Agenda of City Infrastructure Committee Meeting

Item No. 6.1

Agenda (Open Portion)

City Infrastructure Committee Meeting

Page 7

30/11/2016

REPORT TITLE: Campbell Street, Hobart - Request for Road Closure to Support Redevelopment of the Royal Hobart Hospital

REPORT PROVIDED BY: Manager Traffic Engineering

Director City Infrastructure

1. Report Purpose and Community Benefit

1.1. The purpose of this report is to advise the Committee of a request from John Holland Fairbrother Joint Venture (JHFJV) for a road closure in Campbell Street, Hobart, between Liverpool Street and Collins Street for two months during February and March 2017 for the purpose of undertaking the demolition of the Royal Hobart Hospital B Block to support the redevelopment at the site.

1.2. Although officers have the necessary delegation to determine this request, the matter is being referred to Committee because it is for a variation to an existing partial road closure that was approved by Council.

1.2.1. Council has already approved full road closure at this location for weekends.

1.3. The proposed road closure would be likely to have a significant impact on traffic congestion and would coincide with the commencement of the school and university year in February 2017.

1.4. It is understood that there is no opportunity for the applicant to schedule their work so that the road closure can occur sooner or be delayed until later.

1.5. This report recommends that approval for the proposed road closure not be granted.

1.6. Any future request for a full road closure at a different time would be considered on its merits.

2. Report Summary

2.1. Further to the in-principle approval provided by the Council on 12 October 2015, JHFJV is requesting a road closure in Campbell Street (between Liverpool Street and Collins Street) for two months during February and March 2017 to allow for the demolition of the Royal Hobart Hospital B Block to allow for the redevelopment at the site.

2.2. A Construction Traffic Impact Assessment (by GHD Pty Ltd, dated 3 September 2015) was received in relation to the previous request for full road closures and lane closures. The Construction Traffic Impact Assessment (TIA) highlighted the need for detailed planning for full road closures in Campbell Street (between Liverpool Street and Collins Street), and that closures would likely occur on weekends when traffic volumes are lower.

2.3. The current proposal to close Campbell Street for a two month period (except for bus, emergency vehicle and bicycle access) is outside of the recommendation of this TIA. An updated Construction Traffic Impact Assessment Report (dated 11 November 2016) has been provided to support this request.

2.4. Approval of the proposed road closure is not recommended for the following reasons:

2.4.1. The JHFJV assessment of traffic management states that the demolition works can occur safely within the current approval in principle traffic management, providing the minimum protection provisions necessary for structural demolition exclusion zones.

2.4.2. The timing of the closure during the February / March seasonal peak time of the year. Given the congestion issues that were experienced on the road network during February 2016, there is additional sensitivity around any significant road closures over the same period in 2017.

2.4.3. When contacted, Tasmania Police indicated that there was a noticeable increase in crashes reported on the Railway Roundabout during the September 2016 road closure and were concerned about the timing (stated as “quite possibly the worst time”).

2.4.4. The proposed road closure would delay and inconvenience the travelling public. There is a significant risk that the ongoing closure at this busy time of the year would have substantial impacts on the public.

2.5. In preparing this report, officers have contacted Metro Tasmania, Tasmania Police, Ambulance Tasmania, Tasmania Fire Service and the Department of State Growth.

2.6. The Department of State Growth has advised that the assessment of this application is a matter for the Council.

2.7. The letter from the Project Director is an acknowledgement of the contractor’s desire to vary the previously agreed traffic management arrangements.

3. Recommendation

That the request by the John Holland Fairbrother Joint Venture for a road closure in Campbell Street, Hobart, between Liverpool Street and Collins Street during February and March 2017 not be approved.

4. Background

4.1. On 24 September 2012, the Council issued a Planning Permit (PLN‑12‑00698) for the development of the new Royal Hobart Hospital (RHH) K Block on Campbell Street. On 9 June 2015, the Council approved a temporary building over the Liverpool Street forecourt of the Royal Hobart Hospital (PLN-15-00460) to allow for the decanting of services from B Block to allow for demolition of that building. The most recent decision was made by the Council at its meeting on 7 September 2015 and approved the provision of a Helipad on K Block (PLN-15-00677).

4.2. The City Infrastructure Committee considered a report on the likely traffic impacts from these developments at its meeting of 23 September 2015. The subsequent resolution of Council from its 12 October 2015 meeting was:

“That:

1. Conditional in-principle approval be given for the developer of the Royal Hobart Hospital site to implement lane closures and road closures in accordance with the GHD Pty Ltd Construction Traffic Impact Assessment, marked as Attachment A to item 8 of the Open City Infrastructure Committee agenda of 23 September 2015, as follows:

(i) Lane closures (and possible road closures in Liverpool Street Campbell Street to Argyle Street) on extended weekends, from 9.00 am Fridays until 7.00 am Mondays, to allow for preparation works for the temporary building over the forecourt;

(ii) Full closure of Liverpool Street (Campbell Street to Argyle Street) for up to 7 consecutive days during the January 2016 school holidays (or the Easter 2016 school holidays if the project is delayed), to allow for lifting of prefabricated units for the temporary building over the forecourt. This approval would also cover a week-long full road closure for dismantling the temporary building in late 2018 or early 2019;

(iii) Occupation of the western footpath and approximately 6.5 metres of the roadway in Campbell Street (Liverpool Street to Collins Street) for construction of K Block, from 1 May 2016 until the works are complete (expected mid 2018);

(iv) Full closure of Campbell Street (Liverpool Street to Collins Street) from 7.00 pm on Fridays until 7.00 am on Mondays to allow for cranes and assembly space for large items (such as the hyperbaric chamber and helipad) within the new K Block.

2. These approvals be subject to the following conditions:

(i) Consultation and notification of the closures being undertaken with the occupiers of those properties directly affected by the proposed works;

(ii) Formal applications for traffic management permits and road closures being received, and detailed traffic management plans being submitted, to the satisfaction of the Director City Infrastructure;

(iii) Access for emergency vehicles being provided at all times.

3. The General Manager be authorised to modify and/or withdraw the approval outlined in Clause 1 if the road closures result in safety concerns or unreasonable congestion.

4. The developer be advised of the Council’s decision and that additional information regarding mitigation of traffic congestion will be necessary in order to modify the approved road closure times.”

4.3. Prior to the commencement of the demolition works, there was a need to upgrade TasWater, TasGas and TasNetworks services to the development site. The Council (at its meeting of 5 September 2016) approved a three week road closure of Campbell Street between 25 September and 16 October 2016 to allow these works to occur.

4.4. An application was received from the John Holland Fairbrother Joint Venture (JHFJV) on 27 October 2016 requesting a permit to implement two month road closure in Campbell Street (between Liverpool Street and Collins Street) to facilitate the safe demolition of B Block. A request to change the dates of the road closure was received by email on 15 November 2016. The email requesting the change of dates is included as Attachment A.

4.5. The application was accompanied by a letter from the Project Director, Mr Ben Maloney acknowledging the request to alter the approved traffic management arrangements in Liverpool Street to deliver the Royal Hobart Hospital Reconstruction project. A copy of this letter is included as Attachment B.

4.6. The requested closure of Campbell Street (between Liverpool Street and Collins Street) is outside the previous in-principle approval for works in Campbell Street. However, the proposed traffic management arrangement is similar to the three week closure that happened in September and October 2016.

4.7. JHFJV has proposed that the closure of Campbell Street (between Bathurst Street and Collins Street) be undertaken on a full time basis for six weeks from Saturday 28 January to Saturday 11 March 2017. It should be noted that students return to government schools on Wednesday 8 February 2017 and the UTAS semester commences on Monday 27 February 2017.

4.8. Information has been provided by JHFJV detailing their construction methodology and the need to close Campbell Street to support the safe demolition of B Block. This documentation is included as Attachment C.

Congestion Summit

4.9. During February 2016, there were periods of heavy congestion noted in the Hobart road network. The Hobart Congestion Traffic Analysis - 2016 Report indicated:

“That congestion appeared to be more pronounced during the evening peak period and resulted in the following impacts:

- Slow moving traffic on the Tasman Bridge, with regular stop/ start flow.

- Lengthy queues on most roads connecting to the Macquarie Street/ Davey Street Couplet. This included lengthy queues on Southern Outlet, Barrack Street, Murray Street, Campbell Street, Sandy Bay Road, Molle Street/ Byron Street and Antill Street/ Regent Street.

Lengthy delays on all roads through the city, particularly along Macquarie Street and roads connecting to the Couplet. On two occasions, traffic was reported to be gridlocked on Sandy Bay Road and Regent Street near the University in Sandy Bay. Traffic was also effectively gridlocked in the city at this time.

Traffic demands on the network change seasonally as well as increasing progressively over time. Seasonal changes to traffic demands include school and school holiday traffic, as well as peak trading activity (such as Christmas and Easter).”

4.10. The report notes that:

“There is a measurable increase in traffic flow on school days compared to school holiday periods. This can range between a 10% to 20% increase in traffic flows, depending on the nature of the road. Generally, school related ‘spikes’ in traffic occur during the beginning of the school year and also during periods of inclement weather.

Similarly, the start of the University year results in higher levels of traffic on the main arterial roads near the Sandy Bay Campus. University traffic tends to be maximised at the beginning of the first semester and typically settles down throughout the year.”

4.11. The City of Hobart has been actively participating in the Minister’s Congestion Summit and working with the Department of State Growth through the Traffic Management Working Group to identify and understand the impact of various changes across the road network to manage (and where possible to minimise) traffic congestion.

4.12. Recent correspondence from the Department of State Growth’s Deputy Secretary, Mr Gary Swain, identifies a number of specific short term congestion actions. In particular, the letter requests that:

“The actions will need to be capable of being substantially commenced by January 2017, in advance of potential congestion issues in Hobart associated with the commencement of the school year in the context of a very significant program of construction that will have commenced or will be about to commence around Hobart by that time. These actions, which will represent a subset of our wider congestion approach, will aim to demonstrate material progress.”

4.13. A number of the identified congestion actions include the projects being progressed by Council officers, as resolved by Council at its meeting of 6 June 2016.

Construction Traffic Impacts

4.14. A Construction Traffic Impact Assessment Report (by GHD Pty Ltd, dated 11 November 2016) was received in relation to the proposed closure of Campbell Street during 2017. The Construction Traffic Impact Assessment (TIA) includes an assessment of the impact of the September / October 2016 road closure and identifies a number of further traffic management measures to address some of the issues experienced during that period. A copy of the TIA report is included as Attachment D.

4.15. The proposed road closure would delay and inconvenience the travelling public but there has been no traffic modelling undertaken that credibly shows what that impact will be. The result of the closure is the north/south route across the city being at capacity at peak times, leaving the network vulnerable when further inevitable incidents occur. There is a significant risk that the ongoing closure at this busy time of the year would have substantial impacts on the public.

5. Proposal and Implementation

5.1. Officers have advised the JHFJV that their application for a road closure (buses, emergency vehicles and bicycles excepted) during February and March 2017 will be recommended for refusal for the following reasons:

5.1.1. The JHFJV assessment of traffic management (included as Attachment C) states that the demolition works can occur safely within the current Approval in Principle traffic management – providing the minimum protection provisions necessary for structural demolition exclusion zones.

5.1.2. The timing of the closure during the seasonal peak time of the year. February is known for being a particularly busy period on the road network as a result of the return to school and university. Given the congestion issues that were experienced on the road network during February 2016, there is additional sensitivity around any significant road closures over the same period in 2017.

5.1.3. When contacted, Tasmania Police indicated that there was a noticeable increase in crashes reported on the Railway Roundabout during the September 2016 road closure and were concerned about the timing (stated as “quite possibly the worst time”). They were also fielding complaints during the previous closure regarding traffic congestion and the blocking of intersections.

5.1.4. The Department of State Growth has advised that the assessment of this application is a matter for the Council.

5.1.5. The letter from the Project Director (included as Attachment B) is an acknowledgement of the contractor’s desire to vary the previously agreed traffic management arrangements.

5.1.6. The proposed road closure would delay and inconvenience the travelling public. There has been no traffic modelling undertaken that credibly shows what that impact will be. The result of the closure is the north/south route across the city being at capacity at peak times, leaving the network vulnerable when further inevitable incidents occur. There is a significant risk that the ongoing closure at this busy time of the year would have substantial impacts on the public.

6. Strategic Planning and Policy Considerations

6.1. Goal 2 – Urban Management is relevant in considering this report, particularly:

6.1.1. Strategic objective 2.1 – A fully accessible and connected city environment.

6.1.2. Strategic objective 2.2.2 – Develop, manage and maintain the city's urban spaces and infrastructure.

7. Financial Implications

7.1. Funding Source and Impact on Current Year Operating Result

7.1.1. Not applicable.

8. Legal, Risk and Legislative Considerations

8.1. The General Manager and the Director City Infrastructure are delegated by the Council to issue permits for temporary road closures.

8.2. A Construction Traffic Impact Assessment for the proposed closure of Campbell Street has been submitted and highlights that the implementation of a road closures in Campbell Street will result in a number of risks, including traffic delays and queuing as well as impacts on the wider road network.

8.3. Congestion is a significant risk during February and March (which is the busy time of the year) and would have substantial and unacceptable impacts on the public. Hence the reason for recommending refusal of the application for a road closure in Campbell Street.

9. Social and Customer Considerations

9.1. The proposed closure of Campbell Street (between Liverpool Street and Collins Street) is considered to unacceptably impact on the level of convenience to the community.

9.2. Travel time delays can be calculated in terms of approximate cost to the community. The calculation includes the cost of time spent on transport, including waiting as well as actual travel. It also includes costs to consumers of personal (unpaid) time spent on travel, and costs to businesses of paid employee time spent in travel.

9.2.1. Rough calculations of weekday travel time costs for traffic on Campbell Street and weekday peak period travel time costs for Brooker Avenue suggest a cost in the order of $250,000 would be incurred by the public over the 6 week demolition period, if Campbell Street were to be closed.

10. Community and Stakeholder Engagement

10.1. Officers participated in meetings convened by JHFJV with Metro Tasmania, Tasmania Fire Service and Ambulance Tasmania. In preparing this report officers have contacted representatives from Tasmania Police and the Department of State Growth.

10.1.1. Metro Tasmania’s Service Planning Officer has advised that maintaining bus access past the worksite will ensure that Metro Tasmania does not need to detour the 120 buses that use Campbell Street during the weekday peak periods. Alternative bus stop arrangements have already been made to accommodate Eastern Shore drop-offs in Liverpool Street as a result of the current traffic management arrangements.

10.1.2. The Tasmania Fire Service and Ambulance Tasmania identified a number of small parking restrictions in Melville Street that would assist with their vehicles exiting onto Campbell Street. The maintenance of emergency vehicle access past the worksite provides significant benefits to the emergency services compared to travelling through general traffic.

10.1.3. The Department of State Growth has advised that this is a matter for the Council to consider.

10.1.4. When contacted, Tasmania Police indicated that there was a noticeable increase in crashes reported on the Railway Roundabout during your September 2016 road closure and were concerned about the timing (stated as “quite possibly the worst time”). They were also fielding complaints during the previous closure regarding traffic congestion and the blocking of intersections.

11. Delegation

11.1. Officers hold the necessary delegation in accordance with the Local Government (Highways) Act 1982 to make this decision however have referred the matter to Council for determination as the Council has previously approved a partial road closure at this location.

11.1.1. This matter is further to a report previously considered by theCouncil at their meeting of 12 October 2015 and 5 September 2016, where approval in-principle (subject to a number of conditions) was given to road closures associated with the Royal Hobart Hospital redevelopment.

As signatory to this report, I certify that, pursuant to Section 55(1) of the Local Government Act 1993, I hold no interest, as referred to in Section 49 of the Local Government Act 1993, in matters contained in this report.

Angela Moore

Manager Traffic Engineering

Mark Painter

Director City Infrastructure

Date: 25 November 2016

File Reference: F16/129675; R0388

Attachment a: Email Requesting Change to Dates for Road Closure ⇩

Attachment b: Letter from RHHR Project Director ⇩

Attachment c: JHFJV Assessment of Traffic Management ⇩

Attachment d: Construction Traffic Impact Assessment Report, GHD Pty Ltd, 11 November 2016 ⇩

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