INTEGRATED TRANSPORT PLANNING:

A QUEENSLAND EXPERIENCE

Louw, J.

Queensland Transport.

ABSTRACT

Transport plays a vital role in maintaining quality of life and enhancing attractiveness for industry
development and investment. Therefore, the transport system must be maintained effectively and
enhanced through an integrated planning approach. A suitable framework for such an approach
should combine long-term planning for land use, all modes of transport and the environment.

A framework for integrated transport planning consists of three key components:

! Outcomes that determines the desired transport system
! Principles to guide the development of transport system options, and
! A planning process that provides a systematic and consistent approach to transport planning.

Integrated transport planning has progressed from planning for outputs to planning for outcomes.
Outcomes are broad statements of the desired transport system. A number factors drive transport
system outcomes. Broadly, these can be classified as system drivers (eg land use, population
growth, societal values) and process drivers (eg legislation, plans and policies).

Principles are categorised under 'balance', 'integration' and 'partnerships'. Integrated transport
planning is about finding the right balance across a wide range of economic, environmental and
social factors to achieve the best overall outcomes. To consider the benefits, costs, risks and
opportunities in a balanced way requires an understanding of how these factors interact and
influence each other.

There are four key aspects to integration:

! integrating the transport system
! integrating transport and land use
! integrating transport and other planning
! integrating across levels of planning and jurisdictions.

Strong partnerships across governments, industry and the community are essential in integrated
transport planning. This allows planners to draw on a wide range of views, expertise and experience
to ensure the needs, priorities and values of stakeholders are met.

Planning to achieve the desired transport system requires a formal and systematic approach to
integrated transport planning that is both transparent and aligns with best practice. Not only should
the planning process provide actions and strategies but also it should involve an iterative process of
continuous improvement.

This paper discusses each of the above aspects of integrated transport planning and its application in
Queensland, Australia. It does not commit Queensland Transport to the views expressed within in
this paper.

Proceedings of the 22nd Southern African Transport Conference (SATC2003) 14 – 16th July 2003
ISBN Number: 0-958-46096-5 Pretoria, South Africa
Proceedings produced by: Document Transformation Technologies Conference Organised by: Conference Planners
1. INTRODUCTION

1.1 Background
Transport is fundamental to all Queenslanders. It plays a vital role in maintaining the quality of life
and enhancing attractiveness for industry, tourism development and investment. It brings people
together and connects people with goods, services and information. However, the transport system
has a number of negative impacts such as damage to the environment (eg pollution, energy
consumption, congestion) and human health (eg inactive lifestyle, accident victims, pollution).
Therefore, the transport system needs to be planned, developed, operated and used in a way that
maximises benefits while limiting damaging effects.

1.2 What is integrated transport planning?

Transport systems are complex and multi-dimensional with many parts that comprise the whole.
The objective of integrated transport planning is to find balance among these dimensions so that
planning and investment decisions contribute optimally to the economic, social, cultural and
physical potential of the transport system and society in general. Integration is a concern with the
whole, with common objectives and agreed desired outcomes. The different options, goals and
points of view must be integrated to identify realistic solutions to community problems.

1.3 New directions

Transport planning has evolved from its traffic functional origins to a more systematic approach. In
the past, transport plans typically predicted future transport demand based on past growth. Agencies
often planned in isolation with limited coordination and consultation with stakeholders and the
community.

Integrated transport planning is more than coordinated transport planning. It integrates multiple and
sometimes-conflicting objectives to reach more sustainable transport outcomes that contribute to
community, industry and government priorities.

The move towards integrated transport planning has involved a number of important shifts away
from traditional transport planning approaches:

From…. To….
Linking investment in transport to outputs Linking investment and infrastructure to outcomes
Meeting private vehicle travel demand Managing private vehicle travel demand and widening
travel choices
Planning the movement of cars and trucks Planning the movement of people and goods
Supplying new transport infrastructure Making best use of existing infrastructure
Making decisions to meet current needs Making decisions that also consider the needs of
tomorrow (sustainability)
Integrating across transport modes Integrating transport, land use and other planning
Accepting the negative impacts on Reducing the negative impacts on the environment
the environment

2. AN INTEGRATED TRANSPORT PLANNING FRAMEWORK

2.1 A Framework for integrated transport planning

The IIEC (1996) define integrated transport planning as "a process or framework that serves as a
guide to gathering information about transport and analysing it".
A framework for integrated transport planning consists of three main components:
! Outcomes that captures the prevailing needs and values of government, industry and the
community
! Guiding principles that provide guidance towards achieving the desired transport system
outcomes
! Planning process that provides conscious effort to make more informed decisions about
investment choices to meet the desired transport system outcomes within the context of the
guiding principles.

2.1.1 Transport system outcomes

There are a number of factors that drive the outcomes of a transport system. These include land use
types and density, population age and growth, industry growth, technological advances, community
values and behaviour, government priorities and the physical environment.

Outcomes are broad statements about what we want to achieve. Typical outcomes include:
! Achieving economic development
! Improved access and mobility
! Improved safety and security
! Reduced environmental impacts
! Improved liveability and community well being.

2.1.2 Guiding principles

Guiding principles provide agreed standards and approaches to be consistently applied to the
integrated transport planning process to achieve desired transport system outcomes.

Integrated transport planning is based on the concept of sustainability. Sustainable transport ‘is
achieved when the needs for access to people, services and goods are met without doing permanent
harm to global environments, damaging local environments, and reducing social equity’ (OECD,
1997).

There is a wide range of measures that need to be considered in pursuing sustainable transport. In
general terms, sustainable transport involves consideration of the following operating principles:
! Linking investment in transport infrastructure and services to economic, social and
environmental objectives
! Widening choices in transport mode
! Reducing vehicle travel demand by influencing user behaviour
! Making better use of transport infrastructure and services
! Integrating transport and land use in transport corridors
! Reducing the impact of traffic and transport on the environment
! Making decisions on transport and land use that create sustainable options for future
generations.

2.1.3 The integrated transport planning process

Current integrated transport plans differ markedly from those developed in the1960’s. According to
May (1991) the main differences can be identified as:
! The emphasis on a vision (outcomes), which provides a context for the development of the
transport system
! The appreciation that targets or constraints need to be identified from the outset
! The treatment of a wider range of influences such as land use and the use of multi criteria
evaluation methods
! The use of robust testing as a way of treating uncertainty.
Westerman (1998) proposed a new direction for integrated transport planning. He argued that in
view of the complex factors involved in integrated transport and land use planning and the trade-
offs involved, the planning process is of critical importance.

He suggested that
! Processes be holistic
! Stakeholders be involved in the process
! Process be applicable for all levels of planning
! Guidelines are developed to ensure good practice.

3. INTEGRATED TRANSPORT PLANNING IN QUEENSLAND

3.1 The key transport drivers in Queensland

Key transport drivers for Queensland include land use types and density, population age and
growth, industry growth, technological advances, community values and behaviour, government
priorities and the physical environment.

3.1.1 Land use

Across Queensland, household sizes are decreasing while the number of households is increasing.
In South East Queensland there will be increased density in inner urban areas while there will be
increased low density expansion in outer areas and regions.

3.1.2 Demographics
Queensland’s population will grow by more than 1.5 million in the period from 1996 to 2021.
Most of the population growth will be in South-East Queensland. As the majority of the population
growth will occur in suburban locations there will be an increasing number of jobs outside the
CBD. Queensland’s population is ageing at more than twice the rate it is growing. By the year 2031,
a quarter of Queensland’s population will be aged over sixty.

3.1.3 Industry
The highest contribution to Queensland's gross state product comes from primary products and
services such as tourism and education with a lower contribution from manufactured goods. Road
freight makes up almost 90% of freight movements and road based freight growth is expected to
continue. Road-based tourism represents nearly 80% of all tourist trips in Queensland.

3.1.4 Technology
Advances in technology are improving connections and enabling employees and their place of
employment, retail and consumer to be separated physically. In Queensland businesses will not
need to locate in or around commercial centres. New technology will provide better travel
information to allow people to make more informed decisions about their travel behaviour and
patterns.

3.1.5 Community
The transport disadvantaged have a lack of access to mainstream private vehicles and mainstream
public transport systems do not suit their needs. Part time jobs will increase which will result in
more people travelling outside of peak hour. In November 2000, 7% of employed adults in
Australia had an agreement with their employer to work from home on an ongoing basis.

3.1.6 Government
Strategies for managing broader impacts are often developed and adopted at the national level such
as the National Competition Policy, the National Strategy for Ecologically Sustainable
Development and the National Greenhouse Strategy. Transport system outcomes for Queensland
currently align with government priorities, policies, plans and strategies. Changes in the
government priorities could affect the transport system. In Queensland the Transport Planning and
Coordination Act 1994 sets a framework for strategic transport planing and nominates Queensland
Transport as the lead agency for coordinating transport planning in Queensland. The Integrated
Planing Act 1997 seeks to further improve integrated planning in Queensland to achieve
sustainability by ‘coordinating and integrating local, regional and state planning’.

3.1.7 Environment
Greenhouse gas emissions for the transport sector in Queensland represent 17% of the state’s total
greenhouse gas emissions. Queensland has a high rate of car ownership. Over half a million extra
vehicles would be registered in Queensland by 2011. Congestion costs in Brisbane are estimated to
rise from Aus$2.6 billion (R11.7 billion) per year in 1995 to Aus$9.3 billion (R41.9 billion) by
2015, almost a 260% increase. The state and local governments have a strong commitment to the
principles of ecologically sustainable development.

Table 1. Impact of Key Drivers on the Transport System.

Key Drivers Impacts on Transport System
Land use Dispersed and rural residential land uses increases distance travelled and hence
imposes a cost to both system user and provider. More dwellings will lead to
increased trip making independent of population levels.
Demographics An ageing population will result in increased off-peak travel and leisure travel.
More people will be accessing suburban shopping centres, recreation facilities
and hospitals rather than workplaces. An ageing population will mean an
increased demand for safe and accessible public transport. A declining
population in rural and regional areas will reduce feasibility of public transport
in these areas. It will also affect the planning of services and infrastructure.
Industry Short-distance, small-load freight services will increase in importance with the
changing nature of industry. Just-in-time regional freight and transport nodes
will play an increasingly important role. Increasing road based freight will
impact on the overall transport system through congestion, safety and the need
for improved infrastructure, with an increasing demand on rail. Road-based
tourism will increase demand for quality access.
Technology Intelligent transport systems can reduce travel demand and make more efficient
use of existing system capacity.
Community Changing work patterns present challenges for public transport. If public
transport options are inflexible, workers will use their private vehicles for work
transport. The increasing number of transport disadvantaged who do not have
access to the private motor vehicle either as passenger or driver will increase
the demand for alternative transport.
Government Government priorities value the environment and a better quality of life for
Queenslanders. A balanced approach will be required as funding for transport
will be limited.
Environment With increase traffic greenhouse emissions will continue to rise while habitat
destruction will continue with increased transport infrastructure requirements.

3.2 Key transport outcomes for Queensland

A key direction in integrated transport planning in Queensland is moving from planning for outputs
to planning for transport outcomes.
Key transport outcomes for Queensland include (Queensland Transport Strategic Plan 2001-2005):
! Supporting industry growth
! Improved access and mobility
! Improved safety
! Liveability and community well being
! Environmental responsibility.

These outcomes align with and support those sought by the Australian Transport Council (ATC).

3.2.1 Supporting industry growth

Transport contributes to industry growth by linking investment to industry objectives and
connecting people, goods and services. A seamless, coordinated and integrated cross-modal
transport system maintains and improve access to productive natural resources, industrial areas,
transport terminals such as airports and ports, freight handling facilities, tourist areas and major
centres. It also creates employment in the areas of infrastructure development and transport
services.

3.2.2 Improved access and mobility

The transport system provides fair access and mobility to communities across Queensland. It
provides for the movement of people and goods through a variety of travel and land use choices.
Widening travel choices is key to meeting community needs. Improved mobility and access also
implies an affordable, equitable and reliable transport system that incorporates continual
performance improvements benchmarked against the world’s best transport systems.

3.2.3 Improved safety

Several deaths and injuries occur on the transport system annually. Community health can be
improved by encouraging safer behaviour and by providing safer transport infrastructure and
services.

3.2.4 Liveability and community well-being

Queensland communities have a strong interest in improving residential amenity and creating a
sense of place. Regional and local transport systems should facilitate community amenity and
liveability. Maintaining a balanced relationship between the function of transport and land use
corridors is important to achieving this.

3.2.5 Environmental responsibility

A sustainable transport system should seek to meet the needs of current generations without
diminishing or limiting the rights of future generations while actively working to minimise the
adverse effects of transport on ecosystems and the environment. This implies minimising land
degradation, maintaining biodiversity, reduce emissions and conserving resources and cultural
heritage.

3.3 Principles for integrated transport planning in Queensland

Queensland's Integrated Planning Act of 1997 defines ecological sustainability as a balance that integrates:
! protection of ecological processes and natural systems at local, regional, state and wider levels;
! economic development; and
! maintenance of the cultural, economic, physical and social well-being of people and
communities

In order to achieve a sustainable transport system some key principles needs to be adhered to. These
principles can be broadly categorised as those relating to balance, integration and parterships.
 Table 2. Guiding Principles.
Balance – Support a healthy economy, society and environment for current and
future generations
Integration – Integrate the transport system
– Integrate transport and land use
– Integrate transport and other planning
– Integrate across levels of planning and jurisdictions
Partnership – Engage and develop effective partnerships across governments,
industry and the community

3.4 Improving the integrated transport planning process

3.4.1 Planning levels in Queensland
The integrated transport planning task in Queensland occurs at the following levels:
! statewide
! regional
! local
! route and site.

Statewide planning provides a comprehensive statewide multi-modal perspective to guide transport

investment across the state, all modes and agencies to achieve long term sustainable transport
outcomes. In Queensland, these include the Transport Coordination Plan 1994 and statewide
strategies such as Roads Connecting Queenslanders, Rail Network Strategy for Queensland,
Queensland Cycle Strategy and Road Use Management Strategy.

Regional planing identifies transport needs and guide transport investment within a region. It
includes planning for an entire region or sub-region, brining together transport and other regional
priorities. Integrated regional transport strategies are transport initiatives that are derived from
regional planning processes driven by the department of local government and Planning such as the
Central Queensland: A New Millennium and Whitsunday Hinterland and Mackay regional plans.

An integrated regional transport plan contains programs and actions within a defined regional area.
These plans normally align with integrated regional transport strategies. A number of these plans
have been developed or are under development in Queensland such as the Gladstone Integrated
Regional Transport Plan, Mackay Area Integrated Transport Plan and Capricornia Integrated
Regional Transport Plan.

Local plans outlines specific transport and land use responses for local areas. These plans are
developed by local governments and include actions to address local transport challenges and seek
to shape the local transport system to meet existing and future transport needs in a sustainable
manner.

Corridor planning focuses on a defined transport corridor and may be aimed a identifying the most
suitable mix of transport modes, corridor alignments and supporting actions. Project plans are
developed for a specific facility while modal plans focus on a specific mode. Facility plans focus on
the development of a specific facility such a seaport, airport, and transit facility. Commodity or
industry specific plans focus on transport issues and demand of a specific industry or activity such
as the Cattle Haulage Study and Sugar Industry Transport Study.

Integrated transport planning can also occur across or between these different levels (eg a long-
distance corridor study that spans across a number of regions).
The interrelationships between the different levels of planning, levels of government, and sectors
are critical in addressing the transport needs of Queensland. Therefore, integration across levels of
planning, levels of government and with other sectors is an integral part of successful integrated
transport planning.

3.4.2 An integrated transport planning process for Queensland

The Queensland government recognised the need for an integrated planning approach to ensure
consistency with its overarching policies and priorities. In 1999 Queensland Transport developed
the Draft Integrated Regional Transport Planning Principles. The need for a more comprehensive
set of principles across all levels of planning and a consistent approach to integrated transport
planning resulted in the development of the Integrated Transport Planning Framework (ITPF) for
Queensland in 2002. The development of the Framework is a collaborative approach between the
Queensland Departments of Transport and Main Roads and Local Government Association.

Some key issues identified with integrated transport planning in Queensland:

! Integrated transport plans need to be both aspirational (reflecting community desires) and
financially responsible. It needs to consider the needs of communities as well as the ability of
government to deliver a transport infrastructure and services.
! Planning needs to consider sustainable and responsive transport options. Transport planning can
no longer rely on linear predictions but needs to consider a range of possible futures.
! Planning for a future transport system needs to consider accountability. Targets should be set
against which the system’s performance can be measured. They should be optimistic but also
realistic.
! Transport plans needs to be dynamic. In order for plans to be ‘living’ documents they need to
include processes to deal with emerging issues and opportunities (Louw, 2002).

A generic, systematic approach was developed (draft) for integrated transport planning to achieve
good transport system outcomes.

The process can broadly be divided into five core steps:

! Initiate planning
! Analyse transport system
! Analyse options
! Develop preferred option
! Implement option.

In addition to the five core steps there are two iterative processes:
! Engaging and building partnerships with key stakeholders and the community
! Monitoring and review of the integrated transport planning process and the transport system.

The process can be applied to transport planning of:

! Different types of planning; such as strategic planning, development planning and operational
planning
! Different levels; such as state, regional, local and route or site
! Different areas; such as urban, rural or remote areas.

3.5 The Capricornia Integrated Regional Transport Plan

3.5.1 Background
The development of the Capricornia Integrated Transport Plan (CapIRTP) parallel to the ITPF
provided an opportunity to incorporate and test the suggested approach to integrated transport
planning in Queensland.
The CapIRTP study area incorporates the local government areas of Rockhampton City and
Livingstone, Fitzroy and Mount Morgan Shires, all located in the central region of Queensland.

Population growth in the study area has generally been low apart from along the Capricorn Coast.
Like the rest of Australia the study area shows an aging population.

Car ownership has increased in the area since the 1996 census. About 90% of all households own
cars. This represents an increase of 2% since the 1996 census. The level of car ownership reflects
the proportional mode choice for trips to work. Almost 85% of all trips to work are by car. There
has been a decrease in walking, cycling and use of public transport since 1996 census.

The CapIRTP includes a vision statement, guiding principles, planning assumptions and a range of
actions plans. The vision for the CapIRTP study area provides for a ‘A high quality, safe and
efficient transport system for the CapIRTP study area that is responsive towards meeting regional
growth up to 2030’.

The CapIRTP includes planning assumptions based on the key drivers in the region such as
! Population distribution and growth
! Economic development and employment
! Land use development
! Transport providers, regulatory environment and funding.

The CapIRTP focus on achievable outcomes required to deliver sustainable transport for the
CapIRTP study area. The plan includes principles to guide future transport relating to
! Integrated transport planning
! Economic efficiency and growth
! Environmentally sustainable
! Equity, employment and social justice.

The project was managed by a steering committee and developed by a technical committee
consisting of key stakeholders. Community involvement was paramount in the development of the
plan.

3.5.2 New directions for CapIRTP

The need to develop a ‘responsive’ transport system that necessitated investigations into futures
other than that derived from past trends.

The two major challenges faced included:

! how to get stakeholder buy-in for the process. This is especially difficult given the
understandably short term focus of many of the stakeholders; and
! how to actually apply the scenarios in ways that added value to the planning exercise (Louw and
Mailloux, 2003).

The first step in the process was to convince local and state government stakeholders about the
value of scenario planning in the transport planning process. This was achieved in two ways: firstly,
by making the stakeholders aware of the uncertainty of future industrial development and how they
could not predict future transport demand and secondly by showing how scenario planning acts as a
strategic risk management tool for managing just this kind of risk.

The CapIRTP includes targets for each mode of travel. Targets were set for various travel demand
measures. These targets were based on a broad analysis of the current state of the transport system
and past trends. The targets were realistic and agreed by key stakeholders.
The plan includes a range of actions. The actions can be divided into three broad categories:
! Those aligning with community aspirations
! Those required to attain a suitable level of service for the transport system
! Those that can realistically be delivered within the context of available funding.

The CapIRTP actions include the necessary processes to ensure ongoing monitoring and review of
the transport system and the plan itself. It proposes an implementation committee to oversee
implementation and monitoring of the plan.

4. CONCLUSION

Changes in key transport system drivers have altered the way in which we conduct integrated
transport planning. The focus is on the delivery of sustainable transport outcomes rather that
transport outputs. The integrated transport planning process needs to be holistic, involve all
stakeholders and applicable for all levels of planning. To ensure consistent and good practice,
guidelines need to be developed. These guidelines need to be consistent with government priorities
and policies.

Queensland government realised the need for a compressive framework for integrated transport
planning. Development of the framework is a collaborative approach that includes both transport
and land use planning agencies. The framework broadly provides an overview of possible outcomes
for the transport system and planning. It also provides principles to ensure delivery of these
outcomes. The planning process included in the framework provides for a good practice approach to
integrated transport planning.

Not only has the suggested planning process been benchmarked against those in other states and
internationally but also tested in current transport planning processes in Queensland. Key changes
were introduced in the CapIRTP process. The changes provided those involved not only with
direction but a transparent process and an improved understanding of the transport system as a
whole.

5. REFERENCES

[1] IIEC, 1996. Integrated Transport Planning. International Institute for Energy Conservation
Publication.
[2] Louw, J, 2002. Integrated transport planning: past, present and future. IEAust Regional
Transport Challenges in Central Queensland Conference.
[3] Louw, J and Mailloux, M, 2003. Using scenarios in regional transport planning. ARRB
conference.
[4] May, AD, 1991. Integrated transport strategies: a new approach to urban transport policy
formulation in the U.K. Institute for Transport Studies, Transport Reviews, Vol. 11, No. 2,
pp.223-247.
[5] OECD, 1997. Towards Sustainable Transport. The Vancouver Conference, OECD
Publications, Paris.
[6] Queensland Transport Strategic Plan 2001 – 2005, p12.
[7] Westerman, HL, 1998. Cities for Tomorrow: Integrating land use, transport and the
environment. Austroads publication.
 INTEGRATED TRANSPORT PLANNING:
A QUEENSLAND EXPERIENCE

Louw, J.

Queensland Transport.

Biography

Johan Louw is the Regional Manager Integrated Transport Planning for Central Queensland. He is
the chairperson of Mackay and Gladstone transport implementation committees and Project
Manager of the Integrated Transport Planning Framework for Queensland. He is a leading authority
in the area of scenario planning in Australia.

Johan plays a leading role in promoting improved integrated transport planning practice at Central
Queensland University. He is currently nominated for the Queensland State Achievement and
Excellence Awards for his work on scenario planning. He also serves on various development
boards.

Johan has also held the roles of Director (Regional Transport Planning) and Regional Director.