62 of 215 Ordinary Council Meeting - 26 May 2020 5.6. MACROSSAN STREET - STATE ROAD DESIGNATION REPORT AUTHOR Michael Kriedemann, Executive Manager Infrastructure MANAGER Mark Stoermer, Chief Executive Officer DEPARTMENT Infrastructure RECOMMENDATION That Council resolves to: 1. Support the concept of Council ownership of Macrossan Street - Port Douglas, between Wharf and Davidson Streets; 2. Delegates authority under section 257 of the Local Government Act 2009 to the Chief Executive Officer to negotiate and finalise the transfer of ownership of Macrossan Street with the Queensland Department of Transport & Main Roads. EXECUTIVE SUMMARY Macrossan Street, Port Douglas is a State Controlled Road and whenever Council plans improvements along the street it must seek approval from the Department of Transport and Main Roads approval (DTMR). At the Council Workshop held Tuesday 3 December 2019, Councillors discussed the idea of negotiating ownership of Macrossan Street with the Department of Transport & Main Roads. At this workshop, Councillors agreed that the Executive Manager Infrastructure was to discuss the idea with the DTMR corridor manager to gauge their appetite for relinquishing State Control of Macrossan Street. Some of the advantages to Council controlling Macrossan Street include: Council has final say on improvements; Council can close the road for events without seeking DTMR approval; The community see it as a Council road so this would enshrine this belief; Council can implement streetscape improvements such as ‘shared zones’, coloured pavements and textures, in accordance with contemporary standards, without seeking DTMR approval. BACKGROUND Section 24 of the Transport Infrastructure Act 1994 enables the Queensland Government to declare a road to be a State Controlled Road. Section 25 of the Transport Infrastructure Act 1994 states that “Before making or revoking a declaration under section 24, the Minister must be satisfied each local government that would, in the Minister’s opinion, be affected by the proposed declaration or revocation has been: (a) made aware of the proposed declaration or revocation; and (b) given a reasonable opportunity to make submissions to the Minister on the proposed declaration or revocation.
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62 of 215
Ordinary Council Meeting - 26 May 2020
5.6. MACROSSAN STREET - STATE ROAD DESIGNATION
REPORT AUTHOR Michael Kriedemann, Executive Manager Infrastructure
MANAGER Mark Stoermer, Chief Executive Officer
DEPARTMENT Infrastructure RECOMMENDATION
That Council resolves to:
1. Support the concept of Council ownership of Macrossan Street - Port Douglas, between Wharf and Davidson Streets;
2. Delegates authority under section 257 of the Local Government Act 2009 to the Chief Executive Officer to negotiate and finalise the transfer of ownership of Macrossan Street with the Queensland Department of Transport & Main Roads.
EXECUTIVE SUMMARY
Macrossan Street, Port Douglas is a State Controlled Road and whenever Council plans improvements along the street it must seek approval from the Department of Transport and Main Roads approval (DTMR).
At the Council Workshop held Tuesday 3 December 2019, Councillors discussed the idea of negotiating ownership of Macrossan Street with the Department of Transport & Main Roads. At this workshop, Councillors agreed that the Executive Manager Infrastructure was to discuss the idea with the DTMR corridor manager to gauge their appetite for relinquishing State Control of Macrossan Street.
Some of the advantages to Council controlling Macrossan Street include: Council has final say on improvements; Council can close the road for events without seeking DTMR approval; The community see it as a Council road so this would enshrine this belief; Council can implement streetscape improvements such as ‘shared zones’, coloured
pavements and textures, in accordance with contemporary standards, without seeking DTMR approval.
BACKGROUND
Section 24 of the Transport Infrastructure Act 1994 enables the Queensland Government to declare a road to be a State Controlled Road. Section 25 of the Transport Infrastructure Act 1994 states that “Before making or revoking a declaration under section 24, the Minister must be satisfied each local government that would, in the Minister’s opinion, be affected by the proposed declaration or revocation has been:
(a) made aware of the proposed declaration or revocation; and
(b) given a reasonable opportunity to make submissions to the Minister on the proposed declaration or revocation.
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Below is an extract from a map of the Far North District State Controlled road network (refer to attachment for the full map). Figure 1 below shows that Macrossan Street, between Davidson and Wharf Streets, is a State Controlled Road.
Figure 1: State controlled roads in Port Douglas
At the Council Workshop held Tuesday 3 December 2019, Councillors discussed the idea of negotiating ownership of Macrossan Street with the Department of Transport & Main Roads. At this workshop, Councillors agreed that the Executive Manager Infrastructure was to discuss the idea with the DTMR corridor manager to gauge their appetite for relinquishing State Control of Macrossan Street.
The Executive Manager Infrastructure met with DTMR to discuss this issue on Thursday 12 March 2020. The Manager Project Planning & Corridor Management from DTMR was responsive to the idea and indicated that to progress the discussion, Council should resolve to enter into negotiations.
COMMENT
DTMR are responsible for the effective and efficient movement of people and goods along State Controlled road corridors. State Controlled Road Corridors traverse Local Government areas and both levels of government must work together to achieve this aim. These objectives and responsibilities have been documented into a Cost Sharing Arrangement (MOU) between the Local Government Association of Queensland (LGAQ) and DTMR. This MOU has numerous examples of infrastructure management responsibilities assigned to Councils and DTMR.
For example, in Macrossan Street, Council is responsible for carparking, streetlighting, footpaths and streetscape embellishments. DTMR are responsible for the through lanes, intersection configurations, route lighting and have final say in approving Council works. This is illustrated in Figure 2 below.
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Figure 2. Example of cost sharing (similar to Macrossan Street)
An example of this demarcation occurred in 2016 when DTMR allocated funds to resurface the road with asphalt. DTMR were proposing to resurface the through traffic lanes and not complete the centre parking and kerbside parking areas. Council Officers negotiated for the entire road surface to be resurfaced and contributed Council funds towards the carparking areas. If the carparking areas were not resurfaced, there would have been stormwater pondings in the centre parking and trip hazards along the edgelines.
Many roads in Queensland have been declared State Controlled roads. In decades past, Councils were very small and not able to maintain many of the key transport routes through their shire. DTMR declared a number of routes across Queensland to support commerce and connect regions. It is likely that Port Douglas Road and Macrossan Street have been declared to support commerce (Sugar Wharf) in Port Douglas.
As Queensland towns and regions have developed, the need for some of the State Controlled road declarations has diminished. This is true for Macrossan Street. This street acts as a “high street” and is the main shopping street in the Port Douglas CBD. The through traffic function is limited in that it does not provide a connection across a region but is merely a ‘dead end road’ within the state road network.
Council maintains the assets outside the edge lines (at its own cost) and has a Road Maintenance Performance Contract (RMPC) with DTMR to maintain the through lanes.
Some of the advantages to Council controlling Macrossan Street include: Council has final say on improvements; Road recently resurfaced and in good condition; Council can close the road for events without seeking DTMR approval; The community see it as a Council road so this would enshrine this belief; Council can implement streetscape improvements such as ‘shared zones’, coloured
pavements and textures.
Some of the disadvantages to Council controlling Macrossan Street include: Council would have to account for the through lane asset value, including
depreciation; Council would be responsible for capital renewal of the through lanes.
Usually, Councils ask for some contribution towards future maintenance costs from DTMR in finalising the negotiation. In some cases this can be for resurfacing of the road traffic lanes or any other imminent maintenance. This will form part of the negotiations.
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Ordinary Council Meeting - 26 May 2020
PROPOSAL
That Council resolves to:
1. Support the concept of Council ownership of Macrossan Street - Port Douglas, between Wharf and Davidson Streets;
2. Delegates authority under section 257 of the Local Government Act 2009 to the Chief Executive Officer to negotiate and finalise the transfer of ownership of Macrossan Street with the Queensland Department of Transport & Main Roads.
FINANCIAL/RESOURCE IMPLICATIONS
The section of Macrossan Street, between Davidson Street and Wharf Street is about 660 metres long. DTMR maintain the 2 traffic lanes, which has a pavement area of 5,300m2.
Road asset management includes 3 components: wearing surface, pavement and formation. Based on the condition assessment of the 3 components, the written down value of the traffic lanes is $257,000, the replacement value is $334,000 and the annual depreciation is $7,000.
Currently, Council maintains the road under a RMPC contract with DTMR. Between January 2014 and June 2018 Council has spent, on average, $3,000 per year on road surface maintenance. All other maintenance costs are paid by Council, including
Drainage cleaning; Street sweeping; Footpath repairs; Vegetation management; Linemarking & signage; Streetscape embellishments etc.
Council Open Spaces and Civil Works crews already perform the maintenance functions within Macrossan Street. There would not be a human resource increase if Council was to take ownership of the street.
RISK MANAGEMENT IMPLICATIONS
The current arrangement does not provide Council will full control of its main shopping street in Port Douglas. Streetscape improvements proposed by Council are approved or rejected by DTMR. If Council was the owner of this street, it could implement streetscape improvements, close the street for community events and would have full control of its destiny.
SUSTAINABILITY IMPLICATIONS
Economic: It is acknowledged that ownership will include small increases in maintenance of the traffic lanes and additional depreciation. This increase is estimated to be in the order of $10,000 per year. The asphalt road surface will not require renewal for 15 years from when it was resurfaced (2016 – 2031).
Environmental: Nil
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Social: The majority of road users would assume it is a Council controlled road. Ownership will allow Council to manage the space as it sees fit, including community events, outdoor dining and public art improvements.
CORPORATE/OPERATIONAL PLAN, POLICY REFERENCE
This report has been prepared in accordance with the following:
Corporate Plan 2019-2024 Initiatives:
Theme 1 - Celebrating Our Communities
Douglas Shire Council embraces the diversity of our communities and values the contribution that all people make to the Shire. We recognise that it is a core strength of the region. We acknowledge our past so that it may guide us in the future. We recognise the wrongs done to our Indigenous community and we actively seek to reconcile so that we may all benefit from and enjoy our Shire. We acknowledge early European settlers who forged an agricultural base for our economy and we welcome all new arrivals as part of our broader community.
Goal 1 - We will celebrate the diversity of our community and ensure that all infrastructure, programs, and services are underpinned with inclusiveness and accessibility.
Theme 2 - Fostering Sustainable Economic Growth
A robust economy is at the heart of a thriving community and enables investment in environmental protection. While our remoteness is a key attribute, it also presents challenges for attracting new business and investment. We must also meet the challenges of fierce competition in the tourism sector. Council will partner with industry to build, diversify and promote the Douglas economy. Council will design and deliver infrastructure, strategies and services that support the local economy and businesses.
Goal 1 - We will build appropriate infrastructure and deliver services that connect and support businesses.
Theme 5 - Robust Governance and Efficient Service Delivery
Strong governance and financial management are the foundations of the way in which Council will conduct its business and implement the initiatives of the Corporate Plan.
Goal 1 - We will conduct Council business in an open and transparent manner with strong oversight and open reporting.
Goal 3 - We will make sound financial decisions by ensuring robust strategic planning, financial management and reporting.
COUNCIL’S ROLE
Council can play a number of different roles in certain circumstances and it is important to be clear about which role is appropriate for a specific purpose or circumstance. The implementation of actions will be a collective effort and Council’s involvement will vary from information only through to full responsibility for delivery.
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The following areas outline where Council has a clear responsibility to act:
Advocate Council makes representation on behalf of the community on important issues, funding opportunities, projects and programs. Council will use its influence to seek the best outcomes for the community.
Builder/Owner Council makes a significant investment every year in the infrastructure that underpins the Shire through its capital works program. Council will manage its assets with appropriate frameworks and deliver its projects through robust project management.
CONSULTATION
Internal: Internal consultation has been completed with: Coordinator Public Places; Coordinator Civil Operations.
External: Preliminary discussions have been undertaken with the DTMR Manager Project Planning & Corridor Management.
COMMUNITY ENGAGEMENT
No community engagement has been undertaken or is proposed for this work. Road users would assume that Council already has control / ownership of this area and this simply formalise these beliefs.
ATTACHMENTS
1. Map - far north district state controlled roads [5.6.1 - 2 pages]
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CAIRNS
Port Douglas
Gordonvale
Allingham
Cardwell
Napranum
Hope Vale
Halifax
Coen
Ravenshoe
El Arish
Mount Garnet
Dimbulah
Abergowrie
Laura
MountMolloy
Daintree
Gilbert River
Almaden
WolframMungana
Kidston
Einasleigh
Lakeland
Mount Surprise
Musgrave
Forsayth
Chillagoe
Petford
MountCarbine
Upper Stone
Valley ofLagoons
Stirling
Vanrook
Butcher`s Hill
Lyndhurst
Oak Park
Wrotham Park
Gamboola
Highbury
ShiptonsFlat
Dunbar
Conjuboy
The Lynd
New MapoonBamagaInjinoo
Umagico
LockhartRiver
Weipa
Pormpuraaw
Kowanyama
WujalWujal
Cooktown
Mareeba
Normanton
Croydon
Georgetown
Atherton
Innisfail
Tully
Ingham
Malanda
Yarrabah
Herberton
Mossman
Aurukun
Murray River
Edmonton
90D
90C
89B
98C
99A
34C
98D
99B
84A
92B
92A
6601
6 70 4
34B
34C
664
6141
92C
614
32D
6632
20A
99A
32A34
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10P
32C
642
10N
65 5
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89B
92A
92B
92C
98D
99A
99B
32D
32C
89B
89B
89B
89B
90D
90C
90C
90B
653
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90B
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CARRON
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RO
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Horn Island
Hinchinbrook Island
Hawkesbury Island
Flinders Island
Badu Island
Moa IslandSue Islet
Muralug Is
Cape Tribulation
Weipa
Por t L
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Quintell BeachPort Limit
Cape Flattery
Port Limit
CORAL
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AlbatrossBay
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Weymouth
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Lloyd
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Princess Charlotte
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Rockingham
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SHIRE COUNCIL
220
TORRES SHIRE COUNCIL
266
TORRES STRAIT ISLAND
REGIONAL COUNCIL
267
267
LOCKHART RIVER
ABORIGINAL SHIRE COUNCIL
238
MAPOON
ABORIGINAL SHIRE COUNCIL
243
AURUKUN
SHIRE COUNCIL
202
248
PORMPURAAW
ABORIGINAL
SHIRE COUNCIL
254
KOWANYAMA
ABORIGINAL
SHIRE COUNCIL
237
CARPENTARIA
SHIRE COUNCIL
215
HOPE VALE
ABORIGINAL
SHIRE COUNCIL
234
CAIRNS
REGIONAL COUNCIL
274
WUJAL WUJAL
ABORIGINAL SHIRE COUNCIL
272
CASSOWARY COAST
REGIONAL COUNCIL
216
273
HINCHINBROOKSHIRE COUNCIL
233
BURDEKIN
SHIRE COUNCIL
212FLINDERS SHIRE COUNCIL
227
CHARTERS TOWERS
REGIONAL COUNCIL
217
TABLELANDS
REGIONAL COUNCIL281
ETHERIDGE
SHIRE COUNCIL
226
CROYDON
SHIRE COUNCIL
221
RICHMOND
SHIRE COUNCIL
257
MCKINLAY
SHIRE COUNCIL
244
NAPRANUM
ABORIGINAL SHIRE COUNCIL
248
248202
248
248
NORTHERN PENINSULA AREA
REGIONAL COUNCIL
251
251
202
CARPENTARIA
SHIRE COUNCIL
(RIVER SECTION ONLY)
MAREEBA
SHIRE COUNCIL
277
DOUGLAS
SHIRE COUNCIL
275
Battlecamp Road
Lakefiel d
Road
Drumduff
Road
Rokeby
Road
Marina
Plai
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Road
HolroydRoad
Roa
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Kimba
Road
Pa l
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Roa
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Strathgordon Road
Northern Bypass R
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Portl
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Roa
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Aur
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Port
Stewart Road
Lilyva l e
Dixie
Road
Kowanyama
Road
Gam
boola
Road
Bulimba
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BlackdownRoad
Torwood
Road
Mt
MulliganRoad
Sundown
-Gingerella Road
Gu
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Tel eg raph
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Te legrap h
Roa d
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787
788
789
790
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685
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1093
1094
CAPE FLATTERY
SILICA MINE
ANDOOM BAUXITE
MINE
WEIPA BAUXITE
MINE
OOTANN
MOUNT
MOSS
MOUNT
CARBINE
NYCHUM PERLITE
SKARDON RIVER
MOUNT VETERAN
LAVA PLAINS
EDMONTON
BALCOOMA
148°0'E
148°0'E
146°0'E
146°0'E
144°0'E
144°0'E
142°0'E
142°0'E
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11°0
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CAIRNS
Smithfield
Craiglie
Port Douglas
Gordonvale
Wongaling Beach
Yungaburra
Kuranda
Mission Beach
Babinda
Wangan
Tinaroo
Oak Beach
Flying FishPoint
Cooya Beach
Millaa Millaa
Tolga
Ravenshoe
Bingil Bay
KurrimineEl Arish
Silkwood
Mourilyan
BramstonBeach
Newell
Mission BeachSouth
Glen Allyn
Meerawa
Walkamin
Mount Molloy
Daintree
Currajah
Kairi
Japoonvale
Palmerston Rocks
NeradaEtty Bay
Upper Daradgee
Daradgee
Miriwinni
Bellenden Ker
Kamma
EuramoHull Heads
MourilyanHarbour
Tully RiverStation
Topaz
Edmonton
Yorkeys Knob
Mossman
Mareeba
Yarrabah
Atherton
Malanda
Innisfail
Tully
Herberton
Murrigal
Tully Heads
Wonga Beach
Upper Murray
687
99
41
248
234
226
225
160
40
968
997
1088
1091
1089
6204
8202
641
643
643
8204
665
664
6431
32B
8108
8101
8108
8106
21A
641
20A
6272
646
6274
809
21A
647
645
32A
32B
21A
34A
6404
627
34B
653
626
6472
10P
20A
644
663
32C
6605
642
809 810
649
10N
6504
655
32 B
662
6425
664
647
645
8206
655
653
20A
34A
1 0P
10P
642
814
8101
32B
32B
6632
20A
32A
647
10P
1 0P
10P
32B
642
10P
32B
8202
10N
21A
1 0N
642
(unconstructed)
627
628
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KEN
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HIG
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B
RUCE
HIG
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PALMERSTONHIG
HWAY
KENNEDYHIG HWAY
Koombooloomba Dam
Tinaroo Falls Dam
TULLY
RIVER
MU
LGR
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RIV
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Gra
nite
Creek
CLO
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RIVER
MIT
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RIV
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Butchers
Cre
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Da
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RUSSELL
RIVER
Nit c
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Cr e
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Dow
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BA
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RIV
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BARRON
RIVER
WILD
RIV
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Rifle
Creek
BEATRICE RIVER
DIRRANRIVER
Emerald
Creek
Coc ha
b ieC
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Tooh
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DAINTREERIVER
Flaggy
Creek
South
Liverpool
Cre
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LITT
LE
MU
LG
RA
VE
RIVER
SOUTH
JOHNSTONE
RIVER
JOHN
STON
E
RIV
ER
TheMillstream
Creek
MOSSMA N
RI VE R
LITTLE
MITCHELL
RIVER
Wondecla
Ck
M
ULGR
AVE
RIVER
MULLIGA
N
HIGHW
AY
PACIFIC
Batt Reef
Arlington Reef
Trinity
Bay
The Great Barrier Reef
SOUTH
OCEAN
Cairns Port Limit
Mourilyan Port Limit
MurderingPoint
Dayman Point
Fitzroy Island
Cape Kimberley
Green Island
C
CCCC
CCCC
k
k
k
k
k
kk
k
k
C
k
k
ÊRoadTek
CCCC
Lake
Mitchell
Lake Morris
Lake Barrine
Lake Tinaroo
Lake Eacham
o
o
p
FSCR 667
FSCR629
FSCR 661
CAIRNS
REGIONAL COUNCIL
274
CASSOWARY COAST
REGIONAL COUNCIL
216
YARRABAH
ABORIGINAL SHIRE COUNCIL
273
TABLELANDS
REGIONAL COUNCIL
281
MAREEBA
SHIRE COUNCIL
277
DOUGLAS
SHIRE COUNCIL
275
KRMTÊRoadTek
ÊRoadTek
ÊRoadTek
Tul ly
Fal ls
Ro ad
K airi Road
Lake
Mo
r ris
Rd
Malone RoadTinaro
o
Creek Rd
Bl a ck Mounta in
Roa d
C
CCCC
CCCC
k
k
k
k
k
kk
k
k
C
k
k
ÊRoadTek
CCCC
REDLYNCH
EDMONTON
LAKE PLACID
ROAD
ROMAMAROOCHYDORE
NERANG
MACKAY
CAIRNS
BRISBANE
CLONCURRY
BUNDABERG
BARCALDINE
TOWNSVILLE
TOOWOOMBA
ROCKHAMPTON
FAR NORTHDISTRICT
Front
02/2019
669
669
Waiben Esplanade
Summers St
VictoriaPde
Lob
an
Rd
Douglas St
Ap lin Rd
Aubrey
Pd
e Thursday IslandM
Aplin Pass
El lis C
hann
el
Zagai IslandMabulag Island
Turnagain Island
Gabba Island
Saibai Island
Murray Islands
Stephens Island
Darnley Island
Bramble Cay
Boigu Island
Deliverance Island
Badu IslandCoconut Island
Anchor Cay
Moa Island
Yam Island
Rennel Island
Sue Islet
Yorke Islands
Halfway Island
Sassie Island
Maer Island
Dauan Island
PAPUA NEW GUINEA
CORAL
SEA
ARAFURA
SEA
p
p
p
TORRES
SHIRE COUNCIL
266
267
TORRES STRAIT ISLAND
REGIONAL COUNCIL
267267
267
267
267
267
267
266
267
by the seabed Jurisdiction Line
k
k
k
k
20 0 20 40 60 80 100
Km
TORRES STRAIT ISLANDS
0 20 40 60
Km
0 4 8 12 16 20 24
Km
³CAIRNS REGION
NORTHERN DISTRICT
NO
RT
H W
ES
T D
IST
RIC
T
See inset for details
NORTH WEST DISTRICT
Transport and Main Roads
10N BRUCE HWY (Ingham - Innisfail) 647 CAIRNS WESTERN ARTERIAL ROAD
10P BRUCE HWY (Innisfail - Cairns) 649 ANDERSON STREET