PART 2 - HISTORY OF BRISBANE'S MAJOR ARTERIAL ROADS- A MAIN ROADS PERSPECTIVE

Allan Krosch 1

BEng (Civil), BEcan, MSCE, MBA

AbstractIn 1964 Main Roads and Brisbane City Council jointlycommissioned an American consulting engineeringfirm, Wilbur Smith and Associates, to undertake atransport planning study for Brisbane. The Wilbur Smith"Brisbane Transportation Study" was published in 1965and made recommendations covering sixteen years to1981.

The Gateway Bridge, Logan Motorway, Route 20, HaleStreet and the Inner City Bypass are some of the projectsexplored in this article.

IntroductionPart 1 of this article appeared in the March 2009 editionof Queensland Roads. Part 2 follows on from where theprevious article left off. However, before proceeding,major events from the previous article will be quicklyrevisited.

Main Roads Commissioner Charles Barton made a tripto the USA in 1960 where he found that the state roadauthorities were getting involved in the road issues withincities. Prior to this Main Roads had generally onlyconcerned itself with rural roads. When Charles Bartonreturned to Brisbane, he teamed up with Mr Clem Jones,Lord Mayor of Brisbane. Together they initiated a trafficstudy for Brisbane. An American consulting engineeringfirm, Wilbur Smith and Associates, was commissioned toundertake the study, which was completed in 1965. Thestate government and the Brisbane City Council (BCC)were both fully committed to implementing the plan thatthey jointly commissioned.

The Wilbur Smith plan proposed a "ring-radial" freewaysystem for Brisbane. Implementing the recommendedchanges was a major task as it involved significant landacquisitions and a large amount of freeway planning anddesign.

One of the more significant achievements was thecompletion of the South-East Freeway/Captain CookBridge/Riverside Expressway. The Wilbur Smith Planhad a proposed implementation period of sixteen years.However most of that time had been taken up buildingthe South-East Freeway and the Riverside Expressway.

In December 1972, the Whitlam Labor Government waselected. It had a policy that was anti-urban freeways.However Federal funding was committed until June1974. Nevertheless due to the impending withdrawal ofFederal funding, it was clear that Brisbane's first freewayboom was over.

Whereas works on other elements ofWilbur Smith'sring-radial road plan had ceased, some other importantroad projects had been undertaken in the latter half of the1970's. The Houghton Highway across Bramble Bay wasbuilt and major improvements were made to the BruceHighway leading out of Brisbane to the north.

1This article documents the personal recollections of Mr Allan Krosch who worked as a Main Roads planning and design engineer duringBrisbane's first freeway era.

QUEENSLAND ROADS Edition No 8 March 2010 15

In 1981 a check was made on how well Wilbur Smith hadpredicted population growth in greater Brisbane. WilburSmith's predictions were very accurate in regard to thetotal population, but failed to predict the extent of itsgeographic spread. The urbanisation had expanded overthe boundaries of Brisbane out into the surrounding localauthorities.

Continuation - Part 2The Story of GatewayCirca 1977, the Honourable Russ Hinze, Minister forMain Roads, undertook a trip to Hong Kong where hesaw a new road tunnel under Hong Kong harbour. Hereturned with a commitment to see a tunnel built underthe Brisbane River in the Pinkenba area.

The Wilbur Smith plan had included a North-SouthFreeway skirting the city on its eastern side. At Pinkenba,a vehicular toll ferry named the Sir James Holt Ferryconveyed vehicles across the Brisbane River. At thattime 4000 vehicles per day were using this ferry service.

To determine the traffic forecasts for the new bridge, theengineering company Rankine and Hill were engaged.They in tum engaged Dr Trevor Grigg from University ofQueensland to assist with the design of origin-destinationsurveys and the analysis ofthe results. The findings werethat a bridge, on opening, would carry 25,000 vpd ifnottolled, or 12,500 vpd iftolled. The Minister for MainRoads was not deterred by this projected low usage in theearly years. He directed that work proceed on the project.

In 1978, Main Roads called tenders for a tunnel or bridgewith associated approaches, across the Brisbane River,between the suburbs of Eagle Farm in the north andQueensport in the south. In June 1980, negotiations werefinalised and the contract was awarded to Transfield (Qld)Pty Ltd.

Also in June 1980, The Gateway Bridge Companywas established to oversee construction of the bridgeand, following construction, to maintain the bridge andcollect tolls. The Gateway Bridge Company was a"corporations law"company owned by the Commissionerof Main Roads. [As the responsibilities of The GatewayBridge Company expanded in later years it was renamedQueensland Motorways Limited (QML)].

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The Gateway Bridge was officially opened on 11 January1986 with the final cost for the construction of thebridge, the approach roads, toll plaza, toll system andland resumptions being $140 million (2). Initially theapproach roads extended only to Lytton Road in the southand to Kingsford Smith Drive in the north. The trafficvolume in the first year of operation was 12,600 vpd!

The corridor for the southern approach road had beenpreserved over many years at low cost. HighwayPlanning Branch ofMain Roads had studied each newsubdivision proposal that impacted this future corridorand kept adjusting the corridor route for as long aspossible so that the corridor option was preserved withoutthe need to actually acquire land.

On the northern side there had been less effort expendedin preserving the corridor. The alignment of the GatewayArterial skirted along the Brisbane Airport site andadjacent to the Doomben race track (Figure 1). It thenran along the edge of the flood plain of Schulz Canal.

Minister Russ Hinze secured further funding for a twolane link from the Pacific Highway in the south to theBruce Highway in the north. This link was constructedby the end of 1986. Work continued in stages over thenext ten years to achieve a duplicated roadway over thewhole length of the link to motorway standards.

Figure 1. Northern approaches to Gateway Bridgeskirting around Brisbane Airport

QUEENSLAND ROADS Edition No 8 March 2010

Recap on Wilbur Smith implementationWhen the Gateway Bridge was opened in 1986, morethan 20 years had elapsed since the Wilbur Smith Planwas released.

Most of the freeway-building effort had been from theBrisbane City Centre out down the south-east corridorand later out to the east of the City. There had been someeffort in the south-west with the Western Freeway southfrom Toowong.

There had not been any efforts across the south of thecity. In the north-west quadrant, there had been nothingat all.

In 1984, Main Roads had recognised the need to up-date its policy and objectives for a major road system inBrisbane and released a report entitled "Brisbane's MajorRoad System". Figure 2 shows a plan ofBrisbane'sfuture major road system. Note that the plan indicates theneed for road improvements across the south of the cityand in the north-west.

Figure 2. 1984 plan of Brisbane's major road system

The Logan MotorwayA need was recognised to provide a motorway-classroad across the south of the city. A new link, similarto the Logan Motorway route, was shown in the 1984policy document mentioned above. A corridor had beenpreserved over many years by dedicated Main Roadsstaff. When the Logan Motorway was constructed, itneeded much of that reserved corridor, though it departedfrom it at the eastern end.

The Logan Motorway Company was established to buildand operate the Logan toll road. The Logan MotorwayCompany later became absorbed into QML.

Main Roads undertook the traffic modelling to producethe traffic forecasts for the Logan toll road. Themodelling showed a usage, with tolls, of only about 6000vpd at opening. Nevertheless, the toll road project wentahead and was opened to traffic in 1988.

Nearly a decade later, the Gateway Motorway wasextended south from its interchange with the PacificHighway and was connected to the Logan Motorway.

The Route 20 story and the first AirportMotorway proposalThe Western Freeway was built to a two lane standardfrom Toowong to Moggill Road at Indooroopilly in thelate 1970's. It was upgraded to a four lane standard bythe end of 1987.

It became obvious that there was inadequate capacityin the roads that ran east and north from the Toowongroundabout. The idea of continuing the Western Freewayeast of Toowong roundabout had been dropped -Milton Road and Coronation Drive would have to cope.Attention was focused on improving the capacity of theroute that ran north to Everton Park. This route wouldstart at Frederick Street and continue to South PineRoad and thereby provide a circumferential route on thewestern side of the city.

The notion of a circular route known as Route 20 hadbeen conceived after the Gateway Bridge had been builtand the East-West Arterial had connected Sandgate Roadto the Gateway Arterial at Airport Roundabout. Plottedagainst Wilbur Smith's original plan, Figure 3 shows thewestern section of Route 20 that became infamous. MainRoads commenced planning as to how Route 20 mightbe upgraded to increase its capacity. An urban "freeway"was not intended but certainly an urban expressway wasseen as a necessary improvement.

QUEENSLAND ROADS Edition No 8 March 2010 17

Figure 3. The western part of Route 20 (yellow) shown from Frederick Street to South Pine Road

18QUEENSLAND ROADS Edition No 8 March 2010

There arose what was probably the first example inBrisbane of "participatory democracy" applied to opposea road project. The movement called itself CART ­"Citizens Against Route Twenty". The CART campaignwent on for years - from about 1987 to 1990. With theelection of the Goss Labor Government in late 1989, theRoute 20 proposal was abandoned. CART then changedits name to "Citizens Against Road Transport".

At about the same time, another concept had beenre-activated. Main Roads resurrected the idea of

building an Airport Motorway - using the NorthernFreeway corridor through Windsor and Albion, thencutting through Kalinga to the East-West Arterial Roadnear Toombul Shopping-town (Figure 4). The localcommunity rose up against this idea and it was "axed"by the National Party government, prior to their defeatby the Goss government. It is interesting to note theresemblance between this alignment and the alignment ofAirport Link, which is currently under construction.

The Hale Street project and the Inner CityBypassSally-Ann Atkinson defeated Roy Harvey to become theLord Mayor of Brisbane in mid-1985. Roy Harvey, BrianWalsh and Frank Sleeman had all been successors ofClem Jones in holding power as Labor Lord Mayor.From the time of Clem Jones, Main Roads and BCChad worked in close collaboration in implementing the"road plan for Brisbane". There was a Policy Committeeinvolving ministers and the Lord Mayor, which met twiceyearly; and a Technical Planning Committee of seniorofficers, which met monthly.

As incoming Lord Mayor, Sally-Ann Atkinson tookan initiative by having BCC develop its own transportplan for Brisbane. This was done in consultation withthe Government and with officers of Main Roadsand Queensland Transport; but it initiated a "moreindependent" stance by BCC in the planning andprovision of major roads in Brisbane.

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Figure 4. Proposed Airport Motorway (yellow)

QUEENSLAND ROADS Edition No 8 March 2010 19

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Figure 5. Brisbane Traffic Study 1989 showing the ICB and a number of other concepts

QUEENSLAND ROADS Edition No 8 March 2010

BCC released its "Brisbane Traffic Study" in 1989. Ithad an horizon year of 1996. It is noteworthy that theplan provides for two "rings". There was an inner ringvery much like the old Central Freeway, with work tocommence on the Hale St project. The second ring wasessentially Route 20. The plan also provided for a futureWestern Bypass of Brisbane.(Figure 5)

There was significant opposition to Sally-AnneAtkinson's plan to upgrade Hale Street. Nevertheless,council proceeded to upgrade Hale Street linkingCoronation Drive through to Kelvin Grove Road alongthe eastern side of Lang Park (currently named SuncorpStadium).

It seemed to me that there was confusion, in the mindsof the general public, about the Route 20 concept andthe Hale Street concept. Certainly the communityopponents of each project received large amounts ofmedia coverage. It seemed to me that in the minds ofthe general public, the two concepts had 'morphed' intoone. The Hale Street project was still under constructionwhen Lord Major Sally-Ann Atkinson went to a councilelection opposed by Jim Soorley.

Jim Soorley ran a strong anti-road campaign and hedefeated Sally-Ann Atkinson, in what was regardedas a shock result. Whilst the public opposition to herRochedale Dump proposal may have been a bigger factor,the outcry against the Hale Street project almost certainlycontributed to her re-election defeat. Lord Mayor JimSoorley started his term as an avid anti-roads man.However he ended up as the most "road-championing"Lord Mayor since Clem Jones; with that mantle nowbeing passed on to Campbell Newman. Jim Soorley wasinvolved in major upgrades to Coronation Drive and toWaterworks Road. The jewel in his crown was the InnerCity Bypass (ICB) (Figure 5A) which ironically joinedonto Hale Street - the very project that assisted him indefeating Sally-Ann Atkinson.

He also had the idea of following the ICB with a majortunnel under the river - the North-South Bypass Tunnel.However he didn't stay in office long enough to bring thatidea to life! Lord Mayor Campbell Newman has broughtthat idea to life.

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Figure SA. Hale street and ICB projects (green line)

QUEENSLAND ROADS Edition No 8 March 2010 21

The Pacific MotorwayIn the Goss years, from late 1989 to early 1996, MainRoads lost its separate identity when it was subsumedwithin Queensland Transport. During that time, thestate government did not undertake major new roadinitiatives in Brisbane. The Gateway Arterial was beingprogressively upgraded to dual carriageway standardand a series of grade-separations were carried out alongIpswich Road to create "Ipswich Motorway".The great need that was emerging was to upgrade thecapacity of the Pacific Highway, linking Brisbane andthe Gold Coast - or alternatively build a parallel roadcorridor.

During the Goss years, a proposal was developed tobuild a route parallel to and east of the Pacific Highwayfrom the Gateway Motorway to Helensvale - therebyaverting or delaying the need to upgrade the PacificHighway, which would have to be done under traffic.This proposal, which evoked considerable communityopposition, became known colloquially as the "KoalaFreeway" as it cut through many 'greenfield' areasinvolving koala habitat.

In 1996 the Goss government lost its majority at thestate election with Rob Borbidge becoming premier.Whether this project proposal was the deciding factor inthe election is a matter for conjecture; however the Gossgovernment's experience with the "Koala Freeway" hada likely adverse impact on the preparedness of futuregovernments to put "lines on maps" and to endeavour topreserve corridors for future road needs.

Rob Borbidge came to power on a platform of upgradingthe Pacific Highway to an eight-lane, divided motorway.The upgrading of the Pacific Highway to the PacificMotorway was initiated as quickly as possible and wascompleted in early 2000. It is my understanding thatthe Queensland Government's ability to finance thePacific Motorway was related to the sale of SGIO . AsRob Borbidge's government lost office in 1998, he didnot have the honour of officially opening the PacificMotorway.

Some officers in Queensland Transport saw a furtheropportunity in Borbidge's promise to "eight-lane thePacific Motorway". This was to allow two of the eightlanes to be a dedicated busway for the section fromSpringwood to the City - known as the South-EastTransit (SET) project. This initiated a very successfulbusway program in Brisbane that now includes the InnerNorthern Busway and the Boggo Road Busway; with theNorthern Busway and Eastern Busway shortly to follow.In world terms, Brisbane is now a leading city in theprovision of dedicated busways.

Partly to provide continuity of work for the road worksconstruction industry following the completion of thePacific Motorway, Main Roads activated the constructionof the Port Motorway. Stage 1 of that motorway wascompleted in 2003.

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Figure 6. Intersection of thePort Motorway (left) with theGateway Motorway

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The ICB was completed by BCC in 2002. A significantarea of land that Main Roads had resumed in Bowen Hillsin the early 1970's, for the Northern Freeway project hadbeen transferred to BCC to assist with construction of theICB. There were few other major road projects underwayin Brisbane at that time.

infrastructure which has somehow to be dealt with in thefuture."

However some of its recommendations are interesting toreview just twelve years after they were made:

•One significant project was the upgrading of OldNorthern Road, between Everton Park and South PineRoad at Albany Creek. Since work had been precludedon "Route 20", Main Roads progressively upgraded Old •Northern Road between 1996 and 2006.

IRTP -1997The Integrated Regional Transport Plan (IRTP) for South­East Queensland was published in 1997 and was intendedto be a 25 year plan for the region.

"Roads that won't be needed (include) a motorwaythrough the inner north-eastern suburbs." This is nowreferred to as Airport Link and is under construction.

"Bus priority lanes (should be provided) on roadsleading to and from the CBD and Fortitude Valley."(Campbell Newman later removed the bus prioritylane in Ann Street through Fortitude Valley. Howeverit is understood its reintroduction is being consideredas part of a bus rapid transit project, known as theCityGlyder.)

Though published in 1997, I think it is fair to say that itrepresented a huge amount of work that had gone on inthe early to mid 1990's. It also reflected the attitudes inQueensland Transport at the time as well as members ofthe community.

An enormous effort had been expended in gainingcommunity input. The report stated that over 50,000people had been involved in various aspects of thisprocess.

This report recognised the growth pressures on the regionand made claims to represent a new approach. Some ofthe following quotations from the report will serve toconvey this new approach:

• This report has "changed the emphasis in transportplanning: from moving vehicles to moving people".

• "The key aim is to moderate rather than serve tosatisfy unrestrained traffic growth."

"What is needed is a balance that limits new roadcapacity expansion and favours public transport andhigh efficiency passenger and freight vehicles."

It recognised the need to provide new road infrastructure,and stated - "It is important the current generationdoes not bequeath a legacy of inadequate transport

It would be reasonable to say that the IRTP's aspirationswere limited by capital funding expectations.Commonwealth funding was tight in that period, withthe Howard government's focus on reducing the levelof government debt and with GST not yet having beenintroduced.

In the early 2000's, there were virtually no major roadprojects underway in Brisbane.

A change in thinkingIt was my perception that the first people to call for amajor new road investment program in Brisbane wereKing and Co - the Real Estate Agents. In 1998 theystarted to champion the need for tunnels, possiblyinfluenced by the road tunnel construction that hadoccurred in both Sydney and Melbourne. The CourierMail also started a campaign about addressing road needsin Brisbane. This campaign reached a high point in late2003.

Campbell Newman became Lord Mayor in 2004. Thecentre-piece of his campaign was the "Trans-Apex"plan for a series of road tunnels in the city. The first ofthese, the north-south bypass tunnel (the same projectdevised by Lord Mayor Jim Soorley) was to extendfrom the South-East Freeway at Woolloongabba passingunderneath the Brisbane River to Bowen Bridge Road atBowen Hills. Campbell Newman has become the biggestroads man in Brisbane City Council since Clem Jones- perhaps even eclipsing Clem Jones. It seems mostappropriate that the tunnel has been named the "ClemJones Tunnel".

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There came to be a realisation that much more work wasnecessary to provide the transport infrastructure for agrowing city. Historians, reflecting from a later pointin time, might be better able to see just what caused thischange in perception.

At that time there was a minerals boom underwaydriven by the rise of China as an economic super-power.Population inflow to Queensland was occurring; andgovernment resources were on the rise, partly due to theintroduction ofthe GST and partly due to the long periodof economic buoyancy starting in the early 1990's.The impact of increasing traffic on road congestion wasstarting to receive increased attention.

The state government hastened to get its planning in placewith the South-East Queensland Infrastructure Plan andProgram (SEQIPP).

A suite of new road investments was announced: theGateway Upgrade Project (GUP); the Houghton HighwayDuplication; Ipswich Motorway Upgrade; the GoodnaBypass (later abandoned in favour of further upgradingof Ipswich Motorway); Airport Link; the EleanorSchonell transit Bridge; road and rail upgrading Darrato Springfield. BCC also commenced building HaleSt Bridge and announced plans for the Northern LinkTunnel.

Currently, Brisbane is witnessing the biggest freewaybuilding boom it has ever seen. (There is also recordexpenditure in South-East Queensland on infrastructurefor public transport as well - both busways, heavy railand light rail.)

Wilbur Smith Plan re-visited - how some ofthe recent proposals fit inThe Wilbur Smith plan was essentially a ring-radial system, supplemented with an eastern outercircumferential (the Gateway Motorway). The CentralFreeway ring was never built. The only radial that wasfully built was the South-East Freeway. The outer partof the Western Freeway was built, but not the inboundsection from Toowong.

The Northern Freeway, North-West Freeway and Eastern

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Freeways were never built. In concept, the Clem JonesTunnel is really the eastern half of the Central Freewaywith a different topology. It starts and ends in the samelocations as the Central Freeway eastern half.

The ICB continues the Central Freeway around the north­west sector of the central city and the Hale Street Bridgecontinues it a little further.

The Airport Link (Figure 7) is fulfilling the same functionas the Northern Freeway and the later (aborted) proposalfor an Airport Motorway. It is unfortunate that thecorridor acquired for the Northern Freeway was neverused; however the community will no doubt be happierwith the tunnel solution.

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The Northern Link will complete the Western Freeway bylinking the Toowong Roundabout to the ICB (Figure 8).

QUEENSLAND ROADS Edition No 8 March 2010

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QUEENSLAND ROADS Edition No 8 March 2010 25

Brisbane's new inner-northern road network

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Figure 9. Route 20 in a tunnel concept

Approved propoAI

Under construction

Even the Route 20 concept has re-emerged as a futurepossibility, but this time as a tunnel solution. (Figure 9)

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Brisbane Freeway Development at a GlanceFigure 10 tells the story of Brisbane's freeway systemdevelopment in a time-line diagram. It shows the majorroad-building effort currently in progress, following arelatively quiescent period in the 1990's and early 2000's.

QUEENSLAND ROADS Edition No 8 March 2010

Wilbur Smith Study Wilb r Smith Horizon YearA ~

74 Com R~Fundin~ AB~b~~~c~~gre d System

A Ac ives IRTP 1997Gough Whltlam

A Trrisbane Aelected ffic Study

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60 61 62 63 64 65 66 67 68 69 70 7' 72 73 74 75 76 77 78 79 60 81 82 83 8-4 85 86 87 88 89 90 91 92 93 94 95 96 97 98 99 00 0' 02 03 04 05 06 07 08 091960s 1970s 1980s 1990s 20005

Prime Ministers '" cMahon VVhitlam Fra er Hawke Keating Howard Rudd

aid Premiers Nicklin Pizzey Bjelke.Peters n Ahem Goss Barb/dge Beattle Bligh

ord Mayors (BCC) ClemJol (es Walsh Sleer n Harvey Atkinso Soorley Quinn Newman

Figure 10. Chronological history of freeways in Brisbane

ConclusionI set out to document a brief history of Brisbane's freewaysystem - how the first freeway plan for Brisbane cameabout and what has happened since: what parts of theoriginal freeway plan were built; what parts were notbuilt; and how some contemporary projects compare withelements of the original freeway plan for Brisbane,I hope this longer-term perspective is of some value to

those engaged in the current freeway-building boom andthose who will be our planners for the future.

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AcknowledgementsI wish to acknowledge and express my thanks tovarious officers who assisted with supply of supportinginformation in the preparation of this article. In particularI wish to thank - Bob Rankin, Tom Vucetic, HelenScheu and Rebecca Breen.

QUEENSLAND ROADS Edition No 8 March 2010