

Derived from table 2.10 in the Independent Public Inquiry interim report

The proposed public transport infrastructure to be constructed between 2014 and 2030 is also shown in the following maps of each scenario (source: Independent Public Inquiry interim report chapter 2 - click on each map to show full size):

 Some the project proposals such as the North West and South West Rail Links and the West Metro are common to both scenarios, but most of the other projects fall largely or wholly under either one or the other of the two models.  

In the above table the cost of the Western Metro has been included as a Western Sydney project in both scenarios because it services parts of the Parramatta, Auburn and Holroyd Council areas, even though the bulk of the route would be outside Western Sydney. With this qualification in mind, the European scenario assumes a much higher level of expenditure in Greater Western Sydney, reflecting the population and employment distributions which are both more dispersed than in the East Asian scenario.

Not only does the European scenario require more rail infrastructure in Western Sydney, but also greater investment in the region in light rail, busways and even motorways. If the Western Metro is discounted the difference between the two scenarios is even greater – $17.5 billion for Western Sydney projects in the European scenario as opposed to only $7.25 billion under the East Asian model. 

While the Inquiry notes that both scenarios would provide significant benefits in terms accommodating Sydney’s population growth and job shifts as well as the forecast increase in public transport trips, the importance of providing some degree of equity for the residents of Western Sydney was an important factor in the decision to favour the European scenario. To quote the interim report: 

The main difference between the scenarios would lie in their relative provisions for western and eastern Sydney and the equity of access provided. In this respect the “European” scenario would be superior. 

Because the “European” scenario’s proposed projects include an extra heavy rail crossing of the harbour, they would cater better for potential high-speed rail services from north of Sydney in the future. 

Similarly, because the “European” scenario’s proposed projects include an extension of the North West Rail line to link with the Richmond line, they would provide better access to the Richmond air force base if this were developed as an “overflow” airport for Sydney.

It is important to reiterate that these scenarios are presented for discussion only and neither necessarily reflects current government policy; for example, while the South West Rail Link has recently been re-announced by the State Government, the future of the North West link is still in limbo. What is implicit in the interim report is the real danger that if the government does proceed with prioritising the construction of an expensive metro network, no further infrastructure is likely to be provided in Western Sydney beyond the South West Rail Link and the Western Metro for many decades to come – if ever. 

Further, the considered approach to funding these improvements adopted in the report also means that their construction would have to be staged over a 30-year period, though even this rate of construction would be a considerable improvement over what has been done to date. In the short term, much would depend on the roll-out of the “Frequent Rapid” and “Frequent Local” bus services proposed as part of the Inquiry’s “Frequent Network” initiative which I will discuss in a further post.

It’s finally out – the interim report of the Independent Public Inquiry into Sydney’s public transport. 

The Inquiry’s report was prepared under the guidance of Mr Ron Christie, former NSW Coordinator General for Rail and former head of the RTA, who famously got the trains (and buses) to run on time during the 2000 Olympics. The inquiry was established and resourced by the Sydney Morning Herald, but was conducted on a completely independent basis. 

I felt honoured to be part of a team of transport advisers and planners who spent four months working with Mr Christie to develop the report, based on nearly 500 public submissions, meetings with key experts, detailed research into community attitudes and financial options, team members’ professional experience and expertise and, not surprisingly, robust debate within the team itself. 

I assisted in developing the governance section of the report. I also contributed to the overall debate, especially in raising social equity issues and the importance of looking at public transport provision in outer suburban areas, but the report is really a collaborative team effort. 

The result is a document which is far more comprehensive than any other transport planning initiative for Sydney I’ve seen in over a decade and which is also much more evidence-based than most transport plans. The report has six sections, starting off with what Sydneysiders actually said to the Inquiry about their own priorities for fixing the transport system, and perhaps more importantly the outcomes of an independent survey which clearly demonstrated their desire for change and willingness to pay for these improvements. 

Based on these responses, the rest of the 450-page report is divided into chapters on the long-term development of the transport network, fixing fares, short-term improvements, funding and finance and the chapter I contributed to, “Getting it done”. The recommendations based on these chapters are divided into nine, almost self-explanatory key themes, as follows: 

1. We have tried the ‘do nothing’ option for public transport. It has failed

2. We need a complete public transport network plan—and an agency that can deliver it

3. The three-legged stool: urban form, pricing and transport

4. Public transport, not just roads

5. A single, seamless public transport network

6. Cost-effectiveness

7. Short-term urgency and continuous improvement

8. Long-term commitment, now

9. Leadership and transparency for hard choices

I won’t try to summarise the report, because that has been done within the report itself as well as by the Sydney Morning Herald and by Mr Jarrett Walker, one of the team members. I would like however to talk about the two areas I was most involved in – governance, and the identification of transport priorities in Western Sydney. 

The governance section, “Getting it done”, was described by Mr Christie at the launch as being possibly the most important chapter in the interim report. To quote from the report: 

No matter how visionary a transport plan may be, it will succeed only if it is supported by a strong management structure committed to its long-term implementation.

This management structure, or “governance” system, must be:

• Able to secure the resources required to deliver the infrastructure underpinning the plan
• Strong enough to maintain a commitment to the plan in the face of short-­term political considerations
• Able to manage the whole public transport system cohesively and with authority
• Able to obtain enough funding to deliver a high level of services, and
• Be prepared to champion public transport and other sustainable modes in the face of competing priorities and interests, such as the demands of private vehicles.

If the governance system is inadequate the public transport plan is most unlikely to be delivered. Critical infrastructure will not be built, services will be poorly integrated and the level of service provision will remain patchy and unreliable.

The governance section outlines the fragmented nature of Sydney’s current transport management. It compares this state of affairs to overseas and interstate experience, especially systems that operate successfully in places such as Perth, London, Singapore, Vancouver and Zurich. It also summarises proposals regarding governance expressed in many of the submissions received by the inquiry. 

The overwhelming conclusion is that to have any success in overcoming its current “silo” based management and ad hoc planning, Sydney must adopt a single new authority to plan, develop and manage all public transport in Sydney. This authority must be responsible for most activities relating to public transport provision, including: 

•  long-term public transport planning
• defining public transport fare structures and fare setting
• implementing integrated fares and ticketing
• specifying routes, timetables and minimum acceptable performance standards for transport operators
• contracting for the provision of these services
• providing network information
• marketing and promotion of public transport services

The governance chapter also discusses the options for creating such an authority, including reforming the current structure or creating a new tier of governance (similar to the Mayor for London and the Portland Metro Council). It recommends a third option – the creation of an independent public transport coordination authority, called Transport for Sydney (TfS).

This body would undertake all the functions outlined above. The TfS would be managed by an independent Board with members from the State, Federal and local government and persons with experience in the transport sector, business, marketing and transport advocacy. A small secretariat, answerable to the Board, would manage Sydney’s transport through the following sections: 

• Plan Process, responsible for developing and reviewing the Public Transport Network Plan for Sydney and conducting public consultations.
• Infrastructure Development, responsible for the purchase (on a contestable basis) and project management of the design, construction and delivery of public transport infrastructure, plus the specification and setting of standards for all new rolling stock.
• Operations, the core of TfS, which would be responsible for the development and sale of integrated journeys to the community and the coordinated purchase of these improved and expanded public transport services, on a contestable basis, from transport operators.
• Budget and Government, responsible for financial management, funding negotiations and TfS’s relationships with State, Commonwealth and local governments in support of the Public Transport Network Plan.

Transport for Sydney governance model (click to see full size) from the Independent Public Inquiry interim report

The report goes on to discuss the relationships the proposed authority should have with state government agencies, the federal government and councils, as well as the role of an independent customer advocate and of consultation in the plan development process.

The Inquiry has proposed that the new authority prepare an initial plan for public comment and that subsequently drafts of the plan should be released nine months before every state election, thus providing additional scrutiny of the plan and the responses of the parties and politicians in the run-up to the election. As the report states: 

This four-yearly revision process, tied to the four-yearly electoral cycle, would present a major opportunity for the public, the government, the opposition political parties and individual electoral candidates to shape the policies and priorities of the transport authority.

The plan would then be finalised and adopted within 12 months of the election and would be protected by legislation against political interference outside of the plan adoption process outlined above.

The governance model proposed in the Inquiry’s interim report represents a clear break with the Sydney’s current complex and largely dysfunctional management processes. The primary intention is to greatly improve the planning and delivery of public transport in Sydney. In doing so, the model would remove many of the detailed aspects of transport administration from political control and interference, limiting the role of politicians to setting the broad directions of transport policy through the adoption of the four-year plan.

It is likely that this aspect of the proposed changes will meet the greatest political resistance, though, ironically, politicians stand to gain from being able to put day-to-day operational problems at arms length. Whether any or, ideally, all of the major parties have the courage to adopt the Transport for Sydney model remains to be seen.

In my next post I will look at Inquiry’s proposals for better public transport in Western Sydney.