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Cairns Transit Network Concept Design Report

Chapter 1 Overview and background Page 1.1

Table of contents

1 Overview and background............................................................... 1.3

1.1 Introduction.....................................................................................................1.3

1.2 Project vision ..................................................................................................1.3

1.3 Concept design objectives ............................................................................1.3

1.4 Study area .......................................................................................................1.4

1.4.1 Description of the corridor ....................................................................................1.4

1.4.2 Where will it go? ...................................................................................................1.5

1.5 Policy context .................................................................................................1.5

1.5.1 Toward Q2 – a stronger and greener Queensland...............................................1.5

1.5.2 Far North Queensland Regional Plan 2009-2031 ................................................1.7

1.5.3 CairnsPlan............................................................................................................1.7

1.5.4 Cairns Integrated Public Transport Plan 2005 ...................................................1.10

1.6 Planning need .............................................................................................. 1.10

1.6.1 Expected future growth ......................................................................................1.10

1.6.2 Protecting the corridor ........................................................................................1.10

1.6.3 Integration with other projects ............................................................................1.11

1.6.3.1 Edmonton town centre............................................................................................. 1.11

1.6.3.2 Smithfield North town centre ................................................................................... 1.12

1.6.3.3 Mount Peter Master Planned Area .......................................................................... 1.12

1.6.3.4 Cairns Bruce Highway Upgrade Project .................................................................. 1.12

1.6.3.5 Lake Street Transit Mall........................................................................................... 1.12

1.7 Project benefits............................................................................................ 1.12

1.7.1 Transport benefits ..............................................................................................1.13

1.7.2 Social benefits ....................................................................................................1.13

1.7.3 Economic benefits ..............................................................................................1.13

1.7.4 Environmental benefits.......................................................................................1.14

1.8 Why a bus-based system is best for Cairns ............................................. 1.14

1.9 The planning process ................................................................................. 1.16

1.9.1 Methodology.......................................................................................................1.16

1.9.2 Investigations .....................................................................................................1.18



1.10 Future studies.............................................................................................. 1.18

List of figures Figure 1.1: Images in Cairns ..................................................................................................................... 1.5

Figure 1.2: Cairns Transit Network corridors............................................................................................. 1.6

Figure 1.3: Far North Queensland Regional Plan 2009-2031 transit corridors for investigation............... 1.8

Figure 1.4: Cairns Planning Scheme Long Term Public Transport Network............................................. 1.9

Figure 1.5: Far North Queensland resident population projections to 2031................................................. 1

Figure 1.6: Key steps of the planning process ........................................................................................ 1.17



1 Overview and background

1.1 Introduction

The Cairns Transit Network is part of the Queensland Government’s long-term plan to

improve public transport in Cairns. It will connect the main communities in Cairns including

the northern beaches, Smithfield, Cairns city centre, Earlville, Edmonton, Gordonvale and

the neighbourhoods in between.

The Cairns Transit Network Concept Design Report focuses on developing a concept design

of the transit network that maximises benefits and identifies any potential local issues to

ensure they may be managed appropriately. Detailed investigations and impact

management planning will occur closer to the time of delivery to ensure improvements in

technology and other advancements are taken into account in the planning,

This is one of a suite of three documents prepared as part of the Cairns Transit Network

planning study. The documents include:

1. Concept Design Report – provides the technical summary of issues pertinent to the

project and identifies issues for future consideration

2. Concept Design Report: Executive Summary

3. Alignment plans – detail where the network and stations are located.

1.2 Project vision

The Cairns Transit Network will improve public transport by giving buses their own space in

the transport network, either in separate bus/transit lanes or dedicated bus only roads. It will

increase the mode share of sustainable transport in Cairns by making bus travel faster,

easier and more reliable, providing an attractive and sustainable alternative to the private

car. The Cairns Transit Network will facilitate transit oriented communities and pedestrian

friendly urban environments that reflect the local character and connect people to places in a

way that minimises impacts to the local surroundings.

1.3 Concept design objectives

The objectives of the concept design are to:

• identify a preferred alignment and concept design for the Cairns Transit Network

• develop a concept design that is economical and maximises the benefits of the transit

network for the community

• identify any potential impacts and local issues that will require management in the future

construction and operation of the transit network

• identify potential management strategies to enhance the benefits and minimise impacts

in the construction and operation of the transit network

• gain state government gazettal of the alignment to preserve the transit corridor for

construction in the future.



1.4 Study area

The Department of Transport and Main Roads identified a study area for the Cairns Transit

Network which stretches from Palm Cove in the north, to Gordonvale in the south. The study

area contains most of the Cairns urban area which is generally located between the

mountain range to the west and the coast to the east.

1.4.1 Description of the corridor

The City of Cairns is set amongst the scenic Wet Tropics rainforest, coastal ranges and

coastline bordering the Great Barrier Reef. Cairns contains a mix of landscapes from

established urban areas, small coastal beach communities, rural productive areas

associated with the Barron and Mulgrave River floodplains and vegetated hill slopes (see

Figure 1.1).

Cairns is a linear city which stretches north to south between the coastline and the mountain

ranges. Most urban growth is envisaged to occur in transit oriented communities along the

Cairns Transit Network alignment. The southern growth corridor, in particular, will see

substantial future growth, especially within the Mount Peter Master Planned area. Growth to

the north is predominantly focussed around Smithfield and adjacent to the northern beach

communities of Trinity Beach and Trinity Park.

Within Cairns, the dominant land use consists of low density detached residential

development. Areas of higher density are located within or adjacent to the city centre and to

a lesser extent at the northern beaches. This is primarily associated with tourist

accommodation. Major employment and activity centres apart from the city centre are

located at Earlville and Smithfield including James Cook University. To the south, the future

Edmonton major regional activity centre is planned to contain a significant proportion of new

jobs for the region.

The major arterial road network through Cairns includes the Bruce Highway which connects

to the southern areas of the state and the Captain Cook Highway with linkages to the north

including Cape York Peninsula. The Bruce Highway generally consists of six general traffic

lanes (three each way in the urban area) with planning underway to increase to eight lanes.

The Captain Cook Highway is generally made up of six lanes within the central urban area

and four lanes north of the Barron River, decreasing to two lanes north of Poolwood Road.

Existing bus services currently service the urban area, however they vary in relation to

frequency. Lake Street transit mall in the city centre is the major bus interchange. Bus

connections into the city centre include Captain Cook Highway/Sheridan Street from the

north, Mulgrave Road from the west and the Bruce Highway from the south.



Figure 1.1: Images in Cairns

1.4.2 Where will it go?

The Cairns Transit Network consists of three corridors linking:

• Northern corridor: the Cairns City centre with Palm Cove via Smithfield

• Southern corridor: the Cairns City centre with Gordonvale via Earlville and Edmonton

• Western corridor: Cairns City (from Cairns Base Hospital) with Smithfield via

Redlynch.

This is shown in Figure 1.2.

1.5 Policy context

1.5.1 Toward Q2 – a stronger and greener Queensland

The Queensland Government has set five goals that address current and future challenges

for Queensland. Within each of these areas, the government has set long-term targets that it

aims to achieve by 2020. The Cairns Transit Network relates directly to two of these goals: a

stronger Queensland and a greener Queensland.

A stronger Queensland

This goal is about making Queensland Australia’s strongest economy, with infrastructure that

anticipates growth.

Growing resident populations and tourist numbers are putting pressure on Cairns’ roads and

transport links. Traffic congestion reduces productivity and competitiveness by delaying the

transport and export of goods and the delivery of services. The Cairns Transit Network will

produce a number of economic benefits by helping to attract investment and innovation,

increase business efficiency and help boost the productive capacity of the economy. The

Cairns Transit Network will add capacity to the transport network and ensure people can get

to where they want to go on fast, frequent and reliable public transport services.



Figure 1.2: Cairns Transit Network corridors



A greener Queensland

This goal supports cutting Queenslanders’ carbon footprint by one third with reduced car and

electricity use.

The Cairns Transit Network will ensure public transport is an attractive option for the future.

Providing the right mix of public and private transport will give Far North Queensland a

balanced transport system. Moving more people more efficiently will mean fewer car trips,

less congestion and less pollution. Managing the effects of growth and related traffic

congestion before it becomes a major problem is one way to help keep Cairns strong and

green into the future.

Improved public transport will lead to a reduction in greenhouse gas emissions and

improvements to community health through better air quality as every full bus takes up to 40

cars off the road.

1.5.2 Far North Queensland Regional Plan 2009-2031

The Far North Queensland Regional Plan 2009-2031 is the overarching plan for the region

that takes precedence over all other planning instruments. This plan recognises Cairns as

the urban heart of Far North Queensland with the largest population in the region and a

tourist destination of international significance. The population of Far North Queensland is

projected to increase by nearly 100,000 people over the next 20 years.

The Far North Queensland Regional Plan recognises the need to improve the viability and

attractiveness of more sustainable transport modes and identified transit corridors for further

investigation as shown on Figure 1.3. The Cairns Transit Network is the next stage of

planning for these corridors.

The Far North Queensland Regional Plan provides public transport targets of 10% and 20%

of peak hour trips by 2016 and 2026 respectively for the southern corridor. This can only be

achieved if public transport provides a viable and attractive alternative to the private motor

vehicle.

The Far North Queensland Regional Plan is aligned with other regional plans including the

Roads Implementation Program, Cairns Integrated Public Transport Plan and the Principal

Cycle Network Plan for Far North Queensland.

1.5.3 CairnsPlan

CairnsPlan, the planning scheme for Cairns Regional Council, establishes the planning

intentions for the city for the next 15 years. CairnsPlan identifies a range of bus priority

measures from Smithfield to Edmonton (connecting with the city centre) with other major

road corridors identified for bus services (refer to Figure 1.4).

Outcomes from the Cairns Transit Network Concept Design Report will feed into future

reviews of the planning scheme, as well as other council policy documents and incorporate

measures or controls to protect the corridor, ensuring that development does not preclude

delivery of the transit network for the future.



Figure 1.3: Far North Queensland Regional Plan 2009-2031 transit corridors for investigation



Figure 1.4: Cairns Planning Scheme Long Term Public Transport Network



1.5.4 Cairns Integrated Public Transport Plan 2005

The Cairns Integrated Public Transport Plan 2005 was a priority action of the former Far

North Queensland Regional Plan 2009-2031, which identified the need for convenient,

reliable and effective public transport. The former Queensland Transport, Department of

Main Roads, and Cairns City Council worked together to produce the plan, which was

endorsed by the Mayor of Cairns and the Minister for Transport and Main Roads in April

2005.

The focus of the plan was to create a public transport system that is accessible and offers an

alternative to the private car. The Cairns Transit Network Concept Design Report advances

the intent of this plan.

1.6 Planning need

The Cairns Transit Network establishes a plan for a public transport system that will help

keep the city moving. To make public transport a viable alternative to the private motor

vehicle requires delivery of a public transport system that is reliable and easy to use in order

to get people to where they need to go quickly and efficiently. This will also help tackle the

issues of climate change and oil vulnerability (“peak oil”), reducing vehicle emissions and

improving air quality, thus creating a Cairns lifestyle that is not solely dependent upon cars.

1.6.1 Expected future growth

Cairns is one of the fastest growing local government areas in Australia. Population growth

and the tourism industry are placing pressures on Cairns’ lifestyle and transport system.

With more people forecast to be living and visiting Cairns, more vehicles are forecast to be

making a greater number of trips and increasing traffic congestion. Bus services are often

caught in this congestion, making it difficult to get around easily on public transport.

The Far North Queensland Regional Plan 2009-2031 identified that population growth in Far

North Queensland grew by 110,000 people in the last 30 years with the largest increase

occurring within the Cairns Regional Council area. Between 2001 and 2006 Far North

Queensland had the third highest growth rate and absolute growth outside of South East

Queensland. Growth within the region is expected to continue with high, medium and low

growth projections prepared to consider a number of scenarios. This is shown in Figure 1.5.

The Far North Queensland Regional Plan 2009-2031 is based on the medium series

projection.

1.6.2 Protecting the corridor

The Cairns Transit Network is about planning and protecting for the future. By doing this

planning now, we can set aside the land needed to meet the public transport needs of the

future. This will ensure in future years that opportunities will not be lost or compromised, and

that we do not have to squeeze public transport infrastructure into areas that are already fully

developed. This is particularly the case for future growth areas such as Edmonton,

Smithfield and Mount Peter to ensure that a transit system is well integrated within these

future transit oriented communities.



Source: Far North Queensland Regional Plan 2009-2031 p17

It is important to plan public transport networks ahead of population and employment growth

to ensure future development occurs in a sustainable way. Once the corridors are protected,

any development that is proposed near a corridor or station is subject to assessment by the

Department of Transport and Main Roads. This means that the state government can place

certain conditions on developments to ensure they are well integrated with the future transit

network.

1.6.3 Integration with other projects

Planning has recently occurred or is currently underway on the following projects with the

aim to ensure the transit system is integrated into the land use planning for these future

growth areas or projects.

1.6.3.1 Edmonton town centre

Planning for the Edmonton town centre by Cairns Regional Council has involved design

workshops with representatives from all the major stakeholders. The town centre is

identified to include a range of retail, commercial and entertainment uses which are designed

to integrate land uses with the transport network, in particular the Cairns Transit Network that

will service this centre. The Department of Transport and Main Roads has been actively

involved in this project to ensure a transit corridor and bus station locations are protected. An

amendment to the planning scheme to include the Edmonton town centre is presently

underway.

Figure 1.5: Far North Queensland resident population projections to 2031



1.6.3.2 Smithfield North town centre

The proposed Smithfield town centre is located north of the Kennedy Highway roundabout

extending along the Captain Cook Highway to McGregor Road and includes land on both

sides of the highway. The town centre will comprise three nodes incorporating James Cook

University, the town centre core and the existing Smithfield shopping centre. The Town

Centre will function as a transit oriented community, incorporating mixed use retail,

commercial, business, residential, entertainment and community activities and facilities. The

Smithfield North town centre will be a major community focal point and activity and

employment centre providing a range of local job opportunities, while servicing the Cairns

Beaches and Barron-Smithfield District, as well as communities on the north eastern

tablelands. An amendment to the planning scheme is presently underway to provide

guidance as to the form and intensity for the future Smithfield North town centre. The

Department of Transport and Main Roads has been actively involved in the planning and

design to date of this project to ensure a public transport corridor and bus station locations

are protected.

1.6.3.3 Mount Peter Master Planned Area

In May 2008, the state government announced the declaration of the Mount Peter Master

Planned Area. Mount Peter is recognised in the Far North Queensland Regional Plan 2009-

2031 as a priority urban growth corridor expected to accommodate 42,500 people. The

Department of Transport and Main Roads is working collaboratively with Cairns Regional

Council and other state government agencies to ensure that the needs for public and active

transport are secured in the planning for this area. This includes identifying the preferred

location for the Cairns Transit Network through this greenfield area, station locations and

integration with surrounding land uses.

1.6.3.4 Cairns Bruce Highway Upgrade Project

Work has been undertaken in conjunction with the Cairns Transit Network on a detailed

planning report for the Cairns Bruce Highway Upgrade Project. This investigated the long-

term, multi-modal transport options to address the impacts of growth, safety and congestion

on the Bruce Highway from south of Edmonton to Cairns city centre. The detailed planning

report considered a total transport solution for the private motor vehicle, freight, public and

active transport which incorporates the Cairns Transit Network.

1.6.3.5 Lake Street Transit Mall

Planning for the existing and future capacity of the Lake Street transit mall has identified

operational, infrastructure and design requirements to ensure the transit mall meets the

future task. The Lake Street transit mall is a key interchange for most bus routes and

requires an upgrade to improve passenger amenity. The Department of Transport and Main

Roads has undertaken design workshops with major stakeholders to ensure future planning

for this facility occurs in an integrated manner.

1.7 Project benefits

The Cairns Transit Network will play an important role in making Cairns a sustainable place

to live, work and play by improving the way in which people can move around the city. The



Cairns Transit Network will also bring about a wide range of transport, social, economic and

environmental benefits to the local and wider community.

1.7.1 Transport benefits

Transport benefits include:

• provision of fast and reliable bus services between the northern, western and southern

suburbs of Cairns, and to Cairns city centre

• travel time savings as buses are able to avoid congestion, particularly in peak times

• provision of a viable alternative to the private car

• greater frequency of bus services for local residents, tourists and workers

• upgrade of the Lake Street transit mall and delivery of new transit stations throughout

Cairns from Palm Cove in the north to Gordonvale in the south

• creating a more pleasant travel experience by providing high-quality passenger waiting

environments and information systems.

1.7.2 Social benefits

Social benefits include:

• improved connections to where people live, work and play

• improved public transport access to major destinations, including the northern beaches;

tourist attractions such as Skyrail and Tjapukai; educational facilities including James

Cook University and the Tropical North Queensland Institute of TAFE; activity centres

such as Smithfield, Earlville and the future Edmonton town centre; Mount Peter Master

Planned Area and community services including the Cairns Base Hospital

• reducing the negative health impacts of motor vehicle pollution

• ensuring everyone in our community, particularly those without cars, can get to where

they need to go. For example, a job interview, the doctor, the beach or to visit family

and friends

• offering the ability to travel in an area conveniently without a car, which is an important

component of a community’s liveability. Public transport provides opportunity, access,

choice and freedom – all of which contribute to an improved quality of life.

1.7.3 Economic benefits

Economic benefits include:

• enhancing the image of Cairns as a place that is easy to get around – good for business

and good for tourism

• keeping Cairns as an attractive place for tourism by maintaining its unique lifestyle

• a bus-based system allows cost effective staging by constructing the highest priority

sections first



• reducing the costs of traffic congestion and providing an alternative to paying

increasingly high fuel and vehicle prices

• reducing the amount of money we need to finance new roads – one busway lane can

carry the same number of people as up to nine highway lanes

• the costs associated with driving a vehicle are substantially higher than the annual

average cost of public transport

• transit network corridors and stations are often focal points for economic and social

activities

• public transport provides an affordable and, for many, necessary alternative to driving.

1.7.4 Environmental benefits

Environmental benefits include:

• helping reduce greenhouse gas emissions by reducing car use. For every full bus there

are up to 40 fewer cars on the road. A family car can generate up to a third of a

kilogram of greenhouse gases per kilometre. Driving 20 kilometres to and from work

every day produces up to 1.25 tonnes of greenhouse gases annually

• allowing more concentrated urban development reduces the urban footprint on valuable

ecological and agricultural land

• increasing the efficiency and flow of bus movements and reducing fuel emissions

through less stop start driving.

1.8 Why a bus-based system is best for Cairns

When considering a transit network for Cairns, various modes were considered to perform

the task including:

• light rail

• heavy rail

• bus.

Light rail is often identified as a solution for moving people around a growing city. Light rail

has many benefits including greater seating and standing capacity than buses and high

frequency of services. Light rail is successful in numerous cities across the world and has

been considered as an option for Cairns but is considered to be too expensive and not able

to provide the flexibility of a bus-based system.

Comparably, consideration has been given to the use of the existing long-distance heavy rail

line. The use of the heavy rail line is not seen as feasible due the existing and projected

volume of freight trains using the corridor. The heavy rail line has limited capacity and is

integrated poorly with residential areas and destinations. For example, the heavy rail line

does not service Earlville, the central suburbs, TAFE, James Cook University, Smithfield or

the Northern Beaches. The heavy rail line is a single track with limited passing opportunities.

In its current configuration, it is unsuitable to meet the future urban public transport needs of



the city. The North Coast Line and Cairns-Kuranda Line will continue to serve important

functions for tourism and long-distance freight and passenger services. However, a new

dedicated network is needed for urban public transport.

For the long-term public transport task for Cairns, a bus-based public transport system is

considered to offer the greatest benefits including:

• Greater coverage: A bus-based system means high-quality public transport is as close

as the local bus stop. Passengers can be picked up at their local bus stop and buses

can then join the transit network for a reliable and congestion-free trip on dedicated bus-

only roads. This means the transit network can service more communities and give

more passengers a same-seat journey from origin to destination.

• Flexible staging: Bus-based systems can be built in stages. Priority sections can be

built first to bypass congestion hotspots and remaining sections can be completed over

time as required, when demand exists.

• Flexible movement: Bus services are able to move on and off the priority corridor in

the case of unforeseen disruptions. The same flexibility does not exist with light and

heavy rail as it needs to run on fixed tracks. Buses have the ability to operate on the

road surface, travel on steeper grades and turn tighter corners, better servicing the

entire Cairns population.

• An attractive bus fleet: Over time the existing bus fleet will be gradually upgraded to

more modern designed vehicles. New vehicles will be cleaner, quieter and more

sustainable to operate and provide greater comfort than existing buses.

• More capacity: One dedicated busway lane in peak hour can carry the equivalent

amount of people as up to nine highway lanes. The number of people on a dedicated

bus-only lane is similar and can exceed that of light rail.

• Better value: Bus rapid transit is generally less expensive to deliver and operate than

light rail. Based on recent projects around the world, the average capital costs to

construct a full system for bus rapid transit can cost less that half the cost of providing

light rail per kilometre. For some cities, light rail is suitable as the cost may be

overcome in dense urban areas where it is possible to recoup a significant part of the

operating costs from a large number of passenger fares. However, Cairns is a relatively

low density city and is predicted to remain a relatively low density urban area, with most

growth envisaged to occur on the city’s edge.

Cairns needs a public transport system that can service the entire community with genuine

flexibility. It needs a system that has the ability to adapt and respond to local circumstances

and the capacity to service the needs of residents, workers and tourists. While both heavy

and light rail exhibit numerous benefits, neither is considered suitable to meet the particular

transport challenges that Cairns faces. A bus-based system has been shown to be the best

and most appropriate solution for Cairns.



1.9 The planning process

1.9.1 Methodology

The Department of Transport and Main Roads has completed a concept design study to

enable the Cairns Transit Network corridors to be protected. This process is used to inform

medium to long term identification and protection of an alignment. This approach is generally

used where delivery timeframes are uncertain or longer term.

Detailed design and impact management planning will be undertaken closer to the staged

delivery of the project, subject to the availability of funding. This may take the form of a

Concept Design and Impact Management Plan (CDIMP), which is a voluntary planning and

impact assessment process that seeks to emulate the technical rigour and the community

consultation requirements of a formal Environmental Impact Statement.

The Concept Design Report was produced in draft format for community and stakeholder

consultation (see Figure 1.6 key steps of the planning process). It has now been finalised

and approved by the state government, with amendments incorporating feedback from the

consultation process and further technical investigations. The Concept Design Report for the

Cairns Transit Network focuses on:

• identifying a preferred transit network alignment and design

• identifying any potential local issues associated with the proposal

• ensuring these issues can be managed appropriately.



Figure 1.6: Key steps of the planning process



1.9.2 Investigations

Previous studies and investigations have been utilised in the development of the Concept

Design Report where possible. New investigations have been carried out where the following

applies:

• gaps in the available information were identified and new information was needed to

effectively assess impacts

• new data has become available — for example, based on investigations being

undertaken concurrently on the Bruce Highway Upgrade.

The results of this Concept Design Report will inform the development of a detailed design

and impact management plan for particular sections of the network as it is progressively

delivered.

The investigations for the Concept Design Report covered a broad range of social,

environmental and economic issues. Areas of investigation included the following:

• sustainability

• land use planning and urban design

• social environment

• cultural heritage

• economic environment

• ground conditions

• flooding and water quality

• ecology

• noise and vibration

• climate and air quality

• public transport network integration

• engineering

• traffic and transport

• pedestrian and cycle access

• legislative requirements and planning approval process

• project staging.

1.10 Future studies

Detailed design and impact management planning will be undertaken closer to the staged

delivery of the project subject to the availability of funding. The next stage of impact

management planning will investigate the project alignment in more detail and, where

appropriate, update management strategies to maximise benefits and minimise impacts of

the project. This is because the Cairns Transit Network project is proposed to be delivered



in stages and impacts identified today are likely to be different in the future. This ensures that

strategies consider any advancement in technology that could contribute to better outcomes

for the community.

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