An examination of the key transport
challenges facing Victoria and the role of
local, State and Australian Governments in
addressing them
TRANSPORT POSITION PAPER
Municipal Association of Victoria
© Copyright Municipal Association of Victoria, 2013.
The Municipal Association of Victoria is the owner of the copyright in the publication
Transport Position Paper.
No part of this publication may be reproduced, stored or transmitted in any form or by
any means without the prior permission in writing from the Municipal Association of
Victoria.
All requests to reproduce, store or transmit material contained in the publication
should be addressed to James Cleaver on 03 9667 5519.
The MAV can provide this publication in an alternative format upon request, including
large print, Braille and audio.
The Transport Position Paper has been prepared by the Municipal Association of
Victoria (MAV) for discussion with member councils, Local Government Victoria and
the State Government on transport-related issues.
The MAV is the statutory peak body for local government in Victoria, representing all
79 municipalities. The MAV would also like to acknowledge the contribution of those
who provided their comments and advice during this project.
While this paper aims to broadly reflect the views of local government in Victoria, it
does not purport to reflect the exact views of individual councils. This paper has been
endorsed by the MAV Transport and Infrastructure Committee and the MAV Board as
suitable for distribution and comment to members.
Page 2 of 32
Table of Contents
1
Introduction ......................................................................................................... 4
2
Summary: Strategic Transport Objectives ........................................................... 4
3
Background ......................................................................................................... 5
3.1
The role of local government in transport ..................................................... 5
3.2
Consultation process .................................................................................... 5
4 Current Government Policy ................................................................................. 6
4.1
Victorian Government .................................................................................. 6
4.2
Australian Government................................................................................. 7
5 Drivers for change ............................................................................................... 8
5.1
Increasing population ................................................................................... 9
5.2
Increasing freight task ................................................................................ 12
5.2.1
Road freight ....................................................................................... 13
5.2.2
Rail freight .......................................................................................... 14
5.2.3
Congestion ......................................................................................... 15
5.3
Climate change and pollution ..................................................................... 16
5.4
Transport disadvantage and social exclusion ............................................. 17
5.4.1
Post code-based inequality and car dependency ............................... 18
5.4.2
Transport disadvantage in regional and rural areas............................ 19
5.4.3
Taxis .................................................................................................. 20
5.4.4
Public transport accessibility .............................................................. 20
5.4.5
Pedestrian accessibility ...................................................................... 21
5.4.6
Community transport .......................................................................... 21
5.4.7
Alleviating transport disadvantage ...................................................... 22
5.4.8
Housing Affordability .......................................................................... 22
5.5
Health, liveability and safety ....................................................................... 22
5.5.1
Active transport .................................................................................. 23
5.5.2
Exercise and public transport ............................................................. 23
5.6
Cycling ....................................................................................................... 23
5.7
Peak Oil ..................................................................................................... 23
5.8
Road Safety ............................................................................................... 24
5.8.1
Rural local roads issues ..................................................................... 24
5.8.2
Enforcement of road rules .................................................................. 25
5.8.3
Broader transport health impacts ....................................................... 25
6 Strategic transport objectives ............................................................................ 25
6.1
6.2
6.3
6.4
6.5
6.6
6.7
Integrated long-term planning..................................................................... 26
Economic efficiency. .................................................................................. 27
Significantly increased and sustained transport infrastructure investment .. 28
Environment and climate change. .............................................................. 28
Modal shift.................................................................................................. 29
Active transport including cycling and walking ............................................ 30
Equity and access ...................................................................................... 31
Page 3 of 32
1 Introduction
The purpose of the Transport Position Paper (TPP) is threefold:



To describe Victoria’s transport challenges according to the local government
perspective.
To define a vision for transport policy and investment in Victoria.
To identify a series of council and State Government actions which are
necessary to achieve that vision.
The primary audience for the TPP is the Victorian Government. Victoria’s response to
its considerable transport challenges will necessarily require a partnership between
all levels of government – but must be led by the State Government. Councils want to
renew this partnership on the basis of a clear definition of the state’s transport
challenges and a pathway forward.
Structure of the document
The first substantive section, ‘Contemporary government policy’ summarises the
Victorian and Australian Government’s major transport and infrastructure policies and
programs which effect local government. Section 5, ‘Drivers for change’ discusses
Victoria’s transport issues and challenges within this regulatory framework, with
recent research and statistics. Section 6 provides a detailed explanation of the
Strategic Transport Objectives, including (1) the local government sector’s
perspectives on strategic challenges; (2) actions which councils are taking to meet
these challenges; and (3) recommendations to the Victorian and Australian
Governments.
The TPP represents the Victorian local government sector’s over-arching transport
policy vision. The vision is articulated through the Strategic Transport Objectives
2 Summary: Strategic Transport Objectives
Although each council’s transport needs are different, these Strategic Objectives
demonstrate a shared understanding of Victoria’s transport challenges and
opportunities and the requirement for action from councils, the Victorian Government
and Australian Government. The Strategic Transport Objectives are:
Integrated long-term planning
Victoria requires integrated long-term transport planning at the local, state
and national levels.
Economic efficiency
More efficient freight and passenger transport systems throughout Victoria
are critical to achieving a healthy and growing economy.
Significantly increased and sustained transport infrastructure investment
A massive investment in transport infrastructure is required to ensure
Victoria’s ongoing prosperity and liveability.
Environment and climate change
Page 4 of 32
Victoria requires environmentally sustainable integrated transport networks
that limit transport-related greenhouse gas emissions and improve the local
environment.
Modal shift
Future transport investments must move more people and more freight while
reducing the number of private passenger and commercial vehicles on
Victorian roads.
Active transport including cycling and walking
Active modes of transport, such as cycling and walking, are distinct forms with
considerable health, social… benefits. Cycling and walking must be
encouraged with more, and better, infrastructure.
Equity and access
Victoria should have a transport system that is inclusive of people of all ages,
all levels of mobility and all regions of the state.
In part six of the TPP, the Strategic Transport Objectives are discussed in greater
detail, including specific actions being undertaken by councils and recommendations
for the Victorian Government.
3 Background
The Municipal Association of Victoria (MAV) first published a TPP in 2008. The TPP
has allowed the MAV to put forward a whole of local government vision for transport
policy in Victoria. Since Victoria faces long-term transport challenges which must be
met by appropriate investment and cooperation between all levels of government and
the community, the TPP is now a ‘living document’ which will be regularly reviewed
and updated to reflect changing circumstances.
3.1
The role of local government in transport
Local government has three core transport responsibilities: (1) providing and
maintaining transport infrastructure at the local level, including approximately 85 per
cent of Victoria’s road network, most bicycle paths and pedestrian paths; (2)
performing statutory planning functions in a way which acknowledges the inextricable
link between land use planning and transport; and (3) advocating for the transport
needs of communities to other levels of government. Many councils take on
additional responsibilities, including the provision of community transport services.
Alternatively, the Victorian and Australian Governments are responsible for other
transport infrastructure and services, and for developing relevant policy and
regulations.
3.2
Consultation process
The first edition of the TPP was developed by the MAV Transport and Infrastructure
Advisory Committee in consultation with all MAV member councils. At the October
2008 meeting of the MAV State Council, the seven strategic objectives were
endorsed. The MAV Board then endorsed the TPP at its November 2008 meeting.
In August 2011, the MAV Board agreed that the TPP would be regularly updated to
reflect changing circumstances and published as a ‘living document’ on the MAV
website. The 2012 iteration of the TPP was developed with input from the MAV
Page 5 of 32
Transport and Infrastructure Committee, subjected to comprehensive consultation
with members and subsequently endorsed by the MAV Board in December 2013.
4 Current Government Policy
State and Australian governments are primarily responsible for setting the regulatory
frameworks and funding the infrastructure and services which will be necessary in
order to address the transport challenges described in the next section. This section
of the TPP is not intended to be a thorough description of government policy; rather it
provides a brief summary of key transport and public transport commitments and
initiatives and links for further information.
4.1
Victorian Government
Victoria's principal transport statute is the Transport Integration Act 2010 (TIA), which
came into effect in July 2010. The TIA requires that all decisions affecting the
transport system be made within the same integrated decision-making framework
and support the same objectives.
The current Victorian Coalition Government was elected in 2010. In an environment
of fiscal tightening, the Government’s initial focus was to deliver election
commitments in relation to metropolitan rail. These include:
 Installing 940 armed Protective Service Officers to patrol metropolitan railway
stations and four major regional railway stations.
 Beginning work on priority grade separations.
 Conducting feasibility studies on a number of rail extensions.
 Creating Public Transport Victoria (PTV).
Beyond the 2013/14 budget, the Government’s transport plans are dominated by
these key commitments:
 The Metropolitan Planning Strategy.
 Eastern section of the East-West Link.
 The development of the Port of Hastings.
Other important transport initiatives include:
 Victorian Cycling Strategy establishes an Interdepartmental Cycling
Committee to co-ordinate efforts across state agencies in implementation of
the strategy and its action plans. It also establishes a Cycling Reference
Group of stakeholders to include local government representatives to identify
issues and represent cycling interests.
 Victorian Road Safety Strategy.
 A new Freight and Logistics Plan – Victoria: The Freight State.
 Implementation of the Victorian Taxi Inquiry recommendations.
 Transport Solutions.
 Combining the Transport and Planning Departments.
VicRoads continues to be a very important partner to local government and has
collaborated with councils on these important projects:
 The Victorian Speed Limit Review.
 Country Roads and Bridges Program.
 Tram and bus priority, working with PT.
Page 6 of 32


Many road safety initiatives (in conjunction with the Transport Accident
Commission).
Funding Timber Towns Victoria to produce the Timber Impacted Roads
Evaluation Study.
PTV was created in 2011 as the single statutory authority that administers Victoria’s
train, tram and bus services. Since its creation, PTV has been responsible for:
 Rail Network Development Plan
 Train line extensions.
 Network accessibility improvements.
4.2
Australian Government
The Australian Government continues to set high-level transport policy and support
councils’ with direct funding for transport infrastructure. The Federal Government
elected in September 2013, has identified that it will no longer fund public transport,
but give priority to funding roads including committing $1.5 billion for the proposed
Victorian East West Link.
Infrastructure Australia (IA):
 IA is a statutory body, established in 2008, which advises governments on
Australia’s infrastructure needs to minimize bottlenecks and promote
economic efficiency. IA has developed, and updates annually, a National
Priority List of infrastructure projects. IA has also developed a number of
policy proposals to promote appropriate infrastructure investment. These are
outlined in its June 2013 report to COAG.
National Heavy Vehicle Regulator (NHVR):
 The NHVR, established in 2013, is designed to be one-stop-shop for heavy
vehicle road transport business with government. Councils will work with the
NHVR to process all road access permits for vehicles greater than 4.5 tonnes.
Accessibility:
 In 2002, the Australian Government enacted the Disability Standards for
Accessible Public Transport (DSAPT), under the Disability Discrimination Act
1992 (DDA). The DDA requires public transport services meet the standards
set by DSAPT. Compliance targets for transport infrastructure and vehicles
must be met progressively at five year intervals.
 By the end of 2022, all vehicles, infrastructure and premises (except for trams
and trains) must fully comply with the Transport Standards (Australian
Attorney General).
Carbon pricing1:
 Under a package of legislation called the Clean Energy Bill, passed by the
Australian Government in 2011, a carbon pricing mechanism started on 1 July
2012 and was intended to be fixed for the first three years. A change to
government policy in July 2012 bought forward the transition to a market price
for carbon by one year (Climatechange.gov.au).
 A carbon price will not apply to household transport fuels, light vehicle
business transport, heavy vehicle transport (to be reviewed in 2014) and
1
Carbon pricing continues to be a highly politicised area of government policy, in which the
incoming Federal government has forecast change.
Page 7 of 32

off-road fuel use by the agriculture, forestry and fishing industries. Over time,
a reduction in fuel tax credit entitlements will be applied to domestic aviation,
domestic shipping, rail transport, and other non-transport use of fuels.
Renewable fuels such as ethanol, biodiesel and renewable diesel are not
subject to the carbon price.
Roads to Recovery (R2R):
 R2R is a direct funding grant from the Australian Government to councils
which helps maintain and upgrade local road networks.
 In the 2012-13 Budget, the Government announced that it will provide a
further $1.75 billion ($350 million per annum) to extend the Roads to
Recovery Program for five years from 2014-15 to 2018-19.
Council of Australian Governments (COAG)
 COAG is continuing to develop the Road Reform Plan (CRRP), including
consideration of vehicle charging arrangements.
 In 2012, the COAG Reform Councils released the Review of capital city
strategic planning systems. The recommended governments do more to plan
better for economic development, land use and infrastructure in our cities.
5 Drivers for change
Victoria’s transport infrastructure and regulatory arrangements are under pressure
from seven key challenges. These are: (1) increasing population; (2) increasing
freight task; (3) climate change and pollution; (4) transport disadvantage and social
exclusion; (5) health and liveability; (6) peak oil; and (7) road safety. These issues
will be discussed, drawing on recent research and reports.
Figure 1: Victorian population change 2011-12 (source: ABS).
Page 8 of 32
5.1
Increasing population
Summary

Victoria’s population is growing rapidly. There is significant population growth
occurring in regional cities and the outer suburbs of Melbourne.

Population growth places pressure on transport infrastructure and services.

Government investment in transport infrastructure and services has not kept
pace with past population growth.

There is currently no State-based planning process that identifies transport
infrastructure requirements in new or established suburbs, concurrent with
population growth and establishes a pathway for its delivery.
The Australian Bureau of Statistics (ABS) figures (Figure 1) show recent population
growth in Victoria. According to the ABS Victorian State Summary, at 30 June 2012,
the state’s population was 5.62 million people, with a growth rate of 1.6 per cent.
Figure 2: Projected population growth: Melbourne Local Government Areas 20062026. Source: DPCD Housing Growth Requirements Project – April 2009 Fact Sheet.
Growth in Melbourne is particularly strong and has exceeded predictions in recent
years. According to the 2012 report Melbourne, let’s talk about the future (p6):
“Growth in Melbourne and Victoria has fluctuated over time, depending on
international and local events. By 2050, Melbourne’s population is likely to
reach between 5.6 and 6.4 million.”
As displayed in Figures 1 and 2, the strongest population growth in Melbourne has
occurred and is expected to continue in the ‘growth areas’ of the north, west and
south east. According to the Australian Bureau of Infrastructure, Transport and
Regional Economics BITRE) Population growth, jobs growth and commuting flows in
Page 9 of 32
Melbourne (2011), these areas will accommodate 66 per cent of Melbourne’s
population growth from 2007 to 2026. The ‘growth areas’ are currently not well
serviced by Melbourne’s public transport network (Figure 3).
The lack of convenient and reliable public transport services for many Melbournians,
particularly those in the outer suburbs explains why over 60 per cent of commuting
trips are completed entirely in private vehicle as the sole occupant (2011 data,
Victorian Transport Statistics Portal).
The under-provision of transport infrastructure and services in growing suburbs is not
limited to public transport. In some areas, road infrastructure is also failing to keep
pace with population growth. The City of Casey epitomises the transport issues faced
by fast-growing outer municipalities with a ‘rural-style’ road network. Casey is
Victoria’s most populous municipality and continues to experience very high growth.
The population has grown 43.8 per cent between 2001 and 2011 (website).
According to the City of Casey Transport Advocacy Campaign, Casey residents use
cars for 88.5 per cent of their commutes - yet road infrastructure investment has not
keep pace with population growth. Casey City Council proposes that the inadequate
road infrastructure is the cause of the high road toll within the municipality (website).
Figure 3: Access to public transport (source: p25, Melbourne, let’s talk about the
future).
Page 10 of 32
The Victorian Government’s Growth Areas Authority has been established to
coordinate the planning and development of new suburbs with adequate housing,
infrastructure and economic opportunities. In 2012, the Growth Areas Authority
released draft ‘Growth Corridor Plans’ for the West, North, South East and Sunbury
areas. The Growth Corridor Plans were developed to coincide with the expansion of
Melbourne’s growth area boundary.
The Growth Corridor Plan’s ‘Principal Two’ is to integrate transport and land use
planning (p15). This principal is to be achieved by “providing travel options” and
“creating an integrated multi-modal transport network”, including a Principal Public
Transport Network (PPTN) which connects the growth corridor to the Melbourne CBD
and links higher order town centres within the growth corridor.
Although many transport infrastructure investments are identified as a part of the
Growth Corridor Planning process, the process is subject to the criticism that it fails
to identify an adequate revenue stream to deliver the infrastructure. The State
Government Growth Area Infrastructure Charge (GAIC) was created “to provide
State infrastructure that is needed to support the development of new suburbs”.
However, the GAIC only funds “up to 15 per cent of State infrastructure works in
growth areas”, leaving the remainder to be funded from general revenue.
Figure 4: Epping Hell: estate residents ‘betrayed’ by promises, The Age 15
December 2011.
In some areas, the failure to
deliver transport infrastructure
and services in line with
population growth is becoming a
contentious issue.
On 15 December 2011, The Age
reported on the Aurora Estate in
Epping. The Estate will have
more 8 000 houses when it is
completed – but currently has
only one bus stop. Although
several bus shelters have been
constructed,
the
Victorian
Government had no plans to
fund an upgraded bus service to
connect them.
Melbourne’s established suburbs will also be required to accommodate significant
population growth (34 per cent of Melbourne’s growth, according to BITRE
estimates). This will occur through in-fill development and densification of existing
built areas. However, the transport network of Melbourne’s established suburbs is
already at capacity, or inadequate.
In 2012, Regional Cities Victoria commissioned a study into Regional Cities’
population growth projections and future infrastructure and resource requirements
(RCV 2012). The report identified significant capacity for further growth. However, in
the medium growth scenario, approximately $3.9b of additional infrastructure and
Page 11 of 32
services including: transport, education and utilities is required during the report’s
twenty years timeframe.
There is currently no State-based planning process that identifies transport
infrastructure requirements in new or established suburbs, concurrent with population
growth and establishes a pathway for its delivery. Growth Corridor Plans are replete
with principles of ‘Transit Oriented Development’ and observations that particular
areas can be serviced by express bus services or a new train station. However, there
is no revenue stream to fund these services and no serious indication that the
services will be delivered. Anecdotally, some Corridor Plans identify over $1 billion of
State infrastructure requirements, which are neither funded nor committed.
Population growth places pressure on all infrastructure and services, but particularly
transport because it provides access to jobs, recreation and other services. A
significant component of Melbourne’s predicted population growth will occur in areas
which are already lacking in transport infrastructure – the outer suburbs. Continued
population growth in these areas will exacerbate the transport infrastructure and
service shortage.
5.2
Increasing freight task
Summary

Victoria’s freight task is increasing faster than private passenger vehicle
travel.

The freight industry faces increased costs associated with congestion and
fuel prices.

Congestion is a significant risk for the Victorian economy.

Large freight vehicles cause significant damage to small local roads in rural
areas.
In August 2013, the Victorian Government released a new freight strategy, Victoria
the Freight State. The strategy anticipates significant and sustained growth in all
areas of Victoria’s freight task: shipping, road and rail.
The freight industry is growing and changing in response to consumer preferences
towards a greater choice and continual availability of imported goods. The freight
network is under pressure from this growth to maintain and improve current levels of
performance.
A key objective of the Freight State strategy is to increase ‘gateway capacity’ to
efficiently absorb this growth. Plans include the expansion of the Port of Melbourne
and the development of the Port of Hastings. Increasing ‘gateway capacity’ will be
augmented by targeted improvements to road a rail freight capacity.
Within Victoria, road trucks will continue to carry most of the freight by volume
(approximately 89 per cent). Rail and sea represent nine per cent and two per cent
respectively, while air freight moves only 0.1 per cent (2008, Freight Futures, p13).
Unpublished data indicates these proportions have remained stable. According to the
Productivity Commission, as a result of the inherent differences in the service
characteristics of road and rail, only a small proportion of the total freight task
(approximately 10–15 per cent) is considered to be contestable across the two
Page 12 of 32
dominant modes of road and rail. (Road and Rail Freight Infrastructure Pricing,
pXXIX).
Figure 5: BITRE estimate of the total Victorian Freight task, including
interstate freight 2008-2046 (source: Victoria, the Freight State, p13).
5.2.1 Road freight
Since 1971, Australia's road freight task has grown by approximately 5.4 per cent
each year. However, increased vehicle size and capacity has enabled more freight to
be carried by proportionately fewer trucks, and larger trucks have captured a larger
share of the road freight task.
Figure 6: Total road freight by commercial vehicle, Australia-wide (source:
Truck productivity: sources, trends and future prospects BITRE 2011, p11).
As a proportion of all road traffic, freight accounts for approximately 15 per cent of
total vehicle kilometres travelled, but this proportion is increasing and is expected to
Page 13 of 32
reach 20 per cent by 2020 (2008 Freight Futures, p87). Melbourne will be
significantly affected by the growth in road freight with the number of kilometres
travelled by road freight vehicles within metropolitan Melbourne to increase by 77 per
cent by 2020 (2008 Freight Futures, p15).
Continued strong growth in road freight is likely to have two negative consequences:
increased road maintenance costs associated with increased heavy vehicle traffic,
and increased congestion (congestion issues are discussed under section 5.2.3
below).
Appropriate road access pricing for freight vehicles is essential to ensure roads are
maintained to an appropriate level and businesses are using the most efficient
modes of transport. Councils have previously expressed concerns that road pricing
for freight is undercharged relative to road maintenance costs. VCEC 2011 also
raised the issue of “under-charging for rural roads to heavy vehicles” as a “particular
concern” (p62).
The Productivity Commission, in its 2006 inquiry into Road and Rail Freight
Infrastructure Pricing, investigated pricing arrangements for road-based freight, noted
that:
“the marginal costs of using highways designed and built to carry heavy
vehicles are very low. Although the total capital costs of these roads are high,
commensurately high traffic volumes and economies of scale in pavement
construction ensure that unit capital costs are also low. By the same token,
the costs of heavy vehicles using rural or arterial roads that were not built for
that purpose, and that have relatively low traffic levels, are likely to be
significantly above the network average.” (pp XXXIII-XXXIV)
Since the marginal cost of providing and maintaining local road infrastructure is far
greater than for arterial and interstate infrastructure, the lack of effective marginal
pricing of road costs is a critical issue for councils. An outcome of the trend towards
heavier road freight, such as road trains and B doubles, is that the increased
maintenance costs will fall disproportionately on local government.
The creation of the National Heavy Vehicle Regulator (NHVR) in 2013 has created a
national framework of rules for heavy vehicle access to all roads. In the next phase of
reform, the NHVR and COAG will continue the ongoing review of heavy vehicle
charging and infrastructure investment. Councils expect this review to deliver an
improved charging regime which can lead to better investments in the local road
network, supporting greater productivity through improved access for heavy vehicles
and to support related supply chains (Victoria, the Freight State, p47).
5.2.2 Rail freight
According to the 2011 Victorian Competition and Efficiency Commission (VCEC)
report Victoria’s productivity, competitiveness and participation (VCEC 2011), rail
freight struggles to compete with road for containerised loads. This is because the
distances are too short to overcome the cost disadvantages of double handling.
Requirements for rail freight to become more cost competitive include: longer
distances, such as interstate trips; where bulk commodities are being transported;
and where double handling costs are minimised because the origin and/or
destination are configured for rail (p59).
Page 14 of 32
VCEC (2011) cited a lack of planning and infrastructure underfunding of the rail
freight network as the cause of bottlenecks and impeded private sector investment
(p61). The lease of the rail freight network to Pacific National in the 1990s is seen as
a cause of the network’s degradation. During the Pacific National lease, underinvestment in rail infrastructure resulted in reduced track quality, lower travel speeds
and a reduction in service levels. Following its commitment in the 2006 election, the
former Victorian Government repurchased the lease for the rail freight network and
set about rectifying these concerns. VCEC (2011) further observed that “recent public
sector spending on infrastructure is seen as largely catching-up on past underspend,
rather than positioning for future growth” (p 61). Many councils have a strong interest
in growing the amount of freight that is moved on rail, in order to lessen the growth in
road-based freight, which increases congestion, particularly around ports and to
reduce the impacts on local government-managed roads.
5.2.3 Congestion
Earlier discussion covered Victoria’s high proportion of car-based commuting trips
and high level of road-based freight movement. An outcome of such high levels of
road-based transport is traffic congestion. Traffic congestion is associated with loss
of amenity, increasing travel times and environmental damage, all of which reduce
liveability of cities and the productivity of the economy. The perceived impact of traffic
congestion on businesses and individuals is very large, and was discussed
extensively in the 2008 Freight Futures strategy. However, previous studies into the
issue have encountered difficulties in obtaining robust data and modelling the
economic impacts of congestion (VCEC Business costs of traffic congestion 2006).
In 2007, the Bureau of Transport and Regional Economics (BITRE) used aggregate
transport and road space data to estimate the cost of congestion in Australian capital
cities (BITRE: Estimating urban traffic and congestion cost trends for Australian
cities, 2007). In summary:
“BITRE estimates of the ‘avoidable’ cost of congestion (i.e. where the benefits
to road users of some travel in congested conditions are less than the costs
imposed on other road users and the wider community) for the Australian
capitals (using an aggregate modelling approach) total approximately $9.4
billion for 2005. This total is comprised of $3.5 billion in private time costs,
$3.6 billion in business time costs, $1.2 billion in extra vehicle operating costs,
and $1.1 billion in extra air pollution costs.” (p XV)
BITRE note that the complexity of congestion issues limits the accuracy of the
‘aggregate’ approach. As such, the BITRE results are “provided as ‘order of
magnitude’ evaluations” (p 2). Furthermore, that considerable cost and effort would
be required to conduct a more detailed ‘network’ model on the same scale.
The Victorian Auditor General conducted a review of congestion management
strategies which was released in 2013 (Managing Traffic Congestion). The report did
not seek to identify the true cost of congestion, rather it aimed to evaluate the
effectiveness of congestion management strategies. The report concluded that
Victorian historical approach to managing congestion focused on supply-side
initiatives to boost capacity and recommended a greater focus on “demand
management alternatives”, including “explicit mode shift strategies”.
Page 15 of 32
Despite difficulties in its precise measurement – trends in car use, population growth
and the freight task are such that the costs of traffic congestion in Victoria are likely
to grow substantially in the future.
5.3
Climate change and pollution
Summary

In 2005, fuel use in transport contributed 14 per cent of Australia’s
greenhouse gas emissions.

Research indicates that: (1) more efficient vehicles; (2) reduction in travel
demand; (3) increased vehicle occupancy; and (4) reduced private transport
use, offer the best opportunity to reduce emissions.

Australian deaths linked to pollution and air quality exceed the national road
toll (National Transport Commission).
Since transport services link manufacturers to markets and enable individuals to
access employment, goods, services and social opportunities, emissions from
transport are predicted to increase in line with growth in the population and freight
task. According to recent Australian National Greenhouse Accounts, fuel use in
transport accounted for 16 per cent of Australia’s emissions in 2011.
The level of transport emissions is a function of the Australian reliance on car use for
personal travel and truck use for freight:
“Passenger transport in Australia is dominated by private car use. Around 80
per cent of adults used a private car to commute to work in 2006. Emissions
from cars account for 54 per cent of Australia’s total… Trucks and light
commercial vehicles account for 31 per cent of Australia’s transport
emissions, and emissions from these modes are projected to increase by 112
per cent between 1990 and 2020, outpacing the growth in emissions from
passenger vehicles.” (Garnaut Issues Paper, pp 3-4)
Figure 7: Capital cities motorised mode share of travel (National Transport
Commission, Exploring the opportunities for reform: discussion paper, p 10)
Page 16 of 32
A 2007 investigation into the potential for reductions in Victoria’s emissions (NOUS
and SKM, Understanding the Potential to Reduce Victoria’s Greenhouse Gas
Emissions) suggested that increasing demand for transport is inevitable in the
context of increasing population and economic growth. However, there are effective
opportunities to curb emissions growth, such as: more efficient vehicles, a reduction
in travel demand, increased vehicle occupancy and reduced private transport use (p
8).
The majority of air pollution in Australian urban centres is caused by passenger
vehicle emissions. Vehicle pollution including: particulates, nitrogen dioxide,
benzene, ozone and carbon monoxide can cause breathing difficulties, tiredness,
headaches, throat and lung complications, skin and eye irritations, and nausea
(National Transport Commission (NTC), Exploring the opportunities for reform:
discussion paper, p 22).
5.4
Transport disadvantage and social exclusion
Summary

Victorians can experience transport disadvantage due to: age, limited
physical mobility, financial constraints and post code-based inequality.

Much of rural Victoria is experiencing a ‘triple whammy of aging’ - a general
aging of the population, young people leaving and older people arriving to
retire.

Transport disadvantage can occur anywhere in Victoria, but is most prevalent
in Melbourne’s outer suburbs and regional areas.

Public transport has a central role in alleviating transport disadvantage.
Transport provides the means of access to employment, recreation, social
connection and services. Transport disadvantage refers to the social exclusion which
can result from a lack of access to transport due to limited physical mobility, or due to
the inadequacy of local transport infrastructure and services.
Figure 8: Average fuel use per vehicle in Melbourne by local government
area (data from 2009, source: National Transport Commission, Exploring
the opportunities for reform: discussion paper, p 20)
Page 17 of 32
5.4.1 Post code-based inequality and car dependency
According to the Victorian Council of Social Services:
“(t)ransport services and their supporting infrastructure do not merely have
economic consequences. Transport affects every aspect of a person’s life,
including their ability to stay healthy, be educated, find work, raise children,
age with dignity, and stay connected with family and friends. Transport,
therefore, is an essential service, whose benefits cannot be measured solely
by their contribution to economic activity. Transport directly impacts on the
ability of people to access opportunities and achieve goals in their lives, and
is a necessary element to being able to live a productive and meaningful life.
Poor access to transport makes people’s lives smaller” (VCOSS submission
to the NTC)
Melbourne’s early growth was
concentrated around public transport
infrastructure. However, as the car
became more dominant (see Figure
7), new suburbs were provided with
very little transport infrastructure other
than roads (see Figures 2 and 3). As
a result, residents of outer suburbs
continue to be overwhelmingly
dependent on cars as their dominant
form of transport (see Figure 8).
Figure 9: The VAMPIRE index
assessment of Melbourne, based on 2006
Census data (p 19).
Car dependency can adversely affect
both drivers and non-drivers in areas
where there are few non-car transport
options. Drivers tend to spend more
time travelling, have a higher
exposure to increasing oil prices and
the need to spend a higher proportion
of income on travel.
In an effort to understand the impact
of car dependency on drivers, Jago
Dodson and Neil Sipe created the
‘VAMPIRE’ index. The VAMPIRE
index (Vulnerability Assessment for
Mortgage, Petrol and Inflation Risks
and Expenditure) shows “household
vulnerability to socio-economic
stressors” associated with car
dependency (p 12). It is constructed
from four indicator variables which are
generated from Australian Bureau of
Statistics Census data, these are:
1.
2.
3.
4.
the proportion of those working who undertook a journey to work by car
the proportion of households with two or more cars
median weekly household income
the proportion of dwelling units that are being purchased (as opposed to rented).
Page 18 of 32
The VAMPIRE index assessment of Melbourne, based on 2006 Census data shows
that the further from the centre of the city a suburb is situated, the more likely it is to
fall into the higher vulnerability categories. This suggests a correlation between
reliance on car travel (ergo transport disadvantage) and economic disadvantage in
these areas.
A NSW Bureau of Transport Statistics identified that in 2008/09 only 51% of young
people aged 20-24, held a licence. This trend will have major implications for
mobility in areas with poor public transport services (Why are young people driving
less? Trends in licence-holding and travel behaviour, 2010).
People in the outer suburbs who do not drive are further disadvantaged by the lack of
transport options. In 2010, the Victorian Council of Social Service (VCOSS)
investigated the transport needs of young people in Melbourne’s urban fringe.
VCOSS concluded:
“The project confirmed that young people are major users of public transport
and rely on these services to access education, employment, entertainment
and other social activities. However, because public transport services are
relatively scarce and often intermittent on Melbourne’s fringe, young people
living in these areas are missing out on social, education and economic
opportunities.” (Mind the Gap, p 3)
5.4.2 Transport disadvantage in regional and rural areas
Regional and rural areas are highly car dependent. As a consequence of remoteness
and dispersed populations, in many areas public transport services are seen as
uneconomic. Some larger regional cities have limited public transport services,
usually buses. However, investment in non-road transport infrastructure and public
transport has not kept pace with population growth and regional city expansion.
Where public transport does exist, it tends to focus on achieving access to
Melbourne rather than providing connectivity to employment, servicing and recreation
within the region.
Community transport provides alternative transport options for some residents of
regional and rural areas. However, services usually only cater for specific groups
such as the elderly. Where taxis are available, they have historically been unable to
provide a flexible service due to government regulatory barriers. Councils look
forward to the implementation of the Victorian Taxi Inquiry reforms which should
provide for more flexible taxi services.
The low availability, or non-existence, of public transport in regional and rural areas is
reflected in the census results. The proportion of Australians outside capital cities
who travel to work or study via public transport is only 1.7 per cent, compared to 19.1
per cent of Australians living in capital cities (ABS, 2008).
There has been little thorough analysis of the extent of car dependency and its
impacts outside metropolitan areas. According to the Australian Institute of Family
Studies ‘The relationship between transport and disadvantage in Australia’ (2011), it
has typically been assumed that transport is not a significant problem because of
high levels of car ownership. However, patterns of vehicle ownership in regional and
rural areas infer that groups with low car ownership and use, including the young,
Page 19 of 32
indigenous, elderly and unemployed are likely to suffer significant transport
disadvantage.
5.4.3 Taxis
Taxis are a critical part of the public transport network for many people in outer
suburbs and regional areas, particularly those without full mobility. People who are
dependent on taxis can suffer disadvantaged due to reluctance from some drivers to
take short trip fares, the expense of fares and availability of taxis during peak times.
The existence of subsidies under the Multi-Purpose Taxi Program does not entirely
eliminate the financial disadvantage for those who regularly use taxis, or those who
travel longer distances.
In 2011, the State Government announced a major independent inquiry into the
Victorian taxi and hire car industry. The inquiry released its final report Customers
First: Service, Safety, Choice on 12 December 2012. When the State Government
has announced its response to the Inquiry, it supported almost all of the
recommendations. Key areas for reform include:
 Improving taxi services, particularly in regional, rural and outer metropolitan
areas where taxis are a critical part of the transport system with: more taxi
licenses, more flexible zoning, greater vehicle diversity and more services for
the disabled
 Allowing taxis to perform more flexible taxi/bus, fixed route, shared and hopon hop-off services
 Removing restrictions on councils’ ability to contract community transport
service delivery to taxis
 Improving accessible services.
The MAV looks forward to ongoing engagement during the implementation of these
recommendations, particularly in relation to the development of guidelines for the
operation of more flexible services, the better integration of taxi services with existing
community transport services.
5.4.4 Public transport accessibility
Whilst public transport has a central role in alleviating transport disadvantage, public
transport infrastructure and services must also be accessible to all potential users.
The accessibility of transport services is regulated under the Disability Discrimination
Act 1992 (DDA), which requires that various aspects of public transport services
meet the standards set by Disability Standards for Accessible Public Transport.
Although progress is being made towards DDA compliance, VCOSS identify the
problem of “focus[ing] on making isolated pieces of public transport infrastructure
compliant with accessibility standards, while often ignoring broader concepts of
accessibility” (VCOSS, Creating Accessible Journeys, p 4). VCOSS demonstrate that
fragmented implementation of DDA compliant pieces achieves a substantially lower
quantum of ‘accessible journeys’ than where the same number of compliant pieces
are concentrated in a particular area, such that “a system might be 50 per cent
compliant, but only 11 per cent of journeys on it might be accessible” (VCOSS,
Creating Accessible Journeys, p 18).
Bicycle access to public transport hubs (including the provision of secure parking
facilities) is also very important. Encouraging high rates of cycling to public transport
hubs has multiple benefits beyond health and well-being, including: increasing the
catchment size of public transport infrastructure, decreasing car parking
Page 20 of 32
requirements and decreasing congestion. Research indicates comparable travel time
between cars and bicycles over distances of 2-3 km from a train station.
5.4.5 Pedestrian accessibility
Accessible pedestrian infrastructure is critical to the broader public transport network.
It is necessary to prevent the ‘orphan bus stop’ phenomenon, where for example, a
wheelchair compliant bus stop is built without a wheelchair compliant access path.
Although pedestrian infrastructure is generally the responsibility of local government,
it is often funded or constructed by another agency, such as rail authorities, road
authorities, private developers and shopping centre managers. Coordination of
pedestrian infrastructure must also include a range of other agencies with
responsibility of the placement of obstacles on pedestrian paths, such as waiting
shelters, phone boxes, power poles, private merchandise or signage and post boxes.
VCOSS have identified a lack of co-operation and consistency between these
agencies in the implementation of DDA standards (VCOSS, Creating Accessible
Journeys p 38).
5.4.6 Community transport
Many councils and not-for-profit groups provide community transport services for
particular mobility- or geographically-disadvantaged groups. These services are
generally delivered on an ad hoc basis with very limited funding. In many areas, the
community transport sector provides the only access to education, health and other
recreational facilities.
The ongoing provision of community
transport is under pressure from
economic factors such as petrol price
rises; the lack of secure funding for the
purchase, maintenance and
accreditation of vehicles; insurance and
liability cover and the reliance on
volunteer drivers. However, the lack of
an enabling policy framework is likely to
be a greater barrier. Community
transport is generally seen as filling a
‘human services’ role. Thus it suffers
from disjointed funding and policy
priorities dictated by the Victorian
Government’s Health or Education
Departments, rather than benefiting
from integration into State’s transport
system.
Figure 10: Coverage of the school bus
network in Gippsland, Let’s GET
Connected (p 19).
Councils continue to be strong
advocates for greater use of school
buses for public transport. Research
conducted as a part of the Wellington
and East Gippsland Shires’ Transport
Connections program identified a large
proportion of rural 15-24 year olds
cannot get to tertiary education, job training, apprenticeships and employment due to
a lack of transport options (Gippsland, Let’s GET Connected p 19). In Gippsland, as
in many other areas, the school bus network is extensive and excess capacity on
Page 21 of 32
school buses could be used more effectively (see Figure 10). Despite many
successful trials, Victoria continues to lack a comprehensive program to utilise this
spare capacity.
5.4.7 Alleviating transport disadvantage
Improved provision of public transport is usually the most effective way for
government to address transport disadvantage and social exclusion issues.
According to the VCOSS (Creating Accessible Journeys p 9):
Public transport has a central role in providing access. While private forms of
transport such as the motor vehicle provide access, they rely on individuals to
provide large amounts of resources and time in order to purchase and
maintain vehicles, as well as high levels of biological movement and cognitive
function, and the capacity to learn the necessary skills to drive safely. Given
these barriers, private motor vehicles can never provide access for everyone.
Public transport, by contrast, has the potential to provide access at low cost
with few demands on travellers, making it more able to provide access to a
diverse range of people if managed effectively.
5.4.8 Housing Affordability
In outer suburbs poorly serviced by public transport, 95% of trips are by private car.
Families often have to cover the cost of running at least 2 motor cars to access jobs
and services. With annual vehicle costs at $10,000 per vehicle, covering high
transport costs based on car dependency, makes living in Melbourne’s urban fringe
and regional areas unaffordable for retirees and those on a low income.
The lack of viable public transport and other infrastructure to service these areas,
coupled with road congestion and higher fuel cost, has accelerated demand for inner
city and middle ring housing. The demand has escalated property prices in these
areas. This has made housing in areas well served by public transport unaffordable
for other than high income earners.
5.5
Health, liveability and safety
Summary

Transport policy decisions can have major consequences for Australians’
health.

Public transport users experience high levels of incidental exercise.

Active transport is an accessible form of exercise for some disadvantaged
groups.

Cycling has multiple benefits, including to: society, the environmental,
individual health and reduced congestion.
The lack of walkable and rideable urban environments and increased dependency on
car use are important factors in the increasingly sedentary nature of Australian
lifestyles. Obesity, diabetes and other lifestyle-related health problems are a growing
concern in Australia, with poor diet and insufficient exercise significant determinants.
Disadvantaged people (categorised by the ABS as those with low income, low
educational attainment, high unemployment and jobs in relatively unskilled
occupations) are nearly twice as likely to be sedentary (46.7 per cent) as people
living in the least disadvantaged areas (24.4 per cent) (ABS 2009, p32).
Page 22 of 32
5.5.1 Active transport
Research demonstrates that socio-economically advantaged population groups are
twice as likely as disadvantaged groups to participate in leisure-time physical activity
or sports, hence their lower likelihood of being sedentary. However, physical activity
through active travel is more equitably distributed. The ‘social gradient’ which affects
most other forms of exercise in Australia is absent in active transport. Since many
people cite ‘a lack of time to exercise’ as the main reason for being sedentary,
building physical activity into the routines of daily life makes regular physical activity
achievable for many people who don’t have the time, interest or money to participate
in organised sports, exercise or fitness programs (Vichealth, pp 2-3).
5.5.2 Exercise and public transport
Incidental exercise associated with public transport use is rarely considered in the
analysis of transport policy alternatives. However, transport decisions play an
important role in healthy living and encouraging exercise. Research by the Bus
Association of Victoria (BusVic), using the Victorian Integrated Survey of Travel and
Activity has found that Melbournians who use public transport are more likely to be
getting the recommended daily level of physical activity during their day. People who
used public transport on a particular day, also spent on average 41 minutes walking
and/or cycling as part of their travel. This is five times more physical activity than
those who only use private transport, who on average only spend 8 minutes walking
or cycling.
5.6
Cycling
The National Cycling Strategy (2011) and the Victorian Government’s Cycling into
the Future 2013-23, provide a thorough discussion of the many benefits of cycling for
transport and recreation. These include:






Societal benefits such as increased liveability and reduced traffic congestion
Environmental benefits such as decreased carbon emissions and improved
air quality
Health benefits from increasing physical activity
Saving time, compared to peak hour car travel (over distances of up to 5km)
Lower vehicle operating costs
Greater convenience and personal freedom.
Councils play an important role in encouraging cycling through their own cycling
strategies, by providing infrastructure such as shared paths and bike lanes on local
roads, local area cycling maps, signage, as well as parking and locking facilities.
Councils need greater support from the state government to improve cyclist safety,
establish priority cycling routes and promote more cycling, particularly among women
and the elderly.
5.7
Peak Oil
Summary

The International Energy Agency (IEA) believes that conventional crude oil
production peaked in 2006.

Fossil fuel dependent transport costs will increase.
Page 23 of 32
Peak oil describes the flattening out of global oil production and consequent oil price
rises which will occur as the growth in demand for oil exceeds the growth in supply.
Demand for freight and passenger transport is strongly correlated with rising
population and income (IEA, Transport, Energy and CO2, p 44). According to the
International Energy Agency’s 2010 report Transport Energy Efficiency:
The transport sector is a huge consumer of energy (accounting for 19% of
global final energy consumption in 2007) and will account for 97% of the
increase in world primary oil use between 2007 and 2030. The consequent
energy security and greenhouse gas emission implications of oil-dominated
road transportation mean that reducing the fuel used in this sector is one of
the highest priorities for all countries. (p 9)
As the Victorian population and economy grows, it is inevitable that demand for
transport will also grow. Unfortunately Victoria’s transport system, like to rest of the
world is heavily fossil fuel dependent. The continued dominance of truck and carbased modes for freight and passenger movement exposes the Victorian economy to
significant risk as the price of fuel increases.
There is a need for transport policies and infrastructure investment which decouple
economic growth and population growth from fossil fuel, and particularly oil
consumption.
5.8
Road Safety
Summary

Local government plays a critical role in road safety.

There is a higher risk associated with driving on local roads than arterial
roads.
Local government, as the owner and manager of 85% of the road network, plays a
critical role in road safety. Councils face two key challenges in reducing road safety
risks: rural local road issues and enforcement of existing road rules. In addition to
these, councils believe the broader health impacts of transport policies and
infrastructure investments, which promote greater private vehicle use, should be
integrated into decision-making frameworks.
5.8.1 Rural local roads issues
Research indicates that recent advances in safety on arterial roads have not been
matched on local roads. According to ARRB research, across Australia
approximately 40 per cent of all fatal crashes occur on local roads. Given the lower
traffic volumes experienced by local roads (approximately 37 per cent according to
ARRB), there is a 1.5 to 2 times higher risk associated with driving on local roads
than arterial roads. According to previous investigations into local road safety, there
are three significant challenges to improving these outcomes:
 Crash distribution – because the local government road network is extensive,
crashes tend not to cluster. As such, the identification of appropriate
treatment measures, such as engineering measures and enforcement is
difficult
Page 24 of 32


Data – councils’ ability to develop strategies to reduce crash risk on local
roads is hindered by a lack of accurate information about total local road use,
crash rates, the types of crashes that occur and causes of these crashes
Funding – funding for local government road safety is limited. Many councils
face significant challenges adequately funding road maintenance and are
reliant on Federal and State Government assistance.
5.8.2 Enforcement of road rules
The enforcement of existing road rules is an ongoing concern of local government.
Councils support the recent Victorian Government Speed Limit Review outcomes
which increase the flexibility for councils to set local area speed limits. Nevertheless,
councils believe the enforcement of speed limits continues to be arterial road-centric.
Councils would appreciate greater support from the Victorian Government to enforce
local road speed limits. Councils could play a greater role in enforcing speed limits on
local roads, as occurs in parts of Europe.
Councils commend the Victorian Government for recently increasing the fine for
‘dooring’2, which is a significant cause of cyclist injuries. However, road rules relating
to cyclist safety such as the fine for ‘dooring’, must also be effectively enforced.
Unfortunately, there are many instances of at-fault drivers not being held to account
for injuring or killing cyclists and pedestrians. Most conspicuously, this occurred in
the tragic death of James Cross on Glenferrie Road in 2010 (the Coroners Court
findings are published here). Cyclists and pedestrians are the most vulnerable road
users. Although punishment of illegal and unsafe activity by cyclists and pedestrians
is necessary, government policy must avoid ‘blaming the victim’. Best practice would
place the duty of care on car drivers to avoid collisions with cyclists and pedestrians.
5.8.3 Broader transport health impacts
Consideration of road safety issues should recognise the broader health benefits of
active travel and providing transport alternatives to private vehicles. Previous road
safety strategies have focusing on targeted safety programs and improved crash
protection, but ignored the additional crashes that result from policies which stimulate
more or faster vehicle travel, and the safety benefits of strategies that reduce overall
vehicle travel. Lower density, sprawled development tends to increase per capita
vehicle travel and traffic speeds which increase traffic casualty rates. Whereas
research suggests that more compact development results in a fifth the traffic fatality
rate as sprawled, automobile dependent suburbs.
Road safety strategies should also recognise the multiple safety benefits of
increasing active travel and modal shift. In addition to the health and environmental
benefits, research shows that the most effective way to increase the safety of
pedestrians and cyclists is to increase the amount of walking and cycling. This
causes per capita and distance-based traffic casualty rates to decline, an effect
called ‘safety in numbers’.
6 Strategic transport objectives
The following seven strategic transport objectives reflect the local government
sector’s desire for a long-term integrated and collaborative approach to transport
planning with an emphasis on accessibility, efficiency, equity, fiscal responsibility and
2
When a motorist opens a car door into the path of a cyclists, causing an accident.
Page 25 of 32
minimising environmental impacts. These objectives have been articulated by
councils through formal MAV consultation, including MAV State Council, regional
strategic meetings and the MAV strategic work plan.
6.1
Integrated long-term planning – Local government requires long-term
transport planning at the local, state and national levels.
The local government perspective3:
 Existing Victorian Government transport plans are insufficiently funded and
insufficiently integrated with the delivery of other Government services.
 The Transport Integration Act 2010 provides a framework for integrated
planning of the transport network. All transport bodies, including local
governments, Government Departments and Ministers must have regard to
the transport system objectives and decision making principles set out in the
Act in exercising their powers under any transport legislation. These
objectives include social and economic inclusion, economic prosperity,
environmental sustainability, integration of transport and land use, efficiency
co-ordination and reliability, and safety and health and wellbeing. The
decision making principles stipulated to be applied are the principle of
integrated decision making, principle of triple bottom line assessment,
principle of equity including intergenerational equity, the principle of transport
system user perspective, the precautionary principle, principle of stakeholder
engagement and community participation, and principle of transparency.
 Although the legislation provides for integrated transport planning, there is
failure to deliver truly integrated transport and land use planning, including:
o improved access to housing, jobs and services by walking, cycling and
public transport
o greater choices of transport modes and reducing car dependence
o reduced total number of trips and reduced distances travelled
o safe, walkable neighbourhoods and places, which are accessible for
those with prams and mobility aids
o supporting the efficient operation of public transport services
o providing for the efficient movement of freight.
 Councils have a statutory responsibility to prepare plans for the delivery of
council infrastructure, community services, land use and development. These
plans would be improved if there was more clarity of State Government
transport planning and better communication with local government.
Local government actions:
 Councils apply the principle of Transport Orientated Development, through
their land use planning and strategic planning processes as stated in the
Planning and Environment Act, and have regard to the transport system
objectives and principles in the Transport Integration Act.
 Councils advocate for improved transport infrastructure planning, including
via: the Western Transport Alliance, the Metropolitan Transport Forum, the
Green Triangle Councils and the Eastern Transport Coalition.
Local government recommendations:
3
The MAV on behalf of councils made a comprehensive submission to the metropolitan
strategy discussion paper, Melbourne – Let’s talk about the future. The submission, available
here provides further rationale for an integrated long-term land use planning and
infrastructure strategy.
Page 26 of 32




6.2
The Victorian Government must release a transport infrastructure plan (as
required by the Transport Integration Act 2010) with ongoing funding
committed to its delivery.
State Government transport plans must be integrated with other areas of its
service delivery, such as health, education and urban planning.
Infrastructure planning must consider the full costs and benefits of various
proposals, including induced traffic, congestion, pollution, accessibility and
health.
The Government must develop new funding models for long-term transport
infrastructure investment.
Economic efficiency – More efficient freight and passenger transport
systems throughout Victoria are critical to achieving a healthy and
thriving economy.
The local government perspective:
 An efficient freight transport system fosters competition between modes.
Victoria’s over-reliance on road freight exposes the economy to congestion
and oil price risks.
 Trucks are the dominant freight mode throughout Victoria. Victoria has an
effective arterial road network. However, investment in local roads has been
inadequate. Many rural local roads are subject to far higher freight volumes
than they were designed to accommodate. The impacts larger freight vehicles
have fall disproportionately on rural councils and these costs should be borne
by transport operators. Undercharging for road access undermines
investment in other freight modes, such as rail.
 In a period of fiscal tightening, it is critical that all government investments in
transport infrastructure and services compete for funding on a triple bottom
line basis.
 Congestion severely restricts traffic flow and the efficient movement of people
and freight. Private passenger vehicles are a significant source of congestion
which could be alleviated by greater investment in public transport.
 Transport policies and infrastructure investment needs to decouple economic
growth and population growth from fossil fuel, particularly oil consumption.
Local government actions:
 Councils can support the creation of an efficient commuter and freight
transport system through their statutory strategic planning powers. However,
this role is not a substitute for State and Federal Government leadership.
 Councils are participating in the COAG Road Reform Plan, to improve pricing
of rural freight routes.
 Councils are working with the NHVR to identify and provide access to local
road freight routes for heavy vehicles.
 Many councils are participating in the development of the Performance-Based
Standards (PBS) Framework. PBS matches heavy vehicles to roads, and
prioritises high-use local roads for increased maintenance and investment.
 Some councils have fostered industry partnerships to build intermodal freight
terminals.
Local government recommendations:
 As the total freight task grows, governments must increase the proportion of
freight moved by rail.
Page 27 of 32


6.3
An increase in rail capacity must accompany the planned expansion of both
the Port of Melbourne and the Port of Hastings.
A network of intermodal rail hubs linking ports with designated freight traffic
routes is required to improve the efficiency of rail/road transfer of goods.
Significantly increased and sustained transport infrastructure investment
– A massive investment in transport infrastructure is required to ensure
Victoria’s ongoing prosperity and liveability.
The local government perspective:
 There is currently no State-based planning process that identifies transport
infrastructure requirements on a regional scale and establishes a pathway for
their delivery.
 The Victorian Government policy announcements such as the Melbourne
Metro Strategy, Growing Freight on Rail, Victoria the Freight State, Transport
Solutions and Growth Corridor Plans echo many previous government
commitments such as integrated transport, fewer car dependent
developments, more efficient freight and so forth. The transport infrastructure
commitments within these policies and statements are rarely implemented.
 Unlike local government, the State Government does not have a statutory
requirement for structured asset management and maintenance. This has
been a causal factor in the deterioration of transport infrastructure, particularly
public transport.
 Although it is laudable, recent transport infrastructure investment is
insufficient relative to the growth in the economy and population. Hence the
statistical indicators do not show changing trends.
Local government actions:
 Councils have a statutory requirement to develop and implement five-year
forward plans for their capital and maintenance investment in civic
infrastructure, parks and gardens, recreation, community and early-years
facilities. This provides for transparent decision-making processes and builds
confidence about delivery.
Local government recommendations:
 The State Government must legislate to create a statutory obligation for a
funded, long term Victorian Infrastructure Plan to underpin the infrastructure
and business development needs of Victoria.
 Local government supports a significant increase in Victoria and Melbourne’s
heavy rail capacity, including the construction of the Melbourne Metro Rail
Tunnel, Airport Rail, Doncaster and Rowville Rail extensions and upgrade to
the Dandenong line.
 Councils recommend the creation of a dedicated and ongoing fund for
implementation of walking and cycling infrastructure.
6.4
Environment and climate change – Victoria requires environmentally
sustainable integrated transport networks that limit transport-related
greenhouse gas emissions (GHG) and improve the local environment.
The local government perspective:
 Passenger and freight transport must shift to cleaner and more efficient
modes. This will reduce greenhouse gas emissions, stormwater pollution and
associated waterway and bay degradation, air and noise pollution and
associated negative health implications.
Page 28 of 32


The state’s transport system must be capable of adapting to the impacts of
climate change and a carbon-constrained economy. A resilient transport
system must withstand increased flooding, wind damage, heat waves and sea
level rise.
The transport system must assist Victorians’ adjustment to a carbon
constrained economy and the effects of mitigation policies such as the carbon
price, which will increase fuel and electricity prices.
Local government actions:
 Councils have limited capacity to directly influence the state’s transport
system’s adaptation to climate change. However, many councils encourage
environmentally friendly work practices among staff and in council business.
Initiatives include sustainable travel initiatives, green travel plans for staff and
emission reduction projects.
 Councils develop business strategies which aim to provide employment and
commercial opportunities within their boundaries, thus reducing total travel
requirements.
 Encouraging new developments to install power charging points to support
the extension of electric vehicles and power assisted bicycles.
Local government recommendations:
 Actions which increase cycling, walking and public transport are the most
effective way to reduce transport-related carbon emissions and other forms of
pollution.
 Local government also supports policies that support alternative fuels and
their commercialisation, including the Electric Vehicle Trial. Since cars will
continue to be an essential form of transport for many Victorians,
advancements in vehicle technology offer an opportunity to reduce emissions
from that mode.
 However, the sector is aware that targeting of technological and regulatory
mechanisms alone will not solve Victoria’s substantial GHG challenge.
6.5
Modal shift – Future transport investments must move more people and
more freight while reducing the number of private and commercial
vehicles on Victorian roads.
The local government perspective:
 Modal shift has many benefits, including alleviating traffic congestion,
reducing reliance on fossil fuels, reducing transport-related carbon emissions
and other externalities.
 Metropolitan congestion cannot be resolved by additional road space.
Additional road construction is only ever a short-term solution to congestion.
This is due to the well-known phenomenon of induced traffic, whereby road
users switch modes and routes in response to the provision of extra road
space. As a result of the additional trips, the route soon becomes as
congested as before.
 There is a lack of connectivity between public transport modes.
 The lack of more secure and safe car parking at regional and rural stations is
a significant barrier to modal shift in some areas with relatively good access
to rail.
 Commuters on the cusp of zones 1 and 2 are dissuaded from using public
transport for short trips that cross the zone boundary.
Page 29 of 32

Many councils made a considerable and time consuming contribution to the
Victorian Government’s Bus Service Review. Yet, most recommendations of
the Bus Service Review have not been implemented.
Local government actions:
 Councils support cycling and walking through the construction, renewal and
maintenance of transport infrastructure, such as bike paths, pedestrian
facilities and local roads.
 Councils work with the Victorian Government to prioritise public transport
requirements by conducting research and data analysis under the auspice of
regional groupings, such as the Interface Councils Public Transport Working
Group.
 Some councils partner with property developers to encourage transport
oriented development, reduce the number of car spaces in new residential
developments and provide facilities for electric vehicles.
 Some councils have supported or implemented ride-share programs.
Local government recommendations:
 Councils have limited capacity to lead modal shift unilaterally. The actions
listed above can be leveraged to promote modal shift, but only in the
presence of reliable alternatives to private vehicles.
 The Victorian and Australian Governments must lead the process of modal
shift by providing alternatives to private vehicles by:
o Removing higher level policy settings which promote and subsidise
car use, for example: the fringe benefit tax on cars
o Providing greater connectivity between public transport services,
particularly in outer metropolitan, rural and regional areas – where
services are less frequent – in order to reduce journey times and
increase competitiveness of those modes
o Providing improved non-car access to train stations, for example bike
lockers and feeder buses
o Providing safer and more secure car parking options at regional and
rural train stations
o Mapping population growth around existing and improved services as
well as extending existing train lines and bus and tram routes beyond
the reach of Melbourne’s well-serviced inner suburbs
o Expanding public transport services outside Melbourne, independent
of Melbourne as the departure or arrival hub
o Improving amenity at train stations, tram and bus stops.
 Local government supports the reintroduction of a short-trip style ticket to
support the use of public transport by rural, interstate and overseas visitors.
 Melbourne’s public transport zones should be reformed to reduce the
disincentives associated with crossing the zone boundary on short rail and
bus trips.
6.6
Active transport including cycling and walking – cycling and walking are
distinct forms of transport with considerable benefits. Cycling and
walking must be encouraged with more, and better, infrastructure.
The local government perspective:
 Active transport modes, such as cycling and walking, are the most
environmentally sustainable forms of transport. For people with full mobility
that have a short to medium travel distance, cycling and walking are also the
most cost-effective transport options.
Page 30 of 32





Active travel is important to improve health and wellbeing (regular physical
activity helps to prevent chronic disease and obesity, and contributes to
mental health), and can be used throughout the lifespan from early childhood
to old age.
More road space should be allocated to cyclists and pedestrians to
accommodate the high volume of people using these modes and to ensure
the safe passage of all road users.
Many Victorian municipalities still lack basic walking infrastructure such as
pedestrian paths.
Reducing the speed of vehicles, particularly in residential streets and areas of
high pedestrian activity, increases actual and perceived safety for pedestrians
and cyclists.
Councils support the Victorian Auditor General recommendations that a
greater emphasis must be placed on “promoting cycling, educating potential
cyclists and reducing the incentives to use cars” (VAGO, 2011, pVII).
Local government actions:
 Councils support cycling and walking through the construction, renewal and
maintenance of bike paths, pedestrian facilities and local roads.
 Councils are advocating for the implementation of the Principal Bike Network.
 Many councils coordinate programs that encourage students to use active
travel methods to reach their schools.
 Many councils are developing Pedestrian Priority Networks according to the
State Government’s methodology.
 Many councils are reducing the speed limits on their local streets and in
activity centres.
 Many councils have implemented bicycle strategies and behaviour change
programs such as Travel Smart.
Local government recommendations:
 The Victorian Government should provide financial assistance for bike and
walking paths in areas where they do not exist and where cyclist or
pedestrian activity is high.
 Safe cycling on shared road space requires policy change, education and
infrastructure improvements. Local government would welcome the
opportunity to collaborate with the State to achieve change in these areas.
 The State and Australian Governments should quantify the financial benefits
of active transport in order to assess the case for greater funding in the future.
 The Victorian Government should increase funding to deliver the Principal
Bicycle Network and Principal Pedestrian Network across all municipalities.
 Since the ‘school run’ is a major trip generator, the Department of Education
and Early Childhood Development must work more closely with transport
agencies and councils to develop and promote alternatives to car travel.
 The State Government should promote the benefits of active travel to the
public.
6.7
Equity and access – Victoria should have a transport system which is
inclusive of people of all ages, mobility, economic attainment and regions
of the State.
The local government perspective:
 Large areas of Victoria have very poor access to transport other than private
vehicles.
Page 31 of 32




Those who cannot, or chose not to drive are disconnected from employment,
health and educational opportunities. Drivers pay a high price for their car
dependency.
In Melbourne, public transport infrastructure has not expanded in line with
population growth. In low density outer metropolitan areas, many
communities are reliant on private vehicles.
Access to all forms of public transport for people with disabilities remains
problematic.
Low population density and long travel distances are often cited as rendering
public transport services unviable in most rural areas. However the Transport
Connections program has had some success trialing public transport-like
services in regional and rural areas, including: seasonal or weekly services
instead of daily services, better access to school buses, demand-responsive
services and better coordinated community transport services.
Local government actions:
 Community transport services are provided by some councils. In many areas,
the community transport sector provides the only access to education, health
and other recreational facilities.
 Local government provides accessible infrastructure in many areas.
 Local government is frequently required to fill in the gaps between State
Government infrastructure (for example DDA compliant bus stops) and
missing footpaths along arterial roads.
 Some councils have initiated partnerships with the Government to
systematically upgrade all bus stops to be DDA compliant.
Local government recommendations:
 The creation of a transport system that is more inclusive and provides better
access is a Victorian Government responsibility. Some councils will contribute
through the continued provision of community transport services. However,
these services are under pressure from increasing operating costs, such as
fuel prices; the purchase, maintenance and accreditation of vehicles; and
insurance cover.
 In order to remain viable, the community transport sector needs to be better
integrated with the State Government transport network under a
comprehensive policy framework. Such a framework would support the role of
community transport in servicing local area needs across Victoria.
 The Victorian and Australian Governments should focus on ‘universal
compliance’, rather than minimum access requirements.
 Better integration of taxis into the public transport system is needed, including
removing current restrictions on taxis performing a bus-like role.
 Free weekend public transport for seniors should be extended to regional and
rural areas.
Page 32 of 32