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Connecting Queensland

Rail Network StrategyPolicy Guidelines for Queensland’s Rail Network

Published 2009

Photographs courtesy of Port of Brisbane Corporation Limited and QR Limited.

© The State of Queensland (The Department of Transport and Main Roads). Copyright protects this publication. Except for purposes permitted by the Copyright Act 1968, no part may be reproduced by any means without the prior written permission of the department.

Prepared by:Rail Ports and Freight Division Department of Transport and Main Roads

Department of Transport and Main Roads, Rail Network Strategy–Policy Guidelines for Queensland’s Rail Network, 2009.

1Department of Transport and Main Roads, Rail Network Strategy–Policy Guidelines for Queensland’s Rail Network, 2009.

It is critically important to plan, manage and oversee the delivery of a safe, efficient and integrated transport system that supports sound economic, social and environmental outcomes in Queensland. The rail network has a vital role in achieving those outcomes.

This update of the Rail Network Strategy refines the strategic policy framework for managing the rail network and informing planning and future investment. Importantly, the strategy places particular emphasis on enhancing the performance of rail in the context of an integrated transport system. Furthermore, it acknowledges the impact of rail infrastructure costs and hence the importance of maintaining rail infrastructure and achieving the optimum utilisation of existing network capacity.

The strategy is a dynamic document and will be updated on a regular basis, to reflect emergent changes that impact on rail and maintain its contemporary relevance.

David StewartDirector-GeneralDepartment of Transport and Main Roads

Introduction

Background

Purpose

Scope

The Rail Network Strategy (2001-2011) established the framework for managing the strategic development of the rail network in Queensland. The strategy has been effective in informing and guiding rail infrastructure policy and planning. It is appropriate to update the strategy in the context of changes in the strategic environment and to ensure its contemporary relevance.

This document, the Rail Network Strategy – Policy Guidelines for Queensland’s Rail Network updates the Rail Network Strategy (2001-2011) and reflects the response to changes since the publication of the original strategy. The revised Rail Network Strategy (the strategy) consolidates the achievements of the previous document. The strategy has a 2031 horizon to reflect the longer term nature and impact of rail planning and investment.

The strategy is intended as a guide for the ongoing management and future development of the rail network in Queensland to ensure that it supports rail operations necessary to meet the integrated transport needs of industry and the community.

Primarily, the purpose of the strategy is to:

• inform government transport policy

• support inter-governmental planning

• optimise benefits from investment in rail

• position the rail network to support future demand.

The strategy provides a high-level focus on ensuring a level of availability of strategic rail infrastructure rather than on rail operations on that infrastructure. Rail network investments and individual rail projects will be planned separately, but are intended to be guided by, and be consistent with, the strategy.

The strategy has an emphasis on higher-level policies for managing the rail network and informs the coordination of planning between government and rail managers.

Department of Transport and Main Roads, Rail Network Strategy–Policy Guidelines for Queensland’s Rail Network, 2009.2


The strategy reflects the four key principles that collectively guide the current management and future development of the rail network.

Safety The rail network in Queensland must be safe for operators, users and the public. Legislation, together with appropriate accountability mechanisms, must require and provide for safe practices on and near the state’s rail network. Safety is to be paramount in all aspects of network management and future network planning and individual rail projects.

The rail network is subject to a regulatory environment. government policy is that the network is to be open access, multi-user and be managed by an accredited railway manager. Other rail gauges and standards will be considered subject to demonstrated need, commercial justification and compliance with relevant technical standards.

Sections of the rail network may be sold to the private sector where a greater net benefit to industry and the community can be achieved and there are no compelling arguments for government to retain ownership.

Ecologically sustainable The development and performance of the rail network must be ecologically sustainable and consistent with national, state and local environmental policies. The rail network is to exploit the environmental advantages inherent in the energy efficiency of rail operations and support more environmentally sustainable transport outcomes, particularly the reduction of transport-related greenhouse gas emissions.

Financially responsible Rail investment decisions must be informed comprehensively to ensure that investments in the network are cost-effective, deliver the optimum net benefits to users, and be consistent with other priorities and the available funding envelope for transport network investment.

Supports government priorities Development of the rail network must complement and support government priorities. In particular, ‘Towards Q2, Tomorrow’s Queensland’ ambitions, including:• Strong economy: Queensland is Australia’s strongest economy with infrastructure that anticipates growth.• Green environment: Cut Queensland’s carbon footprint by one third with reduced car and electricity use.• Fair communities: Supporting safe and caring communities.The rail network supports these priorities by connecting the community, supporting the freight transport needs of industry, enhancing economic performance, and contributing to the preservation of the environment, community amenity and safety.

Key guiding principles

Other key drivers

Relationship to other transport policy and planning

The relationship of the Rail Network Strategy to the broader transport policy and planning environment is summarised below:

• Strategic policy is articulated in the Transport Coordination Plan (2008-2018) and the Queensland Transport Corporate Plan (2008-2012), with a primary focus on delivering transport system outcomes that support government objectives.

• Strategic policies inform separate high-level policies, plans and strategies that are developed through:

– Integrated transport system planning which focuses on whole-of-state, integrated, multi-modal transport planning and strategies for systems, networks and corridors to facilitate integration with land use. Integrated transport plans focus on delivering fully-integrated transport solutions to meet the transport task needs unique to state, regional, area and corridor requirements.

– Modal policy development focuses on modal strategies and operational policies to support the movement of people and freight. The Rail Network Strategy is a modal strategy focusing on the detailed requirements for an effective rail network. It informs the integration of rail into the transport system with other modes and provides a reference point to ensure consistency between the rail component of integrated regional transport plans and strategic planning for the broader rail network.

Transport planning is driven by many factors which vary significantly in their complexity, level of detail, impact, relative urgency, cost, intent and focus. These factors further inform planning that may be conducted on a geographic, modal, industry, freight or passenger task basis. Transport plans and strategies must collectively reflect a comprehensive integrated solution that delivers sustainable transport outcomes.

• Collectively, this policy and planning shapes investment strategy and program development. In turn, this informs the individual projects (geographic, modal, industry or task-oriented) necessary to ensure program delivery for transport.



Context for rail network planning

Role of rail in the transport system

Current issues and emerging challenges

Rail performs a critical role within the overall transport system in Queensland. Its major functions include the movement of passengers within South East Queensland and the strategic line haul movement of freight, particularly coal, heavy minerals and other bulk commodities. To a more limited but increasing extent, rail also supports the movement of passengers and general freight between regions and interstate.

The optimum performance of the rail system is driven by its connectivity with other modes of transport, and therefore the rail network must be planned and managed as a total integrated transport system.

The connectivity and integration of rail into the overall transport system is primarily through dedicated rail passenger and freight terminals. These terminals facilitate the efficient transfer between rail and:

• road - through walking, cycling, vehicle park & ride and bus interchange for passengers

• road - through intermodal terminals for general freight

• shipping - through terminal facilities at ports

• air - through the Airtrain terminal at the airport.

The strategy acknowledges a number of key strategic issues and emerging challenges that impact on the transport system, and hence the supporting rail network. Management and development of the rail network is to optimise its capacity to respond to those challenges and exploit opportunities to position it for the future.

The major issues and challenges include the following:

• Environmental factors: Increasing emphasis on environmental issues will continue to drive demand for more sustainable transport solutions.

• Population growth: Population growth will continue to drive a significant increase in travel demand and place further pressure on the capacity and performance of the existing transport system.

• Economic growth: Economic growth and associated business, commercial and industrial activity will drive significant growth in freight volumes in Queensland including international, inter-state, inter-regional and local freight.

• Congestion: Transport activity associated with population and economic growth may exceed the capacity and performance of the transport system, with consequent congestion limiting the network’s overall capacity and performance.

• Cost of infrastructure: The increasing cost of transport infrastructure means that not all infrastructure projects will be affordable, and planning must consider innovative solutions that maximise the use of existing infrastructure capacity. This will emphasise the importance of investing in the existing network to maintain it to a ‘fit for purpose’ standard.

• Safety and community amenity: Projected increases in the transport task will compound negative community perceptions of the consequent impact on safety and community amenity including noise, congestion and visual amenity. The relative merits of a modal shift towards rail are likely to be more widely acknowledged.

• Competitiveness of Queensland industry: Queensland industry faces increasing challenges to its relative competitiveness. Industry must be supported by a transport system that delivers higher standards of freight transport including availability, accessibility, cost and reliability.

Opportunities for rail

Cost of rail infrastructure

Emphasis on maintenance

To position rail for the future, the rail system must deliver improvements in performance, balanced with the high cost of investment in rail infrastructure. Optimum performance improvements are required for service availability, capacity, efficiency, cost, speed, reliability and safety as part of a fully integrated transport system.

• The rail network is designed and maintained to a ‘fit for purpose’ standard to avoid the cost premium associated with surplus or redundant capacity.

• The highest priority is to maintain the existing rail network to limit the potential for it to compound into a greater funding liability in the future.

• The next priority is to utilise the optimum capacity and performance of the existing rail network.

• Where these will not satisfy demand, new rail projects will be considered in the context of relative urgency and with priority to those that deliver the greatest net benefit to the broader transport system and the economy.

• The development of new rail infrastructure must be cost effective and affordable within limited available funds. This will drive an emphasis on achievable solutions rather than technically ideal, but unaffordable solutions.

In the context of funding limitations, the network is to be maintained to a ‘fit for purpose’ standard and be monitored through key performance indicators and base service levels. Maintenance funding is to prevent deterioration of the network and limit the potential for this to become a compounding funding liability.

The increasingly high cost of new rail infrastructure means that not all rail projects will be affordable in the context of other competing demands for available government funding. Therefore, to get optimum benefits from the available funds:



Transport planning and projectsLegislation: Ongoing strategic management of the rail network is to comply with relevant legislative requirements including:• Transport Planning and Coordination Act 1994;• Transport Infrastructure Act 1994;• Government Owned Corporation Act 1993;• Integrated Planning Act 1997; and• Queensland Competition Authority Act 1997.

Current strategic planning guidance: Planning and management of the rail network is to be congruent with key government policies and plans such as those reflected in:• Toward Q2: Tomorrow’s Queensland;• South East Queensland Infrastructure Plan and Program; • Transport Coordination Plan;• Department of Transport and Main Roads Corporate Plan;• Coal Transport Infrastructure in Queensland; and• Other strategic policies and plans that may be issued subsequent to this strategy.

Supporting plans and strategies: A range of supporting plans and strategies further inform the development of the rail network including:• Integrated Regional Transport Plans; • Connecting SEQ 2031; • Coal Transport Infrastructure in Queensland; • TransLink Network Plan: South East Queensland; • South East Queensland Regional Freight Network Strategy 2007-2012;• Strategic planning developed by port and rail managers such as the Mount Isa System Rail Infrastructure

Master Plan.

Rail projects: A range of mode-specific plans, strategies and projects represent the basis for delivering rail infrastructure projects that are informed by, and consistent with, current planning guidance and strategies. Examples of current projects include: • Rail Assessment of Capacity Alternatives Study (RACAS);• Rail Services and Infrastructure Requirements Study (RSIRS);• Inner City Rail Capacity Study; • South East Queensland Intermodal Freight Terminal Study; • Mt Isa Line upgrades and coal line upgrades informed by relevant master plans; • Caboolture-Landsborough and Landsborough-Nambour additional rail projects; • Surat Basin Railway; • Inland Rail including Gowrie to Grandchester; • Southern Freight Rail Corridor Study; and • Future rail infrastructure projects.

Rail Network Strategy objectivesConsistent with strategic policy guidance and ensuring an effective response to the key issues and challenges, the strategy establishes seven objectives which define the requirements for managing the rail network and informing its future development within a total transport system environment. All future rail network planning and investment, including the development of individual projects, is to be consistent with achieving the following objectives.

Objective 1The rail network supports the optimum performance of the total transport system.

Objective 2The rail network supports the rail transport needs of the community.

• Rail network planning is to be undertaken in a total transport system context.

• Management of the rail network is to ensure connectivity with other infrastructure and services.

• Rail network planning is to emphasise the role of terminals as the conduit for that connectivity.

• The strategic rail network is to exploit opportunities for enhancing its interface with the national rail network.

• Management of the rail network is to be consistent with agreed national policies relating to accreditation, safety, access, competition policy, and any other guidelines that may be adopted.

• The capacity and performance of the metropolitan rail network must be developed to support the anticipated growth in passengers, and their expectations of minimum service levels.

• Rail will enhance the performance of the total passenger transport network by ensuring integration with other modes, including proximity to park and ride, and bus and ride facilities.

• The rail network must be safe for operators and users.

• The rail network is to provide for safe interfaces with other transport modes, particularly the rail aspects of safety at open level crossings.

• The development and operation of the rail network is to be consistent with broader community expectations of amenity, safety and improved environmental outcomes.

• Planning will provide for the separation of passenger and freight rail where this is feasible and cost effective.

• The network is to reflect the application of Customer Service Obligations particularly in rural, remote and disadvantaged communities.



Objective 3The rail network supports the rail transport needs of industry.

Objective 4Exploit opportunities for future growth.

• The rail network is to support industry’s supply chain requirements.

• The rail network will support a preferred solution for freight movement by pursuing a fully integrated transport system approach that recognises the global, national and regional nature of industry and trade, irrespective of regional or state boundaries.

• Rail is to enhance its accessibility for major concentrations of industrial and commercial activity.

• The rail network is to support optimum integration between modes through intermodal terminals and commodity-specific terminals.

• The rail network is to support cost-effective, reliable and sustainable access to rail services for freight.

• Management of the network is to include an ongoing process of consultation with other key infrastructure owners, transport operators and users, ports and industry.

• The rail network is to be positioned to support the diversion of contestable freight from road to rail.

• Rail is to be promoted as the mode of choice for supporting major new industrial and resource developments.

• Emerging bottlenecks and industry issues are to be identified through the ongoing process of industry consultation to inform planning and response options. Early intervention is preferred to reduce the potential for issues to compound and therefore complicate future response options.

• Planning and policies will seek to encourage the development of seamless, user-friendly access and infrastructure arrangements, including the removal of inconsistent regulations and procedures, and any other barriers to competition.

• Rail planning is to reflect a longer-term focus on positioning the network for the future, including ongoing promotion of the rail network as open access, multi-user infrastructure.

• Standard gauge for future projects will be considered as an option where it is appropriate, commercially-viable, and consistent with the broader requirements of connectivity, efficiency and performance.

• Enhance arrangements for integrating the interstate and intrastate rail network.

• Rail is to be considered as a key component of land use planning for industrial, commercial and residential developments.

• Planning is to identify future options for new rail corridors (including potential sharing of other infrastructure corridors) and develop strategies for timely preservation and/or acquisition.

• Rail planning is to identify options for exploiting the potential of future environmental strategies to enhance its attractiveness and competitiveness.

• Any potential advantages to the competitiveness of rail implicit in future carbon/emissions trading and ‘peak oil’ are to be exploited.

• Rail planning is to include a process of continuous review of technological developments to ensure the compatibility and/or adaptability of the rail network to accommodate or exploit those developments.

Objective 5Provide the framework for informing state investment in the rail network.

• The strategy is to inform whole-of-government planning and decision-making for future transport system development and investment.

• The rail network is to support transport solutions for industrial and community developments led by other government departments and agencies.

• The strategy is to inform regional transport studies and the development of integrated regional transport plans.

• Planning and options for future rail links are to be reflected in local and regional land use plans.

• The potential net benefits of rail infrastructure will be reflected in investment decisions on the state’s broader transport system.

• Rail network planning and investment will reflect a balance between commercial considerations and broader community service obligations.

• This strategy is intended to facilitate coordination between departments and agencies to assist industry proposals.

• Rail network investment must deliver the optimum transport outcomes from available funds and therefore requires:

– planning to be based on robust information and analysis;

– relative prioritisation of infrastructure solutions that balance urgency and importance; and

– coordination with broader transport system planning to ensure that rail projects are synchronised to deliver enhanced benefits.

• Government policy reflects the importance of maintaining the existing rail network in a ‘fit for purpose’ condition.

• Investment decisions to maintain sections or components of the network to a higher standard will be informed by a comprehensive evaluation of the relevant benefits and costs.

• A primary focus is to be on ensuring the optimum use of existing infrastructure capacity and performance where this is compatible with user needs.

• Investment in new rail infrastructure will be driven primarily by responses to growth and to mitigate the negative impact of emerging issues and challenges.

• Disused or unnecessary sections of the rail network should be closed if:

– there is no identifiable future rail use for the corridor;

– closure would deliver net savings in the cost of maintenance;

– communities support the closure; and

– savings can be diverted to deliver greater benefits to the community.



Objective 6Facilitate external investment in the rail network.

Objective 7Effective management of the rail network asset

• Rail network planning is to identify options and strategies for attracting Commonwealth and private sector investment in the rail network.

• The state will maintain close consultation arrangements with the Commonwealth to inform and attract Commonwealth investment in rail in Queensland.

• The state will support and contribute to Commonwealth planning, studies and projects that deliver a benefit to Queensland.

• Rail network planning will identify and encourage opportunities for greater private sector investment in the rail network.

• The state will continue to facilitate private sector proposals for rail development, including investment in new rail projects, where they are consistent with the broader strategic rail and transport network.

• The capacity and performance of the rail network is to support the requirements of rail operators.

• The rail network asset is to be maintained to a ‘fit for purpose’ standard by accredited rail managers.

• The Department of Transport and Main Roads is to manage all rail corridor land including corridor land not in current use and identified future rail corridors.

• The government may fund the cost of maintaining any non-commercial sections of the rail network through Community Service Obligations such as the Transport Service Contract (Rail Infrastructure).

• For future rail corridors, land acquisition for transport purposes is to be undertaken by the state as specified in the Acquisition of Land Act 1967.

• Corridor land issues are to be managed through application of the Integrated Planning Act 1997 (IPA).

Future strategic developments

Integration into the National Strategic Network

Rail infrastructure solutions to deliver the capacity and performance should balance current and longer-term needs to ensure that the development of the network is consistent with positioning the network for the future. Therefore this strategy emphasises the importance of synchronisation and coordination in a range of strategic transport and rail planning and development in Queensland. This will ensure that broader systemic rail network requirements are identified, analysed and fully considered for all potential rail developments.

Rail strategies and plans for current and future needs include those that are developed on a geographic (regional, area or corridor), freight task, transport task or integrated transport solution basis. Key examples of how specific planning needs are addressed while maintaining a broader network focus include:

• The rail modal strategy of Connecting SEQ2031, which defines the critical role of rail in the South East Queensland region’s future transport system, and provides a basis for ensuring rail policy and investments are optimised to support associated transport and land use strategies.

• Planning and development of commercial coal chains, such as the development of a new railway and associated infrastructure to link potential new coal mines in the Galilee Basin to the port of Abbott Point to support the export of coal.

• The Queensland Freight Strategy, which is being developed to provide a strategic framework to inform the development of integrated transport solutions to manage the growth in the freight task in Queensland. The Freight Strategy will place major emphasis on the role of rail as a critical element of future integrated transport solutions.

The strategy is also intended to inform Queensland’s contribution to the development of those components of Australia’s interstate rail network that impact directly, or indirectly, upon Queensland. Primarily, this is achieved through an ongoing process of consultation with the Commonwealth and other states and territories.

The Interstate Standard Gauge (ISG) line between Sydney and Acacia Ridge carries all interstate rail passengers and freight, with dual gauge connections to Roma Street and the Port of Brisbane. Improvements to the ISG will be a key focus of Commonwealth and Australian Rail Track Corporation investment for the foreseeable future. However, increasing demand on that line is driving investigation into an alternative interstate rail link.

The Commonwealth’s North South Rail Corridor Study concluded that a standard gauge railway between Melbourne and Brisbane will be required by 2019 to meet the predicted increases in the freight task. The subsequent Melbourne-Brisbane Inland Rail Alignment Study will identify an optimum alignment. If it proceeds, this strategic national project will fundamentally shape the future development of the rail network in Queensland, and the impact will not be limited to interstate rail. It will also determine the viability of:

• constructing a new rail line through the Toowoomba Range and Little Liverpool Range between Gowrie and Grandchester

• developing the Southern Freight Rail Corridor between Rosewood and Kagaru on the ISG

• expanding standard gauge rail in Queensland.

Collectively, these projects would deliver significant benefits to the performance of the rail network in Queensland, including by:

• reducing the capacity and operational constraints imposed by the current Toowoomba Range alignment

• bypassing the capacity-constrained metropolitan network through Ipswich

• supporting the development of future intermodal terminals, including at Kagaru/Bromelton, to ease pressure on Acacia Ridge.



Future reviewThe relevance and utility of this document is intended to be regularly reviewed in line with developments in multi-modal transport policy and planning.

Connecting Queensland

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